Signal Hill National Historic Site of Canada Management Plan

Signal Hill national historic site of canada Management Plan

february 2007

Signal Hill national historic site of canada Management Plan ii

© Her Majesty the Queen in right of Library and Archives Canada Canada, represented by the Chief Cataloguing in Publication Executive Officer of Parks Canada, 2007. Parks Canada Signal Hill National Historic Site of Cette publication est aussi disponible Canada: Management Plan / en français. Parks Canada

For more information about the Issued also in French under the title: management plan or about Signal Hill Lieu historique national du Canada de National Historic Site of Canada: Signal Hill : Plan directeur / Parcs Canada Signal Hill National Historic Site of Canada isbn 0-662-44393-4 Superintendent cat. no. R64-105/58-2007E PO Box 1268 St. John’s, NL A1C 5M9 1. Signal Hill National Historic Site Canada (St. John’s, NL)–Management. 2. Historic sites–Canada–Management. tel: 709-772-5367 3. Historic sites–Newfoundland and fax: 709-772-6302 Labrador–Management. e-mail: [email protected] 4. National parks and reserves– Canada–Management. General Information on Parks Canada 5. National parks and reserves– (within North America): 1-888-773-8888 Newfoundland and Labrador– General Information on Parks Canada Management. (to be used outside of North America I. Title. only): 1-905-426-9684 www.pc.gc.ca FC2164.S5P37 2006 971.8’1 C2006-980288-2

Front Cover Image Credits

Clockwise from TOP LEFT: Gibbet Hill, Parks Canada, 1998; Queen’s Battery Gun Positions, Kevin Redmond, 2003; Military Animator, Kevin Redmond, 2003; Cabot Tower, Pamela Coristine, 2000; Noon-day Gun, Kevin Redmond, 2003 Signal Hill iii National Historic Site of Canada Management Plan

Foreword

Canada’s national historic sites, national parks and national marine conservation areas offer Canadians from coast-to-coast-to-coast unique opportunities to experience and understand our wonder- ful country. They are places of learning, recreation and fun where Canadians can connect with our past and appreciate the natural, cultural and social forces that shaped Canada. From our smallest national park to our most visited national historic site to our largest national marine conservation area, each of these places offers Canadians and visitors unique opportunities to experience Canada. These places of beauty, wonder and learning are valued by Canadians – they are part of our past, our present and our future. Our Government’s goal is to ensure that each of these special places is conserved. We see a future in which these special places will further Canadians’ appreciation, understanding and enjoyment of Canada, the economic well-being of communities, and the vitality of our society. Our Government’s vision is to build a culture of heritage conservation in Canada by offering Canadians exceptional opportunities to experience our natural and cultural heritage. These values form the foundation of the new management plan for Signal Hill National Historic Site of Canada. I offer my appreciation to the many thoughtful Canadians who helped to develop this plan, particularly to our dedicated team from Parks Canada, and to all those local organizations and individuals who have demonstrated their good will, hard work, spirit of co-operation and extraordinary sense of stewardship. In this same spirit of partnership and responsibility, I am pleased to approve the Signal Hill National Historic Site of Canada Management Plan.

John Baird Minister of the Environment iv Signal Hill National Historic Site of Canada Management Plan

Recommendations

Recommended by:

Alan Latourelle Chief Executive Officer Parks Canada

William (Bill) Brake Field Unit Superintendent Newfoundland East Field Unit, Parks Canada vi Signal Hill vii National Historic Site of Canada Management Plan

Executive Summary

Signal Hill National Historic Site of Canada landmark within the cultural landscape of (nhsc) was designated as a national historic St. John’s, and will be a recognized symbol of site because “it [Signal Hill] is importantly St. John’s, of Newfoundland and Labrador, associated with Canada’s defence and and of Canada. The cultural and heritage communications history.” Overlooking the values of the Site will be protected and Narrows – the entrance to St. John’s harbour presented, and the cultural resources on the – and crowned by Cabot Tower, Signal Hill south side of the Narrows will be valued and nhsc is a local, provincial, and national managed as an integral part of the com- symbol. It is also a part of the Family of memoration of Signal Hill. Visitors and other National Historic Sites of Canada, with a audiences will understand and support the wealth of cultural resources and landscape national historic significance of the Site, par- features that reflect three centuries of defence ticularly through experiencing the Site and and communications history. Signal Hill participation in programs. Local residents nhsc is comprised of land on both the north will continue to enjoy the Site with a greater and south sides of the Narrows. The south appreciation for its national historical signifi- side, although included in the designation, is cance. The Site will be better integrated with not administered by Parks Canada. other thematically related attractions and will Signal Hill nhsc is administered by the be regarded as a key draw in the regional Parks Canada Agency as part of a system of tourism offer. national historic sites across Canada. Each The management plan provides strategic national historic site within this system management direction for the next five years protects and presents an important part of that may be achieved within the sustain- Canada’s history. Parks Canada raises the able operations of Parks Canada and that awareness, understanding and appreciation is judged to have no significant impacts or of Canadians about our common heritage by cumulative effects on the natural or cultural offering opportunities to learn about and ex- values of the Site. As well, for the south side perience Signal Hill nhsc and other national of the Narrows, the management plan offers a historic sites across Canada. framework for the relationship between Parks This management plan replaces one pre- Canada and those who administer those cul- pared in 1986, and was developed with input tural resources. The proposed management from stakeholders of the Site. The manage- direction aims to ensure the commemorative ment plan aims to realize Parks Canada’s integrity of Signal Hill nhsc, to provide for mandate through the delivery of three key public education and outreach, and to offer mandate elements that are interrelated and opportunities for meaningful visitor experi- integrated: heritage protection, public educa- ences. Subsequent detailed planning, imple- tion and visitor experience. This management mentation and management will in turn be plan articulates a fifteen-year vision for the guided broadly by this management plan. Site: Signal Hill nhsc will remain a distinctive viii

Priorities for management of Signal Hill nhsc evaluate the effectiveness of the Site’s over the next five years are: heritage presentation to meet those needs, and respond to changes as they arise. Heritage Protection • Create and maintain a Site Dossier that Program/Service Communications records all management actions and deci- • Focus on ensuring that the Site’s national sions affecting the Site’s cultural resources. historic significance is communicated by • Communicate information about signifi- its marketing partners, and respected by cant historic view planes, requesting their those who use the Site for filming, special protection and providing relevant input events and advertisements. into municipal planning and development approval processes. Agency Communications and Community Involvement • Develop and use Resource Conservation • Provide opportunities for cross-training and Maintenance Plans for the in-situ the staff from historically connected sites cultural resources under Parks Canada’s in commemorative integrity and heritage administration. presentation. • Submit structures to the Federal Heritage • Continue to encourage and participate Building Review Office fhbro( ) for in special events and activities that are evaluation. consistent with commemorative integrity • Carry-out an archaeological inventory of and that foster public support. the Chain Rock Battery area, then stabilize • Keep partners and stakeholders informed and present its cultural resources. about Parks Canada’s progress on imple- • Participate in planning and manage- menting the management plan, through ment activities that may affect the Fort meetings, presentations and electronic Amherst/south side of the Narrows area. distribution of planning products and/or • Provide training opportunities to Fort by posting them to the Parks Canada Amherst/south side of the Narrows Website. partners, and share knowledge and best practices. Visitor Experience • Provide professional and technical advice • Undertake research to determine needs, and assistance for cultural resources on interests, expectations and desired the south side of the Narrows. experiences of visitors. • Participate in activities to understand and • Study visitor use of the Site examining protect cultural resources on the south traffic, parking, visitor numbers and side of the Narrows in collaboration with circulation. south side partners, when resources are • Update the Site’s Public Safety Plan. available. • Maintain existing trails, upgrading them where needed to meet heritage presenta- Public Education and Engaging Canadians tion and public safety requirements.

Education Communications Environmental Stewardship • Refurbish the Visitor Information Centre, • Update the Site’s natural resource installing interpretive media that better inventory. reflect the Site’s messages and that better • Evaluate and/or screen any new meet the needs and expectations of visitors. developments or operational activities • Install orientation and introduction nodes using the Site’s commemorative integrity at key Site entrance points. statement, Parks Canada’s Cultural • Continue to develop and implement the Resource Management Policy and the Site’s outreach and school programs, and Canadian Environmental Assessment Act. enhance the Parks Canada Web site. • Incorporate natural heritage values and • Continue researching the needs and messages into the Site’s heritage presenta- expectations of visitors, monitor and tion experience where appropriate. Signal Hill ix National Historic Site of Canada Management Plan

Table of Contents

Foreword ...... iii Recommendations...... v Executive Summary...... vii

1.0 Introduction 1.1 The Goal of Management Planning...... 1 1.2 Background...... 2

2.0 Importance of Signal Hill NHSC to the System of National Historic Sites...... 5

3.0 Commemorative Integrity 3.1 Commemorative Intent...... 7 3.2 Designated Place...... 8 3.3 The Message of National Significance...... 8

4.0 Current Situation Analysis 4.1 Heritage Protection...... 11 A. Cultural Resources Within Parks Canada’s Administration...... 11 B. Cultural Resources Outside Parks Canada’s Administration...... 16 4.2 Public Education and Engaging Canadians...... 19 4.2.1 Education Communications...... 19 A. Heritage Presentation Administered by Parks Canada...... 20 B. Heritage Presentation Outside of Parks Canada’s Administration...... 22 4.2.2 Program/Service Communications...... 22 4.2.3 Agency Communications and Community Involvement...... 24 4.3 Visitor Experience...... 25 4.3.1 Target Audiences...... 25 4.3.2 Visitor Services and Facilities...... 27 4.4 Environmental Stewardship...... 28

5.0 Vision Statement...... 29

6.0 Management Objectives and Actions 6.1 Heritage Protection...... 31 A. For Resources Within Parks Canada’s Administration...... 31 B. For Resources Outside Parks Canada’s Administration...... 32 6.2 Public Education and Engaging Canadians...... 32 6.2.1 Education Communications...... 33 6.2.2 Program/Service Communications...... 34 6.2.3 Agency Communications and Community Involvement...... 34 6.3 Visitor Experience...... 36 6.4 Environmental Stewardship...... 36

7.0 Impact Evaluation and Environmental Assessment...... 37

8.0 Implementation Strategy Management Plan Implementation Schedule...... 39

Acknowledgments...... 41

Appendices APPENDIX 1 Selected References...... 43 APPENDIX 2 Glossary...... 45 APPENDIX 3 Cultural Resources Current Condition Rating Definitions...... 47 APPENDIX 4 Summary of the Commemorative Integrity Evaluation...... 49

Reference Maps MAP 1 Regional Setting...... 3 MAP 2 Site Map...... 4

Figures FIGURE 1 Signal Hill NHSC View Planes at Risk...... 12 Signal Hill National Historic Site of Canada Management Plan

1.0 Introduction

Cabot Tower overlooking the Narrows. Andre Cornellier 1988

Canada’s national historic sites exemplify historic site it administers, and advises that thousands of years of human history and each historic site prepare a management hundreds of years of nation building – and plan every five years, which is then tabled in they are part of the inheritance of all Parliament. Canadians. Every national park and national historic site administered by Parks Canada has a management plan that establishes the 1.1 The Goal of Management Planning long-term direction for its activities and, as a The goal of individual management plans first priority, sets the direction for achieving is to ensure the commemorative integrity of and maintaining commemorative integrity at national historic sites, and guide the appli- national historic sites and ecological integrity cation of cultural resource management at national parks. These plans are the Minister principles and practices. While respecting of the Environment’s commitment to the this primary goal, the management plan also nation’s public to responsibly protect, present guides the provision of services and facili- and govern the use of these special places. ties for appreciation and enjoyment of each The Historic Sites and Monuments Act is the national historic site. Both protection and legislative authority for the national his- presentation are fundamental to commemo- toric sites program. It gives the minister the ration, since without protection there can be authority to commemorate national historic no national historic site to be enjoyed, and sites. The Parks Canada Agency Act makes without presentation there can be no under- Parks Canada responsible for ensuring the standing of why the site is important to our commemorative integrity of each national history and, hence, to all Canadians.

