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Page 1 of 17 Final Draft Approved in Principle November 2012
FRASER RIVER FISHERIES
PEACE-MAKERS
A Lower Fraser River Pilot in
“Participant-driven Collaboration, Conflict Resolution, and
Getting Along in the Salmon Fishery”
May 2013
"Conflict in the fishery provides the energy and opportunity to solve problems we all share"
Page 2 of 17 Final Draft Approved in Principle November 2012
PURPOSE OF THIS DOCUME NT
The following terms of reference identify the origins and goals of a
process among Lower Fraser First Nations and the river salmon sport
fishing interests who are looking for ways to get along on the River – the
Fraser River Fisheries Peacemakers. The emerging themes reflect the
areas where they are finding successes from this participant-driven
collaboration. Their following Terms of Reference (TOR) clearly defines
scope and geography of their process and participation, and identifies an
operating structure and guidelines for shared activities into the future.
This Terms of Reference will be reviewed annually at the last meeting of
each fiscal year and improved where needed.
BACKGROUND
In 2009, a serious incident on the Fraser River during the summer
salmon season demonstrated the deteriorating situation on the Fraser
between competing interests in the lower Fraser fishery. A
confrontation between a respected First Nations chief and a boat
containing 2 recreational anglers escalated into violence among
fishermen, and resulted in the discharge of a pellet gun into the face of
the chief. The anglers fled and charges were never laid, but the
confrontation galvanized First Nations and sport fishing leaders into
action. Fortunately cooler heads prevailed and resulted in the beginning
of dialogue seeking solutions to growing conflicts.
These initial informal discussions resulted in the creation of a joint
working group which has met consistently over the past 3 years. Much
of the focus initially was on conflict resolution, but quickly the group
began looking ahead at strategies to avoid conflict in the first place, and
the group created an action plan that looked at proactive ways to “get
along on the river”.
Participants currently include representatives from the major sport
fishing organizations, First Nations and the Lower Fraser Fisheries
Alliance. DFO and other agencies have attended opportunistically and
provided support in various ways to the group. And the meetings have
been facilitated by the Fraser River Salmon Table.
Page 3 of 17 Final Draft Approved in Principle November 2012
Results to date (2009 – 2012)
Peacemakers – a joint working group was established that included
formal and balanced membership involving First Nations and
Recreational fishing representatives to focus on "getting along on the
river". The Fraser River Salmon Table was identified as the independent
facilitator and coordinator of the group; an open dialogue forum was
adopted with regular monthly meetings, and an action plan was agreed
to;
Conflict resolution – In response to growing conflict among
Aboriginal and sport fishers in the lower Fraser River, and realizing that
future conflict is inevitable in the popular lower Fraser River salmon
fishery, a "Conflict Resolution" committee was formed. Procedures to
de-escalate conflicts in the “bud” have been adopted, plans are in place
to assist with communications, and appointed members support efforts
to achieve resolutions by those involved. The intent is to address conflict
preemptively and as it occurs, and attempt to help those involved to
address the root issues. If it appears the conflict may be serious enough
to be considered criminal behavior, refer it to the proper authorities;
River Manners – Developed a brochure and video entitled "River
Manners" which received considerable exposure within the public
domain and by other interests. This brochure and video promoted
respectful cooperation between fishers;
Developing awareness and respectful fisheries – hosted1 a river
fishery tour during the fall FN Economic Opportunity fishery to look at
monitoring and compliance issues (2009). In addition a summer sport
fishery river tour (2010) with regulators and other fishing interests was
organized. All participants talked to fishers seeking their support in
developing safe, orderly and respectful fisheries;
1 Working with the Fraser River Salmon Table and the Integrated Salmon Dialogue Forum
Page 4 of 17 Final Draft Approved in Principle November 2012
Fishery monitoring and catch reporting - Developed a group vision
for building shared confidence in monitoring and catch reporting in the
lower Fraser River (2010), and developed a proposed work plan to
advance first key steps (2011);
Education signage - Finalized education signage which will be
erected the summer of 2012 at prominent locations along the Fraser
River where fishers converge. Topics include respect for each other's
fisheries and awareness of safety concerns within our respective
fisheries;
Safety in the fishery - Initiated and coordinated with the Fraser
Valley Regional District a festival held Aug 11th 2012 at Island 22 in
Chilliwack. This was a unique shared undertaking with participation from
a broad cross section of First Nations and sport fishing groups and
agencies with an interest in Fraser River activities. The event highlights
unique elements of the two fishing cultures as part of the Fraser River
salmon fishing “community”. This public event targeted families
throughout the lower mainland and is seen to play a very significant role
in further cementing relationships between First Nations and the
recreational fishing community;
Fishery-corridor access planning - Led an access planning initiative
that included access mapping, field trips and a business case for
development. The group is partnering in the "Experience the Fraser"
initiative and is identifying potential new recreational camping and boat
launching sites between Mission and Hope. This will help to spread out
the numbers of fishers from both communities of interest, hopefully
resulting in reduced conflict. This could also provide significant economic
opportunity from the sport fishery for First Nations groups and improved
access could lead to more effective "catch monitoring" for both
fisheries. The lack of perceived credible data, or in some cases lack of
coordinated reporting in catch numbers, has resulted in considerable
suspicion of reported catches making meaningful cooperation difficult.
