What If A River Runs Through It? Water Flow As Habitat In The New Fisheries Act

A new definition in Bill C-68, the new Fisheries Act (the "Act"), has the potential to significantly broaden the Act's concept of "fish habitat". As mentioned in a previous article, the Standing Committee on Fisheries and Oceans recommended adding the concept of water flow to the definition of "fish habitat" by inserting the following provision prior to the third reading of the Bill:

Deeming — habitat

(2) For the purposes of this Act, the quantity, timing and quality of the water flow that are necessary to sustain the freshwater or estuarine ecosystems of a fish habitat are deemed to be a fish habitat.

Bill C-68 is currently before the Senate Standing Committee on Fisheries and Oceans, and includes this provision. This article addresses why the above provision was inserted into Bill C-68 and what the implications of this change might be if it remains in Bill C-68 following Senate committee review.

First, the "why". The above provision, which, for the purposes of this article, will be called the "deeming provision", has its genesis in a broader concept known as "environmental flow". The Canadian Science Advisory Secretariat has adopted the below definition, endorsed at the 2007 International River Symposium held in Brisbane Australia:

Environmental flow describes the quantity, quality and timing of water flows required to sustain freshwater ecosystems and the human livelihoods and well-being that depend on these ecosystems.1

A number of witnesses at the committee stage of Bill C-68, advocated for the inclusion of environmental flows somewhere in the Act, including West Coast Environmental Law, Ecojustice, Oceana Canada, and the Tsleil-Waututh.

Notably, though the deeming provision might suggest otherwise, environmental flow does not necessarily require or imply a pristine aquatic ecosystem, devoid of human use. Rather, the concept of environmental flow presumes a variety of uses. As the International Union for the Conservation of Nature notes:

Intuitively, it might seem that all of the natural flow, in its natural pattern of high and low flows, would be needed to maintain a near-pristine ecosystem. Many ecologists believe, however, that some small portion of flow could be removed without measurable degradation of the ecosystem. How much could be removed in this way is more difficult to assess, with estimates ranging between about 65% and 95% of natural flow having to remain, with the natural patter of flow also retained. Once flow...