Shuswap Lake Integrated Planning Process (SLIPP)

Recreation Management Plan Report - Situation Analysis

Submitted to:

Fraser Basin Council

Submitted by:

Peak Planning Associates, Kamloops, BC

July 2012

Table of Contents ACRONYMS ...... I 1 INTRODUCTION ...... 1

1.1 THE SLIPP PROCESS AND CONTEXT FOR THE RECREATION MANAGEMENT PLAN ...... 1 1.2 THE SCOPE OF THE STUDY ...... 3 1.3 THE RECREATION OPTIMIZATION MANAGEMENT MODEL ...... 3 2 SUPPORTING CONDITIONS FOR LAKE-BASED RECREATION ...... 4

2.1 ECOLOGICAL ENVIRONMENT ...... 4 2.2 SOCIOCULTURAL ENVIRONMENT ...... 5 2.2.1 History of the Watershed ...... 5 2.2.2 Jurisdictional and Policy Framework in the Watershed ...... 10 2.2.3 Business and Not-For-Profit Organizations in Study Area ...... 31 2.3 ECONOMIC ENVIRONMENT ...... 39 2.3.1 A Lake-Based Recreation Economy ...... 39 2.3.2 BC Parks Support the Local Economy ...... 40 2.3.3 The Tourism Economy ...... 40 3 THE RECREATIONISTS ...... 46

3.1 RESIDENT CHARACTERISTICS & SOCIO-DEMOGRAPHIC PATTERNS ...... 46 3.1.1 Columbia Shuswap Regional District ...... 46 3.1.2 Thompson Nicola Regional District ...... 48 3.1.3 City of Salmon Arm ...... 49 3.1.4 Sicamous ...... 49 3.1.5 Chase ...... 51 3.1.6 Regional District North Okanagan ...... 51 3.2 VISITOR CHARACTERISTICS ...... 52 3.2.1 Visitors to the Thompson Okanagan Region ...... 52 3.2.2 Visitors to the Shuswap Area ...... 53 3.2.3 Parks Users ...... 54 4 LAKE BASED RECREATION ACTIVITIES IN THE STUDY AREA ...... 58

4.1 MOTORIZED LAKE-BASED ACTIVITIES ...... 58 4.1.1 Pleasure Boating ...... 58 4.1.2 Houseboating ...... 61 4.1.3 Fishing ...... 62 4.2 NON-MOTORIZED LAKE-BASED ACTIVITIES ...... 65 4.2.1 Canoeing & Kayaking ...... 65 4.2.2 Whitewater Rafting ...... 65 4.2.3 Swimming ...... 66 4.2.4 Bird-watching ...... 67 4.2.5 Camping ...... 68 5 ANALYSIS OF LINKS BETWEEN RECREATIONISTS, RECREATION AND SUPPORTING ENVIRONMENTS ...... 72

5.1 SOCIAL ISSUES ...... 72

5.2 ENVIRONMENTAL ISSUES ...... 73 5.2.1 Shoreline impacts ...... 74 5.2.2 Water Quality Impacts from Houseboats ...... 77 5.2.3 Parks Issues ...... 79 5.3 ECONOMIC VALUE & ISSUES ...... 79 6 SUMMARY OF CURRENT SITUATION ...... 81 APPENDIX A – RECREATIONAL ISSUES IDENTIFIED THROUGH EARLIER SLIPP PROCESSES ...... 84 REFERENCES ...... 86

Table of Figures

Figure 1 Recreation Optimization Management Model ...... 3 Figure 2 Columbia Shuswap Regional District ...... 25 Figure 3 Thompson Nicola Regional District ...... 26 Figure 4 Regional District of North Okanagan ...... 27 Figure 5 Visitor Statistics (Salmon Arm) - Tourist Origin (2006-11) ...... 54 Figure 6 Shuswap Lake Marine Park - Boating ...... 58 Figure 7 Visual Tally of Houseboats - Shuswap Lake Marine Park ...... 62 Figure 8 Fishing License Sales by Residency (1994-2010) ...... 63 Figure 9 Summary of Angler Effort, Harvest & CPUE (1994, 1995, 2003-2010) ...... 64 Figure 10 Camping Attendance in BC Parks in Study Region ...... 70 Figure 11 Percentage Change in Camping (09/10 - 10/11) ...... 71 Figure 12 Shoreline Impact Levels ...... 74

Acronyms

ALIB – Adams Lake Indian Band

BC – British Columbia

CCG – Canadian Coast Guard

CEAA – Canadian Environmental Assessment Act

CPR – Canadian Pacific Railway

CSA – Canada Shipping Act

CSRD – Columbia Shuswap Regional District

CTC – Canadian Tourism Commission

DFO – Fisheries and Oceans Canada

DND – Department of National Defense

EAO – Environmental Assessment Office

FIM – Foreshore Inventory Map

HADD – Harmful Alteration, Disruption or Destruction

IHA – Interior Health Authority

IR – Indian Reserve

MBCA – Migratory Birds Convention Act

MJTI – BC Ministry of Jobs, Tourism and Innovation

MOTI – BC Ministry of Transportation and Infrastructure

OCP – Official Community Plan

QEP – Qualified Environmental Professional

RAPP – Report All Poachers and Polluters

RAR – Riparian Areas Regulation

RCMP – Royal Canadian Mounted Police

RDMO - Regional Destination Marketing (and/or Management Organization)

RDNO – Regional District of North Okanagan

RMP – Recreation Management Plan

ROMM – Recreation Optimization Management Model

RV – Recreational Vehicle

SA – Situational Analysis

SABNES – Salmon Arm Bay Nature Enhancement Society

SaRCO – Species at Risk Coordination Office

SEAS – Shuswap Environmental Action Society

SLIPP – Shuswap Lake Integrated Planning Process

SNTC – Shuswap Nation Tribal Council

SPEA – Streamside Protection and Enhancement Area

STA – Shuswap Trail Alliance

TBC – Tourism BC

TNRD – Thompson Nicola Regional District

TOS – Tourism Opportunity Study

TOTA – Thompson Okanagan Tourism Association

US – United States

WAPPRIITA – Wild Animal and Plant Protection and Regulation of International and Interprovincial Trade Act

1 Introduction

1.1 The SLIPP Process and Context for the Recreation Management Plan The Shuswap Lake Integrated Planning Process (SLIPP) was initiated in reaction to mounting pressure to respond to wide ranging issues such as increasing development, waste water discharge and conflicting demands on recreational resources in the Shuswap Lake watershed. These challenges have proliferated in recent years and are exacerbated by a complex jurisdictional and regulatory backdrop with public agencies from all levels of government having fractional legal jurisdiction over some aspect of the region, but with little interagency coordination, and no framework for cumulative impact assessment or strategic decision-making.

In early 2007, a number of government agency representatives began to explore the viability of undertaking a multi-agency strategic planning process as a means of addressing these challenges. Involvement of First Nations, elected officials, and the public had to be fundamental to the approach.

A Steering Committee comprised of First Nations, elected local government officials and senior agency staff provides overall direction and focus for the effort. Other agency staff members, depending on their jurisdiction and expertise, are aligned with (usually one of) three Technical Working Groups: Foreshore Development, Water Quality & Waste Management, or Recreation Management. The efforts of the working groups are guided by the public through a series of open public meetings and by Public Advisory Committees aligned under each working group.

A Strategic Plan http://www.slippbc.com1 was completed in 2008 setting out a strategic framework, built from a set of 11 guiding principles which were identified by the Technical Working Groups and Public Advisory Groups, and agreed to by the Steering Committee. The framework consists of a vision statement and three goals, identified below:

SLIPP's vision is: Working together to sustain the health and prosperity of Shuswap and Mara Lakes. It has three goals that it works toward:

• Development that respects the environment as well as economic and social interests • Water quality that supports public and environmental health

1 Click on Strategic Plan under SLIPP Documents and Resources

• Desirable recreation experiences that are safe and sustainable

Each goal is each aligned with a particular work stream. Under each goal, as series of strategies were identified to address key public issues and agency concerns. This study comprises one of the strategies to address the recreation goal.

Shuswap Lake and its adjoining lakes and tributaries have long provided diverse and attractive recreational activities and make the area a popular destination for residents, tourists and business owners. As more people recreate in the area, issues have arisen around conflicting recreational preferences, over-use of certain areas, damage to ecosystems, and insufficient public access and associated recreation infrastructure. Recreational pursuits must be managed so they are safe and sustainable for the public, the surrounding communities and the natural environment.

The SLIPP process recommended that a Recreation Management Plan (RMP) for the Shuswap and Mara lakes be developed to: provide a vision for how public recreation resources will be used and managed; to identify current and potential recreation interests; and to clarify recreation objectives, sites and guidelines for public access, infrastructure needs, area zoning, and use thresholds and monitoring objectives. The SLIPP process also recommends the establishment of an integrated Recreation Use Monitoring and Reporting Program to monitor and assess recreational use levels, trends and emerging issues on lakes in the watershed (SLIPP Strategic Plan).

This Situational Analysis report provides a firsthand look and basic understanding of the situation at hand through a high level scan of secondary literature. The information outlined in this report will be complimented with:

• a geo-referenced inventory of recreation-based assets, • analysis of data gathered through intercept surveys of recreational lake users (visitors and residents) and • a review of best practices in recreation management on lakes.

The aim of this early work is to develop an understanding of the current recreational use trends and patterns in the region, the present physical assets that support recreation on the lakes, community and visitor values and impacts, and the current policies in recreation management in other jurisdictions that have application for minimizing conflict in the region.

The outcome of this work will develop a detailed understanding of the recreational use issues in the region to inform a final Recreation Management Plan. 2

1.2 The Scope of the Study The study focuses on open water-based recreation activities that occur on Shuswap, Little Shuswap, Mara and Adams Lakes in the Shuswap watershed area. This area is located in central British Columbia, Canada.

1.3 The Recreation Optimization Management Model The Recreation Optimization Management Model (ROMM) used in this project is adapted from Inskeep’s (1991) Sustainable Tourism Planning and Development Framework. The model shown in Figure 1 is comprised of three distinct areas:

1. Supporting conditions– the inner circles of sustainability represent the environmental, economic and sociocultural conditions that support recreation within the study area 2. Recreationists - the outer ring symbolizes those individuals that either live permanently or seasonally in the area, or visit for shorter periods of time 3. Recreational

activities – the Figure 1 Recreation Optimization Management Model middle ring suggests the type of open water-based activities that take place in the study area.

The model was used as a guide to understand and explain the current recreational management situation in the study area.

2 Supporting Conditions for Lake-based Recreation

This section describes the ecological, sociocultural and economic conditions that support lake-based recreational activities in the study area.

2.1 Ecological Environment The Shuswap Lake watershed consists of six different oligotrophic lakes including: Shuswap Lake, Adams Lake, Little Shuswap Lake, Mara Lake, Sugar Lake, and Mabel Lake (Williams et al, 1989). There are also a number of important tributaries including the Eagle River, Adams River, Seymour River, Anstey River, Salmon River and Shuswap River. The entire Shuswap watershed is drained through Little Shuswap Lake and exits the study area via the South Thompson River. The River starts at Chase, flows through Kamloops (where it is joined by the North Thompson River), into Kamloops Lake and joins the Fraser River at Lytton. These lakes provide important habitats for a variety of different fish and wildlife (Columbia Shuswap Regional District, 1988). The Morphometric Features of lakes within the study area are described in Table 1.