Page 5 of 17 Final Draft Approved in Principle November 2012
TERMS OF REFERENCE
SCOPE OF WORK AND RESPONSIBILITY
The Fraser River Fishery Peacemakers (the Peacemakers) has a primary
interest in reducing conflict among river fisheries of the Fraser
Watershed to achieve a more orderly and well managed fishery over-all.
Early efforts and successes of this work have focused on fisheries for
salmon and sturgeon in the gravel reaches of the Fraser River below
Sawmill Creek and above Mission. Local participation has been drawn
from this area for this purpose. The focus of this area-based group
(Chapter) of Peacemakers is on the lower Fraser River (Vancouver to Yale
– this organization approach parallels the Lower Fraser River Alliance)
structure.
Expanding the scope of the Peacemakers beyond this area would be at
the request and leadership from representatives from other areas. The
role of participants from the Lower Fraser Chapter will be to provide
start-up guidance/support for other chapters with a parallel mandate,
and then to share information on progress/challenges and best practices
among Peacemaking Chapters.
Participants recognize their scope of work and responsibility is limited to
reducing conflict and building upon common interests in the river
fisheries and does not extend to allocation, management advice, or
fishery consultations. For greater clarity, this may include jointly
convening a meeting to share salmon conservation and fishing
knowledge, but would not extend to defining fishing plans that are
responsibilities of many of these same participants in structured
advisory processes, co-management agreements and consultation
forums.
Page 6 of 17 Final Draft Approved in Principle November 2012
PEACEMAKERS OBJECTIVES2
1. Build effective relationships in the fishery - Enhance and maintain
structured relationships with each other as well as with other advisory
groups and organizations within both federal and provincial government
agencies;
2. Intervene and Mediate conflict - Continue and enhance our capacity
to mediate conflict, support local resolutions, and build on our common
interests to improve relations on the river;
3. Cultivate Strategic partnerships - Continue to work with both
interests as well as DFO, RCMP, and Provincial fisheries to improve the
fishery, without interfering with structured bilateral representations
between First Nations or sport fishing organizations and other
governments;
4. Reduce crowding, plan access, and foster stewardship – access
planning to the fisheries to minimize confrontations, improve
stewardship, and support common interests in the fishery;
5. Monitoring, compliance, and catch reporting - Act as facilitator to
foster greater confidence in catch accounting in both fisheries in order
to reduce this source of conflict between fisheries;
6. Communications, education and shared stewardship - Continue to
improve awareness and communications, as well as finding
opportunities to improve the fishery, while developing education and
safety programs to assist all fishers to enjoy it safely.
7. Sharing success - Offer our experience and guidance to other areas
within the Fraser River in particular, and around the Province as
appropriate where conflicts occur. This would be purely on an advisory
basis if requested and to assist similar groups to be formed where it is
useful.
2 From original working group action plan – themes for collaboration
Page 7 of 17 Final Draft Approved in Principle November 2012
PARTICIPATION
Participation in the Lower Fraser Fisheries Peacemakers is free and open
to organizations working together to improve the fishery for everyone.
Our membership is comprised of area First Nations organizations and
leading sport fishing societies.
OUR MEMBERSHIP
Lower Fraser Fisheries Alliance
Fraser Valley Angling Guides Association
BC Wildlife Federation
BC Federation of Driftfishers
OUR OPERATIONAL PARTNERS
We depend upon operational partners who contribute their resources
and time.
