Above and Below the Water: Social/Ecological Transformation in Northwest Newfoundland

Abstract

Marine fisheries and fishing societies develop around the resources provided by a particular ecosystem. As they exploit these resources, fisheries transform the ecosystem, which pushes fishery and society to adapt in turn. This process is illustrated by fisheries, ecological and social data tracking dramatic changes on Newfoundland's Northern Peninsula and its adjacent marine ecosystem, the northern Gulf of St. Lawrence. There a longstanding fishery for cod and other groundfish collapsed in the 1990s, and was replaced by fisheries targeting invertebrates. The new invertebrate fisheries have different socioeconomic characteristics than the former groundfish fisheries. The shift in target species reflects deep ecological changes that were underway at least a decade before official recognition of the crisis. Our analysis of biological data reveals that the main ecological changes occurred during the glory years of the 1980s, when Newfoundland's domestic fisheries were at their peak. Overfishing and interactions with adverse climatic conditions drove the changes. As the ecosystem transformed, human population declined due to outmigration, and social indicators show signs of distress. Accounts by outport residents paint a generational picture of social change.

Full text

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Above and Below the Water: Social/Ecological
Transformation in Northwest Newfoundland
Lawrence C. Hamilton
University of New Hampshire
Richard L. Haedrich
Memorial University of Newfoundland
Cynthia M. Duncan
The Ford Foundation
Marine fisheries and fishing societies develop around the resources provided by
a particular ecosystem. As they exploit these resources, fisheries transform the eco-
system, which pushes fishery and society to adapt in turn. This process is illustrated
by fisheries, ecological and social data tracking dramatic changes on Newfound-
land’s Northern Peninsula and its adjacent marine ecosystem, the northern Gulf of
St. Lawrence. There a longstanding fishery for cod and other groundfish collapsed
in the 1990s, and was replaced by fisheries targeting invertebrates. The new inverte-
brate fisheries have different socioeconomic characteristics than the former ground-
fish fisheries. The shift in target species reflects deep ecological changes that were
underway at least a decade before official recognition of the crisis. Our analysis of
biological data reveals that the main ecological changes occurred during “the glory
years” of the 1980s, when Newfoundland’s domestic fisheries were at their peak.
Overfishing and interactions with adverse climatic conditions drove the changes.
As the ecosystem transformed, human population declined due to outmigration,
and social indicators show signs of distress. Accounts by outport residents paint a
generational picture of social change.
KEY WORDS: Newfoundland; fisheries; collapse; social; ecological.
Please address correspondence to Lawrence C. Hamilton, Sociology Department, Univer-
sity of New Hampshire, Durham, NH 03824; e-mail: Lawrence.Hamilton@unh.edu.
Population and Environment, Vol. 25, No. 3, January 2004  2004 Human Sciences Press, Inc.
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POPULATION AND ENVIRONMENT
INTRODUCTION
Fisheries are human systems, constructed to exploit living resources of
a natural ecosystem. Characteristics of the ecosystem constrain its possible
fisheries, and also help to shape the society that a fishery can support. The
cod-dominated ecosystems of northwest Atlantic continental shelves, for
example, influenced not only the pattern of early European settlement in
North America, but also the trade, societal and political relations that those
settlements later developed (Kurlansky, 1997). Newfoundland’s frequently
icy coasts constrained the kind of settlements that could take root there,
which differed from those along warmer coasts of the northeastern Atlantic.
Even in the most fisheries-dependent societies, social forces play critical
roles (e.g., Sider, 1986; Sinclair, 1988; Candow & Corbin, 1997; Apostle et
al., 1998). Underneath all the social influences, however, fisheries-depen-
dent societies retain close links to their host ecosystems.
Ecosystems have dynamics of their own. The contemporary flora and
fauna of the North Atlantic evolved within a highly variable ocean environ-
ment. This evolution has taken place over millions of years, while ice ages
came and went, to produce the natural communities encountered by earlier
generations of fisher folk. Large climatic variations on annual, decadal and
longer time scales are commonplace in this region, and natural populations
fluctuate in response (Jakobsson et al., 1994; Beamish, 1995). Predator–prey
relationships and competition among species, embedded over multifaceted
interactions between oceanic and climatic conditions, add to the ecological
dynamics. Over the past five centuries, however, and even more over the
past five decades, the ecology of the North Atlantic has been altered by
humans—and in particular, by fisheries. As a fishery transforms its resource
base, the fishery itself must change too, and along with it the fishing society.
Newfoundland’s Great Northern Peninsula (Figure 1) is the most fisher-
ies-dependent region of Canada’s poorest and most fisheries-dependent
province (Hamilton & Butler, 2001). For centuries, rich cod resources sup-
ported scores of small outports along the rocky coasts. In the 1980s and
90s, as cod populations declined, many fisher folk faced the loss of tradi-
tional livelihoods, in an area with few alternative resources. Some were
able to thrive in the emerging invertebrate fisheries, targeting shrimp and
crab that grew more abundant as the predatory cod disappeared. Catching,
processing and marketing the new “fish” required new investments, licenses
and marketing arrangements, however, and supported fewer people than
the former cod fishery. In this paper we bring together fisheries, ecological
and social data to provide a glimpse of the feedbacks between natural and
human systems.