Table 1 Morphometric Features of Lakes in Study Area2

Morphometric Shuswap Little Adams Lake Mara Lake Feature Lake Shuswap Lake

Surface Area (km2) 309.6 18.13 137.6 19.43

Drainage Basin Area 15,354 Incl. 4,144 9,065 (km2)

Drainage basin / 2.02 n/a 3.32 0.21 surface area ratio (%)

Maximum depth (m) 161.5 59.4 397 45.7

Mean depth (m) 61.6 14.3 169 18.3

2Source: Review of Greywater Management Strategies to Improve Public Health and Water Quality in Shuswap Lake, Northwest Hydraulic Consultants Ltd. North Vancouver, BC, July 28th2010

Elevation (m) 347 347 407 347

Volume (m3) 19.13x109 260.66x106 23.19x109 357.75x106

Thermocline depth 10 n/a 7.5 n/a

Residence time (years) 2.1 0.03 10 0.13

Shoreline length (km) 1,430 21.2 149.5 42.3

Location 50056’N 51015’N 119017’W 119030’W

2.2 Sociocultural Environment

2.2.1 History of the Watershed

2.2.1.1 Secwepemc Nation before Contact The Secwepemc, or Shuswap people, occupied a vast territory extending from the Columbia River Valley to west of the Fraser River and south to the Arrow Lakes. Secwepemc territory covered about 142,000 square kilometers. The majority of the Secwepemc lived a nomadic lifestyle, moving from place to place as foods became available in different areas. They had to devote a great deal of their lives satisfying their basic needs, but they did so very successfully, developing a unique culture that was totally self-sufficient. This manner of living required specific knowledge of their surroundings, nature, and the skills of the generations that had come before them. To live comfortably in their environment, the Secwepemc people had to develop as capable and strong individuals and every aspect of traditional Secwepemc society was directed towards this goal. They had to create knowledgeable, responsible and independent people who could look after all of their personal needs and be aware of the requirements of the people as a whole.

The Secwepemc economy was based on fishing, hunting, gathering and trading. The lakes and rivers provided an abundance of fish, particularly salmon and trout, and a variety of fruit and other plants supplemented the diet. During winter, the people lived in a kekuli ('pit house'), a circular underground home built near streams, lakes or rivers. The elderly of the Secwepemc people also played an important leadership role. In council, their voices were listened to carefully and their expert skills in all areas were relied upon to help in making critical decisions and to help in training the young people.

They continually shared the knowledge of the people throughout the ages in the stories they told and retold to their large extended families or whole bands during the long winter evenings or around the fires at large gatherings.3

Based on archaeological evidence, it appears that the Secwepemc, have lived in the high Plateau of South Central British Columbia for at least 4000 years. However, the archaeology of the area begins earlier with an incomplete skeleton of a young man discovered at Gore Creek near Kamloops, radiocarbon dated to 8360 years ago. Anthropologists believe the earliest occupants of the Plateau entered from the south sometime after the glacial retreat freed the land. Secwepemc elders say their people have lived on this land forever4.

2.2.1.2 Early Pioneers Europeans first arrived in the region in the early 1800’s. Homesteaders began to settle in the study area by the 1860’s. Prior to construction of the railway, these early pioneers utilized the lake for transportation, as settlement began long before roads were built. Goods and mail were transported by sternwheelers, launches or rowboats. In the winter when the lake froze these early settlers either walked, used a horse and sleigh, a horse team and a wagon or even a dog team to cross the lake for mail and supplies.5 One such pioneer was Scottish born David Salmond (Scotty) Mitchell, who was an influential Shuswap resident. He particularly respected and admired the way of life of the First Nations People, and in a report to the Fisheries Department, noted their sustainable lifestyle. He also waxed eloquently about the beauty of the Shuswap.

“These great lakes lie like miles of mirror duplicating the fire-draped mountains in reflection, while leaping trout break through and spread out widening water rings on which the mirror mountains quiver, then a ripple spreads with a rising breeze and soon the lakes may be torn with chasing, white crested billows.

3 Source: http://www.okmainregion.net/index.php?page=education/secwepemc/section01.inc&menu=e ducation&sub=secwepemc

4Source; http://www.shuswapband.net/historicaloverview.html

5 Source: Shuswap Passion Article in the Shuswap Market News by Jim Cooperman, January 27, 2012

Before the sun sets on the Great Shuswap, it is a dreamland of soft tints, on mountains that melt into the distance, and sky reflected in golden sheen, upon farring water. Then the golden rose fades from snow-capped peaks of Sa-how-ya, the dark shadowy blues creep over, and one’s soul reaches forth, to call to great mother nature, in some wild, beautiful song.”6

2.2.1.3 The Railroad Era The completion of the Canadian Pacific Railway (CPR) in 1885 ushered in a new era in the Shuswap. With the railway complete, more settlers came from Eastern Canada, the US and Europe, and during the early 1900s, settlements were established at Solsqua, Cambie, Malakwa, Sicamous and Swansea Point. At this time, transportation was by way of rail, paddle-wheeler on the interior lakes and rivers, and stagecoach over land, where no rail service was available. Agriculture and logging were, and still are primary activities in the Shuswap Watershed. Permanent settlers arrived in Sicamous after the driving of the Last Spike at Craigellachie that finally linked Canada from coast to coast.

Formal local government came to Salmon Arm on May 15, 1905 with the proclamation of Salmon Arm Municipality, after a majority of residents signed a petition advocating incorporation. Chase got its start when an American logging company (later to be known as the Adams Lake Lumber Company) first came to the area and purchased what became the original Chase townsite in 1907.

It was the new combination station/hotels that set the CPR apart in the railway recreation/tourism business. Built in the imposing chateau-esque style, these buildings incorporated guest rooms upstairs and elegant (and expensive) dining rooms at ground level as well as waiting rooms for passengers and facilities for the agent. By 1890 the CPR was well into the tourism business and was promoting the mountains of Alberta and British Columbia as the Canadian Alps.

The CPR had constructed smaller hotels in 1886 to accommodate travellers, including: Glacier House in Glacier in the Roger Pass, Mount Stephen Hotel in Field B.C., as well as at North Bend in the Fraser Canyon, Sicamous and in Revelstoke. Some of the lesser pioneer hostelries were designed primarily to provide meal service for passengers in the Rocky Mountains where railway grades were too severe to justify the operation of

6 Excerpt from “A Story of the Fraser River’s Great Sockeye Runs and their Loss by D.S.Mitchell, 1925

dining cars, although Glacier House and the Sicamous Hotel were destination hotels in their own right. The Sicamous station was squeezed between the CPR mainline and the waters of Shuswap Lake. Originally designed in 1888, it was finally completed in 1897. An addition in 1910 nearly doubled the size of the building and obliterated most of its chateau turrets and roofline. It was finally demolished in the early 1960’s - a fate similar to many CPR hotels that operated successfully for a number of years, but were abandoned when through dining car service made their maintenance unprofitable.7

2.2.1.4 The Highway Era After the war, Canada was attracting tens of thousands of new immigrants from all corners of the globe. In the 1950s, the railway was still king in Canada's transportation system, but the country was working to build and pave roads between the major cities fueled by the post-war growth of automobiles in Canada's cities. In 1949 the Trans- Canada Highway act was passed by Parliament. The goal was to connect all 10 provinces by paved road by 1967, Canada's centennial year. However, by 1955, much of the roadways designated as part of the Trans-Canada were unpaved, and significant sections were not even yet built as a rough roadway.

One of the most formidable obstacles to completing the highway was the Rogers Pass in BC. The Rogers Pass route followed some of the early tracks of the trans-continental railway, which had been abandoned years earlier as too steep and too dangerous for trains. Several "snow sheds" had to be built to protect the highway from the many winter avalanches and rockslides. This stretch was opened in July 1962, and marked the official completion of the Trans-Canada Highway8.

This event opened up a whole new era of tourism and recreation in BC. Increasing wealth from economic growth, and increasing mobility provided by private vehicles led to an influx of tourists who quickly realized the attraction and accessibility of the Shuswap for holidays and vacations. In the mid-1980s the Coquihala Highway was built to speed traffic to the interior. The Coquihala Connector through Merritt, made it easier for Vancouver residents to get to the Shuswap via the Okanagan. This helped encourage commercial development and tourism throughout the region. Overall, traffic on TCH#1

7 The Train Doesn’t Stop Here Anymore: An Illustrated History of Railway stations in Canada, Ron Brown, April 2008.

8 Source: http://transcanadahighway.com/general/fullhistory.htm

increased between 1996 and 2000, rising 4.5 percent in Salmon Arm, 1.9 percent in Sicamous, and 3.8 percent in Sorrento during this period. The volume of traffic between the Shuswap and the Okanagan regions has also increased, rising 3.8 percent and 2.7 percent on Highways 97A and 97B respectively. Most visitors to the Shuswap region travel by car. The Trans Canada Highway #1 is a tremendously important conduit into the region, although a high proportion of travellers on this route are simply passing through the Shuswap region en route to another destination9

2.2.1.5 The New Millennium The first decade of the new millennium has seen a number of global events that have had a profound impact on tourism and recreation in the Shuswap as well as worldwide. The terrorist attacks on the World Trade Centre in New York on September 11, 2001 caused occupancy rates and room revenues to plummet while international visitor entries dropped dramatically. It is estimated that almost 780,000 room nights were cancelled in Canada's major urban markets in September and October of that year. All these impacts can be ascribed to both fear of travel and the economic fallout of the attacks10.

Global financial markets also plummeted twice in the past decade, with the “high-tech bubble” bursting in 2000 and the “housing/mortgage bubble” bursting in 2008. These events book-ended a period of substantial investment in second homes and recreational housing in the Shuswap spurred by market recovery and continued growth in oil and gas production in western Canada – particularly Alberta. The market correction of 2008 effectively ended a period of speculative purchase of recreational properties and initiated a period of flattening trajectories in real estate prices.

Nonetheless, the number of visitors to the Study area continued to increase gradually over the decade. Throughout the first years of the new millennium, the Shuswap experienced intensive development activity. More and more, people were drawn to the Shuswap for its natural beauty and high recreational values. There are an increasing number of baby-boomers that have been turning their seasonal cabins on the lake into year-round retirement homes. Although this pattern has slowed in recent months, a

9 Source: Shuswap Tourism Opportunity Strategy, May 2002,

10 Source: Shuswap Tourism Opportunity Strategy, May 2002, p. 18

recovering economy with attendant stock market advances may again fuel another spurt in recreational development around the lakes

2.2.2 Jurisdictional and Policy Framework in the Watershed This section of the report presents an overview of current legal and jurisdictional responsibilities regarding recreation in the study area. There are four levels of governance (Federal, Provincial, First Nations & Local Government) and many ministries, divisions and subdivisions within each level that have some degree of responsibility for policy, regulation and legislation regarding recreation management.

The Shuswap watershed overlaps three local government jurisdictions. The majority of the study area lies within the Columbia Shuswap Regional District, which encompasses the eastern end of Little Shuswap Lake, Little River, the south end of Adams Lake, all of Shuswap Lake, and all but the very southern end of Mara Lake. The western end of Little Shuswap Lake and most of Adams Lake lie within the Thompson Nicola Regional District. The Regional District of North Okanagan contains the very south end of Mara Lake, the Shuswap River and all of Mabel Lake and Sugar Lake. The complexity of jurisdictional responsibilities is reflected by the limited coordinated governance and management mechanisms to support sustainable recreation management in the study area.