Sport fishing organizations include both local and regional
bodies that encourage safe and orderly river fisheries
First Nations, tribal Councils and their organizations in the
fishery participate in conflict intervention and assistance to
achieve local resolution in the fishery, working cooperatively to
promote a peaceful fishery
Fraser River Salmon Table as facilitators/administrative support
Monitoring and Compliance Panel is a resource for organizing
strategic activities defined in policy forums in practical ways on
the river
Pacific Salmon Foundation as a key sponsoring partner
DFO resource management and enforcement staff support
multi-interest problem-solving, and provided insights and
guidance on conflict resolution in the fishery
RCMP assist with conflict resolution/address criminal behavior
BC Government manages sturgeon and steelhead fisheries and
care about traceability of commercial catch and food safety
Fraser Basin Council encourages the Peacemakers efforts
towards sustainable living and resource use
Page 8 of 17 Final Draft Approved in Principle November 2012
ORGANIZATION/ADMINISTRATION
Fraser River Salmon Table – provides independent/non-partisan
facilitation and organization of the Peacemakers meetings and activities,
and serves as an administrative host. Working with fisheries agencies
and resource partners this role is designed to empower the participants
to work together effectively.
An Executive committee made up of designates from the two fisheries
will provide central forum management, administrative over-sight, and
control of any committees. Peacemakers is governed by Committee,
makes decisions by consensus, and takes its lead from its members.
The Lower Fraser Fisheries Peacemakers will provide a regular local
monthly meeting forum to encourage local involvement. Participation in
committees and activities is by appointment through member
organizations. Regular meetings are open to the public.
Thematic committees (like the Conflict Resolution Committee) will be
organized from time to time to lead specific projects (i.e. Safety, Access,
etc).
REMUNERATION FOR EXPENSES
The Peacemakers are a mixture of volunteers from sport fishing
organizations and designates from First Nations sponsored by their host
organizations. When available, grants and contributions from
operational partners may support costs of project participants.
As resources permit, individuals involved in Peacemaker activities may
receive remuneration for costs associated with travel or expenses
incurred during the performance of their duties or in the pursuit of
recommended training.
Financial administration and fiscal accountability for Peacemakers is
managed by the Salmon Table.
Page 9 of 17 Final Draft Approved in Principle November 2012
COMMUNICATIONS AND RECORDS
Designates from Sport Fishing and First Nations organizations are
accountable back to their host organizations.
A Communications Committee is responsible for coordinating
communications with public media. Summary notes from meetings and
reports on projects will be provided to the Peacemakers from each
meeting and then archived.
A Website is managed to provide a connection to the Peacemakers and
may link like-forums in other areas and provide the readily-accessible
meeting archive.
Topical workshops, thematic events, and field trips may be jointly
convened from time-to-time at the behest of the Peacemakers.
TRAINING AND CAPACITY-BUILDING
The Peacemakers may organize training and provide other professional
support from time to time to ensure that the Peacemakers forum and/or
individual participants have the skills and exposure to conflict
resolution/peacemaking tools to function well in their role.
New members to the Conflict Resolution Committee will be
recommended for training and the administrative host will work with
the new members to arrange for training as time and funding permits.
Page 10 of 17 Final Draft Approved in Principle November 2012
Conflict Resolution
Committee (CRC) Who We Are
The Conflict Resolution Committee (the CRC) are volunteers drawn from the
Peacemakers to intervene when conflict arises, engage in fact finding and
facilitate management of orderly communications when conflicts arise in the
fishery, with the goal of improving safety and security in the fishery for
everyone. The CRC reports to the Peacemakers Forum.
The CRC share the common objective of Peacemaking actions – that is
communicating effectively with each other and their respective public
interest, and as appropriate with those involved in conflict as well as the
responsible agencies to help those most affected by the outcomes of conflict
on the river to achieve constructive conclusions, if not resolution.
PRIMARY FUNCTION The primary function of the CRC is to work together in the event of a conflict
on the river to facilitate informed communications between leaders from
both fisheries and as appropriate those involved to achieve peace on the
river.
PARTICIPATION The CRC is made up of up to 8 designates, evenly distributed between
Sport Fishing organizations and First Nations in the lower Fraser River, as
well as up to 3 designated contacts made up from DFO’s Conservation
and Protection Service, BC Environment Conservation Officers, and the
RCMP. The CRC will organize, review, and update the CRC membership
list annually and/or as needed to maintain effective participation.