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L. C. HAMILTON, R. L. HAEDRICH, AND C. M. DUNCAN
FIGURE 1. The island of Newfoundland, showing Northern Peninsula,
northern Gulf of St. Lawrence, and the home of the Northern Cod.

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POPULATION AND ENVIRONMENT
FISHERIES TRANSITION: FROM FISH TO INVERTEBRATES
Abundant cod (Gadus morhua) in waters around Newfoundland were
noticed by the explorer John Cabot in 1497. Systematic exploitation began
in the 16th century; over the following centuries, these became one of the
world’s most productive fishing grounds. Cod were a primary motivation
for European settlement on the island. Hundreds of small villages or out-
ports grew along the rugged coastline in locations favorable for cod fishing.
The harsh winters, rocky soils and remoteness of many outports discour-
aged economic development beyond fishing. After Newfoundland joined
Canada in 1949, its population grew rapidly (from 320,000 in 1945 to over
570,000 by 1990); fishing intensified, and a tertiary economy bloomed.
Newfoundland nevertheless remained Canada’s poorest province and the
one most dependent on federal aid. Away from the metropolitan center of
St. John’s, outport life generally centered around fishing (Matthews, 1976;
Sinclair, 1985, 1988; Candow & Corbin, 1997).
The 1992 collapse of the great cod population (called the Northern
Cod) off northern and eastern Newfoundland marked an abrupt end to this
five-century story. Warner (1997) provides an historical account of the ad-
vent of factory trawlers in the late 1950s, which subsequently led the way
in depleting cod stocks. Finlayson (1994) takes a sociology-of-science per-
spective to show how Northern Cod stock assessments were (mis)constructed
by managers over the years. Hannesson (1996) draws comparisons encom-
passing the failures of Norwegian, Faeroese and Icelandic cod fishery man-
agement at about the same time. Harris (1998) writes a detailed account of
the political mistakes that led up to the Northern Cod crisis and continued
in its aftermath. Hutchings and Myers (1995) provide historical analyses
showing that contrary to popular beliefs, even the pre-industrial fishery was
unsustainably consuming its resource base—albeit, more slowly than its
modern counterpart. Biological analyses point to overfishing as the primary
cause of the modern collapse (Hutchings & Myers, 1994; Sinclair & Muraw-
ski, 1997), with environmental conditions a contributing factor (Drinkwater,
2002). Despite a moratorium on Northern Cod fishing in 1992, and subse-
quent efforts at strict control, the stock failed to rebound. Even the limited
fishing pressure of post-moratorium years was sufficient to prevent recov-
ery; and if all fishing stopped, recovery would still take decades (Haedrich
& Hamilton, 2000; Hutchings, 2000). Finally, in April 2003, the federal
government closed the Northern Cod fishery. Canada’s Atlantic cod had
become an endangered species.
Huge though it was, the Northern Cod collapse proved to be just one
facet of a larger ecological transformation. Fisheries crises occurred through-