2.2.2.1 Federal Government

2.2.2.1.1 Legislation Overview The federal Fisheries Act administered by Fisheries and Oceans Canada is the main federal legislation affecting fish, fish habitat and water quality. Section 36(3) of the act deals with deposition of deleterious substances in water frequented by fish, while Section 35(1) deals with the harmful alteration, disruption or destruction (HADD) of fish habitat. Any work that will alter riparian and instream fish habitat will require a Fisheries Act Authorization (under Section 35(2)) and may further trigger a screening under the Canadian Environmental Assessment Act (CEAA).

The Canada Shipping Act (CSA 2001 is the principal legislation governing safety in marine transportation and recreational boating, as well as protection of the marine environment. The CSA 2001 is an updated and streamlined version of the Canada Shipping Act, which dates back more than 100 years. The CSA 2001 came into force on July 1, 2007. It is the principal legislation that governs the activities of Canadian vessels in all waters, and of all vessels in Canadian waters. The CSA 2001 authorizes the

development of supporting regulations that clarify and improve existing vessel safety requirements, environmental protection, and personnel certification and training.

The Navigable Waters Protection Act requires that Transport Canada be notified of any structures installed into navigable waters (i.e. boat launch, dock, mooring buoys). This federally regulated act protects the navigability of waterways by all types of vessels.

The federal Species at Risk Act protects “at risk” wildlife (designated by the Committee on the Status of Endangered Wildlife in Canada (COSEWIC) and their habitats. At risk wildlife and plant species are listed in Schedule 1 of the Act. This protection applies to the plants and the animals and their “residences”, but the habitat provisions currently only apply on federal lands in Canada, such as national parks, lands used by the Department of National Defence (DND), and reserve lands. However, species at risk must be addressed in CEAA screenings as part of Fisheries Act Authorizations or NWPA approvals.

The Migratory Birds Convention Act, 1994 (MBCA) is a federal act that protects migratory birds and nests from indiscriminate harvesting and destruction. The MBCA was passed in 1917, and updated in 1994 and 2005, to implement the Migratory Birds Convention, a treaty signed with the United States in 1916. As a result, the Canadian federal government has the authority to pass and enforce regulations [Migratory Birds Regulations (C.R.C., c. 1035)] to protect those species of birds that are included in the Convention. Specifically, the Regulations stipulate that “no person shall disturb, destroy or take a nest, egg, nest shelter, eider duck shelter or duck box of a migratory bird” (Section 6[a]), and “no person shall deposit or permit to be deposited oil, oil wastes or any other substance harmful to migratory birds in any waters or any area frequented by migratory birds (Section 35 [1]). The act and regulations apply to proposed land clearing activities, which must be completed outside of the active breeding season of birds (April 1st and July 31st) unless no active nests are present.11

2.2.2.1.2 Industry Canada - Canadian Tourism Commission Within Industry Canada are a variety of programs including Small Business and Tourism. Under Industry Canada’s portfolio is the Canadian Tourism Commission (CTC), a federal Crown Corporation that is Canada’s national tourism marketing organization. The CTC

11 Source: Shuswap Lake Boat Launch Study, Electoral Areas C, E and F, Summit Environmental Consultants Inc. January 2011.

works in partnership with the country's tourism industry to implement the Federal Tourism Strategy: Welcoming the World to increase awareness of, and interest in, Canada as a premiere tourism destination.

2.2.2.1.3 Transport Canada Transport Canada is a diverse federal department that is responsible for air, marine, rail, and road transportation in Canada. The Office of Boating Safety delivers prevention- based programs and information for users and builders of recreational boats. New requirements for safety equipment and pleasure craft licensing came out on May 12, 2010. The Small Vessel Regulations under the Canada Shipping Act, 2001, set out the minimum safety equipment required on board a pleasure craft according to its type and length. These regulations also require all pleasure craft powered by an engine 10 horsepower (7.5 kW) or more to have a pleasure craft license, unless they have a vessel registration.

The Competency of Operators of Pleasure Craft Regulations require all operators of pleasure craft fitted with any type of motor and used for recreational purposes to carry proof of competency on board. Proof of competency indicates the boater has a basic level of boating safety knowledge required for safe recreational boating. In the past, anyone of any age could operate a recreational boat without any minimum boating safety knowledge, experience or training. These requirements were introduced in 1999 in response to boating deaths and injuries, with the goal of improving safety on Canadian waterways through education and training.

2.2.2.1.4 Environment Canada Environment Canada has a nation-wide mandate to protect the environment, conserve the country's natural heritage, and provide weather and meteorological information to keep Canadians informed and safe. Environment Canada’s Enforcement Branch is responsible for the protection and conservation of both the environment and wildlife. The Pacific and Yukon Region of Environment Canada cover the study area. Regional staffs are tasked with ensuring that federal environmental and wildlife acts and regulations are respected and that enforcement measures are taken against alleged offenders. The Enforcement Branch also participates in the development of federal acts and regulations as they pertain to environmental and wildlife enforcement, specifically:

• Canadian Environmental Protection Act, 1999

• Pollution Prevention Provisions of the Fisheries Act 12

• Migratory Birds Convention Act, 1994

• Canada Wildlife Act

• The Wild Animal and Plant Protection and Regulation of International and Interprovincial Trade Act (WAPPRIITA)

• Species at Risk Act

2.2.2.1.5 Fisheries and Oceans Canada

Fisheries and Oceans Canada (DFO) and its Special Operating Agency, the Canadian Coast Guard, deliver programs and services that support sustainable use and development of Canada’s waterways and aquatic resources. As a Special Operating Agency of the Department of Fisheries and Oceans Canada, the Canadian Coast Guard helps DFO meet its responsibility to ensure safe and accessible waterways for Canadians. The CCG also plays a key role in ensuring the sustainable use and development of Canada’s oceans and waterways.

In the Pacific Region, the Department oversees west coast marine resources and the inland fisheries of the Yukon Territory. Because the region is entrusted with managing and protecting Pacific salmon, it is involved with 105 river systems in British Columbia as well as trans-boundary northern rivers: the Stikine and Taku. There are 37 Fisheries and Oceans Canada offices and stations throughout BC and the Yukon. There is a small office located within the study area in Salmon Arm, BC.

2.2.2.1.6 Royal Canadian Mounted Police (RCMP) The Royal Canadian Mounted Police is the Canadian national police service and an agency of the Ministry of Public Safety Canada. The RCMP is unique in that it is a national, federal, provincial and municipal policing body. They provide a total policing service under contract to the three territories, eight provinces (except Ontario and Quebec), more than 190 municipalities, 184 Aboriginal communities and three international airports.

The RCMP historically, have not had the resources to undertake regular patrols on the lakes to conduct education, compliance and enforcement of the myriad federal, provincial and local government regulations pertaining to activities on the lakes. However, with recent emphasis on increasing police and other enforcement presence

on the lakes, the Chase, Salmon Arm and Sicamous detachments were active in SLIPP activities in 2010. Lake patrols are staffed by members on overtime.

2.2.2.2 First Nations

2.2.2.2.1 Legislative Overview Federally, Section 35 of the Constitution Act, 1982, recognizes and affirms the existing aboriginal and treaty rights of aboriginal peoples of Canada. First Nations legally comprise a local government if they have a final agreement with the province setting out the law-making authorities that they may exercise on their land. Five such agreements are now in place in BC, but none are located within study area.

Shuswap Nation Tribal Council representatives are involved in SLIPP as members of the Steering Committee.

2.2.2.2.1.1 Shuswap Nation Tribal Council The Shuswap Nation Tribal Council (SNTC) was formed in 1980 by the Secwepemc chiefs to advance issues of aboriginal rights. It is a political organization, working on matters of common concern, including the development of self-government and the settlement of the aboriginal land title question. SNTC is involved with natural resource management within the Secwepemc Nation's traditional territory and the creation of economic development opportunities for Secwepemc communities. The tribal council provides technical support to member communities to improve services in health, child welfare, employment and training, research on traditional territories and community development. SNTC also works to establish agreements, with the provincial and federal governments and with the private sector, that recognize and respect Secwepemc aboriginal rights and title.

The SNTC participates in the SLIPP steering committee as the body that represents the four Secwepemc communities within the Shuswap watershed. In this way, the Secwepemc people are represented similarly to how other communities and local governments are represented in the SLIPP process. The SNTC brings their particular interests in sustaining the cultural and environmental values of the Secwepemc people to SLIPP. The SNTC has two seats at the Steering Committee: one is filled by an elected community leader, and the other is filled by a band resource management staff person.

2.2.2.2.1.2 Adams Lake Indian Band (Sexqeltqin) Adams Lake Indian Band (ALIB) is sectioned into seven areas, and has 678 members (365 On Reserve, 313 Off Reserve)12. ALIB provides an extensive array of services to its membership, including a domestic water system and sewer system on Sahhaltkum IR#4. Adams Lake Band is home to a well-known language immersion school, Chief Atahm School. The majority of the administrative offices are located on IR#4, adjacent to the Village of Chase and overlooking Little Shuswap Lake. The Nexe7yÈlst/Pierre Moyese Centre on Switsemalph IR#6, near Salmon Arm, along with administrative functions, provides health and social services.

2.2.2.2.1.3 Neskonlith Indian Band The Neskonlith Indian Band has 591 members (320 On Reserve, 271 Off Reserve)13It is located on the outskirts of the small community of Chase, which has a population of about three thousand people. Neskonlith has three communities that are sectioned in three parts IR#1, IR#2 and IR#3. Both IR#1 & IR#2 are located in the Chase area and IR#3 is located on the outskirts of Salmon Arm, BC.

2.2.2.2.1.4 Little Shuswap Lake Indian Band The Little Shuswap Lake Indian Band has 309 members (228 On Reserve, 81 Off Reserve)14and is located along the eastern end of the Little Shuswap Lake and along the western and northern end of the Big Shuswap Lake and follows along the Adams River and Little River. The Band has five parcels of land encompassing 3,112.7 hectares.

2.2.2.2.1.5 Splatsin Indian Band – (Spallumcheen) Splatsin First Nations people reside on Indian reserve lands adjacent to the City of Enderby to the south and across the Shuswap River to the east. Splatsin has 757 members (395 On Reserve, 362 Off Reserve)15The Splatsin are the most southern tribe of the Shuswap Nation, the largest Interior Salish speaking First Nation in Canada whose aboriginal territory stretches from the BC/Alberta border near the Yellowhead Pass to

12Source: INAC First Nations Profiles, August 2008

13Source: INAC First Nations Profiles, August 2008

14Source: INAC First Nations Profiles, August 2008

15Source: INAC First Nations Profiles, August 2008

the plateau west of the Fraser River, southeast to the Arrow Lakes and to the upper reaches of the Columbia River.

2.2.2.3 BC Provincial Government

2.2.2.3.1 Legislation Overview

The Drinking Water Protection Act regulates water supply systems and all water suppliers may be required by the Interior Health Authority (IHA) to complete a comprehensive risk assessment leading to a source protection plan. The Ministry of Health Services and the Ministry of Environment produced the “Comprehensive Drinking Water Source to Tap Assessment” guidelines that provide a step by step evaluation to identify potential hazards to drinking water sources, including marinas and other forms of water-based recreation.

