political economy report

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Oil, ecotourism and climate change:The political economy of Newfoundland, 1992-2010

Political economy report

April 2012Stephanie Sodero, Memorial University

In preparation for:Dr. Mark Stoddart, Memorial University

for theSSHRC-funded project

Puffins, kayaks and oil rigs:Shifting modes of society-environment interaction on the Newfoundland coast


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Table of Contents

List of Tables and Figures 2

Introduction 3

OilEnergy Plan 4Canada-Newfoundland and Labrador Offshore Petroleum Board 4Offshore facilities 5Economic impact 5C-NLOPB environmental mandate 7Environmental assessment 7Oil spills 10

Terra Nova spill 11Reporting 12

EcotourismEconomic diversification 13Department of Tourism Culture and Recreation 13Economic impact 14

Uncommon Potential 15Marketing 15DTCR on environment 16Mobility 17

Mobility trends 18Negative environmental impacts 18National Geographic partnership 19

Climate ChangeEmission profile 20Impacts and adaptation 22

Climate change and coastal areas 22Climate change and tourism 23Climate change and transport 23

Office of Climate Change, Energy Efficiency and Emissions Trading 23Climate Change Action Plan 2011 24

Future Research 26

Conclusion 27

References 28


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IntroductionThe year of the cod moratorium marks a turning point in the political economy of

Newfoundland and Labrador. From the 1600s to 1992, fisheries were a key component ofNewfoundlands economy. Since 1992, two prominent strategies have been concertedly pursued todiversify Newfoundlands economy: extractive development in the form of the oil and gas sector andattractive development in the form of tourism, specifically ecotourism (Luke, 2002). This reportexplores the paradoxical pursuit of both extractive and attractive development in Newfoundland andLabrador. Specifically, this report outlines the political economy of the oil and gas sector, ecotourismsector and provincial climate change policy between 1992 and 2010, identifying areas for futureresearch.

The oil and gas sector contributes significantly to the provincial Gross Domestic Product, 27per cent, compared to less than five per cent in the tourism sector. However, the tourism industry is anemployment engine, directly employing 13,000 citizens, compared to about 3,000 in the oil and gassector (Government of Newfoundland and Labrador, 2012b; Government of Newfoundland andLabrador, 2010; Higgins, 2009). Both sectors, therefore, are important to the provincial economy.Similarly, both sectors are embedded in a petrocapitalist network: the oil and gas sector through themining of fossil fuels, and the ecotourism sector as part of a global, fossil-fuel dependent mobilitynetwork. In 2005, fossil fuel industries contributed 22 per cent of provincial emissions, while thetransport sector, including freight and passenger, contributed 37 per cent (Government ofNewfoundland and Labrador, 2007: 51). Such models of development are at odds with provincialcommitments to reduce the greenhouse gas emissions that cause climate change. Further, the oil andgas sector poses a risk to the ecotourism sector in the form of oil spills. These tensions are exploredthroughout the report.


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responsible for worker safety; environmental protection and safety; effective management of landtenure; maximum hydrocarbon recovery and value; and, Canada/Newfoundland & Labrador benefits(C-NLOPB, 2012a; C-NLOPB, 2012b; C-NLOPB, 2012c). The Board regulates a variety of licenses,including exploratory, significant discovery and production licenses, for a 7.4 million hectare area, anarea of about two-thirds of the size of the island portion of the Province of Newfoundland andLabrador (C-NLOPB, 2012b). The C-NLOPB is an arms-length organization, reporting to the federaland provincial Natural Resources Ministers (C-NLOPB, 2012b). Its approximately 70 employees areguided by the vision: Regulating for Future Generations (C-NLOPB, 2012a).

In 2009/10, the C-NLOPB had a budget of $17.6 million, of which $11.3 was allocated tooperating costs and the remaining $6.3 million was allocated to special projects, such as the OffshoreHelicopter Safety Inquiry (C-NLOPB, 2010: 6). In 2009/10, collected bids on four offshore parcelstotaled $47 million, exploration commitments totaled $882 million, and security deposits were valuedat $220 million (C-NLOPB, 2010: 30). In terms of expenses, fees totaling $6 million were remitted tothe Receiver General for Canada; since 1986, the C-NLOPB has collected $164 million on behalf ofthe Crown (C-NLOPB, 2010: 28-9).

Offshore facilities

There are three production facilities offshore Newfoundland and Labrador: Hibernia, TerraNova and White Rose (C-NLOPB, 2012d). All three fields are located southeast of St. Johns in theecologically rich Grand Banks (Higgins, 2011). Of the three sites, Hibernia is the largest, producing 47million barrels (Mmbls) in 2009/10, while White Rose is the smallest, producing 19 million barrels inthe same year (Table 1). Hibernia, Terra Nova and White Rose are expected to produce oil for 20, 15and 10 years respectively; Hibernia is projected to be in production until 2017, Terra Nova until 2012,and White Rose until 2020 (Higgins, 2009).

A fourth field is currently being considered for development. The Hebron project is proposedby ExxonMobil and would be located in the same area as Hibernia, Terra Nova and White Rose.Second only to Hibernia, Hebron has estimated reserves of 700 million barrels (Higgins, 2009). It isestimated that Hebron will create 3,500 jobs during the construction and production phases, andcontribute $20 billion in royalties and other revenues to the province. Pending C-NLOPB approval, it isscheduled to begin production in 2017 and be in production for 25 years (CBC, 2012; Higgins, 2009).A fifth proposed field, Old Harry, is located off the west coast of Newfoundland and is in thepreliminary assessment stages

Economic impactFrom 1997, when Hibernia went into production, to 2007, the three oil fields produced

867 million barrels of oil, worth approximately $46 billion (Higgins, 2009). In 1997, the contributionof the mining and oil extraction industries to the provincial Gross Domestic Product was $823 million,peaking at $5.9 billion in 2007, and reaching $4.7 billion in 2010 (2002 dollars) (Government ofNewfoundland and Labrador, 2012b). The oil and gas sector accounts for significant share ofNewfoundland and Labradors Gross Domestic Product: 13 per cent in 1999, 24 per cent in 2004, 35

per cent in 2007 and 27 per cent in 2010 (Higgins, 2009; Government of Newfoundland and Labrador,2012b). These values parallel total offshore production volumes (Figure 1). By comparison, in 2010 theenergy sector accounted for 26 per cent and five per cent of Alberta and British Colombias GrossDomestic Product respectively (Government of Alberta, 2012; Government of British Columbia, 2012).In 2007, 1.3 per cent of Newfoundland and Labradors labour force (2,851 workers) were directlyemployed by the oil and gas sector, the majority of which were from the province (Higgins, 2009). It isestimated that the sector indirectly employs 3.8 per cent of the work force when spin-offs are calculated(Higgins, 2009).

In 2009, the province accounted for 1.5 per cent of the national population and generated


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approximately 1.5 per cent ($19.6 billion) of Canadas total Gross Domestic Product (EnvironmentCanada, 2009). In 2007, Newfoundland and Labrador produced 41 per cent of Canadas light andmedium crude oil and 14 per cent of Canadas total crude oil (Environment Canada, 2009).

