Banff National Park of Canada

Park Management

Banff National Park Management Plan

7.0 A Place for Community

7. 1 Overview

The Town of Banff and the Hamlet of Lake Louise have a long history in Banff National Park. Both communities were established shortly after the completion of the Canadian Pacific Railway and later became centres for visitor services, the location of Parks Canada's administrative offices and places where people who work in the park could live.

The Town of Banff and the Hamlet of Lake Louise will face similar issues during the coming years. The central challenge will be to manage growth and at the same time offer visitors the products and services they need to enjoy the park. This means that residents and visitors must understand the impact of the communities and tourism on the park's resources.

While playing host to millions of visitors creates opportunities, it also threatens the character of the communities. Growth management will be critical if the unique character and sense of place of the communities are to be preserved.

The Town of Canmore, a community of almost 8,000 people just outside the park's east gate, has a strong influence on park operations. It is a community that is growing very rapidly. By the year 2010, researchers anticipate that Canmore will have a population of 20,000. This growth on the park's boundary will create more traffic and more demand for recreational activities. It will also affect the health of the ecosystems that surround the park; maintaining wildlife corridors and effective habitat for wary species is of particular concern.

Canmore has begun to take on more responsibility for providing services for park visitors and employees. More and more travellers stay in the Canmore area and visit the park during the day. As well, many people employed in the park now live in Canmore.

Parks Canada will work with the Town of Canmore to manage the impact of park use on the Town and the effects of community growth on the park and Central Rockies Ecosystem.

7. 2 Town of Banff NEW!

The Town of Banff and the local economy have evolved with the tourism industry. In the early years, park services reflected the fact that visitors arrived by train. Later, as more visitors began to arrive by car, auto courts, motels and campgrounds were built in and around the community to meet their needs. Today the Town of Banff continues to play a dominant role in Banff National Park. Approximately 80% of visitors to the park also visit the community.

On January 1, 1990, The Town of Banff Incorporation Agreement granted local government to the Town of Banff. This federal-provincial agreement sets out the terms of incorporation of the town, and transfers specific, limited municipal government powers from federal hands to the Town Council through the Municipal Government Act of Alberta. Although the Town is administered by an elected Council, the federal government is still the ultimate authority on planning, land use, development, and environmental issues.

The Town of Banff Incorporation Agreement sets out the following purposes and objectives for the Town:

a) to maintain the townsite as part of a World Heritage Site;

b) to serve, as its primary function, as a centre for visitors to the Park and to provide such visitors with accommodation and other goods and services;

c) to provide the widest range of interpretative and orientation services to Park visitors;

d) to maintain a community character which is consistent with and reflects the surrounding environment; and

e) to provide a comfortable living community for those who need to reside in the townsite in order to achieve its primary function.

The Town of Banff's Municipal Development Plan and related bylaws govern administration, management and land use within the town boundaries. The Minister responsible for Parks Canada has the authority to approve the plan and all amendments. The Incorporation Agreement also specifies (Section 5.15) that all plans and bylaws must conform with the Banff National Park Management Plan approved by the Minister responsible for Parks Canada.

In addition to any other provisions of the park management plan pertaining to the Town of Banff, the community plan, bylaws and actions of the Town of Banff will be subject to and limited by the following requirements;

The following issues are to be addressed in the Community Plan:

• commercial and residential growth;
• managing growth;
• built heritage;
• appearance and atmosphere of the community;
• noise, water, and air quality;
• lighting;
• transportation;
• architectural standards and themes; and
• landscaping standards.

The community plan and related bylaws shall incorporate the following key principles:

1. No net negative environmental impact;

2. Leadership in environmental stewardship and heritage conservation;

3. The management of appropriate use; and

4. A growth management strategy that reflects a maximum annual growth of 1.5% for commercial development.

Policy Direction for the Town of Banff

1. As of the day of the announcement of the federal government response to the proposed community plan, the Town shall be limited to an increase of 350,000 sq. ft. of commercial development from the existing commercial development base.

2. The Minister of Canadian Heritage intends to introduce legislation that will redefine the boundary of the Town of Banff in the National Parks Act. This change is intended to reduce development in the montane ecoregion and to protect world famous scenic landscapes, such as the view of Mount Rundle from the Trans-Canada Highway.