The Water Act protects the quality of water, and fish and fish habitat and the rights of licensed water users in BC. Under the Water Act, “habitat” includes the watercourse and the streamside (riparian) vegetation that provides nutrients and shade to the stream, whether the water body supports fish or not. Any activities that result in changes occurring in or about a stream, such as installation of a boat launch and/or wharf, require notification or approval under Section 9 of the Water Act.

The Fish Protection Act provides legislative authority for water managers to consider impacts on fish and fish habitat before approving new licenses, amendments to licenses or issuing approvals for work in or near streams. The Fish Protection Act focuses on four major objectives: ensuring sufficient water for fish; protecting and restoring fish habitat; improved riparian protection and enhancement; and stronger local government powers in environmental planning.

The Riparian Areas Regulation(RAR) is a provincial regulation that was enacted under Section 12 of the Fish Protection Act. The regulation states that any structure within 30 m of a water body, which requires a development permit from a local government, is subject to the RAR. As a requirement of approval, a Qualified Environmental Professional (QEP) must assess the proposed development and determine the Streamside Protection and Enhancement Area (SPEA) for the property. Any development proposed within the property’s calculated setback requires support from the local government and may also require a variance from Fisheries and Oceans Canada (DFO). Parks, parkland and federal lands (e.g. First Nations reserve lands) are

exempt from the RAR. However, local governments may opt to comply with the regulation.

The Environmental Management Act Section 13 prohibits the discharge of both black and grey water from any vessel into any water, unless specifically authorized. Notwithstanding this legislation, there are significant challenges to enforce it – principally the lack of resources. The province has chosen to adopt an approach of voluntary compliance and is working with the houseboat industry to move toward full compliance as soon as possible but this may take several years.

2.2.2.3.2 Ministry of Environment The Ministry of Environment delivers its programs and services through seven divisions. In addition, environmental assessments of proposed major projects in British Columbia are coordinated through the Environmental Assessment Office. Six divisions and the Environmental Assessment Office influence recreation in the study area.

1. Parks and Protected Areas Division (BC Parks) - BC Parks is responsible for the designation, management and conservation of a system of ecological reserves, provincial parks and recreation areas located throughout the province. British Columbia’s parks and protected areas contain nationally and internationally significant natural and cultural features and outdoor experiences. The provincial system of parks is dedicated to the protection of natural environments for the inspiration, use and enjoyment of the public. BC Parks has several parks in the study area. This section describes the purpose and activities within provincial parks of the study area and whose patrons access one or more of the lakes in the district.

a. The primary purpose of Herald Park and Shuswap Lake Park is to provide major provincial park opportunities on Shuswap Lake, supporting provincial and regional tourism and recreation interests for destination, transient and day use activities16. These parks serve as the two major provincial park holiday destinations on Shuswap Lake, and both have campgrounds and day-use areas that are fully occupied through the summer months.

16Herald Provincial Park: Park Purpose Statement and Zoning Plan, BC Parks, January 2003 17

b. The primary role of Shuswap Lake Marine Provincial Park is to provide a system of sites for marine overnight and day use of Shuswap Lake17. Shuswap Lake is provincially recognized for its tourism and recreation attractions. The marine park system is the basis for a thriving tourism economy with houseboat rentals and associated businesses catering to residents of British Columbia, Albertans and international clients. Shuswap Lake Marine Provincial Park is the main provincial park located within the study area catering specifically to lake users. It is comprised of 27 sites located around the perimeter of Shuswap Lake and Mara Lake. All locations are popular for fishing and water sports; hiking and nature study are popular at some sites. Some sites are road accessible, but most are water-access only. Facilities at the sites vary from nothing to 3 or 4 wilderness tenting sites with a pit toilet.

c. Roderick Haig-Brown Provincial Park is one of the largest and most important provincial parks in the study area. The park is situated in the midst of a significant tourist destination area. It is located roughly mid- way between the major communities of Salmon Arm and Kamloops, and is easily accessible from Canada’s major tourist travel route – Highway #1. The park offers recreation opportunities that supplement the lake- oriented tourist experience in the summer. The park is a popular recreation area for local and regional residents as well as a destination for international tourists. The most remarkable aspect of park visitation is the visitation peak that occurs with the sockeye salmon spawning run in October, and the huge spike in visitation that occurs every four years coincident with the dominant run.

d. Other BC parks include: White Lake Provincial Park (camping & day use), Mara Provincial Park (day use only), Adams Lake (Bush Creek) Provincial Park (camping), and Anstey-Hunakwa Provincial Park (day use).

2. Environmental Stewardship Division - The Environmental Stewardship Division has a mission to maintain and restore the natural diversity of provincial ecosystems and fish and wildlife species and their habitat; to provide fish and

17Shuswap Lake Marine Provincial Park: Park Purpose Statement and Zoning Plan, BC Parks, January 2003

wildlife recreation services and opportunities to British Columbians and visitors; and to provide overall leadership of provincial government strategies and initiatives related to ocean resources and marine fisheries. The division delivers programs and services through four branches: Fish and Wildlife Branch; Ecosystems Branch, Oceans and Marine Fisheries Branch; Regional Operations Branch; and the Species at Risk Coordination Office (SaRCO).

3. Environmental Protection Division - The Environmental Protection Division works to prevent pollution, and promote and restore environmental quality. The division delivers programs and services through three branches:

a. Environmental Quality Branch – develops legislation and policies to protect air quality and to address municipal liquid and solid waste. The branch leads the development and management of industry product stewardship programs; sets standards for, and does monitoring and reporting for, ambient air and water (surface and ground water) quality; and is a co-leader within the B.C. government in developing and implementing measures to address global climate change.

b. Environmental Management Branch – responsible for a wide array of environmental management regulatory programs, including: hazardous and industrial waste management; waste and environmental database management; environmental emergency response and spill reporting; integrated pest management initiatives; and land remediation (contaminated site) management and certification.

c. Regional Operations Branch – includes nine regional offices whose staff are on the front line in delivering the Environmental Protection Division's programs and policies, supported by the other two branches. Regional Operations ensures safe discharges to water, land and air through authorizations and under voluntary arrangements with others.

4. Compliance Division - The Compliance Division provides ministry-wide leadership and services in support of compliance management. It does this work through the Conservation Officer Service – the enforcement program of the Ministry of Environment. It is also the lead program for managing and responding to wildlife/human conflicts where there is a risk to public safety. It also manages the Report All Poachers and Polluters (RAPP) service – (Conservation Officer Service 24-hour Hotline) - a toll free tip-line and web-based service that allows 19

the public to report known or suspected violations of fisheries, wildlife, or environmental protection laws.

5. Water Stewardship Division - The Water Stewardship Division manages provincial water resources through activities such as: administering water rights and legislation; developing legislation and non-regulatory tools, and participating in sustainable water resource planning and management; carrying out public safety functions to minimize risk from floods, droughts and dam failures; and developing and delivering science and information critical to understanding and making informed decisions about B.C.'s water resources. The division consists of four branches: Innovation and Planning Team; Science and Information Branch; Management and Standards Branch; and Regional Operations Branch.

6. Environmental Assessment Office - The Environmental Assessment Office (EAO) is a neutral agency that manages the review of proposed major projects in British Columbia, as required by the Environmental Assessment Act. The assessment process examines major projects for potentially adverse environmental, economic, social, heritage and health effects that may occur during the life cycle of these projects.

2.2.2.3.3 Ministry of Transportation and Infrastructure The Ministry of Transportation and Infrastructure (MOTI) plans transportation networks, provides transportation services and infrastructure, develops and implements transportation policies, and administers many related acts and regulations. The Ministry also administers federal-provincial funding programs to build sustainable communities such as the Building Canada Fund.

MOTI maintains the authority for subdivision approval in the CSRD and has had a long- standing policy of requiring adequate public access to water bodies when land is being subdivided. Many of candidate waterfront parks identified in the CSRD Parks Plans occur on MOTI accesses to various lakes. Acquiring such sites for development as community parks requires the negotiation of a License of Occupation with MOTI permitting CSRD to construct facilities and operate them for park and recreation purposes. Other sites may be under the jurisdiction of other provincial agencies and long term licenses or leases will need to be negotiated with them in a similar fashion.

2.2.2.3.4 Ministry of Jobs, Tourism and Innovation The Tourism Division of the Ministry of Jobs, Tourism and Innovation (MJTI)is responsible for tourism development, management and marketing programs in key domestic and international markets. The Division works closely with private sector operators, industry groups and other government ministries to create an integrated approach in B.C.

British Columbia is divided into six tourism regions, each managed by a Regional Destination Marketing (and/or Management) Organizations (RDMOs) that work closely with the Tourism Division. The six RDMOs are not-for-profit societies registered under the Societies Act and each are governed by a regional Board of Directors who represent business and community tourism interests throughout their respective regions. They are contracted by MJTI to deliver a range of tourism programs in their region. The Thompson Okanagan Tourism Association (TOTA) is the RDMO for the study area of this report.

A five-year provincial tourism strategy, Gaining the Edge has been developed by the Tourism Division. The strategy is designed to increase visitor volume, revenue, and employment with specific targets to achieve sector revenue of $18 billion by 2016 (5 per cent growth per year). The strategy identifies four key action areas: 1) leadership through partnership and coordination; 2) focused marketing; 3) world class visitor experiences and 4)removing barriers to growth. The new BC Tourism Strategy identifies priority products and markets where BC has a competitive advantage.

2.2.2.3.5 Ministry of Community, Sport and Cultural Development The Ministry of Community, Sport and Cultural Development has a mandate to help local governments and residents build well-governed, vibrant, green and healthy communities. The Local Government Department is the major branch of the Ministry that offers a range of programs to serve communities by:

• developing local government legislation, • providing funding, advice, and other supports to foster effective local government services, infrastructure, and governance structures, and to facilitate community economic growth; • facilitating community and regional planning, fostering positive intergovernmental relations and resolving differences between local governments; • providing information and advice to protect the financial viability of and good governance of local governments, 21

• offering financial support for communities, infrastructure planning and construction, growth management, and local government restructure; and • facilitating partnerships with local governments and First Nations.

2.2.2.4 Local Government Local governments are represented by elected officials who exercise the powers and perform the obligations of the local government. There are three types of local governments in British Columbia: municipalities (incorporated cities, towns and villages); regional districts (municipalities plus unincorporated rural communities); and First Nations.

In a municipality, the governing body is the mayor and council. However, there may be other governing bodies depending on the organization and nature of the local government or local authority.

British Columbia has 27 regional districts involving all the province's municipalities and rural areas. Regional districts are very diverse. Their populations range from 1.8 million in Greater Vancouver Regional District to 3,900 residents in the Central Coast Regional District. They serve vast areas up to 120,000 square kilometers in Peace River. The regional district functions as a partnership of the municipalities and electoral areas within its boundaries. These local governments work together through the regional district to provide and coordinate services in both urban and rural areas. Regional districts are governed by a board of directors that is composed of directors who are elected from an electoral area, and directors who are appointed by, and from, member municipal councils. The number of directors appointed from member municipal councils depends on the population of the municipality. The chair of the regional district is elected by, and from, all of the directors on the regional board. The size of municipal councils generally increases with its population. In addition to the mayor, there are 4, 6, 8 or 10 councillors. Council can reduce or increase the size of council but a reduction requires the approval of electors.