Table 1: Hibernia, Terra Nova and White Rose Production Statistics (C-NLOPB, 2010)

Figure 1:Newfoundland and Labrador offshore oil production (Millions of barrels)

(Government of Newfoundland and Labrador, 2012a)

Field Producer Discovered EnteredProduction

AnnualProduction

2009/10(Mmbls)

AverageDaily

Production2009/10(Barrels)

Totalestimatedreserves(Mmbls)

Totalproduction

to date

Hibernia Hibernia

Management

and

Development

Company Ltd.

1979 1997 47 130,000 1,244 680

Terra

Nova

Suncor

Energy Inc.

1984 2002 28 76,012 419 294

White

Rose

Husky Oil 1984 2005 19 51,957 305 142


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C-NLOPB environmental mandate

The C-NLOPB states that while the legislation does not prioritize these mandates, workersafety and environmental protection will be paramount in all Board decisions (C-NLOPB, 2012c).Regarding its environmental responsibility, the C-NLOPB has three main roles:

- To verify that operators assess and provide for effects of the environment onthe safety of their operations.

- To verify that operators perform an environmental assessment pursuant toCanadian regulations, of the effects of their operations on the environment, andprepare a plan and provide for mitigation where appropriate.

- To verify, through compliance actions, that operators comply with theirenvironmental plans (C-NLOPB, 2012c).

It is notable that the first role listed is to protect the oil operations from the effects of theenvironment. This refers to the threat posed to oil platforms by icebergs. However, nowhere on the C-NLOPB site is a connection made between fossil fuel consumption, climate change and icebergformation.

The C-NLOPB states that it

reviews proposals for all physical activities offshore -- from seismic surveys toproduction projects -- to identify their potential effects upon the naturalenvironment or upon other users of that environment (such as the fishery). It alsoevaluates measures that are proposed to prevent or mitigate these effects. Thisactivity includes reviewing operators' contingency plans for environmentalemergencies --especially oil spills-- to ensure that adequate response measures,people and equipment are in place in the event of an accident (emphasis added) (C-NLOPB, 2012e).

Reference to the fisheries sector raises the question of whether potential impacts on the tourism sector,

particularly ecotourism, are considered in C-NLOPB project reviews.The C-NLOPB lists among its operational duties:

- Waste treatment and compliance monitoring equipment and procedures;- Offshore chemical selection and management procedures;- Waste management plans;- Field programs to detect effects upon the natural environment;- Compensation programs for those affected by accidental events; and- Exercises and drills of environmental emergency response plans (C-NLOPB, 2012e).

Again, further areas for research include learning more about the field detection programs and the

history of compensation awarded to those affected by accidental events.

Environmental assessment

The C-NLOPB requires the completion of environmental assessments, in accordance withfederal regulations, for proposed projects. An environmental impact assessment determines thepotential impact of a proposed project on a range of Valued Environmental Components (VECs),such as species at risk, marine ecosystems and commercial fisheries (Stantec, 2011: i).

In 2011, an environmental assessment was conducted for the proposed Old Harry site, located80 kilometres west of Cape Anguille. A search for the term touris* (where * denotes a wild card


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character) generated three matches in the 426-page report, all relating to animals. The first addressesthe wolffish and determines that development impacts on the species are minimal:

Impact of incidental capture of wolffish in many fisheries is thought to be theleading cause of human induced mortality. However, the live release of spotted andnorthern wolffish mitigates the affect of incidental capture to some degree. Otherpotential sources of harm (habitat alteration, oil exploration and production,

pollution, shipping, cables and lines, military activities, ecotourism and scientificresearch) are considered to have negligible impacts on the ability of both spottedand northern wolffish to survive and recover (Kulka et al. 2004a) (emphasis added)(Stantec, 2011: 94).

In contrast, the beluga whale is vulnerable to a myriad of risks, including oil and gas development andecotourism:

Current threats to the beluga population included long-term contaminant exposure,marine traffic, marine life observations (including ecotourism activities), noise(included noise associated with offshore oil and gas activities, marine traffic,fisheries and ecotourismand recreation), reduced prey abundance (due tooverfishing, habitat degradation, pollution, barriers to migration and climatechange), predator competition, commercial fisheries competition, habitatdegradation (construction and dredging, hydroelectric projects, offshore oil andgas) and the introduction of exotic species. Current threats to individual belugaswere identified as ship strikes, entanglement in fishing gear and scientific research.Occasional or sporadic threats were identified as toxic spills, harmful algal blooms,and epizootic disease. Under toxic spills it was noted that oil exploration anddevelopmentcan considerably increase the risk of accidents and spills in the Gulf(Kingston 2005) and that given the relatively limited habitat available in the St.Lawrence Estuary and Gulf, a large oil spill poses a serious risk for the belugapopulation (emphasis added) (Stantec, 2011: 115).

In this excerpt, multiple threats, including oil and gas development, oil spills, ecotourism and climatechange are listed, indicating the presence of significant environmental stressors for the belugapopulation.

Lastly, a more general statement connecting marine birds to tourism is made:

The Gulf hosts a range of seabirds throughout the year. Seabirds are a keyecosystem component near the top of the food chain and are an important resourcefor tourism and recreational activities, as well as for scientific study. They aretherefore important socially, culturally, economically, aesthetically, ecologically

and scientifically. Marine birds are considered a VEC [Valued EnvironmentalComponents] due to regulatory concern and in recognition of their protected

status under theMigratory Birds Convention Act, 1994 (emphasis added) (Stantec,2011: 210).

Sea birds are acknowledged as an important tourism resource.The reference to climate change in the beluga whale assessment is one of only two references

to climate change in the document. The other is a reference to greenhouse gas emissions: The drillingrig would correspond to less than 0.2 percent of the greenhouse gas emissions for Newfoundland andLabrador (based on 2003 greenhouse gas emissions data) (Stantec, 2011: 25). Flaring, a component of


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the oil production process that is greenhouse gas intensive, is not referenced in the report. Moresubstantial discussion is allocated to the risk of small, medium and large oil spills:

Based on modeling conducted by SL Ross the maximum extent of an oil spillthat originates at the well site could extend up to 20 km from the point of origin ofthe spill, which is approximately 50 km away from the closest Newfoundland coast,approximately 70 km from the closest Nova Scotia coast and approximately 75 km

away from the closest Magdalen Islands coast As the Study Area was delineatedto incorporate supply vessel and helicopter routing to and from Newfoundland,there is also potential for a batch spill to originate from a supply vessel at any pointalong the route. The worst case-scenario would be a collision / sinking close toshore that resulted in the loss of oil and diesel fuel (Stantec, 2011: 312).

While the spill volume for such a scenario is not specified, a map of the maximum extent of the plumetrajectory is provided (Figure 2). It is unclear to what degree wave action could result in greaterdispersion.

Figure 2: Predicted maximum extent of oil plume trajectory

in relation to Old Harry exploration license (Stantec, 2011: 42).

