Pêches et OcéansCanada

Fisheries and OceansCanada

Halifax Regional Municipality

WORKSHOP #1WORKSHOP #2

CALL FOR ACTION

Preserving the Environmentof Halifax Harbour

Preserving the Environment of Halifax Harbour

Call For Action

Workshop # 1 Workshop # 2

This document is an executive summary of two Workshops held at the Bedford Institute ofOceanography on March 14-15th/2000 and 2001. The workshops were conceived anddeveloped by the staff of the Habitat Management Division of Fisheries and Oceans Canadain partnership with the Halifax Harbour Solutions Project of the Halifax RegionalMunicipality who graciously offered their support by taking active part in the delivery ofthe agendas and by defraying all printing costs. Workshop # 2 was the sequel of thepreliminary workshop (# 1) held one year previous.

Additional Copies of this executive summary, and limited copies of the Proceedings of both workshopsare available from the following address:

Habitat Management Division,Fisheries and Oceans Canada,

1 Challenger Drive, Polaris Bldg. P.O. Box 1006

Dartmouth, Nova Scotia.B2Y 4A2

Phone: 426-8105

The Executive Summary of the proceedings of Workshop #1and #2 “Preserving theEnvironment of Halifax Harbour” is a registered document.

Copyright by Fisheries and Oceans, Canada and Halifax Regional Municipality, 2001

CAT: Fs3-3/2001-1E ISBN: 0-662-30491-8

Printed in Halifax, Nova Scotia2001

Table of Contents

Part 1

Introduction; Workshop organizers

Chair’s summaries – Brian Nicholls- Workshop # 1 Recommendations- Workshop # 2 objectives

Part 2

Summarization of available Knowledge – Dr. Ken Mann“What do we Know and What Do We Need to Know?”

Part 3

The Future of Halifax Harbour – The Editors- Proposed Shared Vision for Halifax Harbour- Summary of Groups Recommendations- Finding a Champion (s) for Halifax Harbour- Concluding Statement

Appendix

A - Workshop # 1 AgendaB - Workshop # 2 AgendaC - The Groups vision statements

The full text of the presentations and discussions of both workshops are published in therespective proceedings of these events.

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Part 1

Introduction: Workshop organizers

It appears reasonable to assume that around1749, when the first white settlers chose toestablish a new town on the Halifax peninsula,the inlet was teaming with life of all sorts, aswere the wild shores around. “….Theharbour itself is full of fish of all kinds…”wrote Cornwall is in his first report to theauthorities at London.

The new town prospered and grew during twoand a half centuries of ever increasingcommerce and industry. The Halifax Inlet1

became one of the great harbours of theworld. It has witnessed the shipping activitiesof two world wars as well as long years ofpeacetime industrialization. Cities and townsdeveloped on its shores, and the overallpopulation has grown beyond the wildestimagination of any 18th century visitor tothese shores.

The Canadian Constitution Act of 1867 gavefree navigation priority over all other useswithin public harbours areas. The ActConfirmed that harbours are the property ofthe federal government in Canada andharbour jurisdiction extends to the seabed andforeshore that are used for shipping activities.In 1927 another Act of parliament created theHalifax Port Corporation to manage andadminister this and other public harbours. Inpresent days thirteen federal and fiveprovincial jurisdictions also regulate theHalifax inlet. Many non-regulatorystakeholders (waterfront developmentcorporations, waste water treatment operators,shipping facilities and land developers) areactively modifying the Harbour watershed, its

shore profile and the biological and physicalcharacteristics of its fresh and saltwaterregime.

Notwithstanding the greatness of its history,the Halifax Harbour in some respects ispresently reduced to a shadow of its formerbeauty. At first glance the water still sparklesin the sun but many coves and shore areasreveal the presence of contamination andpollution. Large volumes of raw or onlypartially treated domestic sewage are presentlyreleased at numerous points in the harbour.The anaerobic sediments are contaminatedwith heavy metals (mercury, lead, zinc,copper and cadmium) and organic pollutants(PCB’s and PAH’s) are present in highconcentrations in some localities.

Much of the shoreline has been bared of itsgreen mantle to make way for industry’sfacilities and for general urbanizationpurposes. Many of the animal species(particularly fish) that once were abundant inthe inlet and its freshwater tributaries havedwindled to un-harvestable levels becausetheir habitats have shrunk as a result of humanactivities. Some species still abound but cannot be safely consumed by humans becausethey are contaminated (i.e. bivalves). Largeareas of rich shoreline habitats have beenburied by in-filling projects to create morewaterfront space for buildings, wharves,warehouses etc.

A surprisingly large fishing effort still occursin all parts of the Halifax Inlet. Lobster is theprincipal species but many fin fish are alsoharvested on an occasional or part time basis.This fishery is a small fraction of the totalprovincial catch but the yield is sufficientlyelevated to attract serious full time fishers. Inthe early 90’s some 70 fishers worked the areaon a part or full time basis which leads to theconclusion that the Halifax Inlet is alive andremains a significant fishing ground.

1 The terms Halifax Inlet and Halifax Harbour as usedthroughout this document are interchangeable; for adefinition of the term harbour (=inlet) applicable to thisinitiative, refer to “Chair’s Summary: Objectives ofWorkshop # 2, which is included in part 1 of thisdocument.

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The citizens of the Halifax RegionalMunicipality, the secondary stake- holders,have a great interest in their harbour as anindustrial development tool. They are alsointerested in the preservation of the greatboating, fishing, whale watching and otherrecreational potential offered by the protectedwaters of the Inlet and the Point Pleasant andMacNabs Island parks. The waterfront itselfattracts countless visitors each year and thisrepresents a significant source of income forthe city in particular and the province ingeneral.

Clearly both the natural beauty and thephysical assets of the Harbour, including theextensive harbour development, constitute asubject of pride and attraction for residentsand visitors to the area. However manyproblems are facing the resource managersand developers in their efforts to harmonizetheir environmental preservation activities.Some of these problems relate to themultiplicity of jurisdictions over the Harbour.Many of the applicable regulations are notknown or are poorly understood. In order toreduce the risk of confusion there is a need to;

1- clarify jurisdictional boundaries (13Federal & 5 Provincial Acts).