This management plan was developed to side of the Narrows) was cited for its national guide Parks Canada and its partners in the historic significance. In1998 , recognizing that protection, presentation and management the cultural resources on the south side of of Signal Hill nhsc, in whole and in part. the Narrows were an integral part of Signal Applying this plan will protect and main- Hill’s defence and communications history, tain commemorative integrity in the Parks the Historic Sites and Monuments Board of Canada administered portion of the Site, and Canada recommended that they be included provide direction for Parks Canada and its within Signal Hill’s historic site designation. partners to work together to achieve com- Today, the Designated Place of Signal Hill memorative integrity in the portion of the nhsc encompasses land on both sides of the Site on the south side of the Narrows. Narrows (see map 2). The previous management plan for The Parks Canada-administered site is 106 Signal Hill National Historic Site of Canada hectares and consists of the major portion of was tabled in 1986. Since that time, much the Signal Hill peninsula, which overlooks has changed that affects how Parks Canada St. John’s Bay, Fort Amherst, the Narrows, approaches site management and plans for St. John’s Harbour and the Quidi Vidi the future. Parks Canada undertook a man- waterway. agement plan review process, guided by the The ribbon of shoreline that completes principles, practices and values outlined in the Designated Place contains Fort Amherst Parks Canada’s National Historic Sites Policy National Historic Site of Canada and two and Cultural Resource Management Policy. A historic sites recognized by the Government multi-disciplinary team with expertise in fields of Newfoundland and Labrador: Frederick’s relevant to the Site (including architecture, Battery and South Castle. The south side of landscape architecture, history and archaeol- the Narrows played a significant role in the ogy), which also included a representative from city’s defence for at least three centuries. The the Historic Sites Association of Newfoundland area has seen continuous human settlement and Labrador, performed the review. This man- since the early 1800s, when Newfoundland’s agement plan reflects the input they received first lighthouse was built at Fort Amherst. during meetings and consultations, and from Although this land and its resources are documents submitted by Site partners, the included in the Designated Place, Parks public, and major stakeholders. Canada does not own or administer them. That responsibility is divided amongst the Government of Newfoundland and Labrador, 1.2. Background the City of St. John’s, private landowners, Located in St. John’s – Newfoundland and and various agencies of the federal govern- Labrador’s capital city – Signal Hill, Cabot ment including Fisheries and Oceans Canada Tower, and the Narrows are among Canada’s - Canadian Coast Guard, the St. John’s Port most distinctive landmarks. Signal Hill was Authority, Transport Canada, and the Fort designated a national historic site in 1951, the Amherst Small Boat Basin Corporation. same year that Fort Amherst (on the south Signal Hill National Historic Site of Canada Management Plan

mAP 1

SIGNAL HILL other national historic sites of Canada NATIONAL HISTORIC SITE OF CANADA owned and/or Administered by Parks Canada North 1 Ryan Premises 4 Castle Hill Regional Setting 2 Hawthorne Cottage 5 Port au Choix 3 Cape Spear 6 L'Anse aux Meadows 0 25 50 75 100 km

6 it le ra Is t le S el B QUEBEC of to Blanc-Sablon FERR St. Anthony

ATLANTIC

5 OCEAN e c n e r w a L . t y S a f B o e t f i l h u W G

Gros morne Notre Dame national Park Bay of Canada

Lewisporte

Deer Lake Windsor Gander Grand Falls Corner Bonavista 1 Brook Bay Bonavista Terra nova NEWFOUNDLAND national Park Stephenville AND LABRADOR of Canada

ay B ’s e y y rg a a eo B B G . y n t t o S i i n t signal hill i p r e national historic site T Harbour c n of Canada Grace o C ST. JOHN’S Channel- 2 3 Port aux

Basques y a B Argentia e n AVALON PENINSULA u Placentia Y t 4 or Bay F FERR Y Grand Bank ton (NS) C FERR abot to Cape Breton (NS) Strait Miquelon to Cape Bre ( France ) Bay Saint-Pierre St. Mary's ( France )

ATLANTIC OCEAN y h rt No Vidi Batter Quidi St. John's Bay Cove Cuckold North Head LLEY Soldiers' Canteen VA ROSS'S wder Magazine South Head Po r d we Amherst To re da Imperial ort

F Cabot niste i s Cana y Ladies' Lookout HILL ar Magazine W rk Adm CARRONADE Pa orld W ows and y by L ederick's Batter Second Fr ges y Pond The Narr Geor Queen's Batter Quonset Hut Visitor Information Centre Chain Rock Batter ield F y rformance South Castle Pe d by Others re y HILL GIBBET ldegrave Batter niste i Wa

Road Pond Adm Deadman's idi Lake and

Signal Hill L rks Canada Boundar rking rail Designated Place Pa T Pa Quidi V m 400 Harbour St. John's 200 p 2 TIONAL HISTORIC SITE OF CANADA mAP Site Ma SIGNAL HILL NA 0 Signal Hill National Historic Site of Canada Management Plan

2.0 Importance of Signal Hill NHSC to the System of National Historic Sites

Cabot Tower at the summit of Signal Hill. Pam Coristine 2001

Signal Hill National Historic Site of Canada parts. In addition to the places that are com- is part of the network of national parks and memorated, more than 360 persons and 300 national historic sites stretching from one other aspects of our history, including historic coast of Canada to the other. There are more events, have been commemorated for their than 900 national historic sites nationwide. national significance. Each site has had a nationally significant National historic sites are owned by impact on Canadian history or illustrates a federal, provincial and municipal govern- nationally important aspect of the history ments, by businesses and heritage organiza- of Canada. tions, and by private citizens. Together they Collectively, Canada’s system of national form the “Family of National Historic Sites” historic sites represents thousands of years of in whose stewardship all Canadians share. human history and a rich variety of themes, Parks Canada now administers more than spanning political, economic, intellectual, 150 national historic sites across Canada, and cultural and social life. Along with sites such contributes to the other national historic sites as Fort Rodd Hill nhsc on the west coast of in the family through cost-sharing agree- Canada, the Fortifications of Quebecnhsc ments and the Government of Canada’s and the Halifax Defence Complex, Signal Historic Places Initiative. Hill nhsc commemorates important aspects Canada’s national historic sites are a of Canada’s defence history. As well, the significant, irreplaceable legacy. By preserv- Site’s communications history is linked to the ing their commemorative integrity today, we Marconi nhsc and the Alexander Graham ensure that they will be here for the benefit Bell nhsc in Nova Scotia, among others. and enjoyment of future generations, as well The national program of commemoration as our own. consists of several distinct but interlocking Signal Hill National Historic Site of Canada Management Plan

3.0 Commemorative Integrity

Gun barrels at Artificers Yard near Queen’s Battery. Pam Coristine 2000

The cornerstone of the National Historic Sites • the resources directly related to the rea- Policy is: sons for designation as a national historic site are not impaired or under threat; To ensure the commemorative integrity of • the reasons for designation as a national national historic sites administered by Parks historic site are effectively communicated Canada by protecting and presenting them to the public; for the benefit, education and enjoyment of • the site’s heritage values (including those this and future generations, in a manner that not related to designation as a national respects the significant and irreplaceable legacy historic site) are respected in all decisions represented by these places and their associated and actions affecting the site. resources.

Parks Canada’s primary responsibility at 3.1 Commemorative Intent Signal Hill National Historic Site of Canada Commemorative intent focuses our under- is to ensure its commemorative integrity. standing of what is being commemorated at a Commemorative integrity describes the national historic site. The guiding Statement of health or wholeness of a national historic site. Commemorative Intent for each site refers to the A national historic site possesses commemo- specific reasons for a site’s national historic rative integrity when: significance, as identified by the Historic Sites and Monuments Board of Canada’s (hsmbc) recommendations. Signal Hill’s national

historic significance is determined by the • Signal Hill and the south side of the 1998 hsmbc minute, which reads: “it [Signal Narrows served as important defensive Hill] is importantly associated with Canada’s locations through three centuries due defence and communications history.” mainly to their location and natural qualities. • The strategic importance of Signal Hill 3.2 designated Place and the south side of the Narrows for “Designated Place” refers to the entire area defence purposes is tied to the strategic designated as historically significant by the importance of St. John’s and St. John’s Minister, acting on the recommendation harbour. of the hsmbc – irrespective of current land • Signal Hill and the south side of the ownerships or jurisdictional boundaries. A Narrows were integral parts of St. John’s Designated Place can be larger or smaller defence systems from the 1640s to the than the boundaries of the Parks Canada Second World War. administered site; at Signal Hill nhsc it is • Signal Hill played an important role in the larger (map 2), and consists of two areas: defence of Canada from the 1640s to the Second World War. • the land inside the administrative boundary of Signal Hill nhsc (located Communications on Signal Hill); • Because of its strategic location and view • the fortification and communications sites planes, Signal Hill played an important on the south side of the Narrows, includ- role in military signalling ca. 1704 -1870. ing the sites of Noone Room, South Flags were raised from a mast on the Castle, Frederick’s Battery and Fort summit of Signal Hill to notify the British Amherst. garrison of the arrival of ships, and can- nons and muskets were fired to regulate the daily activities of the military or to no- 3.3 The Message of National Significance tify mariners that fog was making visual The goal of the second element of commemo- signalling ineffective. rative integrity is to ensure that a national • Reflecting the rise of St. John’s as an historic site’s reasons for designation are important commercial port, Signal Hill’s effectively communicated through clear mes- signalling shifted to mercantile/civilian sages derived from the Site’s Statement of purposes around 1820 and continued to Commemorative Intent. Signal Hill nhsc’s ca. 1958. During this period, mercantile message of national significance is: flags were raised to notify crews and of- ficials of the impending arrival of mercan- Signal Hill is importantly associated with tile vessels, and noon-day and fog guns Canada’s defence and communications history. were fired. • Apart from its commemorative purpose, Context Messages Cabot Tower was built to be a flag signal- Context messages support the message of ling tower and served that function from national significance and are essential for 1900 to 1958. communicating the context of the Site’s • Signal Hill played an important role in national significance. transatlantic communications in 1909 when the Site received its first trans- Defence atlantic cable, which was landed at • Signal Hill nhsc is linked to other na- Cuckold’s Cove by the Commercial Cable tional historic sites through its association Company – the first direct telegraph link with military defence. from Ireland to St. John’s and St. John’s to New York. By 1931, eight cables at 1. Also known as Gunner’s Cove and Ring Noone. Signal Hill connected Ireland to insular 2. Also known as South Fort, South Redoubt and the Castle. 3. Also known as Fort Rederick, Fort Charles and South Battery. Newfoundland, Canada and the U.S.A. Signal Hill National Historic Site of Canada Management Plan

• Lighthouse signalling at Fort Amherst be- Secondary Messages gan in 1810 and still continues. The light Signal Hill nhsc does not exist in isolation, at Fort Amherst had important communi- nor does its nationally significant history cations and defence roles. represent the only historical activity at the • On December 12, 1901, Guglielmo Site. Secondary Messages communicate Marconi received the first transatlantic the broader historic values of the Site. The wireless signal on Signal Hill. Later, Secondary Messages for Signal Hill nhsc are: on 23 July, 1920, the Canadian Marconi Company transmitted the human voice • Signal Hill, the Narrows and Cabot Tower across the Atlantic Ocean from Cabot are important symbols of St. John’s and Tower. In 1933, they opened a wireless Newfoundland and Labrador. station on the Site, which operated until • Cabot Tower was built to commemorate 1949; it continued operations under the the 400th anniversary of John Cabot’s Canadian Department of Transport voyage to North America and the 60th an- until 1960. niversary of Queen Victoria’s reign. • Signal Hill nhsc is linked to other na- • Cabot Tower’s architecture reflects tional historic sites through its association Newfoundland and Labrador’s historic with communications. ties to Britain and the historic defence role of Signal Hill (even though the Tower was Designation as a National Historic Site not built for military purposes). • A national historic site is a place designat- • Signal Hill and some of its cultural re- ed by the Government of Canada as a site sources are an important part of the medi- of importance to all Canadians because of cal and penal history of Newfoundland. its national historic significance. • Fort Amherst is an important part of Newfoundland and Labrador’s lightkeeping history. • Cuckold’s Cove and the south side of the Narrows are linked to Newfoundland’s fishing heritage. • The buildings and cultural landscape of Fort Amherst and the south side of the Narrows typify the traditional Newfoundland outport style. 10 Signal Hill 11 National Historic Site of Canada Management Plan

4.0 Current Situation Analysis

The Battery at the foot of Signal Hill. Unknown Photographer 2003

4.1 heritage Protection A. Cultural Resources Within Parks Canada’s Parks Canada is responsible for protecting Administration the cultural resources and other heritage As part of the management planning pro- values of those national historic sites under gram the cultural resources managed by the Agency’s administration, and offers visi- Parks Canada at Signal Hill nhsc were tors opportunities for meaningful experiences evaluated in light of the Site’s commemora- at these sites. A site’s cultural resources and tive integrity statement. Identified were their heritage values provide an authentic setting existing condition, and current or potential that is central to engaging and meaningful threats or risks. Management practices at the experiences for visitors of the site. Site were reviewed to determine whether In Canada’s national historic sites, cultural principles and practices existed to ensure that resources have two classifications. LevelI management decisions were based on respect cultural resources are those directly associated for cultural resources. Record keeping, main- with the reasons for the site’s national signifi- tenance regimes and monitoring programs cance. Level II cultural resources are those were reviewed. The evaluation assigned Poor, not directly related to national significance, Fair, and Good ratings (see appendix 3 for but which have historic value. Parks Canada ratings descriptions, and appendix 4 for a manages both types of cultural resources summary of the Commemorative Integrity in accordance with its Cultural Resource Evaluation). Management Policy, and encourages its partners to do the same with the resources that are outside Parks Canada’s administration. 1. Signal Hill NHSC Commemorative Integrity Evaluation, 2003; see Appendix 4 for a summary. 12

Signal Hill NHSC - View Planes At Risk

Fort View from Ladies’ Lookout Townsend (former Blockhouse c 1795) to NHSC Fort Townsend NHSC and Fort William NHSC. These sites are now occupied by contemporary structures.