However, citing global oil spill rates, the report determines that the chance of an oil spill, especially amedium or large spill occurring is unlikely (Stantec, 2011: 343). The 2004 Terra Nova spill, thelargest in Newfoundland and Labradors history, is not referenced.

The report concludes with the following statement regarding voluntary monitoring and follow-up activities:

A follow-up program is discretionary, not mandatory, for a screening-levelenvironmental assessment. Potential follow-up and monitoring that could be

applied to this Project include the following: There is no follow-up and monitoring recommended for marine fish (at-risk andnot-at-risk), shellfish and fish habitat. Routine checks will be done for stranded birds that may have been attracted tovessel lighting. Corridor will use a Marine Mammal Observer during the drilling program. In the unlikely event of an oil spill, an EEM [Emergency Environmental Plan]program will be designed as part of Corridors Emergency Response Plan. During the VSP [Vertical Seismic Profile] program, a qualified observer will beused, whom will be capable of liaising with the fishing industry.


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Any fluid losses will be reported to the C-NLOPB and the Canadian Coast Guardand any seabird mortalities will be recorded by the on-board observer(s) (emphasisadded) (Stantec, 2011: 343).

Overall, discussion of both tourism and climate change are minimal. Cumulative impacts, such asexemplified by the various stresses experienced by beluga whales, are largely disregarded in the finalassessment.

Oil spills

Data on oil spills in Newfoundland and Labrador is available from 1997 to 2010. Within thespan of 14 years, 436 spills totaling 435,183 litres occurred (Figures 3, 4a and 4b). The 2004 TerraNova spill accounts for 39 per cent of the total spill volume. Spill activity in 2009 and 2010 is minimal.In 2009/10, 16 of 25 petroleum spills reported were less than one litre in volume (C-NLOPB, 2010).Total spill volume amounted to 278 litres, a small quantity given that 94 million barrels of oil wereproduced by Hibernia, Terra Nova and White Rose during the year. This suggests that spill preventionpractices are stringent and effective, and/or that there may be underreporting of actual spill activity.Further information about the spills, in terms of extent, environmental impact and oil recovery is notprovided on the C-NLOPB website and prove a valuable area for future research.

Figure 3: Number of annual reported oil spills in the Newfoundland and Labradoroffshore oil and gas sector, 1997-2010 (C-NLOPB, 2011)

0

10

20

30

40

50

60

1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010


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Figure 4a: Volume of annual reported oil spills in the Newfoundland and Labradoroffshore oil and gas sector, 1997-2010 (litres) (C-NLOPB, 2011)

0

50000

100000

150000

200000

250000

300000

1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010

Figure 4b: Volume of annual reported oil spills in the Newfoundland and Labradoroffshore oil and gas sector, 1997-2010, excluding 2004 and 2007 (litres) (C-NLOPB, 2011)

0

5000

1000015000

20000

25000

30000

35000

1997 1998 1999 2000 2001 2002 2003 2005 2006 2008 2009 2010

Terra Nova spill

In November 2004, a mechanical failure on the Terra Nova rig, operated by Suncor Energy Inc.,resulted in Newfoundland and Labradors largest oil spill. In total, 1,038 barrels (170,000 litres) were

spilled (Suncor, 2012). By comparison, the 1989 Exxon Valdez spill was 260,000 barrels and the 2010Deepwater Horizon spill in the Gulf of Mexico was 4.9 million barrels. The Terra Nova spill extendedover an area of 793 square kilometres and was estimated to put 10,000 to 16,000 seabirds at risk(Wilhelm et al., 2006). Oiled birds were found on the southeastern shore of Newfoundland in the weeksfollowing the spill (Jones, 2012). Conducting a scan of media coverage of the oil spill, particularlywildlife impacts, would provide an interesting area for future research.

In 2005, charges were laid against Suncors parent company, Petro-Canada, by the C-NLOPB.In 2006 Petro-Canada paid a total of $290,000 through the federal Environmental Damages Fund ($279per barrel) (Jones, 2012). By comparison, Exxon was originally charged $287 million for damages


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($1,103 per barrel) and $5 billion for punitive damages ($19,231/barrel), though the punitive damageswere appealed.

The Suncor Energy Inc. website provides a brief summary of lessons learned:

We have learned many lessons from this event. Following the incident, we wentthrough an extensive investigation and identified the root cause of the oily waterdischarge, as well as any contributing factors. Enhanced equipment technologies

have been put in place to prevent such a discharge again. Additionally, thosesystems have manual back up-operators perform hourly visual inspections of thesystems (Suncor, 2012).

Aside from 2004, the second largest spill volume occurred in 2007. Recent spill volumes have beenmuch smaller. It would be worthwhile to explore the factors that account for this decline.

Reporting

Given the event of an oil spill, an incident bulletin is posted on the C-NLOPB website. In2011, 20 bulletins were issued, of which four related to spills, eight to helicopter travel and eight toother issues. An example of spill bulletin includes the following issued on October 13, 2011:

C-NLOPB Responding to SBM Spill from GSF Grand Banks

Husky Energy reported a loss of approximately 600 litres of Synthetic Based Mud(SBM or Drilling Fluid) from the GSF Grand Banks to the sea.The spill occurredduring normal drilling operations. Husky Energy reported that a small amount ofdiscoloration of the water from SBM was noticed on the surface for approximately3-4 minutes before being dispersed by wave motion. Drilling operations have beensuspended and Husky Energy is investigating the cause.

The C-NLOPB reports that it intends to follow up with Husky Energy (C-NLOPB, 2012e). Areas forfuture research could involve identifying the nature of C-NLOPB follow up activities and howfrequently C-NLOPB incident bulletins are reported in the popular media.


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EcotourismEconomic diversification

From 1992 to 2010, developing the tourism sector was identified as a key strategy fordiversifying Newfoundland and Labradors economic base. The 1992 discussion paper, NewAdventures for Growth, compiled by the Adventure Tourism Working Group of the EconomicRecovery Commission states:

In 1990, the Economic Recovery Commission initiated a project to examine theprovinces potential to develop new employment in sectors of our economy thatpresent opportunities for growth outside our established resource industries(Government of Newfoundland and Labrador, 1992: i).

The economic sectors identified were adventure tourism, as well as: aquaculture, cultural industries,crafts and home based/micro industries, energy efficiency and alternative energy, environmentalindustries, export services, information industries, innovative technology and manufacturing(Government of Newfoundland and Labrador, 1992: i). The report continues:

Underlying this philosophy is the belief that we not only can, but must, learn to

excel in new areas of economic activity if NL and Lab is to improve its currentsituation. With the traditional wealth-producing natural resource industries havingreached their limits for new employment creation, our future prosperity as a societyis inexorably linked to our ability to take full advantage of the worlds demands fora growing diversity of goods and services (Government of Newfoundland andLabrador, 1992: ii).