2- Elaborate plans for future integration ofmanagement activities.

3- Form Partnerships to undertake certainrestoration activities deemed feasible.

4- Protect and restore surviving wildlifehabitat and restore the aesthetic values to thedegree deemed possible.

The two day workshop of March 2000 wasprimarily to assess the interest of regulatoryand non regulatory agencies in new initiativesfor the restoration and preservation ofenvironmental and aesthetic values of HalifaxHarbour. It was also intended to bring

together those who can most readily bringabout or influence a new climate ofcollaboration concerning such matters. As the Halifax Regional Municipality isentering a time of burgeoning activities, it wasfelt that the moment was opportune to suchinitiative in concurrence with other largeprojects, ongoing or proposed, such as thoseof the Waterfront Development Corporationand the renewed pollution abatement effortsby the Municipal government (HRM’sHarbour Solutions Project).

Workshop #1 in March 2000 resulted in:

1- Improved clarification of jurisdictionalboundaries between regulatory bodies and anagreement in principle to co-operate in theintegration of regulatory functions within theHalifax harbour and its watershed:

2- The confirmation of Halifax Harbour as aliving ecological entity

3- Agreement on the need for the assessmentof the environmental implications of futuredevelopment activities in Halifax Harbour. 4- Agreement on the need for the preservationand restoration of fish and wildlife habitatsand aesthetic values in Halifax Harbour.

Workshop # 2 of March 2001 opened with anunequivocal statement of the DFO objectivesand mandated responsibility for the future ofHalifax Harbour’s biological environment as afish Habitat. This was followed by a review ofthe state of environmental knowledgeparticularly with regards to the ichtyofauna,the benthic fauna and the bird life in theHarbour. Several presentations told thehistory and present state of the contaminants(heavy metals and organics) present in thesediments and the water column. Thegeological history of the Halifax Inlet as itrelates to present day marine habitats was

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presented. Participants heard a discussion onmajor developments of the past. Present andproposed major development activities andtheir potential impacts were discussed briefly.Participants also received updates on HRMDomestic sewage and other contaminants(source control) abatement projects. Keypresentations focused on precedent caseexamination as well as ways and means toeliminate or reduce contaminants and recoverlost habitats. A presentation on the

community perspective on preserving theenvironment of Halifax Harbour completedthe various points of view on the subject ofHalifax Harbour environmental protection.

Perhaps the most important product ofworkshop # 2 was the formulation of a visionstatement concerning the future of HalifaxHarbour and of a series of specificrecommendations on how and who shouldwork toward achieving that vision.

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Chair’s Summary: Workshop # 1Recommendations-Brian Nicholls

Preserving the Environment of HalifaxHarbour, Workshop #1, was held on March14-15, 2000 (Appendix A). The first day-and-a-half of the workshop consisted of sessionsin which papers were presented under thefollowing topics:

(1) Halifax Harbour – An Ecological Entity;

(2) Anthropogenic Stresses;(3) The Regulatory Environment;(4) Non-Regulatory Primary Stakeholders.

Six poster papers were also on display thatpresented information on the harbour and itsenvironment. Based on the workshoppresentations, a “Matrix of Human Activitiesvs Regulatory and Administrat iveResponsibilities in Halifax Harbour” wasproduced, and is included as an appendix tothe published proceedings.

The main purpose of this first workshop wasto gauge the interest of regulatory agenciesand non-regularity stakeholders in theproposed launching of a new initiative on therestoration and preservation of HalifaxHarbour. It was not the intention that this firstworkshop should develop and approvespecific recommendations in support of suchan initiative, its purpose being to ascertain thelevel of interest by participating agencies.However, on the final afternoon, and as a keypart of the workshop process, the opportunitywas provided to participants to take part indiscussion groups under the theme “Lookinginto the Future.” There were six such groups,and their findings (identified issues andsuggested actions) are presented below bybroad category.1

Purpose, objectives of proposed initiative topreserve the environment of HalifaxHarbour

Ø need for common vision of the harbourØ produce “White Paper” on goals &

objectives

Lead /coordination mechanism/forum

Ø decide mechanism, e.g. lead agency, smallgroup of key players. “benevolentdictator”

Ø majority of participants considered thatlead should be HRM

Ø role of HRM needs clarifyingØ need for champion(s)

Consultation

Ø develop process to determine peoples’needs

Ø get the public involvedØ seek input from the local community,

including watershed groups & schools

Planning & management

Ø develop harbour management plan thatincludes “all the pieces”

Ø need for integration of the existing“regulatory maze”

Ø need for harbour-use zoning (tie-in landuses)

Ø examine governance modelsØ address regulatory, etc. overlaps among

var ious leve ls o f government ,departments, etc.

Ø include public health issues

Information requirements

Ø list of expertsØ information pamphlets on regulations,

approvals, etc. specific to different typesof proposal

Ø review of previous studies of the harbour Ø review of similar initiatives elsewhereØ symposium on Halifax HarbourØ baseline inventory

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Specific suggestions re: preserving theenvironment of the harbour

Ø improve public access, e.g. walking pathsØ clean-up of floatables, etc. by community

groupsØ enhance existing fish habitatØ create new fish habitat, e.g. artificial reefsØ address habitat needs of wildlife other

than fishØ safeguard wetlandsØ address known key issues e.g. leaching of

solid waste deposits, contaminatedsediments

Public relations and education

Ø public education & public awareness areimportant; need for plan to address these

Ø publicize successes

The findings of Workshop # 1, as summarizedabove (and as presented in more detail in thepublished proceedings), were not formallyadopted by the workshop. They are herewithpresented as provisional findings for theinformation of Workshop # 2.