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L. C. HAMILTON, R. L. HAEDRICH, AND C. M. DUNCAN
out the northwest Atlantic during the early 1990s, from Greenland to New
England (Murawski et al., 1997). Among those affected were cod of the
northern Gulf of St. Lawrence (see Figure 1). Like the Northern Cod, the
Gulf cod were a top predator, dominant in their ecosystem. Outports along
the Northern Peninsula’s west coast developed around northern Gulf cod
fishing during the 19th and 20th centuries, with gradually rising levels of
exploitation (Sinclair, 1985; Felt & Sinclair, 1995). Figure 2 depicts cod and
shrimp catches 1960–2002. The post-World War II foreign catch in the
Gulf was proportionately lower than it was for the Northern Cod off north-
east Newfoundland, but still amounted to roughly half of the total during
the 1960s and early 1970s. Technological intensification of Northern Pen-
insula fishing after 1965 had partly ecological motivations. Offshore inten-
sification occurred as the more accessible inshore stocks were depleted
(Palmer & Sinclair, 1997, p. 31). A “killer spike” of peak catches around
1968–70 reflected the new and unsustainably high capacity of both Cana-
dian and foreign fleets. After Canada declared a 200-mile economic exclu-
sion zone (EEZ) in 1976, foreign quotas were cut back and domestic fishing
FIGURE 2. Cod and shrimp catches in the northern Gulf of St. Lawrence
(NAFO subareas 4RS), 1960–2002.
Data source: NAFO (2003).

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POPULATION AND ENVIRONMENT
capacity expanded through subsidized investment. Canadian catches reached
new highs in the late 1970s and early 1980s, then stayed above historical
levels until the late 1980s. The fleet buildup had broad social effects, as it
fostered within formerly egalitarian fishing communities a new elite of drag-
ger skippers (Sinclair, 1985). Increasing Canadian efforts to manage the
stocks also had the unintended effect of increasing unreported fishing
(Palmer & Sinclair, 1997, p. 47), so the 1980s peak in Figure 2 understates
the actual catch.
During what Palmer and Sinclair’s (1997) informants termed “the glory
years” of 1982–1987, the Northern Peninsula’s dragger fleet expanded, en-
couraged by state subsidies and the tremendous catches of larger vessels.
After 1988, however, falling catches and quotas signaled a new era of de-
cline. Inconsistent opinions and reports about the state of Gulf cod stocks
floated through the Northern Cod moratorium in 1992. Some Northern Penin-
sula fishermen believed their Gulf stocks were healthier than the vanishing
Northern Cod, whereas others thought that both stocks were similarly de-
pleted—and resented the fact that federal assistance money was not equally
available to fishermen in both areas. Ultimately, the Gulf cod proved to be
vanishing too. The northern Gulf fishery was closed “temporarily” in 1993,
and then came under a moratorium in 1994. Like the Northern Cod, north-
ern Gulf cod continued to decline after the moratorium. Both fisheries were
closed in 2003.
As cod catches declined in the early 1970s, and then again in the late
1980s, effort was redirected towards other species such as redfish (Sebastes)
or Greenland halibut (Reinhardtius hippoglossoides). After shorter booms,
these alternatives too faced depletion. Better prospects appeared in several
invertebrate fisheries, notably northern shrimp (Pandalus borealis), Ameri-
can lobster (Homarus americanus) and snow crab (Chionoecetes opilio)—
local manifestations of a worldwide shift towards lower trophic levels that
Pauly et al. (1998) term “fishing down food webs.” Lobstering, and to some
extent fishing for scallop and shrimp, were already established traditions on
the Northern Peninsula, but with new investments, ecological conditions
and market demand they grew increasingly important. Shrimp and scallop
presented the two main alternatives for draggers shut out by the 1994 cod
moratorium. Figure 2 shows the rising shrimp catches (almost all by Cana-
dians) in the northern Gulf over 1960–2002.
By the new millennium, the total value (in constant dollars) of the new
invertebrate-based fisheries exceeded that of cod in its heyday. But the
wealth not only came from different species (particularly shrimp and snow
crab), it also was distributed differently on land. Landings value on the
Northern Peninsula remained similar to the best cod years. Landings on the