Interestingly, while the need for economic diversification is emphasized, there is little mention of the1992 moratorium on cod fishing, a significant impetus for diversification. The only specific referenceto the moratorium in provincial tourism strategies during this period is in a 1993-1998 TourismMarketing Plan:

The closure of the Northern Cod fishery may have a negative impact on residenttravel and may result in the province being perceived as a poorer province andtherefore less attractive to the tourist (Government of Newfoundland and Labrador,1993: 7).

The lack of direct mention of the cod moratorium may signal a form of discursive black boxing, or maybe indicative of a cultural permeation of the social fact of the moratorium, that is, it underlies allpolitical-economic discourses and therefore does not need to be explicitly referenced.

Department of Tourism Culture and Recreation

The vision of the Newfoundland and Labrador Department of Tourism Culture and Recreation

(DCTR) is of:

a province that is a tourism destination of choice, with superior and authenticvisitor experiences, a robust cultural identity, natural and cultural resources that

are protected and sustained, creativity in the arts that is fostered and recognized,cultural industries that are strong and vibrant, and an active, healthy populationparticipating in physical activity, recreation and sport at all levels for quality of lifeand improved health (emphasis added) (Government of Newfoundland andLabrador, 2012d).


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Within DCTR, there are three tourism divisions: Tourism Marketing, Tourism Product Developmentand Tourism Research (Government of Newfoundland and Labrador, 2012e). The departmental budgetincreased more than ten-fold from 1997 to 2011, from $5 million to $61 million in 2011/12(Government of Newfoundland and Labrador, 2011: 5; Government of Newfoundland and Labrador,1997: iii). Marketing is strategic departmental focus; theDTCR marketing budget was doubledbetween 2003 and 2010 from $6 million to $13 million.

Economic impact

The provinces goal is to createa sustainable tourism sector that taps into our growth potentialand delivers maximum economic, social, and cultural value (Government of Newfoundland andLabrador, 2009: 25). Newfoundland and Labrador was named one of the top new and undiscoveredtravel destinations on several key travel lists from industry leaders like Lonely Planet and Fodors(Government of Newfoundland and Labrador, 2009: 18). Such designations, combined with DTCRmarketing campaigns and other measures, are attributed to the increasing economic impact of tourism.Between 1997 and 2011, non-resident visits increased by 14 per cent (Government of Newfoundlandand Labrador, 2011a: 12; Government of Newfoundland and Labrador, 2010b).

In 1992, 264,000 non-residents visited Newfoundland, spending $127 million (Government ofNewfoundland and Labrador, 2010: 1). By 2010, 518,500non-residents visited, spending$411 millionand surpassing its population for the first time (Government of Newfoundland and Labrador, 2010;Target, 2012) (Figures 5 and 6). The total economic impact is larger. For example, in 2007, non-residents spent $357 million, while the total economic spin-off was $790 million with over 12,000direct tourism jobs created, making tourism one of the provinces greatest economic drivers; thetourism sector accounts for about five per cent of the provinces Gross Domestic Product. (Governmentof Newfoundland and Labrador, 2009: 8). In 2010, the tourism industry contributed $850 million(Government of Newfoundland and Labrador, 2009: 17). In addition, in-province tourism by residentsaccounts for more than half of tourism spending, much of which occurs outside of the peak season(Government of Newfoundland and Labrador, 2009: 13).

Figure 5: Total non-resident visitors to Newfoundland and Labrador, 1992-2010(Government of Newfoundland and Labrador, 2010a)

0

100,000

200,000

300,000

400,000

500,000

600,000


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Figure 6: Total non-resident tourist expenditures in Newfoundland and Labrador, 1992-2010($ millions) (Government of Newfoundland and Labrador, 2010a)

$0.00

$50.00

$100.00

$150.00

$200.00

$250.00$300.00

$350.00

$400.00

$450.00

While visitor rates are increasing, the number of people employed directly by the tourism

industry remains high, but stable. In 1991, approximately 12,000 people were employed in the tourismsector during peak season (Government of Newfoundland and Labrador, 1992). In 2010, 13,000 peoplewere employed (Government of Newfoundland and Labrador, 2010).

Uncommon PotentialIn 2009, the province in cooperation with the tourism industry, released Uncommon Potential:

A Vision for Newfoundland and Labrador Tourism. This is a flagship document that provides:

a blueprint for extraordinary growth. It addresses the real and perceptualbarriers facing our industry with innovative strategies and actions. And itchallenges us to come together as entrepreneurs, industry partners, andGovernment to grow our industry to new heights: to double the annual tourismrevenue in Newfoundland and Labrador by 2020 (Government of Newfoundlandand Labrador, 2009: 8).

Following the release ofUncommon Potential, the Newfoundland and Labrador Tourism Board wasestablished. The 12 positions on the private/public Board are equally divided between representativesof the tourism industry, government and Destination Marketing Organizations (regional non-profitorganizations responsible for pursuing marketing opportunities) (Government of Newfoundland andLabrador, 2009: 26).

The Board is responsible for implementing the vision for tourism outlined in the document, andspecifically for developing and implementing a plan to achieve tourism revenues of $1.6 billion by2020 (Government of Newfoundland and Labrador, 2009: 11). Beyond private public leadership, six

other strategic directions are listed: a sustainable transportation network, market intelligence andresearch strategy, product development, tourism technology, brand marketing and workforcedevelopment. Objectives listed in Uncommon Potential include maximizing non-resident visitation,encouraging travel throughout the province and promoting multi-season travel (Government ofNewfoundland and Labrador, 2011: i).

Marketing

The Find Yourself Here marketing campaign was launched in 2006 and to date has received 130industry awards (Target, 2012). The ongoing campaign is fully integrated [featuring] national


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television, in-flight, newspaper, online, digital and social marketing, and strategic partnerships(Target, 2012). Ten themes are highlighted, including: Ancient Land, Cape St. Marys, Explore Winter,Iceberg Alley, Iceberg Viewing, Secret Place, 16 Feet of Snow, 5,000 km of Trails, 10,000 Whales and29,000 Kms of Coastline (Government of Newfoundland and Labrador, 2012c).

Notably, hunting and fishing are not referenced in the thematic areas of the Find Yourself Herecampaign, nor in Uncommon Potential.By contrast, hunting and fishing are central to earlier DCTRstrategies. Tourism Towards 2000, published in 1992, states that

Non-resident big game hunters are one of the largest per capita tourism revenuegenerators. This segment of the industry contributes $8 to $10 million annually tothe provincial economy, generates approximately $500,000 in license fees,provides in excess of 700 seasonal jobs for guides, cook and camp helpers and iscomprised of 112 outfitters operating 176 camps (Government of Newfoundlandand Labrador, 1992: iii).

Similarly, the 1993-1998 Tourism Marketing Plan identifies hunting and fishing product as one offive components of a marketing plan; the other components include touring, outdoor adventure, cruiseship and business travel (Government of Newfoundland and Labrador, 1993: 41). It would be

interesting to trace this shift away from hunting promotion, and related implications, in the context ofboth the framing of Newfoundland as an ecotourism destination and to contention around sealingpractices.