Fort William NHSC

Ladies’ Lookout (1795 Blockhouse site)

View from Fort William NHSC to Ladies’ Lookout (Blockhouse c 1795). This view is now obstructed by a contemporary structure outside Parks Canada’s administrative boundary. Future developments in this area could further obstruct historic views to Gibbet Hill and Cabot Tower.

Quidi Vidi Pass Batteries

View from Carronade Hill to Quidi Vidi Pass Batteries Provincially recognized site. This view has the potential to be obstructed by developments in the foreground outside the boundary of Signal Hill NHSC.

Carronade Hill

View from Quidi Vidi Pass Batteries to Carronade Hill Signal Hill 13 National Historic Site of Canada Management Plan

During this review and analysis, some opportunities to interpret the Site’s historic issues were identified as systemic (i.e., they connections to these places. affect the whole site or all of its resources). Historic visual links also exist within the Management solutions to these issues need to Site’s boundaries, between specific features be holistic, and apply to all cultural resources that were critical for defending the hill, such at the Site. These global issues are dealt with as the view from North Point Battery to the first, below. The following sections cover is- landing places in Cuckold’s Cove. These view sues that pertain to groups of resources and planes and viewscapes reveal the context their individual parts. – and often the raison d’être – for the location of these features on the Site. If they were lost, Managing Information – Since the establish- visitors would be less likely to understand ment of Signal Hill nhsc much research and the features’ purpose and context, and the study has taken place, greatly increasing Site’s heritage value would be diminished. Parks Canada’s knowledge and understand- Since the last management plan was ing of the Site and its history. The work adopted, outside developments and pro- includes archaeological investigations, histor- posals that could affect these views have ical research, and the generation of associated increased and some historic views have been studies and reports. Records and information lost. Many, however, still remain. Cabot have steadily been acquired that relate to Tower, for instance, built to be seen clearly interventions to the Site’s historic resources, from the mercantile properties that lined St. and decisions about its development or John’s harbour, still retains its visual integrity. programs. Parks Canada’s Cultural Resource Through municipal development approval Management Policy states, “Parks Canada will processes Parks Canada is kept informed and maintain up-to-date inventories and records monitors proposals for developments adja- on its cultural resources.“ This has been cent to the Site that could impair its visual done for Signal Hill nhsc, but the records integrity. Even so, some views that are now are currently in a variety of formats and are unimpaired may be at risk, due to existing located on-site, at the Parks Canada offices in municipal development regulations. St. John’s, in Halifax with Public Works and Parks Canada will share information and Government Services Canada, and at Parks work with the City of St. John’s to be better Canada’s Atlantic Service Centre – a situation able to ensure the preservation of Signal Hill that makes it difficult for staff to quickly pull nhsc’s historic view planes. together information when it’s needed. This resource material must be organized Cultural Landscape and Landscape Features – into an easily accessible Site Dossier (kept Signal Hill nhsc’s topography, and its natural as close to the Site as possible), as per the and cultural landscape features are among Cultural Resource Management Policy (which its most distinguishing characteristics. Many directs, “…Dossiers will contain basic data of the defensive works on Signal Hill and the and related documentation, including the south side of the Narrows were located and results of research, evaluation, records of decisions and actions taken…”).

Views and Visual Integrity – The views from and to Signal Hill nhsc are integral to its historic significance. The hill’s prominence on the landscape and its location overlooking St. John’s Bay and St. John’s Harbour are the reason for its historic defence and communications activities. Losing sight lines that contain views of St. John’s harbour, Cape Spear, Quidi Vidi Pass Batteries, and Fort Townshend, would mean losing the best Signal Hill viewed from the top of the South Side Hills. Dave Taylor 2004 14

Buildings and Structures – The surviving historic structures at Signal Hill nhsc are modest remnants of what once existed. They include the Imperial Powder Magazine, Cabot Tower, Queen’s Battery Barrack, the Quonset Hut, the Second World War Magazine, and the Chain Rock Battery. With the exception of Cabot Tower, they were all built for military purposes and represent the construction practices of different periods of military occupation. All structures on Signal Hill are exposed to severe climatic influences: high gusting winds, rapid temperature changes, freezing rain and ice, and the corrosive effects of a saltwater environment.

Second World War Quonset Hut. Don Parsons 2006 Overall, the historic structures are in Fair condition. Those that have undergone major designed specifically to take advantage of intervention (Cabot Tower, the Imperial a natural feature. Today, in many cases, the Powder Magazine and Queen’s Battery only visible remnants of these activities are Barrack) are in Good condition. Stabilizing marks on the landscape that were left when a and continuing to maintain them mitigated natural feature was adapted for human use. the environmental threats to these structures. A Cultural Landscape Study of Signal Hill NHSC To ensure this status continues, however, the was initiated in 2001-02 to document the maintenance regime needs to be formalized Site’s cultural landscape features and to help into a routine, cyclical program that incorpo- guide decisions related to developments at rates what has been learned from previous and near the Site. work. Parks Canada will develop comprehensive Resource Conservation and Maintenance Generally, the Site’s cultural landscape fea- Plans for these structures to ensure they tures are in Good condition. The few areas of retain their commemorative integrity over the concern are: long term. • several locations along trails where Structures built during the Second World there is evidence of erosion; War are now reaching the end of their service- • Burma Road and Carronade Hill able use. The Quonset Hut, the Second World where vegetation is obscuring War Magazine and the structures of the Chain landscape remnants; Rock Battery have not undergone major • the terrace at Chain Rock Battery where there is evidence of instability.

Only the terrace at the Chain Rock Battery site is considered to be under threat at this time. Parks Canada will give priority to stabilizing that site, and addressing the areas that are eroding, or may erode. Parks Canada needs to monitor the erosion sites, assess how visitors use them through a Visitor Use Study, and then develop solutions. Options for vegetation management that will reveal Burma Road and Carronade Hill will be explored in conjunction with trail planning, and with full consideration of environmental effects.

Imperial Powder Magazine. Pam Coristine 2000 Signal Hill 15 National Historic Site of Canada Management Plan

intervention, and are deteriorating at an ac- higher than it was two centuries ago. As a celerated rate. It is time for Parks Canada to result the Imperial Powder Magazine now undertake long-term stabilization of these appears to sit in a depression. Furthermore, structures, particularly Chain Rock Battery. both Cabot Tower and the Imperial Powder All the historic structures administered Magazine are surrounded by asphalt and by Parks Canada at Signal Hill nhsc are concrete, much of it in poor condition. These owned by the federal government and are hard landscaping elements change the con- more than 40 years old. The Treasury Board text of the historic structures. Removing the Heritage Buildings Policy therefore applies fill from the summit ridge to restore the origi- to them, and it requires that the Federal nal context of the buildings would be a major Heritage Building Review Office fhbro( ) intervention, however; it might also conflict evaluate them. Together with Parks Canada’s with direction given in Parks Canada’s Cultural Resource Management Policy, this Cultural Resource Management Policy to evaluation will provide direction for in- value the evolution of resources: “A cultural terventions and modifications of the Site’s resource whose historic value derives from buildings. Two structures have already been its witness to many periods in history [in this submitted for evaluation: Cabot Tower and case, the Summit Ridge] will be respected for the Quonset Hut. Cabot Tower was desig- that evolution, not just for its existence at a nated a Classified building, the highest rating single moment in time.” bestowed on a heritage building by fhbro. Parks Canada must find ways to improve The Quonset Hut was not given a designation the context of Cabot Tower and the Imperial under the fhbro system, but is a Level I Powder Magazine without destroying the cultural resource according to the Cultural layers of history contained under the ad- Resource Management Policy. jacent parking lot. Options to improve the The Imperial Powder Magazine, the landscape surrounding Cabot Tower and the Chain Rock Battery and the Second World Imperial Powder Magazine, such as develop- War Magazine will be submitted to fhbro ing a landscape architecture that is histori- prior to any intervention or modification. cally sympathetic will be considered.

Context of Buildings – In its most recent Archaeological Sites – Signal Hill nhsc is deliberations regarding Signal Hill nhsc, rich in archaeological resources. Generally, all the Historic Sites and Monuments Board of areas excavated to date by Parks Canada are Canada acknowledged that the upper park- in Good condition, and stable. Parks Canada’s ing lot on the summit ridge of Signal Hill archaeological staff inspects them annually; is visually intrusive. The occupation and Site staff monitors them more frequently. reoccupation of the area for various military Parks Canada will formalize this inspection purposes over time has left it about a metre program to ensure that these sites continue to be maintained to the same standard. In keeping with current standards, the archaeological resources of the Site will be located using a Geographic Information System (gis) and digitally mapped to make information more accessible and useable by the staff. Since the last management plan, Parks Canada acquired remains at the Chain Rock Battery and no archaeological investigation of this area has yet taken place. The Second World War battery and some remnants of the earlier fortifications (ca.1600s -1870) are visible. According to Parks Canada’s Cultural Resource Management Policy, the care of these resources must be based on research and Interior of Queen’s Battery barracks. Ray Fennely 1997 16

knowledge. An archaeological investiga- the Site’s in-situ historic objects. The proposed tion of the area is needed to expand what is Site Dossier will support these new Resource known. This is a priority item, as the terrace Conservation and Maintenance Plans by on which these resources are located is threat- making information and previous decisions ened by erosion. about in-situ artillery easily accessible. Chain Rock Battery’s 75mm qf gun was Artifacts in Collections – Parks Canada has removed from its site because it was exposed three collections of artifacts that relate to to the weather. It is now stored indoors on- Signal Hill nhsc. They are: site to prevent further deterioration. Parks Canada intends to conserve the gun and re- 1. the Curatorial Collection, on display in turn it to its original location when the Chain Signal Hill Visitor Information Centre; Rock Battery has been stabilized. 2. the National Reference Collection, housed at Parks Canada’s Collections B. Cultural Resources Outside Parks Management facility, in Liverpool Court, Canada’s Administration Ottawa; Parks Canada has a special relationship with 3. the Atlantic Service Centre Collection, those who protect and present the resources in storage at Parks Canada facilities in on the south side of the Narrows. This area Halifax. is integral to the commemoration of Signal Hill nhsc even though it is outside Parks All of the artifacts are maintained to Parks Canada’s administration. The national his- Canada’s Collections Management Standards toric sites program has always depended on and are considered to be in Good condition, partnerships with others who own heritage and stable. places. This trend has increased in recent years. Accordingly, Parks Canada does not intend to acquire land on the south side of the Narrows. Parks Canada has an important role to play on the south side, however: cooperating and sharing information with those who are responsible for the resources located there. Historic resources at the light tower site and at the Fort Amherst Small Boat Basin are federally owned/administered and are subject to the Government of Canada’s legislation and policies. The other historic resources in the area are protected by provincial legislation under the Government of Newfoundland and Labrador’s Historic The Narrows and aerial view of the designated place. Bob Crocker 1996 Resources Act. Along with other stakeholders and owners, Parks Canada was involved in a On-site Artillery – The artillery at Signal Hill recent initiative to direct future develop- nhsc is in Fair condition, and stable, with ments in the Fort Amherst/Narrows area. the exception of the 75mm qf gun from the The Grand Concourse Authority, on behalf Chain Rock Battery. Previous conservation- of the St. John’s East Rotary Club, produced related interventions to the on-site artillery the Fort Amherst Feasibility Analysis and Site have been done as needed, and although the Development Plan in 2001-02 with the sup- condition of the pieces has been monitored, port and/or involvement of landowners and no regular maintenance program is in place. property administrators. Adopted by the City As is the case for Signal Hill nhsc’s his- of St. John’s, the report defines a strategy for toric buildings, Resource Conservation and municipal planning, development controls, Maintenance Plans need to be developed for infrastructure and programs that will allow Signal Hill 17 National Historic Site of Canada Management Plan