2.2.2.4.1 Legislation Overview

The Local Government Act is the primary legislation for regional districts and improvement districts, setting out the framework for governance and structure, as well as the main powers and responsibilities. Certain municipal provisions remain in effect for matters not covered by the Community Charter. As well, the Act covers important authorities for both municipalities and regional districts, such as statutory requirements for elections, and planning and land use powers. The Act also includes key provincial 22

powers such as authority for the BC Building Code and the office of the Inspector of Municipalities. Sections 916 to 919 (relating to farms) are the responsibility of the Ministry of Agriculture and Lands. Sections 692-693 (relating to the BC Building Code) are the responsibility of the Minister of Forests and Range.

The Community Charter provides all municipalities with a framework for their “core” areas of authority, including broad powers; taxation; financial management; procedures; and bylaw enforcement. The Act covers municipal-provincial relations, with principles, consultation requirements and dispute resolution processes. It also provides for fundamental municipal powers such as corporate powers, service powers and regulatory powers; specific powers in relation to additional areas; and specific restrictions on those powers. To balance the broad powers provided, the Act contains accountability and public participation provisions, such as electors approval processes, annual municipal reporting and ethical conduct rules for elected officials. Certain provisions of the Act also apply to Regional Districts, the City of Vancouver and other local bodies, such as the Islands Trust.

The Land Title Act (Section 219) gives property owners the authority to make agreements in favour of other bodies, including local governments, to put restrictions on the use and development of the owners’ property. The Act also describes the types of terms that can be included in these agreements and details about enforceability. The remainder of the Act is the responsibility of the Ministry of Agriculture and Lands.

Local Government (Green Communities) Statutes Amendment Act, (Bill 27) 2008 encourages local governments to think, plan and build green. Specifically, it supports the development of compact communities with affordable housing and lower greenhouse gas emissions by providing local governments with the flexibility to reduce emissions, to conserve energy and to make communities more socially and environmentally sustainable in ways that make the most sense for their communities.

Official Community Plans (OCPs) are some of municipalities’ and regional districts’ most important documents. They set out goals and statements of policy to guide all decisions pertaining to land use, environment, infrastructure, buildings and community services such as parks & recreation. Once adopted, the Plan does not commit the local government to carry out the projects in the Plan, but it does require that any works undertaken, and bylaws enacted by the Board or Council are consistent with the Plan. OCP’s require a high level of public involvement and are important because they set out a vision, goals and policies for the community that is a reflection of the community’s values and priorities regarding how the community should evolve. 23

Local Government Bylaws are the principal tool used to provide services and regulate the development of property in the community. There are literally hundreds of bylaws that regulate all aspects of service provision. While the type and amount of bylaws vary significantly from one local government to another, they generally include bylaws pertaining to:

• Planning and development, including municipal zoning and industrial/economic development; • Public utilities, including the management of local sewage systems, water treatment, and electric utilities; • Local social-welfare services, such as management of local health, library and educational facilities, and social assistance services; and, • Parks, recreation, and culture, including the development and management of local parks and green spaces, public recreation facilities, as well as local art and cultural programs and events.

Those bylaws that pertain most closely to the regulation of recreation in the study area are regional district parks & recreation bylaws. These bylaws typically establish the parks & recreation function and set out terms regarding the operation, maintenance and use of community parks.

2.2.2.4.2 Columbia Shuswap Regional District The Columbia Shuswap Regional District (CSRD) was incorporated on November 30, 1965. (Figure 2) It encompasses a geographically diverse area of 30,180 sq. km. (11,652 sq. mi.) in size, with a 2011 population of 50,79418. Most of the CSRD’s population is concentrated in the western end of the region around Shuswap Lake and in concentrated pockets eastward along Highway 1 to the Alberta border. About 30,745 residents (61% of the population) are located in four municipalities (Salmon Arm, Sicamous, Revelstoke and Golden). A further 19,029 residents (37%) live in unincorporated areas, and the remaining 1,020 residents (2%) are on Indian Reserves19.

The CSRD derives authority from Letters Patent and from provincial legislation (see Local Government Act above). The CSRD is the regional district that contains the majority of

18 Source: Statistics Canada Population and Dwelling counts (2011)

19 Source: Statistics Canada: 2011 Census

the Shuswap Lake watershed. The others are the Thompson Nicola Regional District to the west, and the Regional District of North Okanagan to the south.

Figure 2 Columbia Shuswap Regional District

The CSRD has six electoral areas, only three of which (C, E & F) border the lakes lie within the study area. The Board of directors has eleven members, six of whom are electoral area directors and 5 are municipal directors.

CSRD Parks - In January 2003, the CSRD started work on preparing a series of Electoral Area Parks Plans for each Electoral Area. These plans identify current park needs, analyze local characteristics and issues that could affect park acquisition and development, identify opportunities for expansion or creation of new parks, and provide strategic direction for the development of the area’s park resources and facilities over a 20 year planning horizon. Five Electoral Area Parks Plans have been completed so far (Electoral Areas A, C, D, E, F). Electoral Area B is underway and will be completed in late 2012.

While the CSRD Parks Plans were prepared to guide to the acquisition, development and operation of parks, they were not adopted as bylaws and as a result have no formal authority as planning documents without a link to official community plans. Therefore, the CSRD has taken care to ensure that all new OCP’s are carefully worded to contain language that refers to the parks plans and supports their implementation and use as guiding documents.

CSRD has prepared a number of parks plans and adopted many bylaws that have direct or indirect impact on the management of recreation in the study area. This includes several community parks and recreation bylaws relating to community waterfront parks20.

The CSRD is creating a new foreshore and water zoning bylaw (Lakes Zoning Bylaw No. 21 900) for: Shuswap Lake, Mara Lake, Adams Lake, White Lake & Little White Lake, Humamilt Lake, and Hunakwa Lake. The regulations are based in part on data collected from the Shuswap Watershed Mapping Project. The CSRD Board of Directors gave 2nd reading as amended (for the second time) to Lakes Zoning Bylaw No. 900 and delegated a second public hearing at their regular meeting on December 9, 2011. The public hearing was to be held in January 2012.

2.2.2.4.3 Thompson Nicola Regional District The Thompson Nicola Regional District (TNRD) covers an area of approximately 45,279 square kilometers running from the former Toll Booth on the Coquihalla Highway, Highway No 1 south of Lytton through to Big Bar Country west of Clinton, 70 Mile House, Clearwater, Wells Gray Park, Albreda north of Blue River on Highway 5, Chase on Highway 1, east of Westwold on Highway 97c and Douglas Lake Country. (Figure 3) The population of the area is 132,35222.Two TNRD electoral areas (O & L) have lands within the study area. The TNRD has representation on the SLIPP

Figure 3 Thompson Nicola Regional District

20 Visit http://www.csrd.bc.ca/siteengine/activepage.asp?PageID=258 for parks plans and http://www.csrd.bc.ca/siteengine/activepage.asp?PageID=329 for parks bylaws. To view park descriptions visit: http://csrd.iwebez.com/siteengine/activepage.asp?PageID=231 Policy direction for parks and recreation are also contained in electoral area official community plans - see http://www.csrd.bc.ca/siteengine/activepage.asp?PageID=78.

21The draft bylaw and associated maps can be viewed on the CSRD website at: http://csrd.iwebez.com/siteengine/activepage.asp?PageID=254

22 Source: Stats Canada (2011)

Steering Committee.

2.2.2.4.4 Regional District of North Okanagan The main economic drivers of the Regional District of North Okanagan23 (RDNO – also known as NORD) are agriculture, forestry and tourism. Population centers are Armstrong, Spallumcheen, Enderby, Lumby, Coldstream and Vernon. (Figure 4) Similar to other regional districts, RDNO provides a range of services to residents of both urban and rural communities of the North Okanagan. RDNO has an estimated 2011 population of 83,05224. The board of directors has 13 members composed of five electoral area directors and eight municipal directors. Only Electoral Area (F) has lands within the study area. RDNO participates on

the SLIPP Steering Committee. Figure 4 Regional District of North Okanagan The RDNO is leading a similar planning process to SLIPP but with a specific geographic focus on the Shuswap River and its upland watershed as it is within the jurisdiction of the RDNO. Because of the inherent connectedness of the Shuswap River watershed to the rest of the Shuswap, the two planning processes are working together to share resources and information, capitalize on opportunities for efficiencies, and eliminate redundancies in planning and program implementation.

2.2.2.4.5 City of Salmon Arm The City of Salmon Arm is a regional service centre located on Salmon Arm Bay of Shuswap Lake and is the largest urban centre within the Shuswap watershed with a population of 17,583. The city has an active arts and culture community and a diversified economy including forestry, agriculture, tourism, manufacturing and commerce. Salmon Arm, like other Shuswap communities, promotes itself as a

23 Visit http://www.rdno.ca/publications/bylaws.php for RDNO bylaws and official community plans.

24 Source: http://www.bcstats.gov.bc.ca/data/dd/facsheet/CF240.pdf

recreational paradise and informally proclaims to be the “Heart of the Shuswap”. The city draws drinking water from Shuswap Lake and also disposes of its (treated) wastewater into the lake. Salmon Arm Bay is one of the most heavily used parts of Shuswap Lake. There is public swimming and a boat launch at Canoe Beach and another public boat launch at Marine Park next to the Salmon Arm wharf. The municipal council has jurisdiction regarding Lakefront development, activities and bylaw enforcement within municipal boundaries that include several kilometers of Shuswap lake shoreline.

2.2.2.4.6 District of Sicamous The District of Sicamous was incorporated in 1989 and has a full-time resident population of just 2,441 according to the 2011 census. It is nestled between Mara Lake and Shuswap Lake approximately halfway between Calgary and Vancouver on the Trans Canada Highway giving rise to its logo “Gateway to the Shuswap”. The area boasts four distinct seasons for outdoor enthusiasts. The community also labels itself as the “Houseboat Capital of Canada”, with nearly 200 rental houseboats available making Sicamous a popular destination for vacationers. The municipal council has jurisdiction regarding Lakefront development, activities and bylaw enforcement within municipal boundaries that include several kilometers of Mara lake shoreline and a smaller proportion of Shuswap Lake shoreline.

2.2.2.4.7 Village of Chase Chase is located on the shores of Little Shuswap Lake in the eastern region of the South Thompson River Valley. It has a population of about 2460 and was named after Whitfield Chase, an American who pioneered in the area after coming to Canada during the Fraser Canyon gold rush in the 1858. The community is known as the western gateway to the Shuswap Region. Its main industries are forestry and tourism. Chase offers a public beach, campsites, a floating dock, and boat launch facilities. Boating, kayaking, fishing, golfing, hiking, and mountain biking are popular pursuits. The village manages recreation within their municipal boundaries that border on Little Shuswap Lake and the South Thompson River. There is a public beach and boat launch at Memorial Park, and in addition, access to South Thompson River can be gained at the boat launch located at Mill Park. The municipal council has jurisdiction regarding Lakefront development, activities and bylaw enforcement within municipal boundaries that include several kilometers of Little Shuswap lake shoreline and a small portion of the South Thompson River.