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L. C. HAMILTON, R. L. HAEDRICH, AND C. M. DUNCAN
Avalon Peninsula increased, while those of southern Newfoundland—
which lacked significant crustacean fisheries—declined (Hamilton & But-
ler, 2001). Within each region, only fishermen with the proper licenses and
gear, a fraction of the number in the former cod fishery, could bring in shrimp,
crab or other invertebrates. Geography, marketing and investment decisions
as well as licensing/quota rules all affected individuals’ ability to adapt to
a changing ecosystem. Skill differentials raised barriers and created oppor-
tunities.
ECOLOGICAL TRANSFORMATION
The fish-to-invertebrates transition of Northern Peninsula fisheries re-
flects underlying ecological change. Fishery catch statistics provide an im-
perfect picture, however. Technological advances and intensification of ef-
fort can allow catches to grow even while fish populations are falling.
Moreover, some fraction of the catch—including most of the noncommer-
cial species, as well as deliberate omissions about quota-regulated com-
mercial species—is never reported. Scientific trawl surveys aim to provide
alternative, unbiased estimates of resource abundance as a guide for man-
agement decisions. These have been conducted by the Department of Fish-
eries and Oceans (DFO). Our analyses in this section draw on DFO survey
data, made available through the East Coast of North America Strategic Assess-
ment Project (ECNASAP).
Figure 3 shows the numbers of cod caught per standardized trawl in
northern Gulf of St. Lawrence (NAFO subareas 4RS) scientific surveys over
1983–94. Around 200–300 separate trawls were made each year in this
region, roughly 3000 in all. Data points in Figure 3 denote the median and
robust mean of the number of cod fish per trawl. The more commonly used
arithmetic means are not shown here because they proved too sensitive to
a few high outliers. In fact, we found that just three of these 3000 trawls
would dominate our conclusions if looked only at arithmetic means (or
sums). This statistical quirk has real consequences. For example, Palmer
and Sinclair (1997, p. 77) note the dramatic shift in official perceptions
about Gulf cod, from an “ecological disaster” in 1990, to being “on the
road to recovery” in 1992, and then closed due to collapse in 1993–94.
These shifts appear to track a single-year (1991) spike in the number of
northern Gulf cod caught in scientific surveys, which were the basis for
biomass estimates. Our re-analysis uncovered the fact that the 1991 spike
reflects a single anomalous trawl set, among the 278 such sets made that
year. We find that robust estimation, employing the biweight algorithm de-

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POPULATION AND ENVIRONMENT
FIGURE 3. Median and robust mean numbers of cod caught per trawl by
scientific surveys in the northern Gulf, 1983–94.
Data source: DFO/ECNASAP.
scribed in Hamilton (1992), provides more plausible and efficient (nar-
rower-confidence-interval) measures of center for the purpose of identifying
trends in the trawl survey data.
Judging from Figure 3, the abundance of northern Gulf cod declined
precipitously during the glory years of 1983–87. After that it crept closer to
zero, but the main ecological transformation took place during the fishery’s
high years, not its terminal phase. When some dragger skippers noticed that
cod were becoming smaller and harder to find in the mid-80s, they adapted
by illegally lining their nets with smaller-size mesh (Palmer & Sinclair,
1997), effectively targeting the juvenile fish. Through this and other intensi-
fications, catches in the final years remained deceptively high despite crash-
ing stocks.
Curves similar to those in Figure 3 lead to the same conclusion if we
employ the robust mean weight of cod per trawl (a biomass estimator), or
the robust mean weight per fish (an individual-size estimator), as our mea-
sures of the health of cod stocks. Moreover, this collapse was not confined

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L. C. HAMILTON, R. L. HAEDRICH, AND C. M. DUNCAN
only to cod, or even to other commercial fish. Figure 4 graphs the robust
mean weight per fish of nine “indicator species,” which we selected on
biological criteria. These nine types of fish include some with little com-
mercial value, that could have been affected as bycatch and through the
habitat disruption of trawling. They represent a wide range of ecological
and temperature-depth niches.1(We do not, unfortunately, have compara-
ble data on invertebrates, which were not adequately sampled for most of
these years.) The lowest curve in Figure 4 depicts capelin, a small but im-
portant species—they are food for larger fish. Capelin themselves feed on
zooplankton, so declining capelin signal trouble at the heart of the food
web.
Declines in mean weight per fish combine two trends: reductions in
size-at-age, and increasing scarcity of large older fish. Reductions in size-
at-age could result from either fishing or environmental pressure; in this
case it was probably both. The scarcity of older fish is primarily a fisheries
effect. Large groundfish play a key role in ecosystems as top predators.
FIGURE 4. Robust mean weight per fish of nine indicator species, caught
by scientific surveys in the northern Gulf 1983–94.
Data source: DFO/ECNASAP.