Fort Amherst Lighthouse and Second World War emplacements. Dave Taylor 2003 the heritage tourism potential of the area Buildings and Structures – A Second World to be realized. The following outlines the War battery is located at the base of South cultural resources associated with Signal Hill Head. The complex is in Fair to Poor condi- nhsc located in the Fort Amherst/Narrows tion. Little remains of searchlight emplace- area, their condition and directions estab- ments that were on the rocks near sea level. lished in the above noted plan. At a higher elevation, the gun emplacements, which had deteriorated severely, under- Landscapes and Landscape Features – The went short-term stabilization in 2001-02 that cultural landscape features of national included removing their roofs. The Grand historic significance on the south side of the Concourse Authority undertook this work as Narrows are: an interim measure until direction for the site could be developed through the Fort Amherst 1. South Head, a natural headland where Feasibility Analysis and Site Development Plan. navigational aids and defensive works are It proposes that the ruins “be stabilized in a located; way that they are protected as an important 2. Frederick’s Cove, a small protected cove historical resource, and are safe for visitors to in the Narrows; move around in.” This direction is in keep- 3. the shoreline connecting these two areas. ing with Parks Canada’s Cultural Resource Management Policy. The locations of other historic landscape fea- The Fort Amherst lightkeeping complex, tures – including Gunners Cove and Pancake located above the Second World War Battery Rock – were filled in when the Fort Amherst at South Head, has three structures. The Small Boat Basin industrial complex was devel- first is a contemporary light tower, which oped in the late 1980s. According to the Fort is a Level I resource and is operated by the Amherst Feasibility Analysis and Site Development Canadian Coast Guard Branch of Fisheries Plan these cultural landscape features will not and Oceans Canada. Built in the 1950s on the be affected by future development. stone base of the original fort and tower it has the hsmbc plaque commemorating Fort Amherst affixed to its base. The light tower 18

is well maintained and its condition is stable. need to do a comprehensive archaeological The two remaining structures are lightkeep- investigation before making any decisions ers’ residences (Level II), which are owned by about future development in this area. This the City of St. John’s. One is used as a private direction is in keeping with Parks Canada’s residence, the other as a Museum and Tea Cultural Resource Management Policy, which Room. The Fort Amherst Feasibility Analysis states, “ adequate research, recording and and Site Development Plan proposes that these investigation will precede any action that buildings be maintained in their existing loca- might affect cultural resources and their tions. Both are currently well maintained and presentation.” With Parks Canada’s expertise are not under threat. in resources related to military and defence, There are approximately forty structures there may be opportunities to collaborate to identified as LevelII cultural resources ensure that these resources are understood. located on the south side of the Narrows In addition to the ruins of the Second in the community of Fort Amherst. They World War battery, there are many 20th are built in the traditional Newfoundland century concrete remains associated with outport style and include one- and two-storey defence in the Fort Amherst/south side area. dwellings, a schoolhouse, sheds, and vari- Although they are not fully understood, these ous outbuildings. The direction proposed by resources are not considered to be under Parks Canada’s Fort Amherst partners is to threat. In its efforts to achieve and maintain maintain the traditional historic appearance commemorative integrity for areas outside its of these structures by creating development administration, Parks Canada will encourage, guidelines. These structures are not currently support and collaborate in efforts to inven- under threat. Future direction for them will tory and document these resources. result in preservation of their unique features As the south side of the Narrows site is and elements. further developed, Parks Canada will continue to play a role by providing a basic level Archaeological Sites – The Anchor Point of support that includes input into develop- area underwent archaeological excavation ment initiatives, and sharing information in the late 1980s and again in the mid-1990s, and expertise to help those responsible for this time as part of the industrial boat basin these resources make informed decisions. development. The remains of South Castle Parks Canada’s priority is for resources under (1703-1709) are secured by a chain-link fence its own administration. However, where and are partially stabilized with sandbags. nationally significant resources outside its Several hundred metres to the east of the boat basin, the Frederick’s Battery site has visible remains of a cut-stone wall overlooking the Narrows. The Historic Resources Division of the Government of Newfoundland and Labrador monitors these sites. Having an active archaeological program at the South Castle site is one of the concepts proposed for the Fort Amherst/Narrows area. There are some physical remains of the 18th and 19th century military occupation of Fort Amherst. They include several travers- ing gun platforms with rails mounted on partial circles of cut stone, and cut stones that were apparently moved from their original locations and used in the foundations of later military structures. These ruins are not considered to be under threat. Parks Canada’s Fort Amherst partners have identified the Noon Day Gun. Unknown 2000 Signal Hill 19 National Historic Site of Canada Management Plan

administration are in Poor condition or under more Canadians know about these heritage threat, Parks Canada can enhance its support places and their resources, and the issues through meaningful collaboration with site and challenges facing them, the more likely owners. Parks Canada’s level of involvement they will be to appreciate them and support will be strategic and based on sustainabil- the work needed for their conservation and ity principles. Priority is given to sites that protection. Parks Canada has developed a are underrepresented in the Parks Canada strategy for delivering priority messages System and projects that have strong partner- consistently across the organization. It clearly ship commitment, are affordable and sustain- states that each Parks Canada site has a role to able in the long term. play in helping to encourage understanding, appreciation and stewardship of the site, and Historic Objects – The only artillery on the also encourage support for Parks Canada’s south side of the Narrows is a 75mm qf gun mandate. Parks Canada’s Engaging Canadians in its original location inside the remains of a Framework outlines three types of communica- Second World War gun emplacement. It has tions activities for achieving these goals: deteriorated severely and is not considered salvageable. • Education Communications, which are The two plaques in the area are the hsmbc the interpretation and outreach elements plaque and a provincial historic site marker of Heritage Presentation; near the remains of Frederick’s Battery. These • Program/Service Communications, plaques are Level II resources; both are in which include communicating with visi- Good condition. tors, marketing and influencing the travel A small collection of artifacts relating to trade and media; the history of Fort Amherst and the Narrows • Agency Communications, which include is on display inside the Fort Amherst corporate reporting; and public, commu- Museum and Tea Room. Owned and cared nity, media and stakeholder relations. for by the operators (the Power family), or on loan to them from community residents, the 4.2.1 Education Communications collection includes tools, equipment, archival Comprising both on-site interpretation and materials and household effects. outreach activities, heritage presentation is The Government of Newfoundland and integral to maintaining a site’s commemo- Labrador Collection has 1,852 catalogued ar- rative integrity. It is the main vehicle for tifacts recovered during the 1988-89 and 1993 achieving public understanding of why a archaeological investigations at the South site is important to Canada’s history and for Castle site. They are stored in Memorial imparting information about the site’s other University of Newfoundland’s conservation heritage values through presentation of the facilities, and are managed according to pro- site’s cultural resources and the delivery vincial standards. of the site’s messages (see Section 3.3 for Signal Hill nhsc’s messages). Together with facilities such as roads and trails, reception 4.2 PUBLIC EDUCation and Engaging Canadians and orientation services, authentic cultural Parks Canada has the mandate to present the resources and natural features etc. the Site’s national historic significance of those national heritage presentation programs and services historic sites under the Agency’s administra- contribute to an overall experience for the tion. Providing compelling information about visitor. Parks Canada’s aim is to facilitate a site in interesting and engaging ways that experiences that make visitors feel they have suit different target audiences contributes stepped out of the ordinary and feel a sense to visitors’ and others’ understanding and of personal growth and accomplishment. To appreciation of the site. achieve this aim, Parks Canada will strive to Recent polls show that Canadians value understand the Site’s visitors and provide a their national historic sites, national parks range of opportunities to meet their needs and national marine conservation areas. The and expectations. 20

A. Heritage Presentation Administered by Statement, most of the Site’s fixed interpre- Parks Canada tive media are outdated. The overall on-site Signal Hill nhsc receives approximately heritage presentation experience does not 750,000 visitors annually. Many visitors to the adequately: Site are from other provinces in Canada. The majority of visitors are attracted to the Site • convey the reasons why the Site is impor- during the summer months for sightseeing tantly associated with Canada’s defence and hiking. Moderately high off-season visi- and communications history; tation is growing due to increasing numbers • impart information about the Site’s links of conventions and conferences in the to other national historic sites; St. John’s area. • communicate the values associated There are opportunities for visitors with Parks Canada’s system of national to learn about Signal Hill year-round historic sites. through access to the Site and to the Visitor Information Centre. The Visitor Information Outdoor media will be updated as part of a Centre contains exhibits related to the Battle Heritage Presentation Plan for the Site. of Signal Hill, the history of St. John’s, and the history of Newfoundland and Labrador. Visitor Needs and Expectations In addition to trail signs and plaques, there In 1997 a product-market-match study was are interpretive panels at the summit, around undertaken as part of an Options Analysis to Cabot Tower, and at Queen’s Battery. inform planning of the Visitor Information Cabot Tower, open from April to January, Centre and Annex. This study identified the contains exhibits related to Guglielmo following key directions and elements for the Marconi and short wave radio. Staff guides Site’s market segments: are on-site through the summer months to welcome visitors, provide information and Local Visitors – Expand the popular Signal lead regularly scheduled tours. The Signal Hill Tattoo program to better reflect military Hill Tattoo also performs regularly from life at the Site and provide opportunities and July to mid-August. The Signal Hill Tattoo infrastructure for more special programs. Committee offers school programs in the Visiting Family and Relatives – Increase and late spring. improve outdoor interpretive media in high use locations. Communication of Designated Place – Canada/US Touring – Improve site orienta- Currently, the Site brochures, orientation tion, update the presentation offer inside panels and Site media predate the 1998 the Visitor Information Centre, improve the expansion of the expanded Designated Place. Marconi (Communications) presentation None of them, therefore, properly present the and provide more interpretation of the Site’s scope and messages of the entire historic site. Second World War history. Parks Canada will incorporate the south International – Develop special programs for side of the Narrows into maps and other cruise ship visitors to better suit their expec- media depicting the geographical area of tations for high quality heritage and cultural Signal Hill nhsc. The portion of the Site experiences. administered by Parks Canada will be clearly School Groups – Provide indoor/outdoor cur- differentiated. ricula related tours and programs at the Site to meet demand. Messages of National Significance in Meetings and Convention Travelers – Outdoor Media – Most of Signal Hill nhsc’s Explore the feasibility of packaging in partner- interpretation was developed before the ship with others to provide meeting space and adoption of the Site’s Commemorative theme related evening programs and events. Integrity Statement. Although messages Since 1997 as part of the Visitor Infor delivered by staff guides have been revised to mation Centre Annex project and various better reflect the Commemorative Integrity heritage presentation initiatives at the Site, Signal Hill 21 National Historic Site of Canada Management Plan

Visitor Information Centre – The prime venue for imparting information about the Site is the Visitor Information Centre. The presentation inside was developed in the 1970s and is now outdated and no longer appealing. The building does not attract visitors and the main interpretive exhibit does not present the messages outlined in the Site’s Commemorative Integrity Statement. In short, the Visitor Information Centre is not effective in terms of today’s communica-

