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Tourism and Recreation System Planning in Alberta Provincial Parks

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Tourism and Recreation System Planning in Alberta Provincial Parks TOURISM AND RECREATION SYSTEM PLANNING IN ALBERTA PROVINCIAL PARKS Paul F.J. Eagles The objective of this research is to fi ll this policy gap Department of Recreation and Leisure Studies through the development of the tourism and recreation University of Waterloo components of the system plan for Alberta Parks and Waterloo, ON, Canada N2L 3G1 Protected Areas. [email protected] Angela M. Gilmore 1.0 INTRODUCTION University of Waterloo Adrian and Adrian (1998) defi ne system planning as Luis X. Huang “an organized approach to macro-level planning. It is Sun Yat-sen University not a new concept, but builds on existing knowledge and approaches. System planning is a framework for Denise A. Keltie understanding and using systems ideas. It is also a University of Waterloo vehicle for convincing others. It is much more than data Kimberley Rae gathering. It must be a dynamic process.” Generally, University of Waterloo a system plan provides direction and guidance for all components within a protected area’s organization and Hong Sun the coordination of protected areas with other aspects of University of Waterloo land use, resources management, and social development Amy K. Thede in the region. A system plan includes the history, present University of Waterloo condition, and future plan for the protected areas (Adrian Meagan L. Wilson & Adrian 1998). University of Waterloo System planning is important to the management and Jennifer A. Woronuk development of broad geographical areas. When applied University of Waterloo to parks and protected areas, system planning provides Ge Yujin guidance on mechanisms, institutions, and procedures to University of Waterloo coordinate the balance of land use and social development across a system of protected areas (Adrian & Adrian Abstract.—Traditionally, system planning in parks and 1998). Traditionally, system planning concentrated protected areas concentrated on biogeographical concepts, on biogeographic representation within a park system. while neglecting tourism and recreation. The existing Conversely, it neglected tourism and recreation system plan for parks and protected areas in Alberta, components. The main goal in the management Canada, divides the province into six natural regions based of Canada’s National Parks is the protection and on a geographic classifi cation system (Grassland, Parkland, maintenance of ecological integrity. Similarly, the Ontario Foothills, Rocky Mountains, Boreal Forest, and Canadian Parks’ system plan is based upon a biogeographical Shield). This plan also identifi es four program goals: concept, the forest regions of the province. The province preservation, heritage appreciation, outdoor recreation, of British Columbia’s protected areas system is also based and heritage tourism. Currently, the goal of preservation upon a principle of representing classes of natural areas. is met through the selection and creation of a protected None of these system plans establish goals for the creation 2 area system covering 27,500 km within 519 sites and 8 and management of parks based on tourism or recreation classes of protected area. However, the goals of heritage principles. Given the importance of tourism and appreciation, outdoor recreation, and heritage tourism recreation to the park movement in Canada, it behooves have yet to be addressed to the same level of depth either in strategic planners to more fully consider these concepts in policy or in practice, leaving a major policy gap. the next generation of park system plans. 258 Proceedings of the 2006 Northeastern Recreation Research Symposium GTR-NRS-P-14 Alberta has a well-established and mature protected areas 4. Heritage Tourism - to encourage Alberta residents system. The rapid economic and population growth of and visitors to discover and enjoy the province’s the province, and the increasing demands from society for natural heritage through a variety of outdoor tourism and recreation opportunities in Alberta’s protected recreation and nature-based tourism opportunities, areas, creates a need for additional strategic considerations facilities and accommodation services (Alberta in system planning. Therefore, the focus of this paper is Parks 2006). to develop a conceptual framework for a protected area system plan based on recreation and tourism goals and The fi rst goal, preservation, is the main focus of Alberta objectives for Alberta Parks and Protected Areas. Parks’ existing system plan. This goal was implemented through the creation of many parks and protected 2.0 ALBERTA PARKS AND areas during the Special Places Program from 1995 to PROTECTED SYSTEM 1999. This program added 81 new parks to the system, The