Table 2 summarizes the jurisdictional framework in the study area. 28

Table 2 Summary of Jurisdictional Framework in Study Area

Gov’t Name Role/Jurisdiction Level

Industry Canada Tourism promotion and assistance to tourism industry

Transport Canada Navigable waters, Small vessel regulations and Operator competency

Environment Canada Environmental and Wildlife Protection

Fisheries & Oceans Fish and fish habitat protection

Federal Canada

Auxiliary Coast Guard volunteer marine rescue service and promote public boating safety

RCMP Compliance and enforcement of federal provincial and local government regulations

Shuswap Nation Self government, settlement of land claims, Tribal Council economic development and resource management within traditional territories

Adams Lake Indian Provision of services to IR #’s 4, 5 and 6 in the study

Band (Sexqeltqin) area.

Neskonlith Indian Provision of services to IR #’s 1, 2 & 3 in the study Band area. First Nations Little Shuswap Lake Provision of services to IR #’s 1, 2, 3, 4 and 5 in the Indian Band study area.

Splatsin Indian Band Provision of services to IR #3 in the study area. (Spallucheen)

MOE-BC Parks Provincial Parks management & operation

Provinci MOE-Environmental Maintenance & restoration of ecosystems and fish

Stewardship Division &wildlife, ocean & marine fisheries

MOE-Environmental Air & water quality monitoring, liquid & solid waste Protection Branch management, hazardous waste, environmental emergency response

MOE-Compliance Conservation Officer Service, Report All Poachers & Branch Polluters (RAPP) service

Ministry of Owns lakes accesses – some under license of Transportation occupation to Local Government

Ministry of Jobs, Tourism development & marketing. Regional Tourism & Innovation Destination Marketing Organizations

Ministry of Local government legislation, funding assistance, Community, Sport intergovernmental relations and Cultural Development

CSRD Local Government - Electoral Areas C, D, E & F - responsible for waterfront parks, zoning, access and related bylaw enforcement

RDNO Local Government - Electoral Areas D, E & F - responsible for waterfront parks, zoning, access and related bylaw enforcement

TNRD Local Government - Electoral Areas B, P O & L -

responsible for waterfront parks, zoning, access and related bylaw enforcement Local

Salmon Arm Lakefront development, activities and bylaw enforcement within municipal boundaries

Sicamous Lakefront development, activities and bylaw enforcement within municipal boundaries

Chase Lakefront development, activities and bylaw enforcement within municipal boundaries

2.2.3 Business and Not-For-Profit Organizations in Study Area There are several business and not for profit organizations that operate within the study area that have a significant influence on the products, services and participation rates for tourism and recreation on the lakes. This section presents an overview of the more important players.

2.2.3.1 Organizations Responsible for Marketing Tourism in the Study Area This section describes those business organizations engaged in marketing tourism in the region.

2.2.3.1.1 Chambers of Commerce in Study Area Community Chambers of Commerce are not-for-profit organizations comprised of businesses, professionals, residents and other community groups that work together to strive for a healthy economic and socio-economic environment to benefit their community. Community Chambers provide information, education and support opportunities to promote a positive business climate in their communities. Five Chambers of Commerce organisations are active in the study area (Table 3).

Members work together for the common good of the community with a goal to build a healthy economy and to improve the quality of life in the community. The policies and programs of the Chambers are established and directed in response to members' needs and concerns. Policies and programs are also determined by a volunteer Board of Directors that usually employs a general manager to manage and execute them.

Table 3 Chambers of Commerce in Study Area

Municipality/Area Website

Salmon Arm http://www.sachamber.bc.ca/

Sicamous http://www.sicamouschamber.bc.ca/

Chase http://www.chasechamber.com/

South Shuswap http://www.southshuswapchamberofcommerce.org/

North Shuswap http://www.northshuswapbc.com/NSCC/Home.html

2.2.3.1.2 Shuswap Tourism

Shuswap Tourism is a community based destination management and marketing organization which assists in tourism development and marketing and promotional services for tourism businesses and operators within the geographic boundaries of the City of Salmon Arm, the District of Sicamous, CSRD Electoral Areas C, D, E, and F, and the Village of Chase. These services promote the long-term development and marketing of the Shuswap region to increase visitation for recreational, leisure, or business purposes. Shuswap Tourism has written a Development Plan, under Tourism BC’s Community Tourism Foundation program to guide their activities over the next few years.

In the late 1990’s and early 2000’s the Provincial Government undertook a number of tourism opportunity studies (TOS) as part of a thrust to help diversify local economies in a way that is sustainable. Most of TOS studies were undertaken on behalf of the former Ministry of Small Business, Tourism and Culture to assist rural communities, First Nations and entrepreneurs to identify new tourism development opportunities. The focus of the TOS studies was generally ecotourism, adventure travel, and heritage and culturally-based tourism development. The Shuswap Tourism Opportunity Strategy25, which was completed in 2002, profiled the region and the communities of the Shuswap to provide a context for tourism product development, evaluated trends in the tourism industry in British Columbia and in the Shuswap region, selected the most promising tourism products, mapped each product and matched communities with products, formulated action strategies and made recommendations for implementation.

2.2.3.1.3 Thompson Okanagan Tourism Association (TOTA)

The Thompson Okanagan Tourism Association (TOTA) is a not-for-profit society governed by the BC Societies Act and an elected Board of Directors who represent business and community tourism interests throughout the region. It is one of six regional tourism organizations in the province of BC that work under the Super, Natural British Columbia brand, and whose mandate includes marketing the Province’s tourism products.

25 Available at http://csrd.iwebez.com/siteengine/ActivePage.asp?PageID=96

2.2.3.1.4 Tourism BC Tourism BC, through the Tourism Division of the Ministry of Jobs, Tourism and Innovation (MJTI) is responsible for tourism marketing programs in key domestic and international markets.

2.2.3.1.5 Aboriginal Tourism Association of BC

The Aboriginal Tourism Association of British Columbia (ATBC) is a non-profit, membership- based organization that is committed to growing and promoting a sustainable, culturally rich Aboriginal tourism industry. ATBC provides training, information resources, networking opportunities and co-operative marketing programs, for First Nations entrepreneurs and communities in British Columbia who are operating or looking to start a tourism business. ATBC works closely with tourism, business, education and government organizations to help B.C.’s Aboriginal tourism businesses offer quality experiences and actively promotes these experiences to visitors and local residents.

Their vision is a healthy, prosperous, strong, respectful and dynamic Aboriginal tourism industry sharing authentic high quality products that exceed visitor expectations. Their mission is to contribute to the preservation of Aboriginal culture and advancement of economic development through support, facilitation and promotion of the growth and sustainability of a quality and culturally rich Aboriginal tourism industry in British Columbia. ATBC has developed a Blueprint Strategy for BC.

2.2.3.2 Not For Profit Organizations This section describes not for profit organizations relevant to this study that operate within the study area.

2.2.3.2.1 Canadian Coast Guard Auxiliary The Canadian Coast Guard Auxiliary (CCGA) is a not for profit organization and a registered charity made up of volunteer resources throughout Canada26. The CCGA has been in existence since 1978 and provides assistance to the Coast Guard and the National Defense with search and rescue and safe boating programs. As a culmination of several years of efforts from emergency officials and volunteers in the Shuswap, a 10- metre Coast Guard Auxiliary boat will be permanently stationed in Sicamous to perform

26 See: http://www.ccga-gcac.ca/home/home_e.asp for more information

rescues and respond to medical emergencies on the water. The boat, which will service Shuswap and Mara lakes from spring to fall, will be the only Coast Guard Auxiliary craft stationed on inland waters in British Columbia. The craft will be staffed by well-trained and well-equipped volunteers.27

2.2.3.2.2 Salmon Arm Bay Nature Enhancement Society The Salmon Arm Bay Nature Enhancement Society was formed in 1986 in response to growing pressures on the waterfront and potential loss of fragile habitat in the shallow estuary of the Salmon River, and around the Salmon Arm Bay east of the Salmon Arm wharf. Their mandate is to:

• Assist the Wildlife Branch of the provincial government with the development and operation of their management plan for the Salmon Arm foreshore as a Nature Conservancy and viewing area. • Develop, operate and promote a system of walkways, viewing areas and interpretive facilities for scientific, educational, environmental protection and public viewing purposes. • Promote environmental awareness and assist in projects meeting that goal in the Salmon Arm area.

A committee was formed to promote the purchase of approximately 40 hectares of wetland by Nature Trust BC including over 4 km of shoreline along Salmon Arm Bay. Since then the area has been enlarged by the creation of a four-hectare island that was built with material when the Salmon Arm marina was dredged next to the wharf. The society arranged for the island to be planted and sculpted, creating mounds and lagoons. In the second phase, boardwalks were built, trails pushed through and a bird tower erected overlooking the new island where a gull colony and an osprey nest are located. Elsewhere, with the help of Ducks Unlimited, two lagoons were created. Another major task was to create and place exclusion buoys 500 metres from high water, which warn boaters of the sensitive breeding area. In the third phase, a Nature House (Tom Brighouse Interpretation Centre) was set up near the band shell gazebo in Marine Park28.

27 Excerpt from Vancouver Sun and Kamloops Daily News, December 27 2011

28 See: http://www.sabnes.org/index.htmlfor more information

2.2.3.2.3 Shuswap Association for Rowing and Paddling Shuswap Association for Rowing and Paddling (SARP) is a registered not for profit society established in 2004 focused on the promotion and provision of instruction and properly equipped and safe paddling on local lakes and rivers. The Association stated mission is to promote a healthy happy lifestyle and to build a stronger community through promoting and developing paddling and rowing activities. Initially, the founding group of enthusiasts had no boat or assets. In 2006 they purchased two dragon boats, two outrigger canoes and several kayaks. Importantly, they also acquired a waterfront lease with the City of Salmon Arm to use as a base of operations. SARP also acts as the manager of the Marine Park Dragon Boat Dock located at the Salmon Arm Wharf. The Association hosts a number of events during the year and offers various instruction and clinics for outrigger canoeing, kayaking and dragon boating29.

2.2.3.2.4 Shuswap Naturalist Club The Shuswap Naturalist Club, with members in Salmon Arm and surrounding areas, is dedicated to the study, appreciation and conservation of the natural world. The club is an active and respected advocate for wildlife, natural areas, and the protection of the environment. The Club is affiliated with BC Nature, the provincial federation of naturalist clubs. They host a series of nature outings, sponsor a young naturalists club, and have prepared a variety of publications (checklists) and posters for purchase to offset club expenses. They have been monitoring and recording nesting data for western grebes in Salmon Arm Bay for the past 20 years, and they also lead several walks each year and provide short tours for bus tourists based from the local Prestige Hotel30.

2.2.3.2.5 Shuswap Trail Alliance The Shuswap Trail Alliance was formally incorporated as a legal not for profit society in November 2005 out of a year long study to consider how communities, organizations and governing bodies might work collaboratively toward a linked system of natural trail, hut-to-hut, and waterway routes for walking, hiking, mountain biking, Nordic skiing, snowshoeing, horseback riding, and paddling throughout the Shuswap .The formal purpose of the society is: to promote the development of extended trail, waterway and

29 See: http://www.shuswappaddleandrow.ca/for more information

30 See: http://shuswapnaturalists.org/ for more information

hut-to-hut routes for self-propelled/non-motorized31 four-season nature-based travel within the wider Shuswap watershed region (Shuswap River, Mabel Lake, Enderby, Shuswap Lake, Perry River, Eagle River, Seymour River, Adams Lake, and Little Shuswap Lake).

