Fisheries and Oceans Canada (DFO), the federal department responsible for
managing the seal hunt, introduced a five-year management plan in 2006,
Atlantic Seal Hunt – 2006-2010 Management Plan.
As part of this management plan, the Government of Canada is committed to
taking a precautionary management approach, with quotas that are set at
levels that ensure the health and abundance of seal herds. Current estimates
suggest there are more than 5.5 million harp seals just off Canada’s shores.
Highlighting the government’s commitment to a humane, sustainable and
economically viable commercial seal hunt, DFO has implemented several new
management measures in 2008. These measures included the implementation of a
three-step process, as a condition of licence, to hunt seals; accelerating
the timing of the harp seal population survey to early 2008 instead of 2009
as originally planned; and the appointment of an independent reviewer to
assess regional shares of the harp seal total allowable catch (TAC) in the
Gulf of St. Lawrence.
Seals are a valuable natural resource, and the seal hunt is an economic
mainstay for numerous rural communities in Atlantic Canada, Quebec and the
North. As a time-honoured tradition, Canada’s seal hunt supports many
coastal families who can derive as much as 35% of their annual income from
the commercial seal hunt.
In 2003, DFO adopted an Objective-based Fisheries Management (OBFM)
approach which incorporates the Precautionary Approach to management. This
approach to the management of seals is still being used.
The Precautionary Approach attempts to define management objectives,
establishes limits for conservation, and identifies specific management
actions if these limits are reached. Key components include reference points
and specific management actions to be established to aid decision makers in
managing the resource.
OBFM uses reference points and control rules to establish management
measures for a fishery. Reference points are pre-established population
levels that trigger specific management actions when they are reached.
Control rules are specific, pre-established actions that are triggered at
certain reference points. Control rules include measures such as lower TACs,
changes to season length and area closures. Reference points are set at 70%,
50% and 30%, of the maximum observed size of the herd (current estimate at
5.5 million).
In 2006, Fisheries and Oceans Canada (DFO) introduced a five-year
management plan, Atlantic Seal Hunt – 2006-2010 Management Plan.
Within this management plan DFO establishes the total allowable catch
(TAC) on an annual basis, to allow for adjustments to changing environmental
conditions and changes in harvest levels in Arctic Canada and Greenland. As
in the previous management plan, 2003-2005, OBFM and the Precautionary
Approach are being applied to the management of harp seals from 2006-2010.
This demonstrates Canada’s commitment to conservation and sustainability in
the harp seal hunt.
The hunting of harp seal pups (whitecoats) has been prohibited in
Canada since 1987.
A one-year TAC of 275,000 harp seals was set for 2008, out of a herd of
roughly 5.5 million. This included allocations of 2,000 seals for personal
use, 4,950 for Aboriginal initiatives and a carry forward of 16,186 seals
for those fleets who did not capture their quota from 2007. Once the carry
forward was deducted, existing sharing arrangements remained in place, with
the Front (waters north and east of Newfoundland and Labrador) receiving
about 70% of the TAC and about 30% for the Gulf of St. Lawrence.
The hunting of young, hooded seals (bluebacks) has been prohibited in
Canada since 1987.
The annual TAC for hooded seals was set at 8,200 for 2008 for the
Newfoundland and Labrador Front. As in previous years, the hunt remained
closed in the Gulf of St. Lawrence.
The TAC for grey seals for 2008 was 12,000 animals.
New Management Measures for 2008
In 2008, DFO implemented recommendations from a 2005 report by the
Independent Veterinarians Working Group by instituting, as a condition of licence, a refined three-step process for the humane dispatching of seals.
The new process is expected to be formalized into the Marine Mammal
Regulations (MMR) for the 2009 hunt.
Highlighting this government’s commitment to a sustainable commercial
hunt is the Minister of Fisheries and Oceans’ direction to accelerate the
timing of the next harp seal population survey. To ensure DFO makes future
decisions on the most up-to-date science, the Department has already started
its population survey instead of waiting until 2009 as originally planned.
Stable sharing arrangements will allow sealers to focus less on
allocations and more on issues like sustainability and humane practices, and
should take the industry a step closer towards slowing the pace of the hunt.