Page 11 of 17 Final Draft Approved in Principle November 2012
CONFLICT RESOLUTION COMMITTEE MEMBERS 3
A current membership list is provided in Appendix 1. The list is drawn
from the Peacemakers members in the following format:
4 Designates of local First Nations, Tribal Council and Nation (coordinated in cooperation with the LFFA)
1 Designate of the BC Wildlife Federation
1 Designate of the BC Federation of Driftfishers
1 Designate of the Fraser Valley Salmon fishing interests
1 Designate of the Fraser Valley Angling Guides Association
EX-OFFICIO (PROPOSED)
A list of ex-officio agency contacts is developed by the CRC co-chairs for
the purposes of communicating matters of suspected illegal or criminal
activity. These are drawn from the following agencies:
DFO C&P
RCMP
MOE Conservation Officers
CO-CHAIRS
Co-chairs will be appointed from First Nations and the sport fishery
interests within the members of the Peacemakers. The CRC Co-chairs are
responsible for organizing and coordinating communications among
members and with the Peacemakers.
RESOURCE AGENCY FOCAL POINTS Enforcement contacts identified for the CRC may participate directly in
the internal referral and information-sharing process at the behest of
the Co-chairs. Referrals to enforcement personnel may be made directly
by a member upon first contact. Referrals to enforcement personnel are
primarily for the purpose of identifying criminal wrong-doing in the
course of investigating a referral, and to suggest an appropriate action 4 ,
3 Alternates may be identified at the discretion of the Committee Co-chairs
4 The purpose of this function is to protect the members of the Peacemakers from repercussions
of their involvement and/or from becoming accessories to criminal wrong-doing. Members may be called as witnesses in prosecutions that may arise from information obtained in the course of the Peacemakers work.
Page 12 of 17 Final Draft Approved in Principle November 2012
and secondarily for contributing advice and skilled support in conflict
resolution.
LIABILITY OF MEMBERS It is the responsibility of all CRC to consider criminal wrong-doing in the
course of a referral. It is recommended that if in the course of reviewing
a referral the CRC suspects criminal wrong-doing, that the matter be
referred immediately to the designated enforcement personnel. A
Committee member with information pertaining to suspected criminal
wrong-doing may be required to attend court proceedings to give
evidence and failing to do so may constitute an offense in-itself.5
QUALIFICATIONS
Qualifications for members include both an understanding and interest
in the river fishery and a direct connection to one of the identified
interests in the river fishery. Preference is given to participants that have
completed Peacemakers Training.
Acceptance to a position on the CRC means the individual is able to
receive primary referrals in the event of a conflict in the River fishery
and is then able to communicate effectively on matters with the
appropriate representatives of that interest, and to communicate
among other members of the CRC.
REFERRALS – WHAT TO DO WHEN CONFLICT ERUPTS
Most conflicts in the river salmon fishery are easily solved when people
fish safely, care about the salmon and the environment, and observe
common river manners. However, when fishers in conflict need help,
they can e-mail riverpeacemaker@gmail.com which is received by the
Co-chairs who are tasked with communicating intervention plans with
the rest of the CRC members and/or as appropriate with responsible
agencies.
Matters of illegal fishing or criminal behavior should not be reported to
Peacemaker’s CRC and is referred directly to the RCMP, Conservation or
Fisheries Officers.
5 This should be reviewed by enforcement agencies for accuracy and clarity to Peacemakers
Page 13 of 17 Final Draft Approved in Principle November 2012
RESPONSIBILITIES
Members of the CRC will share and review available information referred to
them about a conflict in the fishery in a timely way to determine the nature
and circumstances of a conflict and recommend actions. Upon consensus of
the CRC, their appointed co-chairs may communicate a report to the
Peacemakers forum and their respective interests. If consensus cannot be
reached they will report to the Peacemakers forum.
Members of the CRC may need to consult with those involved and/or the
appropriate First Nations and Sport Fishing Community leaders to improve
their understanding of a conflict in advance of providing a full report.
It is the primary obligation of members of the CRC to communicate in a
timely and effective way with other members of the group. If misinformation
and delay can add to the tension and atmosphere of conflict on the river
between interests, then attentiveness to timely communications can aid in
reducing tensions and the atmosphere of conflict.
