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Seeking Certainty: a Political Ecology of Shellfish Aquaculture Expansion on the West Coast of Vancouver Island, British Columbia

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Seeking Certainty: a Political Ecology of Shellfish Aquaculture Expansion on the West Coast of Vancouver Island, British Columbia SEEKING CERTAINTY: A POLITICAL ECOLOGY OF SHELLFISH AQUACULTURE EXPANSION ON THE WEST COAST OF VANCOUVER ISLAND, BRITISH COLUMBIA by Jennifer J. Silver Master of Arts, The University of Western Ontario 2004 Bachelor of Arts, Mount Alison University 2002 DISSERTATION SUBMITTED IN PARTIAL FULFILLMENT OF THE REQUIREMENTS FOR THE DEGREE OF DOCTOR OF PHILOSOPHY In the School of Resource and Environmental Management © Jennifer J. Silver 2010 SIMON FRASER UNIVERSITY Summer 2010 All rights reserved. However, in accordance with the Copyright Act of Canada, this work may be reproduced, without authorization, under the conditions for Fair Dealing. Therefore, limited reproduction of this work for the purposes of private study, research, criticism, review and news reporting is likely to be in accordance with the law, particularly if cited appropriately. Declaration of Partial Copyright Licence The author, whose copyright is declared on the title page of this work, has granted to Simon Fraser University the right to lend this thesis, project or extended essay to users of the Simon Fraser University Library, and to make partial or single copies only for such users or in response to a request from the library of any other university, or other educational institution, on its own behalf or for one of its users. The author has further granted permission to Simon Fraser University to keep or make a digital copy for use in its circulating collection (currently available to the public at the “Institutional Repository” link of the SFU Library website <www.lib.sfu.ca> at: <http://ir.lib.sfu.ca/handle/1892/112>) and, without changing the content, to translate the thesis/project or extended essays, if technically possible, to any medium or format for the purpose of preservation of the digital work. The author has further agreed that permission for multiple copying of this work for scholarly purposes may be granted by either the author or the Dean of Graduate Studies. It is understood that copying or publication of this work for financial gain shall not be allowed without the author’s written permission. Permission for public performance, or limited permission for private scholarly use, of any multimedia materials forming part of this work, may have been granted by the author. This information may be found on the separately catalogued multimedia material and in the signed Partial Copyright Licence. While licensing SFU to permit the above uses, the author retains copyright in the thesis, project or extended essays, including the right to change the work for subsequent purposes, including editing and publishing the work in whole or in part, and licensing other parties, as the author may desire. The original Partial Copyright Licence attesting to these terms, and signed by this author, may be found in the original bound copy of this work, retained in the Simon Fraser University Archive. Simon Fraser University Library Burnaby, BC, Canada Last revision: Spring 09 STATEMENT OF ETHICS APPROVAL The author, whose name appears on the title page of this work, has obtained, for the research described in this work, either: (a) Human research ethics approval from the Simon Fraser University Office of Research Ethics, or (b) Advance approval of the animal care protocol from the University Animal Care Committee of Simon Fraser University; or has conducted the research (c) as a co-investigator, collaborator or research assistant in a research project approved in advance, or (d) as a member of a course approved in advance for minimal risk human research, by the Office of Research Ethics. A copy of the approval letter has been filed at the Theses Office of the University Library at the time of submission of this thesis or project. The original application for approval and letter of approval are filed with the relevant offices. Inquiries may be directed to those authorities. Simon Fraser University Library Simon Fraser University Burnaby, BC, Canada Last update: Spring 2010 ABSTRACT This dissertation documents the expansion of private access ocean tenures for shellfish aquaculture into the territory of the Nuu-chah-nulth First Nations on the West Coast of Vancouver Island, in British Columbia, Canada. The research illustrates how treaty making, widely promoted as a path to justice and sovereignty for Aboriginal peoples, encouraged Nuu-chah-nulth participation in the nascent shellfish aquaculture industry and facilitated the expansion of tenures into Nuu-chah-nulth territory. The findings identify the potential that interventions for economic development have to create uncertainties for non-industrial resource use, and to exacerbate vulnerability in Aboriginal communities. The work also elaborates on the dynamics of politics and power in treaty making and Aboriginal community economic development in British Columbia, and invites critical reflection on contemporary approaches to