Marconi Exhibit, Visitor Information Centre. Shane Kelly 2002 tions requirements, nor does it meet the needs and expectations of visitors. The agenda for Parks Canada has completed many elements remedying this begins with upgrading the identified above. There are now a variety of Visitor Information Centre building to current new features and activities at the Site: standards, refreshing interpretive media and programs, and devising strategies for attract- • At the summit, outdoor interpretive ing more visitors. media has been expanded and a new Parks Canada will revitalize the building communications presentation installed and its exhibits within the time frame of this inside Cabot Tower. management plan. Funding for the project • An annex has been built onto the Visitor will be provided by Parks Canada with a con- Information Centre. As result the Signal tribution from the Historic Sites Association of Hill Tattoo has a larger presence on the Newfoundland and Labrador, an organization Site and a multi-purpose space is avail- which has been a significant partner of the able off-season use for school group Site and the National Historic Sites program programs and meeting space. in Newfoundland and Labrador for over • The Tattoo program was re-mustered to twenty years. reflect earlier military history with planning now underway to add elements of Trail Entrances – Signal Hill nhsc is linked the Site’s First World War and Second to the city’s walkways and trail systems. The World War history. hike up Signal Hill is considered to be one • In personal programming Parks Canada of the best in St. John’s, and the Site receives has developed and piloted special interac- a large number of visitors on foot this way. tive tour programs for cruise ship visitors However, these visitors are not currently and curricula related programs for school receiving the Site’s messages. Placing wel- groups. come/orientation signs at key trail entrance nodes that communicate the Site’s mes- The outstanding elements including updated sages, direct them to the Site’s offerings, and heritage presentation inside the Visitor provide information about the safe use of the Information Centre, improved exterior site Site will be considered in the Site’s Heritage orientation and a theatre for special programs Presentation Plan. are being addressed in the refurbishment of the Visitor Information Centre. Archaeological Sites – Some cultural Parks Canada will continue to research resources are not being presented, including the needs and expectations of visitors, moni- the St. George’s Hospital/Barracks site where tor and evaluate the effectiveness of the Site’s the footprints of buildings and gardens are heritage presentation to meet those needs, visible. Devising ways to introduce and inter- and respond to changes as they arise. pret these sites will be part of the Heritage Presentation Plan. 22

Second World War Resources – The Second research to update information about visi- World War buildings and structures have tor needs and expectations and determine trails leading to them, but no information the number of Site visitors and how they are explaining their context or purpose. Visitors using the Site and moving through it. are not provided with opportunities to understand and appreciate these resources nor their B. Heritage Presentation Outside of Parks role at the Site during the Second World War. Canada’s Administration During consultations for this management Approximately 3,000 people visit the Fort plan, Parks Canada’s partners and stakehold- Amherst/south side area each year. The Fort ers expressed a desire to see more interpreta- Amherst Tea Room and Museum is open in tion about this period of the Site’s history. In the summer season. In addition to its exhibits, addition, market research indicates that there the operators of the Museum and Tea Room is a growing interest in Second World War provide personal interpretation. The Canadian history. The resources directly related to the Coast Guard stations a former lightkeeper at Second World War provide the best opportu- their site to promote the history and culture nity to interpret this aspect of the Site’s his- of lightkeeping. The remains of the Second tory. The Heritage Presentation Plan will find World War Fort Amherst Battery can be ways to make these structures more accessi- viewed from the plaza surrounding the Fort ble, and provide for their interpretation. Amherst light tower, and from Signal Hill. In addition to the two historic site plaques, Outreach – Parks Canada has developed and an interpretive panel installed by the Grand offers a school-group program based on the Concourse Authority provides a short history recommendations of the Heritage Outreach of the Narrows. Together they communicate Program Report (1999), which was developed as some of the values associated with the Level I a joint project of Parks Canada and the Historic resources and some messages related to the Sites Association of Newfoundland and area’s national historic significance. Labrador. As well, the Parks Canada/Signal Parks Canada has already provided input Hill nhsc Web site provides general infor- into the heritage presentation activities of the mation about the Site and its history. Recent Grand Concourse Authority for interpretive improvements to the Web site are helping media located near the South Castle site. As virtual visitors better understand the signifi- well, Parks Canada was involved in the Fort cance of the Site. Both of these efforts will be Amherst Feasibility Study and Site Development expanded to increase outreach to the public Plan. In keeping with Parks Canada’s di- and to school groups. rections for working with other owners of national historic sites, the focus for involve- Visitor Research – The product-market ment will be on collaborating with partners match study that was undertaken in 1997 to ensure the elements needed to achieve for planning and design of the Visitor commemorative integrity are in place. Information Centre Annex needs to be Parks Canada’s will now work with its Fort updated to better reflect current trends. Amherst partners to present the messages Although visitor information surveys have related to the national historic significance of been undertaken in the last five years, there the Site that are not being communicated. has not been a comprehensive visitor survey done since 1984. As well, there is a need for 4.2.2 Program/Service Communications recent empirical information and research Program/Service Communications include about the number of Site visitors, and how communications with the travel industry (to they enter, use and move through the Site. provide pre-visit information about the Site), Without this information, it is difficult to plan the media (for public relations and advertis- visitor experiences and effective and focused ing activities), and others who use the Site or heritage presentation programs and media to its images for commercial purposes. support them. Parks Canada will undertake

3. Fort Amherst Feasibility Study and Site Development Plan: Project Overview, Grand Concourse Authority, 2002. Prepared for St. John’s 2. Signal Hill NHS Visitor Information Survey, 2000 East Rotary Club and the City of St. John’s. Signal Hill 23 National Historic Site of Canada Management Plan

Target Audiences and Promotional Vehicles Touring/sightseeing – Includes touring/ Local – Includes local residents interested in sightseeing groups and individuals, as well the Site and/or who use it regularly. Local as people seeking cultural heritage experi- residents are notified of Site activities through ences and learning vacations, and those in public service announcements, public infor- the region to visit family and relatives (vfr). mation advertisements, media interviews, Vehicles for reaching this market segment electronic mail, and by personal invitation to include the province’s Travel Guide, vaca- special events. tion planners, consumer shows, cooperative marketing, welcome flyers, advertising, and Parks Canada’s Newfoundland East Field on-site signage. Unit works with the City of St. John’s, the Province of Newfoundland and Labrador, Travel Trade – Includes media and/or travel Parks Canada Atlantic Service Centre and writers, and tour and motor coach operators. other regional and national agencies to Media-related vehicles include media kits, provide pre-trip information about Signal media marketplaces, sales calls and local me- Hill nhsc for the travel industry. Specifically, dia relations. Marketing activities for travel this means contributing to marketing cam- writers include travel-writers’ kits, familiari- paigns and visitor guides; providing up- zation (fam) tours, trade shows, new-and-no- to-date images and information about the table programs and short-stay programs. Site’s offerings, special events, and fees; and collecting and sharing visitor information. Industry – Includes agencies and organiza- The Site is marketed and promoted with tions involved in supporting the tourism the other national historic sites and national industry. Parks Canada is represented at local parks in the Field Unit. Recent marketing and regional tourism associations and partici- activities have been focused on communicat- pates in trade shows, conferences, and other ing the Site’s messages of national historic fora that bring the tourism industry together. significance and information about the Parks Canada system. Media – Includes local, regional, national and Signal Hill nhsc is a provincial and international news media, as well as specialty national icon. The Site attracts more visitors media that focus on history, conservation, than any other Site or tourist attraction in education and commemorative integrity. the province. Most visitors, however, do not Promotional vehicles for this group include participate in all the Site has to offer – they are press releases and personal contact. attracted to the summit ridge area, but do not

Signal Hill Tattoo. Don Parsons 2006 24

visit features or participate in programs else- that are beyond Parks Canada’s core man- where on the Site. In addition, most visitors date, enhancing on-site and off-site visitors’ spend 45 minutes or less at the Site. Improved experiences and learning opportunities. Our pre-visit communications about the Site’s partners at Signal Hill nhsc include the fol- offerings will encourage better and/or longer lowing groups: visits. Some of the Site’s products and services • Historic Sites Association of Newfoundland also need updating, to attract more visitors and Labrador, which operates a gift shop and better meet visitors’ needs. Key among at the Site and contributes to projects, these are the Visitor Information Centre and programs and special events and activi- the Site’s military animation program, the ties there. Signal Hill Tattoo. • Signal Hill Tattoo Committee, which operates Cabot Tower atop Signal Hill is one of the summer Tattoo program on Signal Hill. the most frequently used images in the travel • The Society of Newfoundland Radio Amateurs trade media. Images of it find their way (sonra), which operates a short-wave onto an array of tourism and cultural prod- radio station from Cabot Tower and is ucts including posters, fine art, postcards, involved in special activities and events photographs, t-shirts, caps, books, compact associated with the Site’s communications disks and mugs. Popular bands, celebrities heritage. and the film industry frequently use Signal • Johnson Family Foundation, whose involve- Hill nhsc as a backdrop for commercials, ment at the Site is exemplified by the advertisements and films. Unfortunately, not Signal Hill Lookout Project which built all images convey that the area is a national viewing platforms and associated inter- historic site or that the venue is administered pretive panels on the summit ridge. by Parks Canada. Parks Canada’s challenge • Grand Concourse Authority, which devel- is to ensure that the Site is portrayed in ways oped trails and installed interpretive that respect its national significance and, panels and markers to link the Site to where possible, to communicate its messages St. John’s trail systems. of national significance, its offerings, and that • Bus tour operators, who provide their cli- it is part of a national Parks Canada system of ents such as cruise ship visitors with tours heritage places. of the Site. • Provincial and regional education systems, 4.2.3 Agency Communications and which provide input into interpretation Community Involvement programs. Parks Canada is committed to the participa- • Johnson geo Centre, located on Signal Hill tion of stakeholders, interested organizations (but not within the boundaries of the and the public in the management of Signal Site), which offers programs and presen- Hill nhsc. Greater involvement by these tations incorporating information about parties increases community commitment to, the geology of Signal Hill. and a sense of ownership of, national historic sites and helps to build a stronger heritage Stakeholders – Additional stakeholders are constituency. the people or groups affected by the Site, Public involvement at Signal Hill nhsc or who affect it in some way. They can be falls into three categories: on-site partners, involved in cultural heritage, natural herit- stakeholders, and the community at large. All age, tourism, the administration of land and/ these groups were involved in the develop- or the control of development adjacent to the ment of this management plan. Site. They include municipal, provincial and federal government agencies, non-profit and On-site Partners – A variety of organizations interest groups, local residents, educators and agencies contribute to or support Signal and individuals with an interest Signal Hill. Hill nhsc, many of them right on-site. They Some operate historic sites thematically con- help the Site realize objectives outlined in nected to Signal Hill nhsc, such as Quidi Vidi Parks Canada’s Engaging Canadians Framework. Battery and Commissariat House Provincial On-site partners deliver products and services Historic Sites, or the Johnson geo Centre Signal Hill 25 National Historic Site of Canada Management Plan

(which presents information about the geol- 4.3 vIsitor EXPERIENCE ogy of Signal Hill). Others are involved in Parks Canada regards the opportunity activities that could affect the Site, such as the for visitors to meaningfully experience a City of St. John’s through its municipal plan- national historic site as a means of promoting ning processes and development controls. understanding, appreciation and ultimately building public support for the site. Community at Large – This category includes Accordingly, Signal Hill nhsc offers diverse groups and individuals who use the Site, opportunities for visitors to experience the those who are interested in specific aspects site, ranging from informal recreation on or issues connected with the Site, and those the administered property, such as hiking, who value the Site for its symbolism and/or and offering unparalleled views of the City its contribution to the city’s green space. The of St. John’s, St. John’s Harbour and the community at large has a high level of inter- surrounding landscape, to more structured est in Signal Hill. City residents in particular visitation, including a visit to the Visitor have a strong sense of ownership of Signal Information Centre and participation in Hill nhsc and like to be involved in decisions dynamic interpretive programming. that affect it. On-site partners enhance heritage pres- 4.3.1 Target Audiences entation in interesting and lively ways, and The programs at Signal Hill nhsc target on-site they ensure Signal Hill nhsc’s integration and off-site audiences. These audiences can be into the community. The challenge in working differentiated by the experience they seek. with partners – whose mandates and priorities occasionally differ from those of Parks General Touring – Mainly consisting of Canada – is ensuring that Parks Canada’s adults and family groups, this group includes heritage presentation objectives are met. Parks visitors from within the province, Canada Canada’s priority is communicating messages and the usa. They are the traditional touring associated with Signal Hill’s national signifi- market and are drawn to the province for cance. Sometimes partners do not commu- its natural coastal attractions, heritage and nicate this theme clearly or accurately; it can culture. They are seeking interesting and also be overwhelmed by competing messages. informative attractions to visit. Coastal Site partners’ delivery of Parks Canada’s mes- features such as whales and icebergs and sages needs to be improved in ways that re- dramatic scenery along with heritage spect the other heritage values these partners elements and/or cultural activities are honour and promote on the Site. preferred. Many are first time Site users and As all on-site activities operated by others will explore the Site and its offerings to the require contracts, licences or permits, Parks fullest if provided with opportunities to do Canada will clearly communicate its require- so. Parks Canada’s objectives for this group ments in these agreements. To support such are to maintain existing audience and to formal arrangements, Parks Canada will also extend their stay at the Site. provide major Site partners with opportunities for training and information sharing in School Groups – This group includes areas such as heritage presentation, com- students in the local and regional school memorative integrity, and cultural resource systems, and youth groups. Local schools management. are seeking programs and activities linked to The consultation program undertaken their curriculum. Some are taking advantage during this management planning process of a school-group program offered by the has figured largely in recent communications Signal Hill Tattoo Committee, which focuses with the Site’s stakeholders and the com- on military history. Many use the Site for munity. Parks Canada will follow-up these end-of-school-year outings. Parks Canada’s consultations by continuing to inform stake- objectives for this group are to meet existing holders and the community at large about demand for curricula related school group Parks Canada’s progress on implementing programs. management-plan proposals. 26