DTCR on environment

The prominence of the environment fluctuates in various DTCR documents. For example,environmental issues are more prominent in the 2008 Strategic Plan than in the 2011 Strategic Plan. Inearlier documents, site-specific environmental issues, such as litter, are raised, while the first referenceto global climate change is in 2009. Generally, environmental values are reflected in aspirationalstatements, but not incorporated into objectives and actions.

More recent references to the environment reflect tensions between the status quo and a lower

carbon future. For example, Uncommon Potential states that, Climate change has emerged as asignificant environmental concern and travellers are becoming more conscientious of their footprint(Government of Newfoundland and Labrador, 2009: 16). While there is a desire for tourism mobilityon the part of both the tourists and government, there is also recognition that travel modes rely on fossilfuels. Similarly, a link between the provinces simultaneous development of the ecotourism and oil andgas sector is cursorily acknowledged, Developed carefully, tourism can be a sustainable industry withfar-reaching economic, social, and cultural benefits. It has the ability to further generate substantialeconomic returns long after non-renewable resources have been extracted from our province(emphasis added) (Government of Newfoundland and Labrador, 2009: 17). While such observationsacknowledge a paradigm shift, the shift is positioned as temporally distant.

In addition, the suggested environmental actions listed in Uncommon Potential are soft

voluntary educational measures:

Adopt an environmental code of conduct to guide all elements of tourismdevelopment. Work with the tourism sector to ensure businesses have thecapability and knowledge to take an active role in protecting and enhancing theenvironment. Implement an awareness, education, and incentive program thatsupport environmental sustainability. Attract travellers who share our values ofrespecting our social, cultural, and environmental surroundings (Government ofNewfoundland and Labrador, 2009: 35).


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Similarly, the 2011-2014 Strategic Plan, simultaneously reflects contemporary environmental thinking,through reference to the precautionary approach, while also reflecting a traditional paradigm ofenvironmental and economic concerns as oppositional:

We believe in managing now for the future, to protect and sustain the health,diversity and productivity of our rich natural environment and distinctive culture, forthe benefit of present and future generations. In this, we recognize that our

knowledge of our natural and cultural heritage is as yet incomplete, which leads usto apply aprecautionary approach to heritage management and conservation. Wetake a balanced approach to preserving the provinces past and protecting ourcultural resources, and the need to create jobs and develop economic opportunities(emphasis added) (Government of Newfoundland and Labrador, 2011: 9).

Environmental and economic objectives are viewed as mutually exclusive. While environmentalconcerns are raised, economic development is prioritized.

Mobility

Mobility is a core theme in DTCR strategies from 1992 to 2010:

The reality is that it takes deliberate planning and determined effort to visit here.For Newfoundland and Labrador, theres no such thing as an accidental tourist.Travel distance, travel time, travel cost, and travel access are significant barriers forvisitors, and a major competitive disadvantage for our industry (Government ofNewfoundland and Labrador, 2009: 17).

This is, in fact, part of the of the appeal of the province for increasingly sophisticated and experiencedtravellers seeking more unusual places and experiences off the beaten track (Government ofNewfoundland and Labrador, 2009: 18). Such a perspective on mobility was also presented inNewAdventures for Growth, a 1992 strategy focused on the development of the adventure tourism sector.Amongst the provinces assets are its close proximity to natural attractions: icebergs, tundra, whales,

spawning capelin, major seabird colonies, seal herds, woodland caribou, and pristine wilderness areascan all be enjoyed relatively near to major population centres. This ease of access to major and variedresources is a significant competitive advantage (emphasis added) (Government of Newfoundland andLabrador, 1992: 7).

However, the dominant theme related to mobility in provincial tourism documents is difficultyof access. For example, this theme permeates the Tourism Marketing Plan 1993-1998. The Plan listsstrengths, weaknesses, opportunities and threats in the provincial tourism sector. Of the eight strengths,two relate to transport: increased ferry capacity offered by the MV Caribou and the Joseph and ClaraSmallwood, and improved road, rail and air links with Western Labrador (Government ofNewfoundland and Labrador, 1993: 6). Three of the 13 weaknesses relate to mobility, includingcomplaints about the ferry service, insufficient overseas airline capacity and the environmental impact

of ATVs (Government of Newfoundland and Labrador, 1993: 6). Of the 16 opportunities, five relate toimproved air transport connections and one to improved road transport in Labrador. Of the ten threats,two refer to the high cost of travel to the province (Government of Newfoundland and Labrador, 1993:7). More recent recommendations to improve access to the province echo these themes, ranging frommajor infrastructure improvements, such as improving air and ferry access, to improving road signageand increasing car rental capacity (Government of Newfoundland and Labrador, 2009: 29).


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Mobility trends

The main modes of access to the province are air, car/ferry and cruise ship. Air travel rates areincreasing steadily, while car travel rates have largely remained stable. Cruise travel started in 2002and, relative to air and car travel, is minimal. In 2009, air travel accounted for approximately two-thirdsof non-resident visits, while access by land and sea (e.g. cars, buses, ferries and cruise ships) accountedfor the remainder (Government of Newfoundland and Labrador, 2009: 28) (Figure 7). While airtravellers constitute the largest modal share, they visit for a shorter period of time: an average of ninenights, while land and sea travelers stay for 14 nights.

Figure 7: Annual non-resident visitation and expenditures by mode of travel, Newfoundland andLabrador: 1992-2010 (Government of Newfoundland and Labrador, 2010a)

$0.00

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Negative environmental impacts

Ecotourism is not immune to environmental concerns. The potential negative ecological risks oftourism are raised by environmental non-governmental organizations, such as the Canadian Parks andWilderness Society and the Protected Areas Association of Newfoundland and Labrador. Concernsabout the rapid pace of development and related risks to the ecological integrity of attractivedestinations are raised (Canadian Parks and Wilderness Society-NL, 2011b; Protected AreasAssociation of Newfoundland and Labrador, 2011).

For example, an acute case of irresponsible ecotourism is profiled by the Canadian Parks andWilderness Society:

the Witless Bay Ecological Reserve is bombarded daily by guided tour boats fullof tourists excited to see the birds that reside on the island. However, the birds

experience constant pressure and are influenced by the fast speed these boats travel,etc. (Canadian Parks and Wilderness Society-NL, 2011b).

Other, more chronic, ecological stressors include developments such as logging, mining, hydroflooding, agriculture, logging roads and ATV trails, cabin developments and urban sprawl whichdisrupt habitat, including feeding, mating and migration behaviours (Protected Areas Association ofNewfoundland and Labrador, 2011). Most fundamentally, climate change introduces system-widestresses (Protected Areas Association of Newfoundland and Labrador, 2011). Such concerns arealluded to, though not expanded upon, in Uncommon Potential, There is also an increased demand for


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sustainable approaches to preserve the natural and cultural heritage of a destination (Government ofNewfoundland and Labrador, 2009: 16).

In response to this issue, the local chapter of Canadian Parks and Wilderness Society hasembarked on a multi year project designed to encourage responsible tourism to operators, tourists andthe general public with the goal that this will lead to increased protection for our significant features,species and habitats (Canadian Parks and Wilderness Society-NL, 2011b). It is unclear if and how theprovincial government is responding to such concerns.