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POPULATION AND ENVIRONMENT
Their removal is a worldwide phenomenon; Myers and Worm (2003) esti-
mate that large predatory fish biomass is only about 10% of pre-industrial
levels. Within species, smaller individuals may not yet be mature enough to
have reproduced at all; indeed the mean sizes for several indicator species
dropped below reproductive sizes during this period. If catches consist
largely of immature fish (a situation termed “recruitment overfishing”) this
bodes ill for a fishery’s future. Smaller fish tend to be less valuable as well.
When the average size of fish is falling, biomass-based fishing quotas lead
to removing more individual fish from the sea. Moreover, any particular
quota weight will be worth more if fishermen high-grade their catch, ille-
gally dumping smaller fish at sea (Drinkwater, 2002). Thus, falling size in-
teracts with economic considerations in ways that increase fishery impacts.
Figure 4 visualizes an ecosystem cascading downhill. As with Figure
3, most of the change occurred during the glory years, well before a crisis
became official in 1993. Overfishing was likely the main driver. The physi-
cal environment was worsening too, however. Unusually cold, icy condi-
tions occurred off north and east Newfoundland during the 1980s and
1990s, resulting from strong northerly winds associated with a prolonged
positive state of the North Atlantic Oscillation (NAO) (Drinkwater, 2002).
The same winds, and similarly cold winter conditions, prevailed in the Gulf
of St. Lawrence. The lower curve in Figure 5 shows minimum temperatures
in the Gulf’s cold intermediate layer (CIL) below 100 meters. The CIL is
formed annually by winter air cooling and the inflow of water from the
Labrador Sea (Gilbert & Pettigrew, 1997), both driven by northerly winds.
The cold period of 1984–98 is the longest and most intense in this record.
This is confirmed by other indicators, including the maximum extent of
winter sea ice (upper curve in Figure 5). Ice area surpassed average levels
from 1985 to 1996.
Colder conditions need not be fatal to north-adapted species. Using
data from the Labrador Sea, Fischer and Haedrich (1999) demonstrated that
even the coldest years there, the distribution of dangerously cold water was
patchy and left much suitable habitat available for groundfish. Historically,
Newfoundland’s groundfish have survived other cold periods without col-
lapse. By the 1980s, however, decades of fishing had removed many of the
large older fish. Their removal left fish populations less reproductively robust
(because older females produce more eggs and more viable offspring) at
the same time the fishery became increasingly dependent on constant re-
cruitment of young fish. Colder conditions slowed growth rates and re-
duced recruitment directly, which in turn exacerbated the impacts of fisher-
ies removals and accelerated the vicious circle of dumping smaller-size
fish. Drinkwater (2002) characterizes as “overwhelming” the evidence that

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L. C. HAMILTON, R. L. HAEDRICH, AND C. M. DUNCAN
FIGURE 5. Minimum temperature of the Cold Intermediate Layer in the
Gulf of St. Lawrence, 1950–2002 (lower curve). Upper curve shows the
maximum area of winter ice cover, 1983–2001.
Data source: DFO (2003); see Gilbert and Pettigrew (1997) for details.
overfishing was the main cause of the collapse of the Northern Cod. He
goes on to note, however, numerous ways in which the cold environment
substantially contributed to this collapse. His arguments apply equally well
to the northern Gulf cod, which exhibited declines in growth rates and size-
at-age in the mid-1980s, and in body condition by 1989 (Lambert & Dutil,
2000).
As the ecosystem was transformed, so too was the society it supported.
The next two sections look at demographic and social changes on land.
DEMOGRAPHIC TRENDS
New economic realities and declines in traditional resources, combined
with the pull of urban centers and non-fishing occupations, have produced
a characteristic pattern of demographic change in fisheries-dependent re-
gions across the North Atlantic Arc (Hamilton & Otterstad, 1998; Hamilton

