How are we working together?
The Province is partnering with the First Nations Fisheries Council (FNFC) to advance reconciliation, further the Province’s Declaration Act commitments and implement shared decision making. B.C. and the FNFC entered a Memorandum of Understanding (MOU) in 2019 and updated it in January 2023. The MOU provides a framework for overcoming barriers, coordinating intergovernmental relations, and exploring innovative approaches to support First Nations involvement in the implementation and development of fisheries, aquaculture, water and aquatic habitat policy, management, and initiatives. A joint MOU workplan and budget are determined annually and signed off by the Province and the FNFC executive director.
This collaborative work now focuses on governance collaborations that create an enduring foundation to support multiple strategic initiatives. This includes the Trilateral Salmon Accord (the Accord), co-development of the Coastal Marine Strategy, the First Nations-BC Water Table, and the coordination of the Watershed Security Fund.
The BC Salmon Restoration and Innovation Fund (BC Salmon Fund) is a joint funding program managed by B.C. and Fisheries and Oceans Canada (DFO). The program prioritizes Indigenous participation and knowledge to fund projects that support wild Pacific salmon and the ecosystems that they rely upon.
Are there challenges?
A challenge to the Accord is the fact that the FNFC does not represent all First Nations, including Modern Treaty Nations, within B.C. To overcome this challenge the Accord is open to all First Nations in B.C., with the FNFC taking a convener role to engage and facilitate progress. To reflect the distinct rights, law, legal systems and systems of governance of Modern Treaty Nations, B.C. and DFO committed to maintaining a distinctions-based approach to their relationships that is appropriate for their specific contexts. These opportunities have been emphasized through meetings with the Maa-nulth First Nations, for example, to engage in a manner that suits their system of governance.
Currently, the main risk to the BC Salmon Fund projects is the rising costs during implementation. Tariffs and global financial instability may lead to unexpected cost escalation and threaten project completion. At this time, the BC Salmon Fund team is managing these risks on a case-by-case basis and working to reallocate funds to cover increased costs where possible.
A future risk is the end of the program in March 2026. This has the potential to impact numerous ongoing work that have been funded over a significant time period, including the loss of capacity and expertise in First Nations partners. This funding has been one of the largest and most dedicated funding programs in several decades aimed at furthering work in fisheries, wild salmon recovery and habitat restoration in partnership with First Nations. B.C. has been working to secure an extension of this program in partnership with DFO.
Highlights
The Province signed a Trilateral Salmon Accord with the First FNFC and DFO that commits to restoring salmon habitat and salmon populations. This commitment to collaborative decision making and priority setting is a significant first for trilateral relations.
The BC Salmon Fund has supported a significant number of First Nations and First Nation organizations in their work to restore and enhance salmon populations. Of the 170 projects funded through this fund, 70 (40%) are led by First Nations and Indigenous organizations, and another 26% of projects have significant input through a partnership with a First Nation or Indigenous organization.
Previous years’ progress
Highlights
Development of the trilateral collaboration on salmon with the First Nations Fisheries Council (FNFC) and the federal Department of Fisheries and Oceans (DFO) continues and is building on productive discussions. The FNFC is initiating robust engagement with First Nations in B.C. with the intention of providing information about the initiative and having open communication and dialogue. Part of this dialogue has involved hosting sessions on the trilateral accord at FNFC’s 2024 annual spring assembly and including provincial and federal representatives in discussions with First Nations and their respective organizations. The Province has provided funding to support this work, and FNFC has released a year two annual progress report. The progress report outlines the work completed by FNFC in year two of the trilateral collaboration for salmon initiative. The next steps of the trilateral collaboration on salmon include finalizing a declaration of urgency and a signed trilateral accord. FNFC is working to garner the necessary support from First Nations leadership and determine the appropriate level and type of endorsement for the initiative. More work is required to engage First Nations not directly part of FNFC’s network, including Modern Treaty Nations.
The B.C. Salmon Restoration and Innovation Fund (BCSRIF) has been a successful joint initiative with the federal government, delivering funding to projects that support salmon research and protection. BCSRIF is the main avenue for WLRS to fund salmon habitat restoration work. Currently, 97 projects are coming to an end in March 2024, which will finalize the BCSRIF investment of $142.85 million in phase one of BCSRIF.
In 2022, phase two of BCSRIF was announced with 58 new projects and $86 million in funding committed in December 2023. There are currently no plans for additional intakes for BCSRIF phase two as all funds are allocated to projects already underway or undergoing negotiations. Throughout both phases of BCSRIF, there has been significant involvement of First Nations within projects, with about 40% of projects led by First Nations.
How are we working together?
WLRS consults and engages with FNFC and DFO on a regular basis regarding the trilateral collaboration on salmon. The ministry has an existing MOU and governance structure in place with the FNFC to guide work on joint priorities. In addition, WLRS attends ad-hoc meetings with individual First Nations, Indigenous fisheries organizations (e.g., Lower Fraser Fisheries Alliance, Coastal First Nations, Skeena Fisheries Commission etc.) to engage and discuss opportunities for increased collaboration on salmon recovery initiatives.
FNFC has undertaken tier two engagement and is incorporating the results into the process and structure of a pacific salmon trilateral table. Once finalized, the trilateral accord will be signed by each agency.
Through BCSRIF, 29 projects (40%) of the phase two projects that have been funded are being delivered by First Nations, with partnerships being a key component of many other projects. The projects will be undertaken by proponents between now and March 2026.
As reported under Action 2.07, the Watershed Security Strategy is being co-developed with First Nations partners. To date, outreach to First Nations has included engagement letters, meetings, webinars, workshops and an open invitation for engagement and co-development of the strategy in a way that meets individual needs. This approach will continue as work under Action 2.07 continues. Co-development of the Coastal Marine Strategy and consultation has followed a similar process.
Are there challenges?
The Province, DFO and FNFC continue to work together to discuss the trilateral accord, but no agreement has been finalized to date.
A potential risk to BCSRIF projects is that agreements and negotiations would be unsuccessful before a contribution agreement has been signed, or there would be impacts to the project during the work that precludes the completion of the project, such as the proponent being unable to obtain necessary permits. At this time, no BCSRIF project has been unable to achieve a signed contribution agreement, and future risks are specific to individual projects and proponents.
Agreement has not yet been reached on the full scope of activities to be addressed in the Watershed Security Strategy, and it is unclear if some fundamental aspects within federal jurisdiction (e.g., fisheries management and salmonid enhancement) will be included. This may limit the extent of co-governance advanced within the trilateral accord, and it could raise questions about whether this work will garner sufficient support from First Nations. The initiative will need to ensure all First Nations are provided the opportunity for inclusion in these trilateral salmon discussions. Some First Nations prefer to work independently of the FNFC for matters affecting fish and fisheries, and some Treaty Nations work withing existing Treaty tables and associated committees. B.C. has been clear that all First Nations need equitable engagement and opportunity to participate using a distinctions-based approach to engagement.