protected area system in Alberta, including National and expanded 13 existing sites for an addition of over Parks and Provincial Parks and Protected Areas, now 2,000,000 hectares to the system (Alberta Parks 2006b). exceeds 8,160,300 hectares or approximately 12.3 percent At the time this paper was written, there was no strategic of the province. The system plan for Alberta Parks divides plan for Alberta’s protected areas system dealing with the the province into six natural regions: 1) Aspen Parkland, implementation of the goals of heritage appreciation, 2) Boreal Forest, 3) Canadian Shield, 4) Grassland, 5) outdoor recreation, and heritage tourism. This policy Foothills, and 6) Rocky Mountains. Within each of void is recognized by planners with the park agency and these natural regions, Alberta Parks has established a by parks’ scholars. network of protected areas ranging from low intensity to high intensity use. The eight protected area classes Eagles et al. (2002) defi ne goals as, “the broadly in the province include: 1) Willmore Wilderness Park, stated social purposes for which a protected areas is 2) ecological reserves, 3) wilderness areas, 4) heritage established” and “objectives are more explicit statements rangelands, 5) wildland parks, 6) provincial parks, 7) of what is to be accomplished.” Objectives are sub- natural areas, and 8) provincial recreation areas. These goals that provide more explicit statements of what is areas provide visitors with the opportunity to participate to be accomplished. Schoemaker (1984) provided fi ve in heritage appreciation, outdoor recreational activities, foundational characteristics from which to systematically and heritage tourism. construct objectives: 1) output-oriented, 2) time-bound, 3) specifi c, 4) measurable, and 5) attainable. “Output- The four goals of Alberta’s network of parks and oriented” means that objectives deal with the results of protected areas are: an activity by describing what is to be accomplished, but not how. Time-bound objectives provide the direction to 1. Preservation - to preserve, in perpetuity, a network develop the appropriate management actions, and require of parks and protected areas that represent the accountability. Specifi c objectives should provide all diversity of the province’s natural heritage and parties with a clear vision of what is to be accomplished. related cultural heritage. Measurable objectives provide a clear basis for evaluating 2. Heritage Appreciation - to provide opportunities progress and allow managers to determine where efforts to explore, understand, and appreciate Alberta’s need to be placed in the future. “Attainable” suggests that natural heritage, and to enhance public awareness objectives must be achievable with the available funding of our relationship to and dependence upon the and staffi ng resources, sometimes compromising between natural world. the idealistic vision and the reality of the impacts of 3. Outdoor Recreation - to provide a variety of tourism (Zealand et al. 2005). All goals and objectives natural landscape-dependent outdoor recreation should be worded so as to have these characteristics. opportunities and related facilities and services. Proceedings of the 2006 Northeastern Recreation Research Symposium GTR-NRS-P-14 259 To assist with the development of a strategic plan that The World Conservation Union (1998) believes that the deals with the three underrepresented elements of the total economic value of a protected area consists of its Alberta protected areas goals, the researchers developed a use values and non-use values. There are several ways in methodology and an approach aimed at adding a visitor- which the economic value of a park can be estimated in based element to the existing system plan for Alberta’s monetary terms. The Money Generation Model, which Parks and Protected Areas. is used by the U.S. National Parks Service to inform local communities of the value of nearby parks, can be used 3.0 RESEARCH DESIGN to capture the value of the protected area (IUCN 1998). Three stages of research were utilized to in this policy The Department of Canadian Heritage (1999) designed development. Initially, a broad scanning was undertaken the Provincial Economic Impact Model to estimate both of a large number of potential themes relating to traditional economic impact measurements (e.g., tourism recreation, tourism and visitor management. These spending, spending on capital development), direct user themes were derived from the literature. Secondly, these benefi ts (e.g., consumer surplus, existence benefi ts), and themes were then compared to the current goals and societal benefi ts (e.g., benefi ts from biodiversity, water policies of Alberta Parks. This comparison produced a production, scientifi c and educational benefi ts). narrowed and focused list of conceptual areas that could
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