____________________________Note that while each individual discussion groupfocused on a specific topic (provided by the organizers– refer to proceedings for details), this summarycombines the findings of all groups according tocommon categories

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Chair’s Summary: Objectives ofWorkshop #2-Brian Nicholls

The presentation by Jim Ross of DFO’sHabitat Management Division sets the scenefor this workshop. As we deliberate on thepreservation of the environment of HalifaxHarbour over the next two days, please bearin mind DFO’s aspirations and objectives forthe management of the harbour’senvironment as outlined by Jim.

This workshop has been organized by AndreDucharme on behalf of the FederalDepartment of Fisheries and Oceans (DFO)and the Halifax Regional Municipality(HRM). Andre, who is retired from DFO(Head of Habitat Management), invited me,another retiree, to chair the event. I worked atBIO for many years, my last position beingHead of Environmental Assessment in theMarine Environmental Sciences Division. Iwas involved in Halifax Harbourenvironmental issues in the late-1980s andthroughout the 90s, serving, for example, as amember of the Halifax Harbour Task Force.

In my remarks this morning I shall review theobjectives of the workshop, but before I dothis, I want to provide you with somebackground information.

You will note that the title of the workshop is“Preserving the Environment of HalifaxHarbour.” By way of clarification:

- - preserving is used here in a general sense,and is intended to include the protection,conservation, restoration and enhancement ofthe harbour- - environment encompasses the marineenvironment, which provides the habitat2 for

the fish of the harbour; but in addition to themarine environment we shall also beaddressing the other environments of theharbour, i.e. adjoining freshwater systems, theland around the harbour that providesimportant habitat for wildlife other than fish,and also the atmospheric environment.

- - Halifax Harbour includes Bedford Basin,the Narrows, the Inner Harbour, the MiddleHarbour, the Outer Harbour, and the HarbourApproaches (extending out to approximatelythe line between Devil’s Island and ChebuctoHead).

As you are probably aware, this is the secondworkshop on the topic. Some, but not all ofyou, were at the first workshop, which washeld at the same time last year. The 2000workshop followed consultations betweenstaff of the Federal Department of Fisheriesand Oceans (DFO) and the Halifax RegionalMunicipality (HRM), as a result of which itwas decided that the time was right to holddiscussions with other interested parties onthe launching of an initiative on the restorationand preservation of the environment ofHalifax Harbour. The discussionsrecommended by DFO and HRM took placethrough the mechanism of workshop #1.

In summary, the 2000 Workshop consisted ofsessions in which papers were presented on:

(a) the ecological description of theharbour;

(b) the anthropogenic stresses on theharbour;

(c) the federal and provincial regulationsapplicable to the harbour; and

(d) the interests of non-regulatorystakeholders.

This was followed by “looking to the future”2 The Fisheries Act defines fish habitat as “Spawninggrounds and nursery, rearing, food supply and migrationareas on which fish depend directly or indirectly in order

to carry out their life processes.”

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discussions (in small groups) on preservingthe environment of the harbour, which led tothe identification of key issues and suggestedactions.

The interest and enthusiasm of the March2000 workshop participants was such thatDFO and HRM decided to proceed towardsthe launching of an initiative on the restorationand preservation of the environment of theharbour. Hence this second workshop, thestructure and objectives of which are outlinedbelow.

This workshop comprises five sessions (parts)that form a logical progression leading to thedevelopment of recommendations in supportof the preservation of the environment of theharbour:

(1) The state of environmental knowledge;(2) Spectrum of harbour activities;(3) Measurable impacts on fish habitat.

(includes a summation of availableknowledge)

(4) Achievable goals.(5) Development of recommendations

(see below).

The objectives of the workshop, which will bespecifically addressed in Part 5 of theprogram, are to:

(A) Review available knowledge on the

harbour (Parts 1 to 3);(B) Consider possible achievable goals on

the preservation of the harbour’senvironment (Part 4);

(C) Develop a vision statement (orstatements) applicable to thepreservation of the environment ofHalifax Harbour that encompasses theviews of all the groups represented atthis workshop (Part 5); and

(D) Develop recommendations (to DFO,HRM, other agencies, etc.) aimed ataddressing:

• knowledge gaps;• abating or containing contamination

sources;• preserving existing habitats;• enhancing aesthetic and other values

of the harbour; and• other related issues.

It should be noted that the envisaged HalifaxHarbour program would be a cooperativeinitiative, involving a variety of governmentagencies, NGOs, stakeholders and otherinterests; also that it would be complementaryto the Harbour Solutions Project. Theprogram should include a consultative processthat takes into account the interests of allstakeholders including the tourism industryand the 325,000 residents on the Halifax Inlet.

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Part 2

Halifax Harbour: What Do We Knowand What Do We Need to Know?-Ken Mann, DFO Scientist Emeritus

Introduction

This paper summarizes what we know aboutthe ecology of Halifax Harbour, as presentedat the first and second workshops “Preservingthe Environment of Halifax Harbour”. Thematerial is presented in note form.

The harbour as an estuary

From the patterns of water circulation and thepresence of all the essential elements of theflora and fauna, we know that in spite of allthe man-made changes, Halifax harbour stillfunctions as an estuary. The inflow of freshwater drives a current seaward at the surface,while near the bottom, salt water moves intothe estuary at the mouth to compensate forthe outward flow at the surface. Estuaries actas traps for nutrient material entering with therivers and with the salt water near the bottom.They are therefore more productive than theopen sea, and in the past Halifax harbour wasnoted for the abundance of fish and shellfish.

The physical environment

The geological history, surficial and bedrockgeology are well known. During the growth ofthe Halifax-Dartmouth-Bedford communitythere has been extensive infilling of themargins of the harbour, with correspondingloss of shallow-water habitat. The watershedsof the Sackville River and other freshwatersources have been heavily modified by urbandevelopment. Recent infilling has been by theuse of pyritic slate removed during other

developments. Studies are in progress todetermine whether this material has anydeleterious effect on the marine environment.