The Shuswap Trail Alliance (STA) was formed as an umbrella organization through which local trail advocates could work more effectively together with First Nations, stewardship, government, business, and community organizations. A 2-year feasibility study and regional consultation was completed in 2006, and a five-year strategic business plan was completed in November 2007 to guide the direction of the program.

The Shuswap Trail Strategy is a regional multi-stakeholder initiative working to establish the entire Shuswap watershed as a united destination trail center known for its active lifestyle, vibrant culture, natural beauty, and commitment to sustainable ecology. It acknowledges that well designed, signed, maintained, and promoted, a land and water based trail network is an asset of significant economic value32.

Support for the STA and its activity has grown steadily in the six years since its inception. The STA has worked closely with the CSRD to design and construct a variety of trail projects and has provided trail expertise and guidance to other local governments in the study area including Salmon Arm, Chase, Sicamous, and local First Nations. While primarily a trail-based organization, they also promote sustainable waterways in the Shuswap, and natural links between water and land-based activities. The entire STA initiative is predicated on the fundamental value and importance that local residents place on sustainable trails for active lifestyles, recreation, ecological awareness and economic livelihood of their communities, and the need for collaboration between individuals, stakeholders, local governments and First Nations to make them a reality33.

Note: A Parallel initiative (Regional Recreation trails and Access Management Strategy) to this effort is currently being undertaken by the Shuswap Trail Alliance to examine

31 “Self-propelled/non-motorized” includes hiking, mountain biking, canoe and kayaking, skiing, snow-shoeing and equestrian travel

32 The Shuswap Trail Alliance: Background Brief, Phil McIntyre-Paul, February 04, 2011

33 See: http://www.shuswaptrailalliance.com/ for further information

possible collaborative governance options for recreation asset and access management on the land-based portion of the study area.

2.2.3.2.6 Shuswap Environmental Action Society (SEAS) SEAS was incorporated as a not-for-profit society in 1989 with a mission to study environmental issues, to inform the public about environmental problems and solutions, to coordinate activities and share information with other local, provincial, and national environmental organizations, and to take actions to improve our the local environment. As of January 2011, there were 127 paid-up members of the Shuswap Environmental Action Society, including over 100 lifetime members. Membership fees help support SEAS activities and projects including; listserves, forums, wilderness tours, educational materials and the SEAS website.

Table 4 lists the business and NFP organizations.

Table 4 Business & Not-For-Profit Organizations

Name Role

Thompson Okanagan Regional tourism destination management and Tourism Association marketing organization

Aboriginal Tourism Growing and promoting a sustainable, culturally Association of BC rich Aboriginal tourism industry.

Shuswap Tourism Local tourism destination management and Businesses marketing organization

Chambers of Commerce Information, education and opportunities that promote a positive business climate in local communities

Canadian Coast Guard Assistance to the Coast Guard and National Auxiliary Defense with search and rescue and safe boating programs

Salmon Arm Bay Nature Assist province with management and operation Enhancement Society of Salmon Arm foreshore. Promote environmental awareness, walkways, wildlife viewing & interpretation.

Shuswap Association for Promotion and provision of instruction and safe Rowing & Paddling paddling on local lakes and rivers

Shuswap Naturalist Club Study, appreciation and conservation of the natural world. Advocate for wildlife, natural areas, and the protection of the environment Not For Profit Societies

Shuswap Trail Alliance Promote the development of extended trail, waterway and hut-to-hut routes in the Shuswap Watershed

Shuswap Environmental Environmental advocacy, information sharing and Action Society environmental awareness.

2.3 Economic Environment This section provides an overview of economic indicators and trends that have affected the tourism and recreation industry at the provincial, regional and local levels. The majority of the research and information available is developed at the provincial level, with a smaller proportion being dedicated to the regional level. Unfortunately, very little research has been conducted specifically within the study area, although Shuswap Tourism is taking steps to fill the gap. Notwithstanding this lack, factors affecting tourism at higher levels of consideration also affect the local level.

2.3.1 A Lake-Based Recreation Economy The economic impact of lake-based recreation is not well studied. Participants in the Shuswap Tourism Development Plan indicated that marketing in the Shuswap is hindered by the lack of primary survey information. As a result, visitor characteristics, spending, travel habits and perceptions of the Shuswap area are not at all understood. Marketing activities are based either on anecdotal information or in some cases data gathered by the operators themselves. Additional research would be beneficial to the Shuswap area including a Visitor Study, Value of the Visitor Centre Study and/or Perceptions research.

Unfortunately, the only extensive data that is available regarding the economic impact of tourism is regional data for the Thompson Okanagan region. Shuswap Tourism is working with TOTA to get sub-regional data for the Shuswap, but at this time it is not available34. Some general information is provided by figures from a 2007 public information bulletin released by Waterways Houseboats in Sicamous. Waterways employ over 200 people with an annual payroll of $2.5 million. They contribute $7.5 million to local business by way of houseboat rentals. They make purchases regionally over $5 million annually, and contribute over $94,000 annually in taxes35.

Also, a 2010 CSRD Parks User Survey asked tourists approximately how much money they spent during their visit to the CSRD. The majority of respondents indicated they spend between $100 and $2500 during their stay with more than half noting that their

34 Personal Communication, Robyn Cyr, Manager, Shuswap Tourism, March 27, 2012

35 Public Information Bulletin: Waterway Houseboat Marina Development, Vinje Development Properties Ltd., April 2007

length of stay was one week or more in the area.36 Although the survey sample was quite small (133 responses) for this question, it is clear that when extrapolated to the broader tourist population of the Shuswap watershed, a significant economic stimulus is generated from the tourist and recreation visitation to the area.

2.3.2 BC Parks Support the Local Economy Parks and protected areas generate substantial economic activity through expenditures by the agency (e.g., salaries, capital projects, etc.) and even more from the spending by millions of park visitors (on transportation, accommodation, food and beverages, etc.). These expenditures are an important source of economic activity for local areas near parks, particularly in remote regions. All this spending also generates spin-off economic activity, as well as tax revenue for government.

In 2010, BC Parks worked with the Canadian Parks Council to measure the economic benefits of parks and contributed to the report, "The Economic Impact of Canada’s National, Provincial and Territorial Parks in 2009" (prepared by The Outspan Group Inc., published July 2011). This report shows that:

• The $47 million in operating and capital expenditures (excludes amortization) by BC Parks and PFOs led to $394 million in expenditures by visitors. In other words, every one dollar invested in the protected areas system generates $8.42 in visitor spending on food, entertainment, transportation and other goods and services. • Provincial park-related spending generated over $28 million in tax revenues (sales and production taxes only, does not include income tax effects), returning 60 per cent of BC Parks’ capital and operating expenditures. The combined economic impact of this spending is a $392 million boost to GDP and over 5,200 full-time jobs.

2.3.3 The Tourism Economy This section describes the activities and focus of local, regional and provincial destination marketing organizations (DMO): Shuswap Tourism, Thompson Okanagan Tourism Association (TOTA), Aboriginal Tourism BC (ATBC), and Tourism British Columbia (TBC).

36 CSRD Parks & Trails Study, Kailey Canon, August 2010

2.3.3.1 Tourism in the Shuswap The Shuswap watershed is acknowledged as one of the most important tourist destinations in the interior, second only to the Okanagan Valley. Shuswap Tourism finalized a tourism plan for the region in 201037. The following section presents a summary of key information pertinent to the study area as there are a number of references to the lakes’ environment.

The Shuswap area is composed of three municipalities and several rural communities with a combined population of about 36,000. Although Shuswap Lake and its watershed is the dominant physical feature that connects the landscape, each community retains their own set of features and characteristics. Salmon Arm, containing 50% of the total study area population, is the largest community and draws visitation from local, regional, national and international markets.

Over 300 tourism businesses operate in the Shuswap study area, half of which are accommodation properties. Many of these properties, however, are resorts offering multiple activities and amenities. Adventure tourism operators constitute another important operator group as they provide guiding, rental, packing and interpretive services to destination-oriented visitors. Lake-based recreation, including houseboat rentals, marinas and charters, are popular while winter recreation features a number of snowmobile tour companies as well as a growing, but largely hidden, backcountry and catski operators group. There is a growing list of specialized tour operators focusing on non-motorized trail activities such as guided hiking and biking.

The accommodation inventory is dominated by B&Bs and vacation rentals that capture the destination nature of the Shuswap Lake experience. Five full-service hotels and 19 motels, although outnumbered by the other accommodation types, contribute roughly half of the total estimated room inventory. Twenty-eight campgrounds and RV parks in the study area account for 1355 sites.

Shuswap Tourism undertook a recent re-branding exercise to invigorate the tourism products and services in the Shuswap. One of the key “brand pillars” that was developed was Shuswap Lake as described in the following excerpt from Shuswap Tourism’s Brand Vision:

37 See: http://shuswaptourism.ca/files/Shuswap_Tourism_Development_Plan_2010.pdf.

There’s no escaping it. Our region owes much of its persona and character to the lake. It is an integral part of our lives, our livelihoods, and a major compelling reason for visitation. It is host to a wide variety of activities, a distinct visual viewscape that dominates our region, and serves to provide the reason for existence for our communities and tourism industry. It also is a key feature that differentiates us from other regions; ‘the lake’ is synonymous with ‘the Shuswap’ and we will capitalize on that established recognition.38

Shuswap Tourism’s Tourism Development Plan has identified major geographic markets including BC, Canada regional and US regional markets. Long haul markets, whether from the US or overseas, represent a smaller, but nevertheless important, source of business for the local industry. Visiting friends/relatives, outdoor/wilderness activities, general sightseeing and business are important trip purposes. The plan recognizes key trends affecting travel behavior include the increasing age of the average traveler, the increased demand for learning experiences and safe adventures, the rising Canadian dollar, rising energy costs and the wide-spread use of the Internet for travel planning.

Tourism in the Shuswap has a number of strengths including historical reliance on a set of core assets that include the lake system, a distinct four-season climate with warm, dry summers and moderate winter temperatures and proximity to the Trans Canada Highway and large regional markets in Calgary and Vancouver. A cluster of lake-side resorts and cottage developments continue to draw those seeking the traditional resort/lake experience but new recreational and cultural products are emerging that take equal advantage of the climate and natural setting of the Shuswap. With good access to surrounding major resorts, a vibrant agriculture sector, quality backcountry areas and expanding cultural experiences (including First Nations tourism), the region has the assets and the services to expand into a true four-season destination.

However, the tourism industry faces various weaknesses. The Shuswap is heavily reliant on peak summer visitation and some areas are having to deal with a loss of tourism product (e.g. campgrounds) rather than an expansion. And while the development climate was very positive before the 2008 recession, new investments in tourism product and inventory since then have been lagging. This is complicated by the fact that support for tourism as an economic engine is not that wide spread. The public at large remain to be convinced that community and rural tourism development is an economic base activity (i.e. it creates wealth) and has the added attraction of making services available to residents that would not exist if it were not for tourists. Many residents do

38Shuswap Tourism: Brand Vision, Story & Co, 2010

not understand tourism or value its development, and many businesses that cater to visitors are often reluctant to participate in tourism development initiatives. As a result the awareness of local features, facilities and attractions is poor while efforts to expand and increase the quality of services and infrastructure are lacking.