Aboriginal relations in the province. Informed by literatures regarding governance and neoliberalism, the dissertation is built around a case study of a shellfish aquaculture venture that is owned and operated by one Nuu-chah-nulth First Nation, the ka:’yu:’k’t’h/ che:k:tles7et’h’. Facilitated by treaty-related mechanisms, the venture arose in the year 2000 and has faced difficulties in achieving profitability. In building and contextualizing the case, the dissertation: (1) highlights the diverse values that Nuu-chah-nulth peoples draw from the harvest of wild-growing shellfish; (2) iii presents a history of the shellfish aquaculture industry and the effort to place more ocean-based tenures in the province; (3) questions calculations regarding the economic potential of shellfish aquaculture in BC; (4) conveys the role of treaty-related instruments and experts in the ka:’yu:’k’t’h/che:k:tles7et’h’ venture; and, (5) identifies institutional change resulting from 1998 Provincial Shellfish Development Initiative. The research is qualitative and employs both structural and discursive analysis. Ethnographic data was collected in ka:’yu:’k’t’h/che:k:tles7et’h’ territory during several field stays 2005-2008. Public discourse, testimonies to Federal and Provincial committees, policy and treaty documents, and business plans are also central. I conclude that the just and inclusive management of ocean space in British Columbia requires ongoing research regarding the allocation and retention of ocean-based tenures in Aboriginal communities, and the application of cost- benefit analysis that accurately accounts for local ecological, socio-cultural, and economic realities in decisions about the use of coastal resources. Keywords: political ecology, aquaculture, British Columbia, Aboriginal peoples, treaty, governance, neoliberalism iv DEDICATION For my elders, ~Ruth and Gordon & Margaret and Henry~ This work is also inspired by a wonderful network of family, friends and mentors. I am blessed that so many of you fit in to more than one of these categories, and I would not want it any other way. v ACKNOWLEDGEMENTS Completing this research simply would not have been possible without my family and closest friends. For their support, I would like to express my love and deepest gratitude for Janice, Kenny, Joyce, and Christopher. Experiencing the highs and lows of life and doctoral studies alongside of my partner, Christopher, has been particularly wonderful. To my friends near and far, just knowing that you are there has provided me with significant energy and strength. Thank-you, Lisa, Michelle, Tina, Zoë, Noella, James, Lisa, Belinda, Jenn (special thanks for the maps in Appendix B!), Robyn, Tara, Steve, Jordan, Adam, Scott, and Mel. Truly, it is impossible for me to name everyone who I am personally and professionally indebted to; the dissertation is an artifact of five years work, but reflects a lifetime of experiences and opportunities. Generally, I am grateful to everyone who has believed in me and offered me chances to grow. In particular, I appreciate those who have offered me time, opinions and insight over the last five years. Several organizations and individuals warrant special acknowledgement here. Any errors or omissions in the dissertation remain mine alone. Foremost, I would like to thank the people of Kyuquot. I am grateful that you have allowed me in your territory, and in some cases, into your offices and homes. I will fondly remember the talking, working, learning, eating, and laughing vi that I experienced during my visits to Vancouver Island. Kyuquot has become very special to me, and although I am not sure I will ever be able to pay back what I have personally gained, I will continue to try. In particular, I want to acknowledge Natalie, Henry sr., Henry jr., Priscilla, Lana, Ariel, Charles, Aaron, Kevin, Jeff, Virginia, Archie, Val, Rob, Len, the late John, Danny, Keith, and Jason. I find the interweaving of intellectual, social, professional, and personal in a university setting strongly motivating. In this regard, I owe thanks to those who have simultaneously contributed to my intellectual development and helped me keep it all in perspective during my time at SFU. I am grateful to my senior supervisor, Dr. Evelyn Pinkerton, for challenging me with diverse literatures, connecting me with a wonderful place to do research, and seeing me through to completion. My supervisory committee members, Drs. Duncan Knowler and Janet Sturgeon, have been strong yet compassionate sounding boards, and I am deeply appreciative. I am also thankful for Ken, Wolfgang, Anne, Karen, Andy, Randall, and Alison who have shown consistent and supportive interest in my work and career path. Many thanks also go to the administrative staff, Bev, Iris, Sarah, Elissa and Brenda, for their patience and assistance with numerous details. I am also grateful for the collection of grad students who are now a lovely network of colleagues and friends. Thank-you Aaron, Alex, Andrew, Arianne, Ashleen, Caroline, Dale, Jess F., Matt G., Matt J., Pier, Tanja, Tyler, and Vicki. Finally, I would like to thank Drs. Maureen Reed and Hannah Wittman, for agreeing to be thesis examiners.
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