Visitor Information Centre. Don Parsons 2006

Commercial Tour Groups – Arriving by bus, Special-event Participants – Members of commercial tour groups include small, local the public attend many special events at operators who give tours to individuals and Signal Hill nhsc including the New Year’s groups visiting the city, and the larger cruise Sunrise Ceremony, Canada Day Celebrations, ship and touring-motor-coach visitor groups. Citizenship Ceremonies, etc. Organizers Commercial tour-group operators package and participants are seeking a high-profile Signal Hill nhsc with other attractions in place with a tradition for celebrations. Parks the area. The Site is usually one stop on their Canada’s objectives for this group are to tours, and their visits are usually completed create a lasting memory of the event and to in less than an hour. They are seeking a better understand and appreciate the Site. sightseeing experience primarily consisting of taking in the views from the Summit Ridge Virtual Visitors – This group can be subdi- and touring Cabot Tower. Parks Canada’s ob- vided into two main segments. The first con- jectives for this group are to extend their stay sists of people seeking information about the and improve the quality of their experience Site for travel-planning purposes. The second so that they better understand and appreciate consists mostly of young people seeking the national historic significance of the Site. information about the Site for learning objectives such as school projects. This group also Local Residents – The sheer prominence, includes professional and amateur historians, visibility and accessibility of Signal Hill make archaeologists, and radio buffs who seek in- it a popular attraction for St. John’s residents. formation about the history and/or resources They use the Site for recreation, hiking, fam- of the Site. Parks Canada’s objectives for this ily outings and as a lookout. This group visit group are to encourage them to visit the Site the Site frequently, participating in events and to make the information they are seeking and programs. Parks Canada’s objectives for accessible and easy to use. this group are to strengthen the sense of ownership of Signal Hill nhsc and to foster and encourage value, appreciation and respect for the Site’s resources Signal Hill 27 National Historic Site of Canada Management Plan

4.3.2 Visitor Services and Facilities location to location across the Site. This diver- Visitors may access the Parks Canada admin- sity is confusing and does not clearly com- istered property without service fees. The municate that Signal Hill is administered by height of land is accessed by road, with a Parks Canada. There is a need for coherence parking lot and Cabot Tower at the summit and consistency in the Site’s built landscape of Signal Hill; this point is popular with elements and exterior media to better reflect local residents for its views and trailhead. Parks Canada’s corporate identity. Cultural resources and their interpretation are accessed free by visitors along the Visitor Information Centre – Built in the trails and throughout the site as well. Those late 1960s, the Visitor Information Centre visitors who enter the Visitor Information houses a reception area, washrooms and Centre or participate in programs are charged exhibits. Annexed to it is a multipurpose a fee. Visitor facilities are designed to meet building, which was built in 1998; it houses the interests and expectations of current the Site’s military animation program during and potential visitors, and Parks Canada’s the summer and a variety of activities and requirements for heritage presentation, herit- programs during the winter. The Visitor age protection, public safety and accessibility. Information Centre has been in need of major work since the early 1990s. Some of its defi- Trails – A number of developed trails provide ciencies were addressed in 1998 during the pedestrian access to the main attractions at construction of the annex. The Newfoundland Signal Hill nhsc; others link the Site to the East Field Unit is now refurbishing the Visitor city’s pedestrian trail systems. Recreational Information Centre; it is anticipated that this trail use by city residents is high and increas- work to be completed within the time frame ing, and some erosion due to foot traffic is of this management plan. evident. Parks Canada continually monitors and deals with public safety issues related to trail conditions and visitor use. The last Public Safety Plan for the Site was developed in 1995; it may no longer reflect all current uses of the trails nor current user numbers. Parks Canada needs to better understand how visitors use the Site and what the potential usage conflicts are, and then assess the risks associated with different types of trail use. Also, heritage presentation needs may require upgrading the Site’s trail network to better present archaeological and cultural landscape features. A comprehensive Visitor Use Study will better help Parks Canada update the Site’s Public Safety Plan, and plan and develop strategies for maintaining, upgrading, or altering existing trails.

Corporate Identity – Signal Hill nhsc’s trails, walkways and outdoor interpretation nodes were installed intermittently over the last half-century. They were developed by Parks Canada, or in some instances in partnership with others, according to then-current design standards. Consequently, the landscape architectural elements and presentation media now vary in design and materials from A visitor on the North Head Trail. Pam Coristine 2000 28

As noted earlier, only a small propor- 4.4 environmental Stewardship tion of visitors to Signal Hill nhsc currently Signal Hill nhsc’s natural heritage values will visit the Visitor Information Centre, in large continue to be respected and protected. Since part because it is not highly visible from the the last management plan was developed Site’s main entrance. Strategies for attracting for Signal Hill nhsc, tools for measuring and more visitors to the centre include increas- managing natural resources have improved. ing the Visitor Information Centre’s visibility, For instance, the use of digital mapping and improving signage and reviewing traffic Geographic Information Systems (gis) is flow. Parks Canada will explore these op- now considered to be standard practice in tions as part of the planning for the Visitor the management of Parks Canada’s natu- Information Centre refurbishment. ral resources. In addition, better direction (through improved policies and legislation) Entry Fees – Visitors to Signal Hill nhsc are now brings ecological considerations into not charged a fee to enter the Site. This situ- decision-making and the assessment of plans ation differs from most Parks Canada sites, and proposed developments. where all visitors pay site entry fees that in To ensure that the natural heritage values turn contribute to programs and services of Signal Hill nhsc are respected, and that its provided at the Site. At Signal Hill nhsc, natural resources are managed in accordance Parks Canada must rely on other sources of with Parks Canada’s current directions and revenue. Fees are charged for services and policies, information about the Site’s natural facilities that provide personal benefits or resources needs to be updated, and current that enhance the Site’s core service. Such tools (such as gis) need to be employed in fees include, for example, an entry for the their management. Visitor Information Centre and fees charged for special programs and events such as the Signal Hill Tattoo performances. These fees help offset costs associated with these projects. Entry fees at the renovated Visitor Information Centre will be an important aspect of its long-term sustainability. Signal Hill 29 National Historic Site of Canada Management Plan

5.0 Vision Statement

Signal Hill, crowned by Cabot Tower, will of experiences they will be given opportuni- remain a distinctive landmark and symbol of ties to understand and appreciate the evolu- St. John’s, of Newfoundland and Labrador, tion of the defensive works from the Narrows and of Canada. Specifically, regarding to Signal Hill. The Site’s Visitor Information the resources under the administration of Centre will be appealing to visitors and meet Parks Canada, all elements of commemora- both their and Parks Canada’s expectations tive integrity will be ensured and cultural for positive and memorable learning experi- resources will be protected and presented ences. The school group program will be according to Parks Canada’s Cultural Resource an integral part of the curriculum at local Management Policy. All of the historic struc- schools, and the Visitor Information Centre tures and buildings on the Site will be stabi- will be a place for students to learn about the lized and their values properly presented to Site’s history. Visitors and the general public the public. The public will understand the will understand that this site is part of a Site’s archaeological resources and cultural system of national historic sites, i.e. that it is landscape features, which will be appropri- linked to national historic sites in St. John’s, ately interpreted. elsewhere in the province, and throughout The cultural resources on the south Canada. Anyone unable to visit the Site will side of the Narrows will be regarded as an have access to global interactive outreach integral part of the commemoration of Signal programs on the Parks Canada Web site, Hill. Landowners in the area will under- which will be easy to use by young learners. stand the historic values associated with the Signal Hill nhsc will be connected to a resources located there and they will possess community that shares a sense of steward- the knowledge and tools to manage them ship and ownership, and that appreciates in accordance with Parks Canada’s Cultural the role that such national historic sites play Resource Management Policy. in defining who we are as Canadians. Local Visually, Signal Hill’s historic links to residents will continue to enjoy the Site for its other sites in St. John’s will be maintained other values, but will better appreciate and and the dominance of Signal Hill on the respect its national historical significance. cultural landscape of the downtown and The Site’s role in regional tourism will evolve harbour front will remain unobstructed. to be better integrated with other themati- Information about past management deci- cally related attractions through cooperation sions and practices will be accessible, ena- and coordination with other sites, govern- bling Parks Canada to address issues and ment agencies, and stakeholders. Signal Hill threats effectively. National Historic Site of Canada will contin- All visitors to Signal Hill nhsc will gain a ue to instill pride in our national defence and basic understanding of why this site is of na- communications heritage. tional historic significance. Through a variety 30 Signal Hill 31 National Historic Site of Canada Management Plan

6.0 Management Objectives and Actions

Parks Canada’s mandate is to protect and • create and maintain a Site Dossier that present nationally significant examples of includes updated information about Canada’s natural and cultural heritage, and cultural resources, current and past man- to foster public understanding, appreciation agement decisions, and all other actions and enjoyment in ways that ensure ecologi- that have affected or will affect the Site’s cal and commemorative integrity of these in-situ cultural resources; places for this and future generations. To • make information in the Site Dossier achieve this mandate, Parks Canada has available to Parks Canada staff in an elec- developed management direction that will tronic format, giving priority to resources guide Site managers during the next five to that may be at risk or under threat; ten years. Where this management plan does • communicate the importance of preserv- not address an issue, Parks Canada’s Cultural ing view planes and key vantage points Resource Management Policy and its principles to municipal, provincial and federal will guide decisions. agencies involved in land-use planning, by identifying them on maps, plans, and documents; 6.1 heritage Protection • continue to provide input into municipal plans and regulations, development pro- A. For Resources Within Parks Canada’s Administration posals and new land uses adjacent to the Site, requesting protection of significant Goals view planes; • Ensure that the Site’s cultural resources • develop and implement Resource and their associated values are respected. Conservation and Maintenance Plans for • Base management decisions on adequate the in-situ cultural resources of the Site and sound information, in accordance (i.e., cultural landscape features, on-site with Parks Canada’s Cultural Resource objects and historic structures); Management Policy. • submit the Imperial Powder Magazine, • Protect cultural resources and ensure Second World War Magazine and Chain that their associated values are not lost Rock Battery to the Federal Heritage or impaired due to natural processes or Building Review Office fhbro( ) for human actions within or outside the Site. evaluation; • Communicate the historic values of • integrate the historic structures’ heritage resources to visitors and the general character elements (as identified by the public. fhbro) into their management and into • Build on existing community support and the Site’s heritage presentation program; sense of stewardship for the Site. • undertake an archaeological inventory/ investigation of the Chain Rock Battery site; Actions • undertake stabilization of the Chain Rock Parks Canada will: Battery in accordance with Parks Canada’s • show the entire area of the Designated Cultural Resource Management Policy and Place on all maps, brochures, Web site fhbro requirements; images and encourage and support Parks Canada’s partners to do the same; 32

