Banff National Park of Canada
Park Management
8.0 A Place for Open Management
8.1 Introduction
Banff National Park belongs to the people of Canada. All citizens should feel
confident they have an opportunity to participate in key decisions that affect
their park. The areas that appear to be of the greatest concern to the public
are ecological integrity and land use issues, appropriate use and activity
questions, research and managing information. This section highlights the
key strategic changes Banff National Park will use to enhance the sense of
open and participatory decision-making.
The Vision for Banff National Park emphasizes several important aspects
of governance and decision-making. Important values and principles that underlie
the Vision include:
Values
- The value of exercising restraint and self-discipline today, for the
sake of future generations.
- The value of open, participatory decision making.
- The value of equal opportunity for a sense of wilderness and a range of
quality park experiences.
- The value of predictable, consistent and fair regulation.
- The value of competent, accountable management.
- The value of respect for others.
Principles
- All actions, initiatives and programs undertaken to realize the Vision
are implemented in full accordance with the spirit and requirements of the
National Parks Act , Parks Canada’s Guiding Principles and Operational
Policies, the Town of Banff Incorporation Agreement and the Banff National
Park Management Plan.
- Standards are defined, enforced, and reviewed so as to ensure the maintenance
of ecological and commemorative integrity.
- Regulation and decision-making are responsive, open, participatory, consistent
and equitable.
- There is individual and shared responsibility to provide for protection
and preservation of heritage resources.
- Proactive, adaptive, and precautionary management take into account cumulative
effects and limits to growth in recognition of the finite nature of the
park.
- Stewardship, based on sound science, is practiced through environmentally
sensitive management, mitigation and restoration.
- Integrity and common sense underlie all decision-making.
- Planning and decision-making are coordinated on a regional basis.
- Partnerships are encouraged subject to appropriate checks and balances.
- There is a shared responsibility to achieve ecological, social, cultural
and economic sustainability.
8.2 Public Involvement
Parks Canada is committed to ongoing public involvement. This involvement
can take many forms. Various groups and individuals will be asked for their
input concerning the implementation of recommendations in this management
plan. This participation may consist of advisory groups, open houses, or working
groups. Parks Canada will also host an annual public forum to review and discuss
the implementation of the management plan. The public will play an important
role in designing the kind of forum that will best meet their needs.
This plan sets out several public processes. These include the Development
and Review Process, and an annual review of proposed changes in use or level
of use, known as the Appropriate Use Framework. Banff National Park is also
committed to providing more opportunities for the public to participate in
the research program.
8.2.1 Strategic Goal
To ensure that key policy, land-use and planning
decisions are made in a timely and fair manner, are consistent in their
approach, and are arrived at in an open and participatory manner.
8.2.2 Key Actions
1. Establish a permanent dialogue by building on the success of the Bow Valley
Round Table. Complete the format for this dialogue through consulation during
the first year of this plan.
2. Link the above mechanism to an annual Round Table which could include
in its agenda such items as: progress toward implementation of the management
plan, round tables on specific items such as science, appropriate use.
3. Report on the implementation of the management plan in a consistent
manner that is linked to the Parks Canada State-of-the-Park Report.
4. Involve the public in planning initiatives such as area planning and
operational plans (e.g., the backcountry management plan).
8.3 Development Review Process
8.3.1 Strategic Goal
To improve the development review process so that it:
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reflects the mandate as described in the
National Parks Act and Parks Canada’s policy;
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sets high standards for environmental assessment;
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improves consistency; and
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involves the public.
The review process described below applies to development outside the Town
of Banff. Municipal by-laws and processes apply in the town.
Buildings, roads, bridges, etc. - all are essential to the enjoyment, operation
and management of a national park. The size, design, and use of these facilities
must meet the needs of visitors and at the same time must respect the park
environment. They must also take into account the legislative and liability
questions that are associated with development in a national park.