National Geographic partnership

In 2011, the government of Newfoundland and Labrador partnered with National Geographicand the local chapter of the Canadian Parks and Wilderness Society to develop a geotourism mappingproject. This is an example of a specific ecotourism initiative. Through the partnership, NationalGeographic creates an online, interactive map that highlights local tourist attractions and amenities thatare characteristics of Newfoundland as a bioregion. Of the project, the Minister of Innovation, Tradeand Rural Development, Susan Sullivan, states:

Geotourism is a growing sector that holds tremendous economic potential for thedevelopment and expansion of new and existing sustainable tourism products and

experiences. This project will further highlight our abundant cultural and naturalattributes while spotlighting businesses and sites that subscribe to the principles ofgeotourism (CPAWS-NL, 2011a).

Similarly, the Minister of Tourism, Culture and Recreation, Terry French, observes that Geotourism isan essential component of the growth and development of the overall tourism strategy. Thispartnership will further promote our great province and add to the economy of the region (CPAWS-NL, 2011a). Evaluating this initiative in terms of uptake by service providers and tourists would be apotential area for future research.


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Climate ChangeEmissions profile

Total annual greenhouse gas emissions rose 2.7 per cent between 1990 (9.2 kilotonnes CO 2equivalent) and 2009 (9.4 kT CO2e) (Figure 9) (Government of Newfoundland and Labrador, 2010c).Within this period, emission reached a low of 7.1 kT CO2e in 1994 and a high of 11.3 kT CO2e in 2002(Government of Newfoundland and Labrador, 2010c). However, emissions are not rising steadily:declines occurred in 2005 and 2006. In 2006, emission levels were on par with 1990 levels.

This trend is not reflected to the same degree in per capita emissions due to population decline;the provinces population decreased 12 per cent between 1990 and 2007 (Environment Canada, 2009).Total annual greenhouse gas emissions per capita rose from 16.0 kT CO2e in 1990 to 18.6 kT CO2e in2007 (Figure 9). Newfoundland and Labrador ranks fifth in Canada for per-capita emissions(Government of Newfoundland and Labrador, 2010c).

Figure 8: Total annual greenhouse gas emissions in Newfoundland and Labrador, 1990-2009(kt CO2 equivalent) (Government of Newfoundland and Labrador, 2010c)

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Figure 9: Total annual greenhouse gas emission per capita in Newfoundland and Labrador,1990-2009 (kt CO2 equivalent) (Government of Newfoundland and Labrador, 2010c)

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On average, the energy sector, comprised of stationary combustion sources (e.g. mining and oil

and gas extraction, fossil fuel production and refining, electricity and heat generation), the


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transportation sector (e.g. light-duty gasoline vehicles, domestic aviation, domestic marine), andfugitive sources (e.g. leaks in industrial processes) accounts for 90 per cent of provincial emissions(Government of Newfoundland and Labrador, 2010c). In 2009, stationary combustion sourcesaccounted for 51 per cent of emissions, the transport sector 42 per cent, and fugitive emissions 6 percent (Government of Newfoundland and Labrador, 2010c).

However, a comparison of the stationary combustion emissions originating from the oil and gassector (e.g. mining and oil and gas extraction, fossil fuel production and refining) and the transportationsector reveals that transportation emissions are consistently higher (Figure 10). This comparison is arough approximation, as the oil and gas figures include the mining sector and exclude fugitiveemissions. Also, the transportation figures include on-road, off-road, domestic air and domestic marinemodes, while intraprovincial and international air, and intraprovincial marine are excluded. Further, thepercentage of emissions in the transport sector contributed by tourists, or, for that matter, by the oil andgas sector, cannot be determined. However, despite these limitations, the comparison illustrates thatemissions from the transport sector are significant. Further, it raises questions about the framing oftourism as environmentally sustainable.

Figure 10: Total annual greenhouse gas emission per capita in Newfoundland and Labrador inthe oil and gas and transportation sectors, 1990-2009 (kt CO2 equivalent)

(Government of Newfoundland and Labrador, 2010c)

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Relative to Canada, Newfoundland and Labradors total contribution of greenhouse gasemissions ranged between 1.1 percent in 1994 and 1.6 per cent in 2002; in 2009, the contribution was1.4 per cent (Government of Newfoundland and Labrador, 2010c). Relative to Alberta and BritishColumbia, other large Canadian fossil fuel producers, Newfoundlands total emissions are low: 10

Megatonnes versus 245 Megatonnes and 63 Megatonnes respectively (Figure 11).


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Figure 11:Total annual greenhouse gas emissions in Newfoundland, Alberta and BritishColumbia, 2007 (Megatonnes) (Environment Canada, 2009)

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Such comparisons, however, risk shifting responsibility for emission reduction to other jurisdictions.

Researching how many people from Newfoundland and Labrador are employed in Albertas oil and gassector, and determining related environmental impacts and economic benefits, would create a morenuanced national emissions profile.

Impacts and adaptation

Climate change impacts and adaptation are addressed in the provinces 2005 and 2011 ClimateChange Action Plans and are the subject of a report commissioned by the Office of Climate Change,Energy Efficiency and Emissions Trading. The Climate Change Action Plans draw on specificexamples of climate change impacts in the province to illustrate the types of changes to be expectedand related economic impacts. For example, the 2005Climate Change Action Plan states that flooddamage from 1990 to 2005 cost approximately $40 million (Government of Newfoundland and

Labrador, 2005). Flooding in spring 2003 contributed to the partial collapse of the Pinchgut Brookbridge and the wash-out of 80 metres of highway in Burlington (Government of Newfoundland andLabrador, 2005). It is estimated that damage caused by 2002 Tropical Storm Gabrielle cost more than$400,000 (Government of Newfoundland and Labrador, 2005). More recently, Hurricane Igor causedan estimated $150 million in damages and, at its peak, cut off 150 communities from transportationinfrastructure and affected electricity to an estimated 70,000 people (Government of Newfoundlandand Labrador, 2011c: 7).

In 2010, Cattoconducted a literature review of climate change impacts and adaptation inNewfoundland and Labrador for the Office of Climate Change, Energy Efficiency and EmissionsTrading. The 200-page report is wide-ranging, addressing both ecosystems, such as terrestrial andmarine, as well as social sectors, such as energy and health. The following is a summary of areas

relevant to the scope of this report: coastal areas, tourism and transportation.

Climate change and coastal areas

Sea level rise, storm surge activity, coastal erosion, beach narrowing and beach coarsening areall projected climate change impacts that affect coastal areas (Catto, 2010). Sand-dominated beaches,coastal dune complexes, tidal flats and estuaries, and salt marshes, for example, are at risk ofinundation (Catto, 2010: 15). Projected economic impacts are high, due to both of the severity ofecological changes and to the increased value of coastal developments (Catto, 2010).