• explore options to improve the land- Actions scape/settings of Cabot Tower and the Parks Canada will: Imperial Powder Magazine; • provide input on development decisions • monitor erosion in areas of concern and for the Fort Amherst/Narrows area by undertake appropriate preventive or participating in planning studies, develop- remedial measures; ment programs and advisory committees; • develop and implement a monitoring • provide training opportunities to Fort program for the Site’s archaeological Amherst/south side of the Narrows resources; partners to inform them about Signal Hill • update Parks Canada’s archaeological nhsc heritage presentation and Parks records to current standards (i.e., include Canada’s Cultural Resource Management digital mapping); Policy; • explore options for vegetation manage- • contribute to and provide opportunities ment in the Burma Road and Carronade for sharing knowledge and best practices Hill areas to reveal cultural landscape with partners through workshops, confer- vestiges (following appropriate impact ences and other fora; studies that include environmental impact • provide technical or professional advice studies as per the Canadian Environmental and assistance in the management of cul- Assessment Act); tural resources in Poor condition or under • continue to evaluate and/or screen any threat; new developments or operational activi- • collaborate with owners to address spe- ties using the Site’s commemorative integ- cific threats to LevelI cultural resources rity statement, Parks Canada’s Cultural based on affordability and sustainability; Resource Management Policy and the • encourage, support and, where feasible, Canadian Environmental Assessment Act; participate in efforts to inventory and • where possible and appropriate, incorpo- document the cultural resources of the rate natural heritage values into the Site’s Fort Amherst/Narrows area. heritage presentation; • manage natural resources in accordance with Parks Canada’s Cultural Resource 6.2 Public education and Engaging Canadians Management Policy; Parks Canada’s Engaging Canadians Framework • update and make more accessible the directs the Agency to create effective commu- Site’s natural resource inventory, by using nications at the Parks Canada administered a gis-based information system to allow portion of Signal Hill nhsc that will inform, information to be more accessible. influence and involve target external audiences about the importance of this nationally B. For Resources Outside Parks Canada’s Administration significant heritage area. Parks Canada must also ensure consistency and cohesion in its Goals communications efforts. The overarching • Protect and stabilize Level I cultural goals of the framework are to: resources that are under threat. • Encourage and support individuals and • contribute to public awareness of Parks organizations whose actions and deci- Canada’s system of national parks, sions could affect Level I resources to national historic sites and national marine practise the principles of Parks Canada’s areas (i.e., inform); Cultural Resource Management Policy, and • foster understanding and enjoyment of to respect the features and components the sites in ways that respect commemo- that give these resources their values. rative integrity (i.e., influence); • Build alliances and share best practices. • strengthen emotional connections to, and the • Influence decisions that could affect the sense of ownership of, the sites as important Level I historic resources. distinguishing symbols of Canada and our shared citizenship (i.e., involve). Signal Hill 33 National Historic Site of Canada Management Plan

• Outreach educational opportunities are available for non-visiting audiences. • The effectiveness of the site’s heritage presentation program are monitored and evaluated to ensure effective communication and understanding.

Methods To communicate important messages at Signal Hill nhsc a wide range of experiences will be available for visitors to choose from. Outdoor experiences include: orientation Marconi 100th Anniversary celebrations at Signal Hill NHSC. nodes, personal interpretation, animation Parks Canada / Jeremy Roop 2001 programs, trails to Site features and view- points – as well as non-personal interpreta- These goals apply to all Parks Canada tion, such as a walking-tour brochure and external communications, including on-site interpretive panels. The primary indoor loca- heritage presentation, outreach, public and tion for visitors to receive messages related partnership relations, and marketing. to the whole site and its history would be the Visitor Information Centre. At Cabot Tower, 6.2.1 Education Communications the interpretive focus will be on communica- Education communications include on-site tions. Signal Hill nhsc’s outreach program and off-site heritage presentation. They will present the messages about the Site’s consist of activities, facilities, products and national significance and it’s other heritage services that promote awareness of the Site as values to non-visitors through a Web site and part of Canada’s network of protected herit- outreach programs. age places, as well as those that foster the enjoyment, appreciation and understanding Actions of the Site’s history and heritage resources. Parks Canada will develop and implement a Heritage Presentation Plan that includes Goals these elements: • The historic values of Level I cultural resources are communicated to visitors • Orientation/introduction nodes at the and the general public. summit and Visitor Information Centre • The overall heritage presentation experi- parking lots. ences convey the reasons for the national • Orientation/introduction panels on trails historic significance of the Site. that originate elsewhere and enter the Site. • Site stewards, visitors (who experience • Upgrades to the existing Visitor the heritage presentation) and non-visi- Information Centre to make the building tors (i.e., virtual visitors) understand the more functional for heritage presenta- reasons for the site’s national historic tion and to better meet visitor needs and significance. expectations. • Part of the heritage presentation experi- • New exhibits in the Visitor Information ence conveys the Secondary Messages Centre that focus on the messages related (i.e., messages not related to national to the Site’s commemorative integrity. significance). • Presenting Chain Rock Battery and its • Secondary Messages do not overwhelm or 75mm qf gun in-situ, following stabiliza- detract from the presentation and under- tion of both. standing of the site’s national significance. • Improvements to the Signal Hill nhsc • All visitors and non-visitors who receive Web site to better serve potential visi- Context and Secondary Messages under- tors, students and teachers by providing stand them. information about Signal Hill nhsc and 34

the Parks Canada system, and by being a encompasses marketing, promotion and portal to thematically linked Web sites. public relations activities that aim to commu- • Improvements to presenting/interpret- nicate with potential visitors, and influence ing these Level I resources: archaeological the travel trade and the media. remains of George’s Barracks/Hospital and gardens, the Second World War Goals Magazine, the Imperial Powder • Ensure potential visitors are aware of Signal Magazine, the Quonset Hut, Ross’s Valley, Hill nhsc’s offerings and significance. the Burma Road, Carronade Hill and • Ensure the Site is promoted accurately by Fort Amherst. the travel trade. • Opportunities for local experts to contrib- • Increase the average length of visits to the ute to stories presented at the Site. Site. • Evaluation and revision of the curricula- • Increase visitation to the refurbished related school program currently being Visitor Information Centre. piloted and further development • Ensure others portray the Site in ways that if required. respect its national historic significance. • Encourage news-media agencies and rep- Research, Monitoring and Evaluation of resentatives to understand and appreciate Heritage Presentation the Site and its messages. Parks Canada will continue researching the needs and expectations of visitors and poten- Actions tial visitors. The effectiveness of the Site’s Parks Canada will: approaches to heritage presentation will be • continue to partner with regional, pro- measured using several methods to ensure vincial and national travel and tourism that the messages of national significance are agencies to provide pre-trip information communicated to intended audiences. Parks to potential visitors, and focus more on Canada will continue to gather information communicating the Site’s many offerings about Site visitors and on-site presentation and important messages; through its Visitor Information Program. • continue to ensure that Parks Canada’s This program incorporates biannual sur- marketing is guided by Parks Canada’s veys undertaken in collaboration with Parks Engaging Canadians Framework and Canada’s Atlantic Service Centre. Messages Toolkit for Staff; The Web site will have two built-in evalu- • undertake new initiatives to promote and ation tools: a counter to record usage, and a market the upgraded Visitor Information Guest Book to solicit comments. The Field Centre and on-site heritage presentation Unit will also make use of research conducted programs; by Parks Canada at regional and national • require people using the Site for filming/ levels to better understand the Web site’s vir- advertising to respect the Site and, where tual audiences. Participants and teachers will possible, to deliver the Site’s messages; evaluate school and other outreach programs • develop and provide media outreach by means of surveys and evaluations. materials such as backgrounders, media The information gathered through lines and media kits that reflect the Site’s research, visitor counts, surveys, comments messages. and evaluations will be used to modify and change programs and other heritage presen- 6.2.3 Agency Communications and tation initiatives to ensure that Parks Canada Community Involvement achieves its learning objectives in effective Parks Canada works with a broad range and efficient ways. of government agencies, the private sector, groups and individuals to achieve mutually 6.2.2 Program/Service Communications compatible goals and objectives. These rela- The Program/Service Communications of tionships are vital for regional and community Parks Canada’s Engaging Canadians Framework integration, for the delivery of services that Signal Hill 35 National Historic Site of Canada Management Plan

South Head and Fort Amherst. Dave Taylor 2005

are beyond Parks Canada’s core mandate, and • Ensure that messages of national signifi- for fostering a sense of public stewardship cance are communicated and the history of the Site. This element of Parks Canada’s of Signal Hill is presented accurately by activities is an integral part of the Agency’s partners and stakeholders. Engaging Canadians Framework and has an important communications component. Actions Parks Canada is committed to building on Parks Canada will: and improving successful partnerships that • keep partners and other stakeholders have enhanced heritage presentation at the informed about Parks Canada’s progress Site. Initially the focus with existing partners on implementing management plan will be on ensuring accuracy and integrity in actions – through meetings, presentations the delivery of the Site’s messages. and electronic distribution of planning In addition, new relations and coopera- products and/or posting to the Parks tive opportunities emerged during the man- Canada Web site; agement-planning program. Local groups • provide opportunities for training on-site and agencies that administer sites related partners, staff from connected sites, and thematically to Signal Hill nhsc, for example stakeholders in the areas of commemora- the Quidi Vidi Battery Provincial Historic tive integrity and heritage presentation; Site, have shown interest in collaborating and • formalize agreements with on-site part- cooperating more to achieve shared goals. ners that clearly identify Parks Canada’s commemorative integrity requirements; Goals • involve heritage presentation partners • Continue to build support for the Site and stakeholders in planning activities, through enhancing positive relationships when appropriate; with stakeholders and the public. • continue to encourage and participate • Strengthen the public’s connections to, and in special events and activities that are sense of ownership of, Signal Hill nhsc. consistent with commemorative integrity • Enhance heritage presentation and protec- and that foster public support; tion at the Site by involving partners and • provide input when others develop stakeholders in the development and presentation media and programs that delivery of programs. encourages them to present messages • Provide advice and assistance to heritage related to Signal Hill nhsc. presentation partners. 36

6.3 vIsitor experience • undertake a Visitor Use Study examining traffic, parking, visitor numbers and Goal circulation within the Site; Provide meaningful and unique visitor • develop comprehensive and consistent experiences that meet the interests, expecta- presentation standards that incorporate tions and needs of visitors that contribute to Parks Canada’s corporate identifiers visitors’ understanding and appreciation of (where appropriate) for all hard land- Signal Hill nhsc and that are safe and enjoy- scape elements at the Site, implementing able. Consideration must be given to cost changes as damaged or outdated facilities efficiency and operational sustainability. and exterior media are replaced; • evaluate and/or assess infrastructure Actions changes using the Site’s commemora- Parks Canada will: tive integrity statement, Parks Canada’s • undertake research to determine cur- Cultural Resource Management Policy and rent and potential visitor’s interests and the Canadian Environmental Assessment Act; expectations for the Site; • ensure public-safety messages are com- • recapitalize the Visitor Information Centre; municated by incorporating them into the • explore strategies to increase visitation to Site’s heritage presentation experience; the Visitor Information Centre including • update the Site’s Public Safety Plan. increasing its visibility, improving signage and reviewing traffic flow, in conjunction with the Visitor Information Centre 6.4 Environmental Stewardship refurbishment; • maintain existing trails, upgrading them Goal where necessary to augment the visitor Ensure that natural heritage values of Signal experience of the site for heritage presen- Hill nhsc are respected and that natural tation and public safety requirements; resources are managed in accordance with Parks Canada’s current policies and standards, that information about the Site’s natural resources is updated to inform site operation and administration.

Actions Parks Canada will: • update Signal Hill nhsc’s Natural Resource Inventory; • manage natural resources in accordance with Parks Canada’s Cultural Resource Management Policy; • evaluate and/or screen any new developments or operational activities using the Site’s commemorative integrity statement, Parks Canada’s Cultural Resource Management Policy and the Canadian Environmental Assessment Act; • incorporate natural heritage values and messages into the Site’s heritage presentation experience where appropriate.

