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Investigating Cowichan River Collaborative Salmon Management Institutions: the Cowichan Harvest Roundtable and the Traditional Cowichan Fish Weir

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Investigating Cowichan River Collaborative Salmon Management Institutions: the Cowichan Harvest Roundtable and the Traditional Cowichan Fish Weir Investigating Cowichan River Collaborative Salmon Management Institutions: The Cowichan Harvest Roundtable and the Traditional Cowichan Fish Weir by Chelsea J. Dale Department of Environment and Sustainability, University of Saskatchewan, Saskatoon June 2012 A thesis submitted to the University of Saskatchewan in partial fulfilment of the requirements of the degree of Master's of Environment and Sustainability Copyright Chelsea J. Dale & Cowichan Tribes Department of Lands and Governance, 2012 ABSTRACT The structure of fisheries management institutions is changing all over the world, due in part to issues of sustainability related to exhaustion of resources, fiscal responsibilities, and the exercising of Aboriginal rights to access subsistence and commercial fisheries. As a result of direct action and successful legal challenges, coupled by the ongoing negotiation of modern treaties, changes in the way authority is exercised over fisheries management is occurring and co-management arrangements are being formed between Aboriginal and non-Aboriginal parties. While the study of co-management arrangements is relatively recent, much has been written about their potential to manage fisheries in a sustainable manner. Located on south-eastern Vancouver Island, British Columbia, the Cowichan Valley is the historical homeland of the Cowichan Mustimuhw (people). The Cowichan Mustimuhw once controlled an elaborate salmon fishery on the Cowichan River by way of their historical fish weir. Years of conflict between Cowichan Tribes and the federal Department of Fisheries and Oceans (DFO) over control of the historical weir led to a significant reduction in Cowichan Mustimuhw control over their historical fishery. In 2008, the Cowichan Tribes Fish Committee (representing the interests of Cowichan members) re-vitalized the historical weir for use as a sustainable salmon management institution. The revitalized weir, and, in recent years, the multi-stakeholder Cowichan Harvest Roundtable have emerged as collaborative salmon management institutions designed to sustainably manage Cowichan River salmon harvests. While there is a body of literature devoted to the history of fisheries-related interactions between the Cowichan Tribes and DFO, there is little literature describing the Cowichan Harvest Roundtable and its role as a locally-based, collaborative salmon management institution. Through analyzing the historical Cowichan fish weir and the Cowichan Harvest Roundtable, this research will assess the efficacy of both as sustainable salmon management institutions, and explore the extent to which assertion and re-assertion of authority by the Cowichan Harvest Roundtable and Cowichan Tribes Fish Committee has occurred over the management of the fishery. i The methodology for this research includes a combination of semi-structured interviews with both past and present members of the Cowichan Harvest Roundtable and Cowichan Tribes Fish Committee, and participant observation. This research provides a case study of the historical fishing weir and how it has contributed to Western management regimes, and assesses the efficacy of the Cowichan Harvest Roundtable in managing the Cowichan River salmon fishery in a sustainable manner. It is intended that this study will provide valuable information regarding Aboriginal-non-Aboriginal and community-based collaborative fisheries management institutions that can be applied to other case studies both nationally and internationally. ii Acknowledgements This project is dedicated to the residents of the Cowichan Valley, the Cowichan Mustimuhw, and non-native fishers dependent upon the health and well-being of the Cowichan River salmon runs. Thank you to the countless citizens who dedicate their time and energy to protecting this invaluable ecosystem. This study would not have been possible without the enthusiastic participation of the members of the Cowichan Tribes Fish Committee, and the Cowichan Harvest Roundtable. Special thanks to Wayne Paige Sr., Cheri Ayers, Tim Kulchyski, and Tom Rutherford for their support and guidance throughout the research process. Many hours were spent conversing over various details of this thesis. Thank you to my parents for their unconditional love and support. You have championed me every step of the way. To my love, Sean, thank you for your encouraging words and for standing by me throughout the entire process. Special thanks to the patrons of Speaker's Corner at the Black Swan Pub for your kind words, financial support and friendship throughout the past few years. Many, many thanks to Larry George for being the visionary behind this project. Last but not least, thanks to Dr.s' David Natcher, Keith Carlson, and Doug Clark for your support and academic guidance; it has truly been a pleasure working with you all. Huy' ch' qa. iii Table of Contents Abstract............................................................................................................................. i Acknowledgements........................................................................................................... iii 1.0 Introduction................................................................................................. 1 1.1 Introduction............................................................................................................. 1 1.2 Thesis Objectives................................................................................................... 4 1.3 Thesis Organization................................................................................................. 5 2.0 The Cowichan Mustimuhw.......................................................................... 7 2.1 Introduction............................................................................................................. 7 2.2 European (Hwunitum') Settlement........................................................................ 10 3.0 Literature Review....................................................................................... 12 3.1 Introduction........................................................................................................... 12 3.2 Traditional Ecological Knowledge and Fisheries Management............................ 14 3.21 Fisheries Management Among the Alaskan Tlingit and the British Columbian Gitxaala................................................................................................................. 16 3.22 A Role for TEK in British Columbia Fisheries..................................................... 17 3.3 Fisheries Co-Management..................................................................................... 18 3.4 International Co-Management Case Studies......................................................... 23 3.5 Canadian Co-Management Case Studies.............................................................. 24 3.6 Criticisms of Co-Management and TEK............................................................... 26 4.0 Research Methodology............................................................................... 28 4.1 Introduction........................................................................................................... 28 4.2 Participant Observation......................................................................................... 28 4.3 Semi-Structured Interviews................................................................................... 30 4.4 Interview Logistics................................................................................................ 30 4.5 Interview Design and Analysis.............................................................................. 31 4.6 Study Limitations.................................................................................................. 31 4.7 Ethical Considerations........................................................................................... 33 5.0 The Cowichan Harvest Roundtable.......................................................... 34 5.1 Introduction.......................................................................................................... 34 5.2 Background........................................................................................................... 34 5.3 Inception of the Cowichan Harvest Roundtable................................................... 36 5.4 Composition of the Cowichan Harvest Roundtable and Terms of Reference....... 38 5.5 Interview Data and Results................................................................................... 40 5.51 Perceptions of Co-Management................................................................ 40 5.52 Co-Management as a Continuum.............................................................. 44 5.53 Fisheries Moratorium: A Possible Solution?............................................. 57 5.6 Conclusion............................................................................................................. 61 iv 6.0 Salmon 'Management' Among the Cowichan First Nation.................... 64 6.1 Introduction.…...................................................................................................... 64 6.11 The Cowichan Fishing Weir..................................................................... 64 6.12 Importance of the Central Coast Salish Fishing Weir.............................. 67 6.13 Historical Locations and Types of Weirs on the Cowichan River............. 67 6.14 Ownership, Control, and Access to Resources.........................................
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