Banff National Park will adopt a revised Development Review Process for
all proposals outside the Town of Banff. This revised process:
1. Uses the municipal development review process as a model.
2. Includes two stages - the development permit review and the building
permit review.
3. Introduces opportunities for public involvement through the Advisory
Development Board (ADB). This Board reviews all applications publicly to ensure
they are appropriate and meet the requirements of the National Parks Act ,
regulations and planning. The ADB submits its recommendations to the park
Superintendent.
4. Establishes a District Review Board to review matters of process and
procedure arising from the ADB recommendations and associated decisions by
the Superintendent.
5. Uses "sunset clauses" to limit the period during which an approval
is valid.
6. Incorporates the requirements of the Canadian Environmental Assessment
Act (CEAA) and sets high standards for environmental assessment. Assessments
that do not meet the standards will be returned to the proponent and will
not be posted publicly.
8.4 Appropriate Use
Parks Canada and the Town of Banff are both responsible for making
decisions about what type of use is appropriate in a national park. In cases
where the National Parks Act , Parks Canada’s Guiding Principles and
Operational Policies, the Park Management Plan or the Town of Banff’s
Municipal Development Plan are not clear on appropriate use, these authorities
must rely on more subjective criteria in coming to a decision. Compromise
may be necessary at times and the review process must be flexible enough to
accommodate changing public values and perspectives.
8.4.1 Strategic Goal
To introduce processes for evaluating types and level of use so
that it:
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better reflects the mandate as described
in the National Parks Act and Parks Canada’s policy framework;
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addresses increases in use; and
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incorporates public involvement.
8.4.2 Key Actions
Town of Banff
1. Work with the Town of Banff to develop criteria and a working model to
define types and levels of visitor services.
Hamlet of Lake Louise
1. Define appropriate uses, activities and services, as well as levels of
use, in the Lake Louise Development and Use Framework (see Section 7.3).
General
1. Set up an annual process to examine proposed new activities and use,
and changes in levels of use.
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invite the public to review the proposed changes
(see Section 8.2.2); and
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assess proposals against the ten criteria for
appropriate use decision-making (see Table 2) that were developed by
the Banff- Bow Valley Study Round Table.
2. Apply the criteria and working model developed with the Town of Banff
to decisions about business licenses for areas under Parks Canada's jurisdiction.
3. Draft specific plans and land-use guidelines for key areas.
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define appropriate use/activities, and levels
of use (e.g., ski areas, Vermilion Lakes Wetlands area plan).
Table 2 - Appropriate Use Criteria
Criteria
The ten criteria are to be applied when evaluating the merits of a new use,
a change in an existing use or a change in the level or intensity of use
or activity. The criteria are all relevant but are not meant to be exhaustive
or absolute. The criteria are intended to guide the evaluation process.
In applying the criteria, the overarching consideration is how the proposed
change contributes to or detracts from the spirit and intent of the Vision
for the park, the National Parks Act , and Parks Canada’s policy.
Impact on Environment
- seeks to assess the extent to which the proposed change impacts the
ecological integrity of the region. The assessment will include the effect
of participation in the activity as well as the facilities and services
required to support the activity.
Effects on Culture and Heritage
- seeks to assess the qualitative dimension and preservation of a use
that contributes to the region's heritage
and cultural integrity. The assessment will reflect an understanding,
appreciation of, and respect for the
region's culture and heritage, and the evolving cultural identity.
Quality of Experience
- investigates the extent to which the participant's and other's quality
of experience is enhanced or diminished as a result of the proposed change.
Its application recognizes that different visitors seek a broad range
of different experiences, and that they value different resources, facilities
and services in different ways.
Economic Effects
- attempts to understand the economic effects of the proposed change.
Issues that would be considered include: cost for visitors to the park,
cost and revenues to Parks Canada, and effect on local, regional and -national
economies and market conditions.
Public Safety
- used to determine the extent to which the proposed change imposes risks
or dangers to participants or others.