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Climate change and tourism

Catto finds that the studies on climate change and tourism centre on two areas: the impacts ofchanging climate conditions at particular sites; and the role of travel (particularly air travel) ingenerating climate change, possibly leading some potential tourists to question their vacation choices(2010: 40). Studies of the Newfoundland and Labrador context focus on the former. For example, it isprojected that climate change may result in a longer peak tourist season, increasing human impacts ontourist sites (e.g. coastal erosion), bringing into question the ecological sustainability of tourism (Catto,2010). While warmer summer temperatures may attract tourists, increased storm events may act as adetractor (Catto, 2010). Catto briefly acknowledges iceberg-related tourism within a discussion oficeberg formation (Catto, 2010).

Studies of climate change and winter tourism are primarily concerned with the quantity andtiming of snow cover (Catto, 2010: 42). One Newfoundland study finds that downhill skiingconditions at Marble Mountain are projected to remain satisfactory (Rada, 2009 cited in Catto, 2010).In contrast, a study of snowmobiling conditions in eastern North America finds dramatic impacts: areduction in suitable days between 38% and 62% by the 2020s relative to the 1970s, and a season ofless than one week in Gander by 2050 (McBoyle et al., 2006, 2007 in Catto, 2010: 42). Given suchdivergent assessments, more research is needed on this topic, as well as on travel-related emissions andtourist destination choices in the Newfoundland context.

Climate change and transport

Catto addresses marine, road and air travel, determining that climate change yields advantagesand disadvantages. Catto finds that increased wind strength, particularly easterly winds, may affectmarine travel in terms of trip delays and cancellations, infrastructure maintenance, and emergencypreparedness (e.g. Coast Guard). Wave and ice conditions are projected to remain risks to marinevessels, while fog intensity and frequency are projected to decrease (Catto, 2010). Catto does notspecifically address cruise ship travel.

Studies on road travel focus on the road surface. Projected impacts include summer heating andwinter freezing that may effect driving safety, freeze-thaw cycles leading to infrastructure damage, anddisruption due to storm events (e.g. flooding) (Catto, 2010). Advantages of climate change to roadtravel are not listed, but may include a longer dry season and decreased fog. The same risks that applyto roads surface also apply to airport runway surfaces (Catto, 2010).

Newfoundland and Labradors airports, with the exception of Stephenville Airport, are locatedon high-lying, inland regions that are not at risk for flooding (Catto, 2010). As well, rain and fogfrequency are projected to decrease (Catto, 2010). Catto does not address the potential impacts ofstorms on air travel, though presumably they are similar to those for marine travel (e.g. trip delays andcancellations). It would be valuable to learn to what extent the Newfoundland and LabradorDepartment of Transportation and Works and the Canadian Coast Guard are incorporating suchprojections into their work plans.

Office of Climate Change, Energy Efficiency and Emissions Trading

The Office of Climate Change, Energy Efficiency and Emissions Trading (CCEEET) is the leadagency on climate change in Newfoundland and Labrador (Government of Newfoundland andLabrador, 2012f). CCEEETs vision is of a province that achieves economic, social and environmentalsuccess by effectively integrating progressive action on climate change and energy efficiency and itsmission is, by 2017, to have advanced the provinces capacity to respond and adapt to climate change(Government of Newfoundland and Labrador, 2011b: 5).

Founded in 2009, CCEEETs five employees coordinate provincial strategy and policy. Aswell, they collaborate with governmental departments responsible for climate change programimplementation, such as the Department of Environment and Conservation and the Department of


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Natural Resources (Government of Newfoundland and Labrador, 2012f). CCEEET representsprovincial interests on regional, national and international bodies focusing on climate change andenergy efficiency, such as the NEG/ECP annual conferences (Government of Newfoundland andLabrador, 2012f). In 2010/11, CCEEETs budget was $898,600 (Government of Newfoundland andLabrador, 2011b).

CCEEET has three focus areas: Policy and Strategy Development, Promoting Government-wide Action and Strengthening the Evidence Base (Government of Newfoundland and Labrador,2012f). In terms of Policy and Strategy Development, CCEEET hosted 13 engagement sessions in2010/11 with representatives from industry, academia, municipalities, labour organizations, and thevoluntary and not-for-profit sector (Government of Newfoundland and Labrador, 2011b: 7). As well,CCEEET held bilateral consultations with representatives from 11 industries, including oil extractionand refining (Government of Newfoundland and Labrador, 2011b: 7). These sessions centred on aClimate Change Action Plan discussion document drafted by CCEEET (Government of Newfoundlandand Labrador, 2011b). In addition, CCEEET conducted a public survey to gauge public awareness andattitudes on climate change and energy efficiency. It would be valuable to learn the survey content andfindings (Government of Newfoundland and Labrador, 2011b: 7).

With regard to Promoting Government-wide Action, CCEEET engaged with representatives ofthe Departments of Environment and Conservation, Natural Resources, Finance, Innovation, Trade andRural Development, Municipal Affairs, Transportation and Works, and Intergovernmental Affairs. Itwould be useful to learn the nature of these exchanges, as well as whether CCEEET intends to engagewith the Department of Tourism Culture and Recreation.

Finally, in terms of Strengthening the Evidence Base, CCEEET has

undertaken or commissioned a series of research projects including studies on:the impacts of carbon pricing on Newfoundland and Labrador; the impacts ofclimate change on the province; commercial and industrial energy efficiencyprograms in other provinces and territories; climate change monitoring capabilitiesin the province; and, with the Department of Innovation, Trade and RuralDevelopment, a study of the opportunities associated with the green economy

(Government of Newfoundland and Labrador, 2012f).

Relevant aspects of the 2010 Catto report on climate change impacts are summarized in the previoussection of this report (pp. 22-3).The other report of most relevance to this project is the green economyreport developed in collaboration with Department of Innovation, Trade and Rural Development.However, this report is not readily available on either departmental website. It would be valuable tolearn how the oil and gas sector and tourism sectors are represented in this report.

Climate Change Action Plan 2011

In 2011, the Government of Newfoundland and Labrador released its second climate changeaction plan, Charting our Course: Climate Change Action Plan 2011. This plan builds on, and

resembles, the provinces initial 2005 plan. The Plan echoes the position in the 2007Energy Plan thatthe current oil and gas boom will finance renewable infrastructure: Our province has vast clean energyresources and our government is committed to utilizing revenues from our non-renewable resources tosupport a clean energy future (Government of Newfoundland and Labrador, 2011c: n.p.). As well, itreaffirms the NEG/ECP emission reduction targets first committed to in theEnergy Plan.

The tone of the Plan is optimistic, referring to untapped opportunities and stating that thegovernment is committed to positioning our economy so we are well placed to seize the opportunitiesassociated with the move to a low-carbon global economy (Government of Newfoundland andLabrador, 2011c: n.p.). However, the content of the Climate Change Action Plans proposed mitigation


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actions are incremental rather than transformational. For example, mitigation measures include in-house government emission reductions, applying emission regulations to new industrial developmentsand promoting residential energy efficiency through rebates (Government of Newfoundland andLabrador, 2011d).