3. It is anticipated that the population of the town shall not exceed 8,000 permanent residents. Full development of Middle Springs II will therefore not be required. Surplus lands on the boundaries of the town will be added to the protected zones of Banff National Park. In addition to the 55 units in place or in construction, approximately 100 additional units in Middle Springs may be developed

4. The Pinewoods commercial zone will be added to the protected zones of Banff National Park and the associated leases will not be renewed.

5. Six environmental protected areas contiguous with the previous town boundary will be added to the protected zones of Banff National Park, including the area previously known as Middle Springs III and IV.

6. Parks Canada will establish an environmental education centre within the Town, focussing on sustainable communities and the management and protection of ecological integrity within national parks. This facility will be located on commercial leases on the east side of the 200 block of Banff Avenue. The area shall be rezoned to public service at the appropriate time.

7. A Canada Place will be established within the current Park Administration Building.

8. Parks Canada and the Town of Banff are committed to the principle of Need-to-Reside.

9. The Canadian Environmental Assessment Act (CEAA) as amended, revised, consolidated or substituted from time to time, applies within the Town.

10. Parks Canada will work with the Town and the Banff/Lake Louise Tourism Bureau to develop and implement the Heritage Tourism Strategy (see Section 5.2).

11. The Town of Banff will work toward defining and becoming a model environmental community and will address issues such as noise, lighting, air quality, non?native plant species, phosphates, etc.

12. The Town of Banff will continue to show leadership in the conservation and use of water.

13. The Town of Banff will participate with Parks Canada and other jurisdictions in regional planning and other regional initiatives.

14. The height restriction in the commercial downtown or CD district shall be a maximum of 2.5 stories or 9 m.

15. The height restriction in the Commercial Accommodation - Banff Avenue or CA district shall be a maximum of 3 stories of 11.5 meters.

16. In the commercial accommodation districts, meeting rooms or ancillary guest services, including basements, shall be considered as part of the commercial square footage allocated to that development.

Section 5.7.2.3 - this section of the 1997 Banff National Park Management Plan is deleted.

All land use designations, descriptions and locations are as defined in the revised April 1998 ALand Use District Map@, completed by the Environmental Services Department of the Town of Banff.

7.3 Community of Lake Louise NEW!

Development at Lake Louise began in the early 1880s with the construction of a siding to serve the needs of the Canadian Pacific Railway. Visitors began arriving in 1885. Tourism continued to grow, and by the early 1920s Lake Louise had become a North American mountaineering centre. Hotels and lodges were built in the valley as well as at the lake. By 1925, the area was accessible to private vehicles and pressure for additional development grew.

Today Lake Louise has three distinct areas - the lake and its surrounding area, the valley floor, and the ski hill. The primary role of Lake Louise is to provide visitors with basic and essential services, while maintaining ecological integrity and park values. Lake Louise is also a residential community for the people who are directly involved in providing basic and essential services.

One of the biggest questions for national parks is how to clearly state the direction national parks are taking in managing development, growth and use. In Lake Louise, growth has been carefully controlled. However because of its remarkable combination of natural features, stunning scenery, important railway history, outstanding summer and winter recreational opportunities, Lake Louise is a primary destination for many visitors to Banff National Park. This is creating demands for expanded services, facilities and residential accommodation.

Parks Canada, with the involvement of the Lake Louise Advisory Board, and in consultation with the public, completed the Lake Louise Community Plan in June 2001. The plan, approved by the Minister of Canadian Heritage, will govern development and guide change in the community during the next 10 to 15 years. The strategies and limits to growth outlined in the plan are the basis for decisions in the community and will ensure Lake Louise and the Park remain healthy — environmentally, socially and economically. The plan also recognizes the importance of our cultural heritage and identifies measures to protect Lake Louise’s character.

The community plan responds to the 1997 Banff Management Plan, the Minister’s principles for national park communities and decisions on the Chateau Lake Louise Meeting Facility and was reviewed in light of the Ecological Integrity Panel’s report.