Since 2006, representatives of sealing interests in the Gulf have discussed
these sharing arrangements and have yet to agree on an appropriate sharing
formula. On February 1, 2008, DFO advised the provinces and territories, as
well as Canada’s sealing industry leadership, that 2008 regional shares
would remain the same as 2007. Minister Loyola Hearn also advised that he
had appointed an independent reviewer, Mr. Pierre-Marcel Desjardins
(Associate Professor of Economics, Université de Moncton), to assess the
regional shares of the harp seal TAC in the Gulf of St. Lawrence. This
assessment will be completed by fall 2008 and provided to Minister Hearn for
consideration in time for the 2009 season.
Canada is committed to conservation and the sustainability of seal
populations, which are a valuable natural resource that is hunted to provide
economic benefits to coastal communities. The seal hunt is a sustainable
activity based on sound conservation principles.
Harp Seals:
When setting quotas for the harp seal hunt, Canada considers many
factors such as ice conditions, pup mortality, natural mortality, incidental
harvest or bycatch, the Greenland and Arctic hunts and commercial harvest
levels.
The Atlantic harp seal population is healthy and abundant; nearly
triple what it was in the 1970s. The current estimated harp seal population
remains stable and healthy at more than 5.5 million animals.
Globally, there are three populations of this abundant species, the
White Sea / Barents Sea populations, the Greenland Sea populations, and the
largest being the Northwest Atlantic stock, found off Canada and western
Greenland.
Hooded Seals:
There are two populations of hooded seals, one in the northeast and one
in the northwest Atlantic.
In a survey conducted in 2005, with results published in 2006, it is
estimated that the pup production from all herds is 120,100 and the total
hooded seal population is 593,500. Annual hooded seal landings have been
extremely low since 1998, usually between 300-400 animal
Grey Seals:
There are two grey seal herds in Atlantic Canada, with the main
breeding concentrations being in the southern Gulf of St. Lawrence and on
Sable Island, Nova Scotia. There is no hunting on Sable Island.
The grey herd seal population is currently estimated to be about
300,000 animals
The Canadian seal hunt is closely monitored and tightly regulated. It is
conducted in a safe and humane manner. Critics of the seal hunt do not put
forward an accurate representation of the facts.
In 2005, an Independent Veterinarians’ Working Group (IVWG) on the
Canadian Harp Seal Hunt was formed to review the Canadian seal hunt, and
contribute to the promotion of animal welfare. The IVWG, consisting of
veterinarians from five countries, stated that “the Canadian harp seal hunt
is professional and highly regulated, and has the potential to serve as a
model to improve humane practice.” The working group made recommendations
based on improving the humaneness of the hunt, and in 2008 DFO acted on
these recommendations to enhance Canada’s humane killing methods.
In consultation with industry ahead of the 2008 hunt, DFO implemented a
third step in the process for the dispatching of seals. In addition to the
existing regulatory requirements to properly strike and check for
unconsciousness, this third step, that of bleeding to ensure death, was
required as a condition of licence for the 2008 hunt and further strengthens
current regulations.
On December 19, 2007, the European Food Safety Authority (EFSA) released
a scientific study of the animal welfare aspects of global seal hunts. The
study was launched at the request of the European Commission (EC), in
response to a 2006 European Parliament declaration calling for a European
Union (EU) wide ban on seal product imports. EFSA’s recommendations uphold
the legitimacy and humaneness of the hunting practices and techniques that
are used, regulated and enforced in Canada’s annual commercial seal hunt.
The Government of Canada acted on the recommendations of the IVWG and
implemented a three-step approach as a condition of licence for the 2008
commercial seal hunt.
DFO licensing policy requires a commercial sealer to work under an
experienced sealer for two years to obtain a professional licence. Sealers
are also encouraged to take a training course on proper hunting techniques,
product preparation and handling. Those taking seals for personal use must
have a hunter’s capability certificate or big game license and attend
mandatory training sessions before a licence can be issued. In 2004, DFO, at
the request of sealers, instituted a freeze on new licences to allow
industry to pursue professionalization, including education and instruction
for new entrants.
Sealers in the Southern and Northern Gulf of St. Lawrence, where about
25% of the hunt occurs, use both rifles and hakapiks while sealers on the
ice floes on the Front (in the waters north and east of Newfoundland), where
75% of the hunt occurs, primarily use rifles. Hakapiks are only used in
about 5-10% of Canada’s commercial seal hunt.
Seal hunting methods have been studied and approved by the
Royal
Commission on Seals and Sealing. The Commission found that the methods used
in hunting seals compare favourably to those used to dispatch any other wild
or domesticated animal. These methods are designed to kill the animal
quickly and humanely.