The biological community

The expected groups of plants and animals arepresent in the harbour, but in lesser quantitiesthan in earlier times. We believe that this isthe result of the loss of shallow water habitatand the contamination of the harbour with silt,sewage, metals and organic substances. Ofthe marine mammals, we see harbour seals,porpoise, dolphins and occasional rightwhales. A good variety of groundfish andpelagic species are harvested in the outerharbour. Pollock, herring, mackerel and smeltare fished for bait in the inner harbour.Salmon, sea trout, gasperau and eels passthrough the harbour on their way to the rivers.A good variety and abundance of aquaticbirds occur in the outer harbour.

Lobsters are fished extensively, especiallyaround McNab’s Island and seaward fromthere. There is limited fishing in the NorthwestArm and Bedford Basin. Clams and musselsare abundant throughout the harbour, but areclosed to harvesting on account of fecalcoliform contamination.

Contaminants

The harbour receives almost 200 million litresof raw sewage per day, from 26 outfalls, allsituated seaward of the narrows. Plans fortreatment of the sewage are being developed.There is a sewage treatment plant near thelandward end of Bedford Basin. The effluentis rich in plant nutrients such as nitrate andphosphate.

Reported oil spills averaged over 80 per year

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in the period 1994-1999, but the rate ofoccurrence is declining. An unknown amount of leachate enters theharbour from the old city dump near thenarrows.

The effect of contamination

Sewage effluent. Untreated sewage effluentcontains organic solids, dissolved nutrientsand contaminants. Organic solids settle on thebottom and consume oxygen from the water.The deep part of Bedford Basin has lowoxygen content for part of each year. Thislimits the number of species of invertebratesand fish that can live there. Dissolvednutrients stimulate the growth ofphytoplankton and bacteria. If more areproduced than the animals can consume, theysettle on the bottom and add to the oxygendemand. Organic solids smother seaweedsand seagrasses in shallow water, leading toloss of fish habitat and reduction of fish andinvertebrate production.

Contamination with metals. The estimatedannual input of metals to the harbour includes36 tonnes of zinc and 34 tonnes of lead, withlesser amounts of copper and other metals. Itis estimated that the upper 2cm of sediment inthe harbour contain 208 tonnes of zinc and200 tonnes of lead, so the full depth ofsediment contains much greater amounts. It isbelieved that only 10-20% of the input is byway of the sewers, the remainder comingfrom land runoff, and from sources within theharbour, such as seepage from the old dumpand wreckage of ships on the sea floor.

Organic contaminants. The presence oforganic contaminants is known from thestudy of the tissues of invertebrates and fish.A large range of substances is found, but two

of the most important are polycyclic aromatichydrocarbons (PAHs), which occur in thetissues of mussels and polychlorinatedbiphenyls (PCBs) which are found particularlyin the digestive glands of lobsters. Themussels show a seasonal rise and fall in PAHcontent. From 18 sites studied, many showlow background levels, but some sites show amarked elevation of PAH content. SomePAH’s are clearly associated with petroleumhydrocarbons. The harvesting of mussels isprohibited, but the prime reason is theircontamination with fecal coliform bacteria.

Lobsters accumulate both PCBs and PAHs intheir digestive glands. The levels do notexceed the allowable limits for humanconsumption. There is a decrease inconcentration in lobsters taken along thegradient from the industrialized inner harbourto the mouth of the estuary.

What more do we need to know?

The priorities in collecting further scientificinformation depend on our objectives. Forexample, one may wish to halt or reverse thedegradation of the estuarine system, or onemay restrict the objective to trying to ensurethat future developments do not furthercontribute to degradation.

To halt or reverse system degradationTo halt the degradation caused by sewagecontamination, obviously we need sewagetreatment. However, it is likely that theeffluents of treatment plants will still containplant nutrients such as nitrate and phosphate,and some organic solids. We need to knowthe expected composition of the effluents, inorder to predict their effect on the planktonand on the bottom communities. We need tounderstand how the water circulation in the

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harbour will affect the distribution of materialfrom the effluent pipes, and for this we need agood physical model of water movement.Such a model may exist, but it has not beenpresented in these workshops.To halt the degradation caused by metalcontamination we need to consider both thematerials entering the harbour on a daily basisand the accumulated material in thesediments. We need to know the details of theorigins and pathways of the incoming metalliccontaminants that are not in the sewage(about 80% of the total). For example, howmuch is in the leachate from the old citydump, and how much in the waters of theSackville River? Obviously, a strong programto reduce contamination at source is needed,but if a significant proportion is leaching fromthe old dump, or from ships on the harbourfloor, special measures may be needed tocontain it. Sediments containing organic matter may beoxidized in the upper few millimetres, butdeeper in the sediment conditions are likely tobe anaerobic. Disturbance of sediments, forexample by anchors, or by the turbulencecreated by ships’ propellers, is likely tochange the state of oxidation and may causethe release of metals bound in the sediments.We need much more information about theseprocesses. Some have asked whether weshould be aiming to remove contaminatedsediments from the harbour. At present itseems that it would cause more harm thangood, by releasing large quantities ofcontaminants. Furthermore, disposal ofcontaminated sediments would present amajor problem. It may be that leaving thesediments in place, to slowly oxidize overtime, with a gradual release of contaminants,is the best course of action.

Similar remarks apply to organic

contaminants in the sediments. In addition toPAH’s and PCB’s, there is a long list oforganic contaminants that have beenidentified. There is much work to be done inidentifying the origins and fates of thesesubstances. While reduction of contaminationat source is obviously required, a deeperunderstanding of the processes leading tocontamination of organisms in the harbourwould facilitate the setting of priorities in thecleanup process.

To ensure that future developments do notcause further degradation. In any futuredevelopment on the shores of the harbour,infilling should be kept to a minimum, sinceinfilling reduces shallow water productivityand hence the productivity of the wholesystem.

For any essential infilling, we need to knowfull details of the size and type of habitat thatwill be destroyed. We also need to knowdetails of possible disturbance of the sedimentduring construction, because of the risk orreleasing contaminants.