Equity and Access
- seeks to ensure that all citizens have a fair, reasonable, and equitable
opportunity to participate in, and benefit from, the range of appropriate
activities and experiences available in Banff National Park. It will consider
such factors as economic status, physical capabilities, and place of residence
of the visitor.
Social Effects/Quality of Life
- examines the social implications of the proposed change. Questions
applied here would speak to: level of _change to the region's existing
social patterns and needs, effects on the social service structure, effects
on social indicators (e.g., income distribution, housing costs, levels
of crime, etc).
Education and Awareness
- focuses on the extent to which the proposed change contributes to better
understanding and appreciation of natural and cultural heritage, Banff
National Park, its role within the Canadian National Park System, and
its role in the larger ecosystem.
Level of Use: Frequency, Timing, and Quantity
- would involve questions such as: How often does a proposed activity
occur? When does it occur (e.g., season)? How many individuals are involved?
What is the level of support required?
Physical Setting Related
- has two components. The first focuses on whether the proposed change
is well-suited to the physical setting of Banff National Park. The second
considers to what extent the proposed change is dependent upon a national
park setting.
(Banff-Bow Valley Study Round Table Summary Report, 1996)
8.5 Regional Coordination
Banff National Park is an integral part of the larger Central Rockies Ecosystem.
This ecosystem spans a variety of jurisdictions and includes many different
types of land use. Parks Canada believes that, for this ecosystem to be sustainable,
everyone concerned must be involved in coordinating research, finding solutions
to issues, and working towards common goals. This coordination will operate
at many levels. Some initiatives will be local, while others will involve
the entire ecosystem.
Banff National Park has always worked with adjacent jurisdictions on questions
of common concern. These cooperative activities have, however, usually involved
staff at the operational level, not managers. They have also focussed on the
land immediately surrounding the park, not on the entire ecosystem. In the
past few years, several groups have begun to coordinate land use, planning
and ecosystem initiatives on a broader scale. These include:
1. The Bow Corridor Ecosystem Advisory Group (BCEAG) chaired by Alberta
Environmental Protection. This is a partnership among Alberta Environmental
Protection, the Town of Canmore, and the Municipal District of Bighorn. The
Town of Banff and Banff National Park also participate. The BCEAG has established
various working groups responsible for planning coordination, wildlife corridors,
fire management, and monitoring.
2. A ‘Biosphere Institute’ to monitor the long-term health of
the Bow Valley’s ecosystem’' and to coordinate research.
3. The Central Rockies Ecosystem Interagency Liaison Group (CREILG) was
established in 1991 to share information concerning the ecosystem. Membership
includes Parks Canada, provincial government departments (British Columbia
and Alberta), several universities, the Whyte Museum, the World Wildlife Fund,
and private industry. In 1995, CREILG published an Atlas of the Central Rockies
Ecosystem (White, 1995) that pulled together data bases and identified ecosystem
issues. CREILG is currently involved in joint fire planning, a wolf study,
the East and West Slopes Grizzly Bear Studies, and managing access.
4. The Centre for Mountain Culture, part of the Banff Centre, provides opportunities
to cooperate with other agencies in support of cultural activities in a mountain
setting.
Parks Canada feels that it can participate most effectively in joint planning
and coordinated land use through committees established by others. Parks Canada
would support the establishment of, and participate in, any executive level
group which could help to encourage and guide integrated approaches to areas
of mutual interest and concern.
8.5.1 Strategic Goals
To encourage an integrated approach to managing ecological, social
and economic -systems in the park and greater ecosystem.
To coordinate the management of land use, human activities, and
ecological initiatives effectively.
8.5.2 Objectives
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to maximize the ecological integrity of the Central
Rockies Ecosystem;
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to manage the type and extent of access to the
park;
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to pursue regional limits to growth and numbers
of visitors;
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to pursue the heritage tourism model as the basis
for a broader concept of tourism in the Bow Valley;
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to ensure the protection of wildlife corridors
and habitat;
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to pursue cooperative research and information
management; and
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to reduce wildlife mortality through the joint
management of specific wildlife species, particularly bears and wolves.