While all of these measures are necessary, they work at the margins of the status quo. Theabsence of substantive measures in the oil and gas sector is notable. Amongst the 12 actions listed toaddress emissions from large final emitters are: Take account of trade-exposed nature of energy-intensive sector, Provide greater long-term certainty for industry, and Accommodate the uniquecircumstances of the offshore oil and mining sectors (Government of Newfoundland and Labrador,2011c: 43). This language implies industry influence on the Climate Change Action Plans content.Similarly, the transportation actions centre on advocating for improvements to vehicle and fuelefficiency standards, not managing demand.

While the CCEEET commissioned a report on carbon pricing, and incorporates EmissionsTrading into its organizational nomenclature, there is minimal discussion of carbon pricing in theClimate Change Action Plan. The report provides a one-page primer on carbon pricing concepts andsummarizes the CCEEET study,

in a carbon-constrained environment in which a price is placed on GHGemissions, fuel-switching to cleaner energy sources and energy efficiency are themost promising and cost-effective opportunities for emissions reductions in theindustrial and commercial sectors (Government of Newfoundland and Labrador,2011c: 42).

Such a disjuncture suggests that innovations being considered at certain levels of government are notpermeating to other levels.

Lastly, there are several scenic photos of the province in the report, provided by the DepartmentTourism, Culture and Recreation, but no link is made in the text between climate change and thetourism sector.


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Future ResearchSeveral areas for future research emerged in the course of this report. With regard to the oil and

gas sector, numerous questions arise with regard to the Canada-Newfoundland and Labrador OffshorePetroleum Board (C-NLOPB). Basic information, such as the nature of the C-NLOPB oil spill fielddetection programs, data about spills, in terms of marine extent, environmental impact and oil recovery,and factors contributing to the decline in total annual oil spill volume since 2007 would be useful.Exploring whether the tourism sector, particularly ecotourism, is considered in C-NLOPB projectreviews and the history of compensation awarded to those affected by oil spill events would also bevaluable. Finally, examining media coverage of the 2004 Terra Nova oil spill, particularly wildlife andecotourism impacts, as well as identifying how frequently C-NLOPB incident bulletins are addressed inthe popular media may be illustrative.

Uncommon Potential:A Vision for Newfoundland and Labrador Tourism states that, Climatechange has emerged as a significant environmental concern and travellers are becoming moreconscientious of their footprint (Government of Newfoundland and Labrador, 2009: 16). A key areafor research is examining the relationship between travel-related emissions and tourist destinationchoices in the Newfoundland context. Connected to this is the issue of future snow coverage trends andthe biophysical and social impacts on the winter tourism industry (Catto, 2010). A further research areamay involve tracing the shift away from the promotion of hunting and fishing in relation to the framingof Newfoundland as an ecotourism destination, as well as the framing of the province as a site ofcontentious sealing practices.

Finally, there appears to be a disjuncture between potentially transformative climate changework in the provinces Office of Climate Change, Energy Efficiency and Emissions Trading(CCEEET)and an incremental approach reflected in the 2011 Climate Change Action Plan. ExploringCCEEETs approach to, and position on, greenhouse gas intensive extractive and attractive sectorswould be valuable. Locating and reviewing the green economy report co-authored with the Departmentof Innovation, Trade and Rural Development would be an excellent starting point.


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ConclusionThe province of Newfoundland Labrador is simultaneously pursuing divergent development

pathways. The Canada-Newfoundland and Labrador Offshore Petroleum Board (C-NLOPB) managesthree offshore sites, Hibernia, White Rose and Terra Nova, and is planning the development of a fourthsite, Hebron. With estimated reserves of 700 million barrels, Hebron is projected to create 3,500 jobsand to contribute $20 billion in revenue to the province. Pending C-NLOPB approval, Hebron isscheduled to be in production from 2017 to 2042.

In addition to extractive industry, the province is also pursuing attractive development. Theprovinces natural beauty and related ecotourism opportunities are a pillar ofUncommon Potential: AVision for Newfoundland and Labrador Tourism. In 2010, more than 500,000 non-residents visited theregion, exceeding for the first time the number of residents and contributing $850 million to theeconomy. By 2020, the Newfoundland and Labrador Department of Tourism Culture and Recreationaim to double annual tourism revenue to $1.6 billion.

Growth in the oil and gas and ecotourism sectors will contribute to increased greenhouse gasemissions. Stationary and transport sources already account for 90 per cent of provincial emissions,presenting a challenge to the Office of Climate Change, Energy Efficiency and Emissions Tradingwhich is responsible for meeting the 2011Climate Change Action Plan target of reducing emissions 10per cent below 1990 levels by 2020. Further, impacts of the type projected under climate changescenarios are already occurring. For example, flood damage throughout the province costapproximately $40 million between 1990 and 2005.

This review of the political economy of the oil and gas sector, ecotourism sector and climatechange policy between 1992 and 2010 illustrates a disconnection between spheres. The oil and gasindustry and ecotourism are framed as key economic drivers. However, there is no substantivediscussion of the paradoxical pursuit of both extractive and attractive development, nor of practicalimpacts of one sector on the other, such as climate change-related events damaging transportationinfrastructure or oils spills affecting coastal environmental quality.

Further, the oil and gas and tourism sectors fall within Newfoundland and Labradors two mostgreenhouse gas intensive sectors, stationary combustion sources and transportation. This poses a directchallenge to the achievement of the provinces greenhouse gas emission target of a 10 per centreduction below 1990 levels by 2020. This tension is reflected in the incremental rather thantransformational nature of the 2011 Climate Change Action Plan. In short, while the spheres of oil andgas development, ecotourism and climate change run into, spill over and indeed, in large part,constitute one another, they are addressed by the province of Newfoundland and Labrador as discretedevelopment pathways, resulting in the simultaneous pursuit of paradoxical policy directions.


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Canadian Parks and Wilderness Society - Newfoundland and Labrador. 2011a. Partnership withNational Geographic Will Lead to Development of Geotourism Guide. Accessed 01. 2012.http://cpawsnl.org/news/national-geographic-cpaws-to-develop-geotourism-guide.

Canadian Parks and Wilderness Society - Newfoundland and Labrador. 2011b.ResponsibleEcotourism. Accessed 01.2012. http://cpawsnl.org/campaigns/ecotourism

Catto, N. 2010.Review of Academic Literature Related to Climate Change Impacts and Adaptation inNewfoundland and Labrador. St. John's: Newfoundland & Labrador Office of Climate Change, EnergyEfficiency and Emissions Trading.

Environment Canada. 2009. National Inventory Report 1990-2007: Greenhouse Gas Sources andSinks in Canada. Accessed 03.2012. http://www.ec.gc.ca/Publications/B77E6264-D0E3-45B5-BE56-5A395C0B7653%5CNationalInventoryReport19902007GreenhouseGasSourcesAndSinksInCanada.pdf

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Government of Newfoundland and Labrador, 2010c.Historical GHG Emissions SummaryNewfoundland and Labrador, 1990-2009 (ktCO2 equivalent). Accessed 03.2012.http://www.exec.gov.nl.ca/exec/cceeet/factsandfigures/ghg_data_2009.pdf

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