Details are also needed on the nature of anyinfilling material, so that its possibleinteraction with the water and sediments canbe investigated.

Interpretation of the facts

Although we know that Halifax harbour stillfunctions as an estuary, its functioning hasbeen impaired by man-made changes, withthe result that the harbour is much lessproductive of fish and invertebrates than informer times. Specifically,

• Structures built by infilling have removedan estimated 40% of the habitat forseaweeds and seagrasses, with the

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accompanying loss of fish habitat andproductivity

• Soil erosion in the basin of the SackvilleRiver has led to the smothering of largeareas of benthic habitat with silt

• Discharge of large volumes of untreatedsewage has smothered large areas ofseaweed and seagrass, causing loss of fishhabitat and productivity.

• The untreated sewage contains largequantities of fecal coliform bacteria,rendering the shellfish unfit to eat

• Organic and inorganic contaminants have

entered the system with sewage, riverrunoff and leachate from the old citydump at Seaview Point. As a result,lobsters, shellfish and fish arecontaminated with organic and inorganicsubstances to a level that is judged notinjurious to human health, but which mayaffect the growth or reproduction of theorganisms themselves.

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Part 3

The Future of Halifax Harbour

Proposed Shared Vision for HalifaxHarbour

The participants of workshop #2 divided in sixwork groups were asked to elaboratestatements or mottos that would reflect acommon vision for the future of HalifaxHarbour. It had been intended that one ormore of these statements or mottos would beadopted by the workshop as therecommended vision to spur the preservationactivities for the environment of HalifaxHarbour. All six groups provided suchstatements (Appendix C). However oneadditional statement given as a partingthought in the presentation of group sixreport, seemed to capture the imagination ofthose present best of all.

“Halifax is its Harbour.”

This statement, although brief, implies a tightlink between a natural harbour and the humaninfrastructures on adjoining lands. It seemsreasonable, therefore, to hope that the pride,love and attention the citizens bestow on theircommunal environment, can be made toextend to the body of water that adjoins it. Onthe basis of that premise we should expect theHalifax Harbour to be afforded an amount ofcare and nurturing equivalent to that given toour towns and cities.

The adoption of this short statement as amotto reflecting the vision for the future ofthe Harbour is recommended.

Summary of Groups Recommendations:(For the Preservation of the Environment of Halifax

Harbour)The participants were also asked to formulateseveral realistic recommendations aimed atidentifying the knowledge gaps, abating orcontaining contamination sources, preservingexisting habitats and, enhancing aesthetic andother values of Halifax Harbour. The sixworking groups delivered over 35 separaterecommendations to the plenary assembly.All these recommendations bore on therevitalization of Halifax Harbour’s biologicalenvironment, aesthetic values and publicinvolvement. The editors sought to find thecommon points between these statementsand, as a result they where able to reduce thislarge input down to five (5) majororganizational recommendations and nine (9)specific (pro-active) recommendations. Allthese recommendations are listed below inorder of priority without reference to theoriginator groups.

Organizational Recommendations

Ø Establish an independent, jointly fundedgroup, whose purpose will be to:Ø Develop an overall action planØ Galvanize and consolidate

stakeholders participationØ Gather, digest, disseminate and

consolidate informationØ Identify and address knowledge

gapsØ Determine Habitat quality goalsØ Report on the integrity of the

Harbour ecosystems

Ø Seek the commitment and involvement ofthe three levels of government (Federal,Provincial and Municipal) and work atfostering a political will to resolve theenvironmental problems in HalifaxHarbour.

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Ø Move the workshop ideas to City HallØ Involve the inhabitants of the InletØ Develop an electronic data base inventory

of Halifax Harbour ecosystems, itspollution and contamination sources.

Ø Seek input from all level of stakeholders,particularly the community at large

Ø Establish community based monitoringØ Design projects to be executed by

community groupsØ Establish usage zoning as a management

tool.

Specific Projects Recommendations.

Ø Separate domestic sewer system fromstorm run off over next two decades.

Ø Conduct a systematic assessment of allcontaminants and continue the eliminationof single source points (HRM sourcecontrol).

Ø Promote the study of biological indicatorsØ Reduce Pathogens and Toxins.Ø Promote the creation/improvements of

physical numerical models of primaryforces acting on the Halifax Inlet (wind,water currents etc.).

Ø Promote plans to improve aesthetic valuesof Halifax Harbour.

Ø Promote projects aimed at enhancinglandscape values.

Ø Promote plans and works aimed atrestoring Freshwater habitats and marineshoreline habitats in the littoral and sub-littoral zones for macrophytes. (shorelineremediation).

Ø Review Industrial Development projectsone at a time in order to seek remediationand or compensation for affected or losthabitats.

Finding a Champion for Halifax Harbour.

Throughout the debates in workshop 1 and 2 arecurrent note was sounded: “HalifaxHarbour Needs a Champion!” Manygovernment agencies regulatory or not shouldcontribute to the preservation of ecologicalintegrity in Halifax Harbour but one or moremust take the lead, establishing themselves asa “benevolent dictatorship” to organize andguide the other stakeholders’ participation.

Four of the six working groups in workshop 1identified HRM as the logical leader. Onegroup identified DFO because of the newOceans Act and its mandate for IntegratedCoastal Zone Management. Two of the sixworking groups in workshop 2 directly namedHRM as the logical champion. The remainderfavored the formation of a special, jointlyfunded, group formed initially by governmentagencies but capable of functioningindependently from any particulargovernment agenda.

On the basis of the recommendations madeby workshop participants and also on thebasis of mandated responsibilities. The allindicated leaders for that initial trust on therevitalization of Halifax Harbour, namely theformation of an independent group to overseethe project, are:

Ø Halifax Regional MunicipalityØ Fisheries and Oceans CanadaØ Environment CanadaØ Nova Scotia Department of Environment

and Labor.