8.5.3 Key Actions
1. Continue to be active on the key coordinating committees established
by other agencies within the ecosystem.
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emphasize participation in the Bow Corridor Ecosystem
Advisory Group (BCEAG) and the Central Rockies Ecosystem Interagency
Liaison Group (CREILG);
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in addition to short-term concerns, consider
long-term strategic issues such as ecological integrity and tourism.
2. Support initiatives in the Central Rockies Ecosystem that enhance overall
ecological integrity.
3. Participate in environmental assessments or take part in provincial
or regional environmental reviews of projects outside the park that are
likely to have adverse effects on the park’s environment.
4. Work with appropriate authorities in the Central Rockies Ecosystem
to put in place a strategic research program and a data/information management
system.
5. As current studies are completed, such as the East and West Slopes
Grizzly Bear research projects, play a leadership role in encouraging a
coordinated approach to addressing the recommendations.
6. Work with the Town of Canmore to manage the impact of park use on the
community and the effects of community growth on the services and resources
of the park and the greater ecosystem. Priority issues include growth management,
the Heritage Tourism Strategy, wildlife corridors, research, transportation
and information management.
7. Pursue the management of access to the park’s backcountry with
managers of adjacent land.
8. Encourage the establishment of common regional visitor information
systems.
9. Continue to encourage environmental management and stewardship programs
in the region.
8.6 Monitoring NEW!
Since approval of the management plan Parks Canada has published the 1999
national State of Protected Heritage Areas report and the 2003 State of the
Park report for Banff National Park and is developing a national monitoring
program. The monitoring program for Banff National Park will be consistent
with the national program and with similar programs in other parks.
The 1997 Management Plan contains four indicators with quantified
targets: restoration of fire, human-caused grizzly bear mortality, carnivore
habitat effectiveness and wastewater treatment. These indicators will be incorporated
into the monitoring program.
The intent of the monitoring program is to track and report on all aspects
of the Parks Canada mandate. Indicators provide a summary of conditions in
the park related to ecological integrity, visitor experiences and public education
and understanding. Indicators are based on measures which are gathered, analyzed
and summarized in a rigourous and consistent manner.
Not all management actions lend themselves to quantifiable measurement and,
given the complexity of ecological, social and economic interactions, it is
not always possible to identify cause and effect relationships. To be useful,
monitoring must be appropriate, meaningful, cost effective, practical and
as quantifiable as possible. Consistent measurement, analysis and reporting
are required. The emphasis will be on a small number of indicators which summarize
a wide array of information, including information routinely collected by
other agencies.
When implementing the monitoring program Parks Canada will work with internal
and external advisors to refine the set of indicators and to develop appropriate
measures and protocols for data collection and analysis.
Every five years, updated information about trends in environmental, cultural,
social, economic and administrative conditions in the park will be provided
in a State of the Park report. This will provide the basis for the next review
of the management plan.
8.6.1 Strategic Goal
To monitor and report on the state of Banff National Park in a periodic
and consistent manner
8.6.2 Objective
To develop and implement a monitoring program using appropriate measures
and indicators
8.6.3 Key Actions
- Develop a monitoring program based on the following indicators:
Ecological
- Native biodiversity
- Atmosphere/climate
- Geology and landforms
- Water quality/aquatic ecosystems
- Vegetation
- Wildlife
- Outside influences/shared ecosystems
- Stewardship
Cultural
- Commemorative integrity (National Historic Sites)
- Archaeological resources
- Collections
- Built heritage
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Operating costs
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Revenue
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Visitor spending
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Assets
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Environmental leadership
Communities and ski areas
- Environmental stewardship
- No net negative environmental impact
- Through consultation, refine performance indicators (reporting) and measures
(collection)
- Implement a monitoring program based on the selected measures and indicators
- Report on the results of the monitoring program every five years via
the State of the Park report