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POPULATION AND ENVIRONMENT
& Haedrich, 1999; Hamilton & Butler, 2001; Hamilton, Colocousis, & Jo-
hansen, 2004). Population declines reflect both outmigration by young
adults, and reductions in historically high birthrates. Fishing-village resi-
dents are catching up but still tend to have less education, which is crucial
for adaptation under shifting economic conditions. While some people do
adapt and thrive, others depend increasingly on government.
Figure 6 shows changes in population over 1966–2002. The upper
curve depicts Newfoundland as a whole, growing steeply over 1960–77,
then more gradually until the Northern Cod moratorium in 1992. Much of
this growth took place in southeast Newfoundland’s Avalon Peninsula,
which contains almost half the population and the capital city, St. John’s
(see Figure 1). After the moratorium, even the Avalon began to decline, and
Newfoundland became the only Canadian province losing population.
A different story unfolded on the rural Northern Peninsula (lower curve
in Figure 6). There, a period of growth accompanied the cod fishery expan-
sion after Canada established its 200-mile EEZ in 1976. Population peaked
in 1986, during the glory years, and thereafter began a slow decline—
FIGURE 6. Population of Newfoundland and Labrador, and of the Northern
Peninsula only, 1966–2002.
Data source: Newfoundland and Labrador Statistics Agency (2003).

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L. C. HAMILTON, R. L. HAEDRICH, AND C. M. DUNCAN
which steepened markedly as Gulf cod came under a moratorium in
1994.
Table 1 shows demographic profiles before, during and after the cod
crises. Newfoundland has long been more fisheries-dependent than most
of Canada, and the Northern Peninsula is the province’s most fisheries-
TABLE 1
Profiles of Canada, the province of Newfoundland, and
Newfoundland’s Northern Peninsula, from the 1986, 1991 and 1996
Censuses. Data Source: Statistics Canada.
1986 19911996
% labor force fishing Canada
Newfoundland
Northern Pen.
Canada
Newfoundland
Northern Pen.
Canada
Newfoundland
Northern Pen.
Canada
Newfoundland
Northern Pen.
Canada
Newfoundland
Northern Pen.
Canada
Newfoundland
Northern Pen.
Canada
Newfoundland
Northern Pen.
Canada
Newfoundland
Northern Pen.
Canada
Newfoundland
Northern Pen.
Canada
Newfoundland
Northern Pen.
—
—
—
0.3
4.6
20.5
0.3
3.8
14.4
Total population
in thousands
26,204
578
28,120
579
29,672
560
26 2523
% population change
over last 5 years
+4.0
+0.1
+0.8
25.9
29.5
30.4
10.7
8.8
7.2
3.1
3.6
3.7
17.3
26.6
38.6
+7.9
+5.7
−2.9
−8.7
20.5
19.9
20.2
12.2
10.8
10.2
3.1
3.1
3.2
12.1
17.5
27.9
13.3
8.1
4.9
40.2
34.0
30.9
14.0
24.6
39.4
0
−3.6
20.9
22.5
23.4
11.6
9.7
8.5
3.1
3.3
3.4
13.9
20.4
32.6
11.2
6.6
3.6
39.0
34.0
32.5
11.4
21.1
33.9
% population <15
years old
% population ≥65
years old
Mean family size
% population ≥15
years, w/o grade 9
% population ≥15
years, w/college
9
5
2
Median household
income, 1000 CAD
29.5
24.6
24.3
11.1
21.2
32.2
% income from govt.
transfer payments