The first task incumbent on such a groupwould be to produce a white paper outliningthe goals and objectives for the preservationand revitalization of Halifax Harbour. This

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white paper should include, but not berestricted to, the following :

Ø A roster of locally available expertsØ The elaboration of a communication

strategyØ The elaboration of a baseline inventory of

the biological resources of HalifaxHarbour

Ø A review of precedents i.e. HamiltonHarbour, Boston and New York Harboursetc.

Ø Plans for community involvement(NGO’s, Watershed groups etc.)

Ø Alternative plans for addressing large keyissues i.e. Seaview Point contaminantleachates

Ø Harbour species management plansØ Plans to introduce Harbour use zoning

conceptØ Alternative proposals for a show case (fail

proof) projectØ Plan to hire an overall project managerØ Organization of a public symposium

Concluding Statement: (The Future of HalifaxHarbour)

During two workshops held in March 2000and 2001, over 130 key persons wereconsulted. These people represented the threelevels of Government, industry and a broadcross section of the inhabitants of theCommunities on the shores and in thewatershed of Halifax Harbour. The firstworkshop (2000) concentrated on establishingHalifax Harbour as a living ecological entityand describing the regulatory environment insome details. The second workshop (2001)described and discussed the biologicalenvironment conditions in the Harbour,reviewed the available scientific knowledgeand assessed the impacts on fish and fish

habitats of over two hundred years of use asan industrial sea port. A major output of thesecond workshop was a vision for the futureof Halifax Harbour and a series ofrecommendations for stakeholders activities towork towards achieving predetermined goals.

Through these two workshops the HalifaxInlet was revealed as a surviving ecologicalentity. Although the Harbour has lost much ofits pristine value and appearance, theparticipants of both workshops wereunanimous on the importance of preservingand enhancing the natural resources of HalifaxHarbour for future generations to enjoy.Workshop #2 participants where alsounanimous on the need and value of HRM’spresent sewage sanitation project, but therewas general agreement that many moreserious problems would continue to exist longafter the sewage problem was brought undercontrol, unless concerted and sustained actionis taken. The problems relate principally towater column and sediments, metal andorganic contamination from a multitude ofsources, the cumulative impacts of harbourshoreline and bottom manipulation such asdredging and infilling and the impacts ofoverall shipping activities past, present andfuture.

Workshop #2 participants fully recognizedthat revitalization of the harbour and itswatershed must be a long-term undertaking,for example ten years are predicted tocomplete HRM’s proposed sewer treatmentsystem. However, some of the data presentedby scientists at the workshops alreadyrevealed a reverse trend in contaminantsaccumulation in the sediments due to sourcecontrol measures put in place two decadesago. The presence of such encouraging signalsin the environmental data was noted by the

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participants, who in addition wish to see theimplementation of a renewed systematic andwell co-ordinated effort to rid Halifax Harbourof pollution and as much of the contaminantsas possible. It was conceded that little can bedone about some pockets (hot spots) ofcontaminants buried deep in the sediments.The participants also expressed a clear desireto see efforts made toward recreating lost fishand wildlife habitats and lost aesthetic values.They agreed that Halifax Harbour mustremain a multiple use body of water. Thelegitimate demands made by industrialconcerns were accepted, but not at theexpense of other values.

In conclusion, the common will of the

workshop participants may be expressed asfollows:

Within 25 years Halifax Harbour must be ahealthy environment that offers sustainablemultiple use, where biological and aestheticvalues are maintained and enhanced on anongoing basis through integratedmanagement. The decision making processmust be knowledge based, as much aspossible, but cautious in the absence ofspecific knowledge. The local communitymust be well informed about the Harbour,and involved and committed.

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Appendix A

WORKSHOP, March 14 & 15, 2000Preserving the Environment of the Halifax Harbour

Location: The Art Gallery of Nova Scotia, 1723 Hollis St., Halifax, NSSponsors: DFO and the Halifax Regional Municipality (The Harbour Solutions Project)

A gathering of regulatory stakeholders to discuss regulatory overlaps, assess the potential for integration of allmarine resource management in the Halifax Harbour, and identify opportunities for the conservation andrestoration of wildlife habitats and aesthetic values.

AgendaTuesday, March 14th

08:00 Registration (Name Tags & Registration Package)

08:30 Opening welcome from DFOGeorge DaPont, Associate Regional Director-General

08:40 Welcome, introduction, purpose & objectivesChair, Brian Nicholls, DFO-Retired

Part 1 - The Halifax Harbour - An Ecological Entity

09:00 The Living EstuaryDr. Ken Mann, DFO Emeritus Scientist

09:30 Historical/Ecological IntegrityDr. Ron MacDonald, Parks Canada

10:00 Coffee Break

10:15 Halifax Harbour and Marine Mammals - Life in the Shipping LanesDr. Paul Brodie, Consultant

10:45 Geology & Anthropogenic Features of the Halifax HarbourGordon Fader, NRCan. Scientist

Part 2 - Anthropogenic Stresses

11:15 Domestic Pollution InputRoger Percy, John Clark, Dr. Kok-Leng Tay, EC Scientists

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11:45 Keys to Environmental Quality Management In Marine Areas of the HalifaxHarbourDale Buckley, NRCan, Emeritus Scientist

12:15 Lunch Recess (Lunch Provided)

13:15 Traffic Quantification, (Shipping, Yachting)Capt. Randy Sherman, Harbour Master, Director of Operations

Part 3 - The Regulatory Environment

N.B. Here follows a series of brief presentations by representatives of the principal regulatory agencies who,either unilaterally or in consultation with one or more regulatory bodies, make important decisions on matters ofa development nature in or near the Halifax Inlet. The presenters will endeavor to fully identify the authority orlaw base that supports their decision making responsibility. The presentations will be limited to 15 minutes andto save time questions relating to these topics will be addressed in a 30-minute period reserved at the end of thesession. The chairperson will have to exercise somewhat strict control to remain on schedule.

