Shellfish aquaculture and First Nations' sovereignty: The quest for sustainable development in contested sea space

Aquaculture tenures or leases have become an increasingly important management tool for regulating access rights to coastal and offshore marine habitat. Tenure, as a form of private property rights to marine space, is generally considered a prerequisite for aquaculture development, as are the associated exclusive access rights which provide necessary incentives for producers to invest in infrastructure. The shellfish industry in British Columbia (BC), Canada, is presented as a case study of a transition from a primarily common property wild fishery to a rights‐based system for aquaculture. In BC, seafood production has grown substantially during the past two decades as a result of aquaculture production. However, despite the inherent economic advantages of the tenuring system for increasing seafood production, rights to aquaculture sites in BC remain highly controversial, particularly in response to environmental concerns and infringements on Aboriginal territorial claims. Shellfish farming has, to‐date, been far less controversial than salmon farming; however, shellfish aquaculture has not been uniformly adopted across the province, and analyses of industry capacity or economic opportunities for coastal communities have failed to adequately explain development patterns. This paper, which identifies perceptions of the risks and benefits of the shellfish aquaculture tenuring system, presents the results of 56 interviews conducted with individuals involved in shellfish production in BC. Results indicate that heightened perceptions of risk about shellfish aquaculture tenuring are related to unresolved Aboriginal territorial claims, economic dependence on wild shellfish resources, as well as place‐based values favouring access to wild resources. Underlying values and cultural understandings also strongly shape public perceptions of the risks of aquaculture, and as such, influence local decisions to either accept or resist industry growth. In this case, interviewees' risk perceptions were found to be more important indicators of the potential for industry expansion than studies of capacity or economic cost‐benefit analyses.