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POPULATION AND ENVIRONMENT
dependent region. Consequently, the crisis hit hard there. The percentage
of the Northern Peninsula labor force in fishing fell from 20.5% to 14.4%
in just five years, 1991–96. Reversing previous growth trends, population
dropped by 3.6% over 1986–91, then plunged a further 8.7% over 1991–
96. Reflecting its high birth rate, the Northern Peninsula’s under-15 popula-
tion was proportionately greater than Canada’s in 1986 (30.4% v. 25.9%).
A decade later, however, it had fallen slightly below national levels (20.2%
v. 20.5%). Meanwhile the proportion 65 and over grew twice as fast on the
Northern Peninsula (from 7.2% to 10.2%) as it did in Canada as a whole
(10.7% to 12.2%). Mean family size remained unchanged (3.1) for Canada
during this period, while on the Northern Peninsula it dropped from a high
level (3.7 in 1986) to one near the Canadian average (3.2 in 1996). Starting
out far behind the rest of Canada, the Northern Peninsula saw progress in
education and income. But in 1996 the Northern Peninsula still had more
than twice Canada’s proportion not completing 9th grade, and less than
half the proportion with college degrees. The gap in median household
income, $5,200 in 1986, had widened to $9,300 by 1996.
Perhaps the most telling statistic in Table 1 is the proportion of income
from government transfer payments. Even in 1986, at the height of the glory
years, this amounted to 32.2% on the Northern Peninsula, and 21.2% in
Newfoundland—compared with 11.1% in Canada. As the “employer of last
resort,” the cod fishery had long contained many more participants than it
could support at full-time wages. Federal subsidies, particularly through
Canada’s unemployment system, helped keep outport families above water.
Unfortunately the subsidies also muffled economic signals that fish re-
sources, and hence the outports themselves, could not sustain so many
people. Transfer support increased slightly by 1991, but jumped up after
the codfish collapse. The redistribution of wealth accompanying fisheries
transformations had been offset by subsidies, which in 1996 comprised
nearly 40% of all income on the Northern Peninsula.
AS SEEN FROM THE OUTPORT
Statistical data broadly outline the cod fishery collapse, and its replace-
ment by invertebrate fisheries. A compact historical account of social changes
that accompanied fisheries changes on Newfoundland’s Northern Penin-
sula appears in Palmer and Sinclair (1997). In this section, we add perspec-
tives from outport residents who experienced the codfish collapse and its
aftermath. Over 1997–1999 one of us (Duncan) conducted life-history in-
terviews with a snowball sample of 40 people in a Northern Peninsula

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L. C. HAMILTON, R. L. HAEDRICH, AND C. M. DUNCAN
fishing community. Those interviewed included at least one member from
every family, and a full range of adult generations. Their narratives break
naturally into four historical eras, summarized below.
Traditional Era (pre-1965)
During the 1940s, people depended upon diverse local resources.
Fishermen using small open boats focused on cod, lobster, seals and her-
ring. Sealing began in March, and lobster fishing in April. Cod were fished
in the summer months, and in the fall some fishermen went after herring.
In winter, men worked at forestry, often in crowded and unsanitary camps.
Forestry gave them an opportunity to earn cash; fish were commonly ex-
changed for credit with the local merchant, where families secured food
staples and supplies. Women and children tended gardens and livestock.
There was little exchange of money; most families carried a debt in the
spring that was paid off with fish over the season.
Cod were caught by cod traps or hook and line. A portion of the cod
was kept for personal consumption, forming the main staple of the outport
diet. The remainder was sold to one of two or three local buyers, who
salted it in large cement vats for distribution. Fishermen’s work began be-
fore sunrise and did not end before dark; as one said, “They never saw the
grass growin’.” Boys entered the fishery as young as 12 or 13, with most
leaving school by 15.
Technological Change (1965–mid-1970s)
Modernization and new technology led to changes in fishing, work,
education, family and community. Outports went through modernization with
the advent of year-round road access and electricity. Population grew, pro-
pelled by the Smallwood Resettlement Project (which sought to close down
many of the smaller, less viable outports), migration and natural growth.
More men began completing 11th or 12th grade, and some went on to
college or trade schools even if they intended to return to fishing. For the
first time, young men had more than one option to choose from. People
began working nearly year round at the same job. Unemployment benefits
were developed in 1965, initially just for woodsmen but subsequently ex-
tended to fishermen and fish plant workers.
Fishing changed as new technology for catching cod and shrimp de-
veloped, and boats became larger. A handful of fishermen shifted to trawl-
ing or “dragger” gear. The federal government played a decisive role intro-
ducing new technology and providing financial resources to fishermen who