13:45 Canadian Coast Guard (Navigable Waters Protection Act) Larry Wilson, CCG Regional Director

14:00 Halifax Port Authority (Canada Marine Act)Capt. Randy Sherman, Harbour Master, Director of Operations

14:15 Transport Canada (Canada Shipping Act)Mike Balaban, TC Senior Marine Surveyor

14:30 Public Works & Government Services (Public Works Act)Dr. Hari Samant, PWGSC, Regional-MangerRay Lewis, PWGSC, Client Services

14:45 Fisheries and Oceans Canada (Oceans Act)Faith Scattolon, DFO Regional Director, Oceans Act Coordination Office)

15:00 Coffee Break

15:15 Fisheries and Oceans Canada, (Fisheries Act S. 35 & 37)Brian Thompson, DFO Manager, Habitat Management Division

15:30 Department of National DefenseCarol Lee Giffin, DND Formation Environment Officer

15:45 Environment Canada (Fisheries Act S. 36, Canadian EnvironmentalProtection Act) Dave Aggett, EC Enforcement

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16:00 Department of Environment Nova Scotia, (The Environment Act)Christine Mosher, NSDOJ, Solicitor

16:15 Department of Natural Resources Nova Scotia, (Crown Lands Act, BeachesAct)Harry Ashcroft, NSDNR Manager, Land Services

16:30 Department of Tourism & Culture, Nova Scotia (Special Places ProtectionAct)Bob Ogilvie, NS Museum

16:45-17:15 Question and Answer Period - Regulatory EnvironmentParticipants will put forward as many questions relating to the eleven previous presentations, particularly on areas ofpossible overlap, as can be entertained in the half hour provided and save other questions or comments on cards,provided in the registration package, to be dealt with during the workshop sessions on day two.

Wednesday, March 15th

08:30 Environment Canada, Canadian Environmental Assessment Agency (CEAA)Bill Coulter, EC Manager

Part 4 - Non-Regulatory Primary StakeHolders

09:00 Waterfront Development CorporationBill Campbell, Director, Planning & Development

09:30 Bedford Waterfront Development CorporationRichard Hattin, BWDC Manager

10:00 Coffee Break

10:15 Halifax Regional Municipality (HRM) Harbour Solutions ProjectMaurice Lloyd, HSP Director

10:45 Planning and Development ServicesDonna Davis-Lohnes, HRM, Planning and Development

Part 5 - The Burlington Harbor Case Study

11:15 Integrating Habitat Restoration into an Existing SituationVictor Cairns, DFO Burlington, Ontario

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11:45 Part 6 - Looking to the Future: Workshops

Coming to terms with areas of overlap and/or conflict between regulatory agencies;Integrating marine freshwater resources protection with planning and developmentactivities and; co-operating in restoration of wildlife, fish habitats and aesthetic values ofthe Halifax Harbour.

N.B. The participants have been divided into six approximately equal groups and, with the help of DFOappointed facilitators, they will explore, discuss, debate and record their findings on the following three subjects(two groups per subject). Each group will be expected to give a 10-minute presentation relating their findings,proposals and recommendations. A rapporteur appointed from each group will present their findings to thegeneral assembly of participants. A five minute period will be allocated for Questions and Answers at the end ofeach presentation.

Group 1 and 2

Coming to Terms with Regulatory Areas of Overlap· Identifying the overlaps· Identifying the conflicts· Developing solutions (Hierarchy in the regulations)

Group 3 and 4

Integrating Halifax Inlet Marine and Freshwater Resources Management· How do we ensure that all stakeholder’s interests are considered in future projects?· What are the possible mechanisms available to integrate such a wide spectrum of

management activities?· Explore alternate proposals.

Group 5 and 6

Opportunities for the Conservation and Restoration of Wildlife Habitat and AestheticValues in the Halifax Inlet· What can realistically be achieved?· By whom and at what approximate cost? Possible partnerships?· Are there precedents to guide us in this endeavor?

12:30 Lunch Recess (Lunch Provided)

13:30 Workgroups: Presentation of Findings(Rapporteurs)

14:45 Part 7 - Summary Conclusions of WorkshopBrian Nicholls, Chairperson

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15:15 End of Workshop

N.B. The Proceedings of the Halifax Harbour Workshop will be published by the Fisheries and Oceans Canadain partnership with the Halifax Regional Municipality (The Harbour Solutions Project). The document willinclude the papers presented, the four workshop session reports, the summary conclusion and therecommendations made by the working groups.

Poster Presentations

§ The Fisheries of the Halifax Inlet Paul Rozee

§ Freshwater Stream Losses in theHalifax Harbour Watershed Jennifer Bruin

§ Two Centuries of In-filling Activities Paul Rozee

§ Seabed Features of the Halifax Inlet Gordon Fader

§ The Sediments of the Halifax Inlet Dale Buckley

§ Seasonal and Geographical Distribution of PAHs Jocelyne Hellouin Mussels in the Halifax Harbour

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Appendix B

Preserving the Environment of Halifax HarbourWorkshop # 2 March 14th – 15th 2001

Location: Main Auditorium, BIO, 1 Challenger Drive, Dartmouth, N.S.Sponsors: DFO and Halifax Regional Municipality (The Harbour Solutions Project)

(A gathering of stake-holders from three levels of government, academia, industry, andpublic interest groups to: review the state of environmental knowledge in Halifax Harbour,identify information gaps in the light of future large developments, and identify requiredactions for the preservation and restoration of fish and wildlife habitats and aesthetic valuesin Halifax Harbour.)