DFO Fishery Officers monitor the seal hunt to ensure sealers comply with
Canada’s Marine Mammal Regulations (MMR). They conduct surveillance of the
hunt by means of aerial patrols, vessel patrols, dockside inspections of
vessels at landing sites, and inspections at buying and processing
facilities.
Peak seal hunting activity occurs in late March – early April, well after
the whelping closure when the animals are living independently. During this
period, DFO Fishery Officers are deployed to Coast Guard icebreakers and
helicopters to monitor and board sealing vessels. Officers also perform
increased aerial surveillance, as well as in-port inspections on a regular
basis to validate landings data and ensure quota compliance.
There are over 100 Fishery Officers available for deployment to the seal
fishery each year. Although not all of them are deployed at sea each day of
the seal hunt, they perform a variety of duties and are available for peak
periods and for quick deployment as circumstances warrant. DFO’s monitoring
and enforcement is augmented as needed by the Royal Canadian Mounted Police
(RCMP) and the Quebec Provincial Police. The Canadian Coast Guard provides
ship and helicopter support.
The Government of Canada takes infractions seriously, and those who
violate the MMR are prosecuted. In recent years, animal welfare
organizations have participated in the seal hunt as observers. Observer
permits come with certain conditions that must be adhered to under the MMR.
A violation of these conditions under the MMR leads to swift legal action by
DFO.
Sealers who fail to observe humane hunting practices, licence conditions
and catch requirements are also penalized. The consequences of such illegal
actions could include heavy court-imposed fines and the forfeiting of
catches, fishing gear, vessels and licences. From 2002-2007, 180 charges
were laid, resulting in 100 convictions to date. The charges include sealers
and observer infractions and cover all aspects of the seal hunt and
associated activities. With respect to the 2008 seal hunt, there are 59
active investigations regarding potential infractions under the Fisheries
Act and the MMR.
Over the last four years, the number of At-sea Observers steadily rose to
23 in 2007. This added an additional 150 days of monitoring, control and
surveillance activity dedicated to the seal hunt. At-sea Observers are
located on sealing vessels to monitor the hunt, verify catch data, report
violations, ensure that no whitecoats (young harp seals) or bluebacks (young
hooded seals) are hunted, and to ensure that whelping patch closures and
closed times are respected. Sealers co-fund the program, contributing
approximately $90,000 to its operations in 2007.
The commercial seal hunt in Canada is an economic mainstay for coastal
communities across Atlantic Canada, Quebec and the North. Estimates from DFO
and the province of Newfoundland and Labrador (NL), have found that
5,000-6,000 individuals derive income from sealing. This represents
approximately 1 per cent of the total provincial population, and 2 per cent
of the labour force – a substantial number in the context of small, rural
communities.
Although sealing may seem to be a minor industry within the larger
economy, many locally-important industries share this characteristic. For
example, crop production and forestry each account for less than 1 per cent
of Canadian Gross Domestic Product (GDP), but their local economic
importance is undisputable.
A sealer’s income depends on the market value of seal pelts. Though DFO
is not responsible for keeping statistics on current industry markets,
sealers have noted that income derived from sealing can represent up to 35
per cent of their annual income in a good year. This is a substantial amount
considering sealers reside in rural, coastal communities with little or no
employment options.
The markets for seal pelts vary significantly from one year to the next.
In 2006, the landed value of the harp seal hunt was $33 million, with an
average price per pelt of $97, making this the most profitable in memory –
in part due to market demand for pelts, as well as good ice conditions in
seal hunting areas. Comparatively, in 2007, the landed value was $12
million, with an average price per pelt received by sealers of approximately
$55. In 2008, the average price per pelt decreased further was approximately
$33 received by sealers.
Sealing is also important to coastal communities in Atlantic Canada and
the North, for food security and nutrition. From a socio-cultural
perspective the hunt is a way to “demonstrate individual hunting skills and
to express a sense of cultural pride and identity.” (Royal Commission on
Seals and Sealing)
There are other ways in which communities benefit from the seal hunt. All
seal pelts undergo some processing in Canada, thereby creating employment
opportunities in processing facilities. Between 6 and 8 facilities
participate in seal processing, 4 of which are in NL and the remainder in
Quebec.
Other economic activity generated by the seal hunt includes the marketing
of seal oil capsules. The capsule form, rich in Omega-3 acids, are known to
be helpful in preventing and treating hypertension, diabetes, arthritis and
a number of other health problems.
The Government of Canada encourages the fullest possible commercial use
of seals with the emphasis on leather, oil, handicrafts, and in recent
years, meat for human and animal consumption.