Ladies’ Lookout trail from Ladies’ Lookout to Burma Road. Pam Coristine 2000 Signal Hill 37 National Historic Site of Canada Management Plan

7.0 Impact Evaluation and Environmental Assessment

Federal initiatives submitted to Cabinet or As these projects are further defined and to the Minister for consideration require a detailed, they will be reviewed as required Strategic Environmental Assessment, which during project planning, and assessed determines their environmental impacts and for individual and cumulative impacts. identifies mitigation measures if a harmful Monitoring visitor use and impacts at the Site impact is expected. Strategic environmental in a Visitor Use Study will help Parks Canada assessments of draft management plans pro- better understand how visitation may affect vide an opportunity to determine the prob- Signal Hill nhsc in the future. able broad impacts of proposed programs, and assess the cumulative effects on the environment of multiple projects or activities. In accordance with the 1999 Cabinet Directive on the Environment Assessment of Policy, Plan and Program Proposals, the strategic environmental assessment of the Signal Hill nhsc Management Plan Final Draft deemed that the potential stresses to Signal Hill nhsc have been identified, and strategies for ensuring that they do not become real stresses have been proposed. The management plan’s proposed projects that may have environmental effects and that were identified and analyzed with respect to the applicability of ceaa include:

• an archaeological inventory of the Chain Rock Battery area; • stabilization and presentation of structures located at Chain Rock Battery; • refurbishment of the Visitor Information Centre and possible changes to the grounds, roadways and parking lot surrounding it; • installation of orientation and introduction nodes; • potential upgrading/changes to existing trails; • vegetation management along the Burma Cabot Tower. Don Parsons 2006 Road and Carronade Hill areas to reveal cultural landscape vestiges. 38 Signal Hill 39 National Historic Site of Canada Management Plan

8.0 Implementation Strategy

This management plan provides long-term directly linked to the service lines in the direction for the Signal Hill nhsc. It is Field Unit’s Sustainable Business Plan and also a framework for more detailed plan- to the five-year business-planning cycle. ning, investigation and decision making. Implementation will be reported through Implementation of the plan’s elements the Field Unit’s annual business plan per- depends on the availability of financial formance and through Parks Canada’s State resources, which are determined within the of Protected Heritage Areas Report, which is Field Unit’s sustainable business planning updated every few years. process. Therefore the plan’s priorities are

Management Plan Implementation Schedule

Component Project First 5 years Second 5 years

Protection of Show entire area of Designated Place on maps, brochures Heritage and website as these products are revised   Resources Create and maintain Site Dossier  

Develop Conservation and Maintenance Plans for in-situ cultural resources 

Communicate important viewplanes to planning agencies  

Provide input into municipal plans and adjacent developments  

FHBRO evaluation of Second World War Magazine, Chain Rock Battery and Imperial Powder Magazine 

Develop and implement Resource Conservation and Maintenance plans for in-situ cultural resources 

Archaeological investigation Chain Rock Battery 

Evaluation and stabilization of Chain Rock Battery structures and terrace 

Stabilization of the Quonset Hut and Second World War Magazine 

Develop and implement monitoring program for archaeological resources 

Update archaeological records to current standards (inventory and evaluation of 1989 excavations) 

Explore options for vegetation management Burma Road and Carronade Hill cultural landscape features  40

Component Project First 5 years Second 5 years

Protection of Explore options to improve context of Cabot Tower and the Heritage Imperial Powder Magazine  Resources Provide training in CIS, CRM and best practices for Fort Amherst/south side of the Narrows  

Provide professional and technical advice and assistance to Fort Amherst/ south side of the Narrows partners for protection and   presentation of Level I cultural resources

Collaborate with Fort Amherst/south side partners to ensure understanding of Level I archaeological resources  

Collaborate with Fort Amherst/south side partners to ensure protection of Level I cultural resources that are at risk or under threat  

Public Education Develop Heritage Presentation Plan  and Engaging Canadians Develop and install orientation and site-introduction media 

Implement school-group program 

Install exhibits and media in the Visitor Information Centre 

Present Chain Rock Battery 

Update Web site 

Improve presentation of in-situ Level I resources especially Second World War 

Update visitor needs and expectations research 

Monitor, evaluate and update heritage presentation  

Undertake new initiatives to promote and market the refurbished Visitor Information Centre and new programs 

Develop new media outreach materials to better reflect Site messages 

Keep partners and stakeholders informed about management plan actions  

Provide cross- training for Site partners from thematically connected sites in St. John’s area  

Provide input into marketing products of others  

Visitor Experience Visitor Use Study (trails, roads, facilities) 

Visitor needs and expectations research  

Update Public Safety Plan 

Refurbish / recapitalize Visitor Information Centre 

Environmental Update the Site’s Natural Resource Inventory Stewardship  Signal Hill 41 National Historic Site of Canada Management Plan

Acknowledgments

Signal Hill National Historic Site of Canada Management Planning Team

Patricia Buchanan Parks Planner, Newfoundland East Field Unit

Jim Candow Historian, Atlantic Service Centre

Jewel Cunningham Manager, National Historic Sites, Newfoundland East Field Unit

Marilyn Dawe Cultural Resource Management Specialist Newfoundland East Field Unit

Catherine Dempsey Executive Director, Historic Sites Association of Newfoundland and Labrador

Rob Ferguson Archaeologist, Atlantic Service Centre

Tom Gribbin Landscape Architect, Public Works and Government Services – Parks Canada Dedicated Unit

Bill Hockey Architect, Public Works and Government Services – Parks Canada Dedicated Unit

Patrick Lahey General Works Manager, National Historic Sites, Newfoundland East Field Unit

Dave Taylor Marketing, Newfoundland East Field Unit 42 Signal Hill 43 National Historic Site of Canada Management Plan

APPENDIX 1 Selected References

Candow, James E. Daniel Woodley Prowse and the Origin of Cabot Tower. Research Bulletin no. 155. Ottawa: Parks Canada, 1981.

—. Signal Hill’s Hospitals, 1870 – 1920. Research Bulletin no. 121. Ottawa: Parks Canada, 1980.

—. A Structural and Narrative History of Signal Hill National Historic Park and Area to 1945. Manuscript Report no. 348, Ottawa: Parks Canada, 1979. (Separate manuscript)

—. A Structural and Narrative History of Queen’s Battery, Signal Hill National Historic Park. Manuscript Report no. 343. Ottawa: Parks Canada, 1980. (Separate manuscript)

Ferguson, Robert. Archaeological Resources Inventory, Signal Hill National Historic Park. Manuscript on file. Halifax: Parks Canada, 1984).

Harrington, Michael. On Signal Hill. Heritage Canada 2, no.1 (1976): 17.

Jelks, Edward B. Archaeological Explorations at Signal Hill, Newfoundland, 1965-1966. Canadian Historic Sites: Occasional Papers in Archaeology and History, No. 7.

Parks Canada. Guiding Principles and Operational Policies.Ottawa: Minister of Supply and Services Canada, 1994.

—. Signal Hill National Historic Site of Canada Commemorative Integrity Statement.

Penney, Gerald. Historic Resources Overview Assessment of the Prosser’s Rock Boat Basin. St. John’s: Historic Resources Division, Department of Tourism and Culture, Government of Newfoundland, 1988. (On file)

—. South Castle Delineation Project - 1993: Report of Excavations at Anchor Point (CjAe-3). On file, Historic Resources Division, Department of Tourism and Culture, Government of Newfoundland, St. John’s, 1995

Power, Rosalind. Fort Amherst: St. John’s Narrows Outport. St. John’s: Jesperson Publishing, 1995.

Ryan, Shannon, ed. The Defence of Newfoundland. 1870-1914. Newfoundland History 1986: Proceedings of the First Newfoundland Historical Society Conference. St. John’s: Newfoundland Historical Society, 1986. pp.116-142.

Signal Hill National Historic Site of Canada. Home Page. Parks Canada http://www.pc.gc.ca/lhn-nhs/nl/signalhill

Tarrant, D.R. Marconi’s Miracle: The Wireless Bridging of the Atlantic. St. John’s: Flanker Press, 2001.

The Grand Concourse Authority. Fort Amherst Feasibility Analysis and Site Development Plan. St. John’s: St. John’s East Rotary Club, April 2002. (Unpublished report) 44 Signal Hill 45 National Historic Site of Canada Management Plan

APPENDIX 2 Glossary

Commemoration: Ministerial recognition of the national significance of specific lands or waters by acquisition or by agreement, or by another means deemed appropriate within the Minister’s authority, for purposes of protecting and presenting heritage places and resources, erection of a plaque or monument.

Commemorative Integrity Statement (cis): A document that defines the “commemorative integrity” for a particular national historic site. It describes the Designated Place, its resources, values, objectives and messages.

Commemorative Intent (ci): The reasons for a location’s designation as a national historic site, as determined by the Ministerially approved recommendations of the Historic Sites and Monuments Board of Canada.

Cultural Landscape: Any geographical area that has been modified, influenced or given special cultural meaning by people.

Federal Heritage Buildings Review Office fhbro( ): An interdepart- mental advisory body responsible for identifying the federal buildings that merit designation as a federal heritage building, and for monitoring the conservation and use of these buildings.

Historic Sites and Monuments Board of Canada (hsmbc): An independent advisory group with representatives from all provinces and territories that reviews submissions and provides impartial and expert advice to the Minister on the national historical importance of each proposal.

Historic Value: A value assigned by Parks Canada to a resource that marks it as a “cultural resource.” All resources have a connection to history; only those considered to have importance above and beyond their age, have historic value.

In-situ: Cultural resources that are in their original historical location.

Intervention: Any condition-altering activity – including maintenance, repair, preservation, stabilization, restoration, or rehabilitation performed on cultural resources by those responsible for them. 46

Recapitalize: Within Parks Canada’s context, “recapitalize” refers to renewing assets by investing new capital in them to bring them up to current standards.

Statement of Commemorative Intent: A formal statement that provides the reason and date an historic Site was officially designated by the Minister responsible for the Historic Sites and Monuments Act.

View plane: The line-of-sight from a specific location to another location.

Viewscape: The line-of-sight from a specific location to a landscape or a portion thereof.

Viewshed: A sequence of views or panorama from a given vantage point. Signal Hill 47 National Historic Site of Canada Management Plan

APPENDIX 3 Cultural Resources Current Condition Rating Definitions

Rating Cultural Resource Category CIS / CRM Management Practices Buildings, structures, landscapes Archaeological sites Historic Objects

Good No appreciable deterioration of Routine monitoring for Off-site: No work Effective - any deficiencies do critical components; maintained site whose integrity or required (stable). not threaten commemorative through regular maintenance. wholeness is not threat- integrity ened and intervention is On-site: No immedi- minimal. ate action required to stabilize objects.

Fair Minor deterioration of critical Minor salvage work Off-site: Will require Acceptable - requires minor components requiring some required to mitigate stabilization in 3+ improvement level of corrective work; other a threat. years. components placed at minor risk if condition not improved in On-site: Action de- required time frame. sirable but objects in no immediate danger.

Poor Critical components no longer Major work required to Off-site: Will require Ineffective maintain level of original design mitigate a threat to the stabilization in less or purpose (where that original integrity of the site. than 3 years. purpose or performance is relevant to the historic value of On-site: Action the resource), or is substandard is mandatory to to a point where operation of prevent further resource should be suspended damage. until condition is improved; other components will suffer if condition not rectified within required time frame; abnormal or accelerated deterioration is evident. 48 Signal Hill 49 National Historic Site of Canada Management Plan

APPENDIX 4 Summary of the Commemorative Integrity Evaluation

GREEN good, effective, or not currently impaired. Any deficiencies are not a threat to the commemorative integrity of the site. YELLOW fair, acceptable, or minor to moderate impairment or threat. Requires improvement. RED poor, ineffective, seriously impaired or a significant attribute missing (whether related to condition, communications or management practices). N/A not applicable; the question does not apply to this site. N/R not rated or not reported on because the information is not available. + or – the actual state is on the high or low borderline side of the colour. or indicates a trend, either improving or deteriorating.

RESOURCE CONDITION RATING

OVERALL RATING YELLOW

Resources Related to the Reasons for Designation YELLOW

Resources Not Related to the Reasons for Designation GREEN

Cultural Resource Types:

Designated Place GREEN

Landscape Features RED

Buildings, Structures RED

Archaeological Sites RED

Objects YELLOW

Other Heritage Resources N/A

EFFECTIVENESS OF COMMUNICATIONS

OVERALL RATING RED

Reasons for Designation RED

Messages Not Related to the Reasons for Designation YELLOW

Effectiveness of Media YELLOW

Audience Understanding RED

Range and Complexity of Perspectives Presented GREEN

National Historic Site General Values YELLOW +

MANAGEMENT PRACTICES

OVERALL RATING YELLOW

Inventory and Cultural Resource Evaluation GREEN

Respect for Cultural Resource Management Principles and Practices YELLOW

Records YELLOW + Maintenance Programs GREEN

Monitoring and Remedial Action YELLOW