AgendaWednesday March 14th

07:45 Registration (Name tags and registration packages)Debi Campbell, Oceans & Coastal Management Division, DFO

08:15 Opening Welcome from BIOJacob Verhoef, Director, Geological Survey of Canada (Atlantic), NRCan

08:30 DFO’s Aspirations for Fish Habitat in Halifax Harbour: Realities and Opportunities

Jim Ross, Biologist, Habitat Management Division, DFO

09:00 Objectives of Workshop #2Brian Nicholls, Workshop Chair, DFO – retired

Part 1 – The State of Environmental Knowledge

09:25 Highlights of previous Workshops on Halifax Harbour (1989…)Don Lawrence, Research Scientist, Science Branch, DFO

09:55 Coffee Break

10:10 Historical Perspective of Metal Contaminants in Halifax HarbourDale Buckley, Emeritus Scientist, NRCan Contaminants in Halifax HarbourPhil Yeats, Scientist, Marine Chemistry Section, DFO

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N.B. Time slot to be shared, Buckley speaks to sediments and Yeats speaks to water column

11:00 Halifax Harbour: The Geology and Evolution of Marine HabitatGordon Fader, Scientist, Geological Survey of Canada, NRCan

11:30 The Fish Fauna of the HarbourAndrew Hebda, Curator, Nova Scotia Museum of Natural History

12:00 The Benthic FaunaDon Peer, Scientist, DFO - retiredPresented by Susan Belford, Consultant, Jacques Whitford

12:30 Lunch (BIO Cafeteria catered)

13:30 Other Wildlife and Their HabitatsTony Lock, Scientist, Environment Canada

Part 2 – Spectrum of Harbour Activities

14:00 Major Development Projects of the PastAlan Ruffman, Consultant, Geo-marine Associates

14:30 Cumulative Infilling ActivitiesClarence Spencer, Scientist, Environment Canada

15:00 Coffee Break

15:15 Major Future Development ProjectsBill Campbell, Director, Halifax Waterfront Development BoardDavid Bellefontaine, Director, Port AuthorityN.B. This time slot to be shared by the two above speakers

Part 3 – Measurable Impacts on Fish Habitat

16:05 Changes/Degradation of Benthic HabitatsAnnamarie and Bruce Hatcher, Dalhousie / Canfish

16:50 Changes in Planktonic Microbiota Bill Li, Research Scientist, Science Branch, DFO

17:20 End of Day One

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Thursday March 15th

08:15 Summation of Available Knowledge: What else do we need to know?Ken Mann, Scientist Emeritus, DFO

Part 4 – Achievable goals

08:45 Halifax Harbour Solutions Project: UpdateTony Blouin, Assistant Director, Halifax Harbour Solutions Project

09:15 The Hamilton Harbour Case: Lessons learnedVictor Cairn, Resource Manager, DFO (Hamilton, Ontario)

09:45 Eliminating Sources of ContaminantsRoger Percy, Scientist, Environment Canada

10:10 Coffee Break

10:20 Pollution Source ControlJohn Sibbald, HRM, Environmental Services and Engineering Approvals

10:45 Community Perspective on Preserving the Environment of Halifax HarbourPatricia Manuel, Professor, Nova Scotia College of Arts and Design

11:15 HRM Activities pertaining to the Aesthetic Value of Halifax HarbourSimpson McLeod, HRM Planning Dept. - Retired

11:40 DFO on Recovering Lost Habitats Bob Rutherford, Biologist, Oceans & Coastal Management Division, DFO

12:05 Summary of Workshop # 1 RecommendationsBrian Nicholls, Workshop Chair, DFO - retired

12:30 Working Lunch (BIO Cafeteria Catered)

Part 5 -- Workshop: Developing Recommendations

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N.B. The participants will be divided into reasonably sized equal groups and, with thehelp of pre-named facilitators they will be asked to work at elaborating a statement orMotto encompassing a vision for the future for Halifax Harbour. One or several ofthese will subsequently be adopted by the workshop as the recommended vision for thepreservation of the environment of Halifax Harbour. In addition they will elaborateseveral realistic recommendations aimed at addressing: 1) the knowledge gaps identified; 2) abating or containing contamination sources; 3) preserving existing habitats; and, 4) enhancing aesthetic and other values of Halifax Harbour.

14:00 Group Reports and recommendations to Plenary Session

15:00 Coffee Break15:15 Development and Approval of Workshop Final Recommendations to DFO,

HRM and other Agencies.

16:15 Closing Remarks ( and drawing of Door Prize - Nova Scotia Crystal)Brian Nicholls, Workshop Chair, DFO - retired

16:30 End of Workshop

Posters Presentations

The Fisheries of Halifax Harbour Andre DucharmePaul Rozee

Bedford Basin, Nova Scotia: An Interpretation of Gordon FaderSeabed Materials, Features and Processes on Multibeam Robert MillerBathymetry Bruce MacGowan

Environmental quality assessment of Halifax Harbour:Geological and Geo-chemical Perspective Dale Buckley

Lost Freshwater Habitat Jennifer Bruin

Chlorobiphenyls from a non-Aroclor source: T.KingWhere do they come from? P. Yeats

J. HellouS. Niven

Low molecular weight non-ortho chlorobiphenyls in T.Kingmussels collected in and around Halifax Harbour J. Hellou

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V. Kitko

Levels and source apportionment of polycyclic J. Hellouaromatic hydrocarbons (PAHs) and sulphur T.Kingheterocycles (PASHs) in sediments and mussels J. Leonard

T. MilliganS. StellarP. YeatsV. Zitko

Shoreline Classification and Coastal Resources of Roger PercyHalifax Harbour Area

Appendix C

The Groups Vision Statements

Group 1Bringing life back to the harbour (fish, plants,habitats and people’s interest)

Group 2To achieve a continual improvement to theaesthetic, ecological and human health aspectsassociated with Halifax Harbour

Group 3Elements for a Vision Statement< Something for future generations to be

proud of< Safety and health issues important< Aesthetic aspects considered< Biologically healthy ecosystem< Improve on status quo daily

< Must apply consistently throughout theHarbour

Group 4A healthy, attractive, accessible andproductive Harbour environment in whichpresent and future generations canaccommodate multiple uses in a sustainablemanner

Group 5A healthy harbour is an investment in thefuture not a cost

Group 6Ecological integrity of the greater HalifaxHarbour ecosystem including its presenthuman population

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Notes

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Notes

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Notes