The community plan provides direction for commercial development in Upper Lake Louise (the Chateau, Deer Lodge and Paradise Bungalows) and the Hamlet of Lake Louise.

7.3.1 Role Statement

• be a model national park service centre that reflects the surrounding natural environment and national park values;
   
• serve primarily as a major day-use destination and visitor service centre;
   
• have activities and fixed limits to growth that ensure Lake Louise and the park remain healthy - environmentally, economically and socially, and that visitors enjoy a quality national park experience;
   
• offer a limited range of overnight visitor accommodation;
   
• offer basic and essential services and facilities that support heritage tourism; heritage appreciation and the protection of ecological and cultural resources are the foundation of this type of tourism;
   
• serve as a centre for Parks Canada's operations and administrative activities;
   
• provide limited residential accommodation for people who are directly involved in providing basic and essential services;
   
• share services with Field, Yoho National Park, and the Town of Banff; these will include accommodation, schooling, medical services and operational services; and
   
• maintain the integrity of the regional landscape.

7.3.2 Strategic Goals

To maintain a healthy community — environmentally, socially and economically

To ensure there is no net negative environmental impact on adjacent park land.

To provide appropriate basic and essential visitor and residential services that reinforce national park values.

To limit growth.

To show leadership in environmental stewardship and heritage conservation.

To recover the cost of municipal services.

7.3.3 Key Actions

1. Maintain the area as a visitor centre that provides only basic and essential services.

• reject proposals for social services such as a school and hospital

2. Prohibit new commercial accommodation operations.

3. Prohibit privately owned residences; head lessees, groups of sublessees, non profit groups and institutions will provide appropriate residential accommodation.

4. Prohibit the development of new land outside the Hamlet for commercial purposes.

5. Specific guidelines governing development and operation of the community will follow the directions outlined in the approved community plan and will be considered part of the Banff National Park Management Plan. Key actions from the Lake Louise Community Plan include:

• reduce the Hamlet boundary to better protect adjacent park land
• protect the Fairview and Whitehorn wildlife corridors
• undertake environmental stewardship initiatives such as wastewater treatment plant upgrades, expanded recycling, energy and water conservation and reducing the use of phosphates
• establish a framework to monitor the impact of the community on the park
• adopt a heritage tourism strategy
• offer programs to make visitors and staff more aware of their role in protecting the park
• limit basic and essential services to defined guidelines
• respect existing commitments for the development of the Chateau Lake Louise Meeting Facility, expansion of the Hostel and Train Station restaurant, for a total of 15,606 square metres, 67 guest rooms and 154 overnight guests
• allow an additional increase of existing commercial accommodation operations for a total of 3,660 square metres, 58 guest rooms and 148 overnight guests
• phase commercial growth over a minimum of ten years
• limit commercial accommodation to a maximum of 2,700 visitors/night; allow each existing operator to expand to assigned limits subject to meeting the requirements of the development review process and rigorous application of the Canadian Environmental Assessment Process
• ensure infrastructure can support growth
• allow improved recreational and social services
• limit retail expansion to existing commitments
• require development proposals to include strategies for protecting important built heritage; use the Built Heritage Resource Description and Analysis for Lake Louise when making decisions about heritage buildings
• enforce architectural, landscape, transportation, parking, sign and lighting guidelines
• limit residential accommodation to those who need-to-reside and eliminate the existing accommodation shortfalls by 2005. Shortfall housing must be addressed before any permits will be granted for commercial expansion. Housing required as a result of commercial expansion must be completed before or at the same time as the expansion.

6. Prepare Implementation Guidelines to provide detailed design and site parameters to support the implementation of the Community Plan.

7. Allow for and encourage the introduction of public transportation to Upper Lake Louise and Moraine Lake.

7. Recover the costs of the majority of municipal services.

• maintain the participation of community representatives in decisions about municipal services

8. Lake Louise will not become an independent, self-governing community.

9. Close the Trailer Court by 2005 when the current licence of occupation expires.

Harry’s Hill and the Horse Corral
1. Retain the Harry’s Hill residential area and allow minor infilling; prohibit boundary expansion

2. Retain the government horse corral subject to operational needs.