From time to time the CRC may provide advice/guidance to their respective
organizations, share conflict resolution tools, and may proactively organize
public information and communications as a group aimed at strategically
reducing public tensions that may speed-up resolution, and improve safety
and security in the fishery for everyone.
ACCOUNTABILITY , REPORTING AND CHAIRPERSON
The CRC is accountable to the Peacemakers. Communications of the
CRC will be organized by a Chairperson appointed from among the
members. The Co-chairs of the CRC will be called-upon during regular
monthly meetings of the Peacemakers to lead a report on the nature
and scope of referrals and progress.
Reports will be presented by the Co-chairs of the CRC at regular
meetings of the Peacemakers. A summary briefing note will be prepared
on each referral and provided for the records of the Peacemakers upon
conclusion.
Page 14 of 17 Final Draft Approved in Principle November 2012
GUIDELINES FOR FRASER RIVER FISHERIES
CONFLICT RESOLUTION REFERRALS
1. Referral calls to the Conflict Resolution Committee (CRC) may first come
from or to organization/Community members, a responsible agency6, or
from other members who are on Peacemakers list when a conflict arises in
the fishery.
2. The first person contacted in a referral is responsible to initiate
contact with the CRC co-chairs and to work with the co-chairs to inform
other members.
3. Referral information and communications among CRC members is
only shared among the Committee to protect the privacy of members, and
where agreed, with the responsible agency designates to protect the privacy
of the individuals involved. Individuals may be required by law to share
information with responsible enforcement personnel if they become aware
of, or strongly suspect criminal behaviour. Suspected criminal behaviour
should be referred to the CRC co-chairs for determination and if appropriate
referred to the designated authority lead and reported to the Peacemakers
of the status of the referral;
4. The first objective for the CRC is to collect information on the nature of
the conflict and those involved, and if necessary verifying that information
to first ensure clarity and accuracy. Upon consensus on the scope, nature
and involvement in the conflict, the report should be shared with the
Peacemakers and with the appropriate representatives inside the Sport
Fishing organizations and First Nations Communities.
5. The CRC Co-chairs will report to the Peacemakers on the nature and
scope of the problem, ensuring that the report is based on the most
accurate and current information available, and only once agreement on the
nature of the conflict has been reached with the rest of the CRC;
6 A referral process among responsible agencies is proposed in cooperation with Observe,
Record, Report (ORR), Report all Poachers and Polluters (RAPP), and”911 Emergency services”,
Page 15 of 17 Final Draft Approved in Principle November 2012
6. The CRC may also provide strategic advice and insights to the
Peacemakers based on consultations with other CRC members and their
respective organizations/communities as appropriate;
7. The CRC will report incident referrals and communications plans to the
Peacemakers, and may also initiate joint public communications
(responsive - like press statements, or pro-active – like signage on the river)
through public media as appropriate in ways that will contribute to achieving
shared outcomes.
Page 16 of 17 Final Draft Approved in Principle November 2012
Excerpts from the Peacemakers Pamphlet 2012
Page 17 of 17 Final Draft Approved in Principle November 2012
APPENDIX 1: THE CONFLICT RESOLUTION COMMITTEE (2013/14)7
1. Co-Chair: Ernie Crey, Sto:lo Policy Advisor/LFFA Designate (604) 819-7981 2. Co-Chair: Rod Clapton, BC Federation of Driftfishers (604)530-1624 3. Tony Nootebos, Fraser Valley Angling Guides Association (604) 845 0520 4. Ed George, BC Wildlife Federation (604) 328-6281 5. Ken Malloway, FV Aboriginal Fisheries Society (604) 798-3847 6. Don Simpson, Lower Fraser Fisheries Alliance (604) 852-4040 (Ext 24) 7. Kelsey Charlie, Sts’ailes (604) 796-2116 8. Leigh McCracken, BC Federation of Driftfishers (604) 888-5133
Appendix 2: Support for Peacemakers
Sts’ailes (Council Resolution)
LFFA Executive appointment of representative to Peacemakers Meetings and Conflict
Resolution Committee
BC Wildlife Federation (Resolution)
BC Federation of Driftfishers (Decision note, Decision note, 2013))
Sport Fisheries Advisory Board (Motion, 2013)
Fraser Valley Angling Guides Association (Decision note, 2013)
Pacific Salmon Foundation (Decision note)
Chris Vang Fund (Decision note)
RCMP (verbal)
7 Odd number terms renewed in 2013 and even number terms renewed March 31, 2014
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