There are development challenges that will continue to affect the growth of tourism in the Shuswap area. One of the most significant is the interaction between tourism and the natural environment and related issues of overall sustainability. Land and resource use such as water protection, waste disposal, shared use of key public infrastructure (e.g. trails) and the increased use of some popular areas are attracting more and more management concern and may eventually begin to affect how visitors view and experience the Shuswap39.

Productive and effective partnerships will be needed if the Shuswap is to develop as a destination. The tourism industry itself should be more involved in destination marketing and management, while the community at large will have to be made more aware of how tourism functions as an economic base sector that builds local wealth. Partnerships with First Nations will also be critical, not just for their participation in the aboriginal tourism product, but with land and resource management within their traditional territories.

2.3.3.2 Tourism in the Thompson Okanagan Region Tourism has become a primary economic driver throughout the Thompson Okanagan Region, generating more than $1.7 billion in economic activity and attracting 3.5 million visitors to the region each year. It directly employs 15,000 people – more than mining, forestry or agriculture. There are strong indications that tourism in the Thompson Okanagan Region is growing at a faster rate than in other parts of B.C. For instance, while hotel revenue over the past 10 years rose by 33 per cent across B.C., in the Thompson Okanagan Region it rose by 55 per cent.

In order to ensure that tourism in the region continues to thrive in increasingly competitive times, TOTA40 is preparing a strategic framework that will guide its ongoing development and ensure that the benefits are felt throughout the Thompson Okanagan.

39 Source: Community Tourism Foundations® Program, Tourism Development Plan – FINAL, Shuswap Tourism, BC, March 31, 2010

40 See: http://www.totabc.org/trellis/totabc.org for more information.

Identifying a common vision and ways in which businesses and communities can work together on strategic regional objectives will act as a catalyst and will strengthen the Region overall and the destination experiences within the Region.

The vision for the 10-year strategy is: The Thompson Okanagan will be a highly successful all-year-round destination, with a strong and attractive image that is clearly differentiated from its competitors. The region will be well known for the authenticity of its tourism offers and the cultural and environmental richness and diversity of the areas within it. The industry will be recognized for its commitment to work together to strengthen tourism for the benefit of all41.

2.3.3.3 Aboriginal Tourism in BC The Aboriginal nature-based market is comprised of travelers to BC who seek opportunities to take part in outdoor adventure or visit pristine wilderness areas with Aboriginal guides during future trips. This product-market group represents about 71% of BC’s potential Aboriginal travel market. Overall, a poor product-market match exists between the Aboriginal Nature-Based Product Market and existing opportunities in British Columbia. Future development options to strengthen the cultural component of the nature-based product market include providing: sport fishing and hunting tours; backcountry accommodation development (e.g., lodges, eco-lodges, campgrounds (RV, wilderness, National, Provincial, Forest Service); nature tours (e.g., flora and fauna viewing, hut to hut,); water based tours (kayaking, canoeing, white water); and wilderness trails (hiking, x-country, biking)42.

2.3.3.4 Tourism in BC The tourism industry plays a significant role in the BC economy in terms of revenue earned by tourism businesses, value added to the economy by tourism activities, and creation of employment opportunities. Table 5 summarizes the value of tourism in BC from 1999-2009.

41http://www.totabc.org/corporateSite/regional-strategy/

42 Source: ATBC 2005. Blueprint Strategy p. 34.For more information on the ATBC cultural Tourism Blueprint Strategy, please see http://www.aboriginalbc.com/corporate/info/blueprint-strategy

Table 5 Summary of Tourism Economic Indicators in BC

% Change % Change Indicators 2009 from 2008 from 1999

Tourism Revenue $12.7B -6% +48%

Accommodation Room $1.7B -12% +31% Revenue

Provincial Tax Revenue $863M -7% +19%

Export Revenue $3B -11% -12%(% change from 2000)

Gross Domestic Product (GDP; $6.3B -2% +24% 2002 constant dollars)

Tourism-Related Businesses 17,814 0% +1%

Tourism Employment 128,600 -2% +26%

Tourism Wages & Salaries $4.7B +1% +52%

Strong tourism growth was demonstrated between 1999 and 2007, but was affected in 2008 and 2009 by the worldwide downturn in the economy. The tourism industry started to recover in 2010, and was expected to continue to rebound, notwithstanding future uncertainties. However, after a brief respite in 2010, the number of entries to Canada via British Columbia was down 4.3% in 2011, continuing a downward trend that began in 2001. Since 2001, the volume of travelers to the province has shrunk by roughly one-third (-33.2%). In general, US entries to Canada have been declining since 2001. Compared to the previous year, entries from the US were down 4.7% in 201143. This is due to a variety of factors including economic downturns, health & security concerns, as well as an appreciation of the Canadian dollar against the US dollar.

Despite the decline in absolute terms, however, the US still represents the largest share of total entries to Canada via BC. In 2011, travellers from the US accounted for three- quarters (75%) of total non-resident (international) travel to the province.

43 Source: BC Stats, Visitor Entries in 2011: A Year in Review

3 The Recreationists

This section describes what is known about residents and visitors in the study area.

3.1 Resident Characteristics & Socio-Demographic Patterns Resident demographics and growth trends have a significant influence on the demand for tourism and recreation facilities and services. The following are some brief community profiles together with comments on community values as expressed in OCPs and other planning documents influencing provision of recreation services and developments in the study area over the long term.

3.1.1 Columbia Shuswap Regional District

3.1.1.1 CSRD Area C Electoral Area C is comprised of several unincorporated communities and rural residents living between Shuswap Lake and Salmon Arm along the Trans Canada Highway, in hills off both sides of the highway, and on the shore of Shuswap Lake. Sorrento and the communities of Electoral Area C have a reputation as the “Leisure & Retirement Capital of BC”. The communities in Area C include Sorrento, White Lake, Blind Bay, Eagle Bay, Reedman Point, Tappen, Sunnybrae, Notch Hill, Skimikin, Carlin and Wild Rose Bay.

With a land area of 506 km2, Area C is the smallest electoral area in the Regional District. It covers just 2.0% of the total land area of the Columbia Shuswap Region, but is home to 15% of its population. The median age (52) is significantly older than for the Province of BC as a whole (41). This is due to the fact that the proportion of residents age 55+ is significantly higher than many other communities in BC. In 2006, almost 24% of the population was age 65+. Another 22% was between age 55 and 64.

The (draft) Area C Official Community Plan44 recognizes that residents of the South Shuswap have a strong relationship with the lakes. The community has expressed an interest to have improved access to the water, with beaches, recreational opportunities such as swimming, and increased boat launch facilities. A policy goal has been established “To provide a parks system that gives multiple access points to Shuswap Lake and other lakes.”

44 Available at: http://www.csrd.bc.ca/siteengine/activepage.asp?PageID=374

3.1.1.2 CSRD Area E Electoral Area E includes rural Sicamous, Swansea Point, Mara and Malakwa and these smaller communities surround the District of Sicamous. Area ‘E’ is 1,621 square kilometres (625 square miles) and comprises approximately 5% of the CSRD land base. Bordered by the Salmon and Anstey Arms of Shuswap Lake to the west and the north half of Mara Lake to the south, Area E includes extensive shoreline along these two major lakes, as well as numerous small lakes. Also included in Area E is Three Valley Gap located on a small lake on the Trans Canada Highway 15 km west of Revelstoke.

The economy of Area E is largely based on tourism and forest sectors although some agriculture takes place around Malakwa. The largest age group in the area is between 45 and 65 years old, while in BC the largest age group is between 20 to 44 years old. This indicates an aging population in Area ‘E’ with fewer young families45.

The Area E Official Community Plan46 contains an objective to “Provide parks that enable safe access to and from the shores of Shuswap Lake, Mara Lake, Eagle River and other waterways, with opportunities for water-oriented activities.”

3.1.1.3 CSRD Area F Electoral Area F, known as North Shuswap, comprises 2,920 square kilometres to the north and west of Shuswap Lake and Seymour Arm. Most of the population, however, lives in smaller communities along roughly 100 kilometres of lakeshore. These communities consist of Lee Creek, Scotch Creek, Celista, Magna Bay, Anglemont, St. Ives, Seymour Arm. Scotch Creek has the largest permanent population. A portion of Adams Lake falls within the jurisdiction of the CSRD's Electoral Area 'F'. While most of this large lake lies within the Thompson-Nicola Regional District, it forms part of the greater watershed that affects Shuswap Lake. The small community of Indian Point is located on Adams Lake. In the summer, seasonal residents and tourists, consisting mainly of cottagers, campers and boaters, significantly increase the population of these settlements. One of the main attractions is Shuswap Lake Provincial Park at Scotch Creek. There are also excellent beach areas for swimming and boating elsewhere along

45 Source: CSRD Electoral Area E Official Community Plan, 2009

46 Available at: http://www.csrd.bc.ca/siteengine/activepage.asp?PageID=122

the Lake47. In the fall, the Adams River attracts thousands of tourists to the Salmon Run and, at that time, bus loads of visitors arrive daily to view the salmon. In addition there are some small farming operations in the North Shuswap.

The median age of the population was 53.2 in 2006, compared to 40.8 in BC as a whole. Fifty-five percent of the population was age 55 or greater. In 2011, the population decreased to 2,368 (-13.3%)

The Area F Official Community Plan48 recognizes that active involvement in outdoor recreation is central to the North Shuswap Lifestyle. Therefore, goals have been established to provide improved public access to the waterfront and expand on public amenities, such as beaches and boat ramps, and further, to provide a parks system that provides multiple access points to Shuswap Lake and other lakes.

3.1.2 Thompson Nicola Regional District

3.1.2.1 TNRD Area O TNRD Electoral Area O, known as Lower North Thompson, covers an area of 5506.2 sq. km. The South Thompson Valley and Pinantan Official Community Plan49 was originally adopted in 1995. It received amendments in 2010 to include recreation and community parks policies, riparian area policies, wildlife management policies and a wildfire hazard map. The direction for recreation is “To provide outdoor recreation and conservation opportunities while minimizing recreational–resource use conflicts and preserving the rural character and environmental quality of the plan area. There is a specific policy to “Encourage the retention of unimpeded public access to water based recreational areas”.

3.1.2.2 TNRD Area L TNRD Electoral Area L covers an area 1977.9 sq. km. Area "L" is bordered by the South Thompson River to the north. It extends eastward to a point just west of Squilax, south to include Westwold and a small portion of the Douglas Lake Ranch, then West to the north end of Stump Lake and north to include the rural areas of Knutsford up to the City

47CSRD Electoral Area F Official Community Plan Bylaw No. 830, December 15, 2010

48 Available at: http://www.csrd.bc.ca/siteengine/activepage.asp?PageID=121

49 Available at https://tnrd.civicweb.net/Documents/DocumentList.aspx?ID=60561

of Kamloops boundary. It follows that boundary to just east of the Campbell Creek Industrial Park, where the boundary once again becomes the South Thompson River. The Pritchard portion of Area "L" is governed by the South Thompson Valley and Pinantan OCP.

3.1.3 City of Salmon Arm The City of Salmon Arm performs the role of a service centre for the entire Shuswap and is the central economic hub of the region. Most tourism activity occurs during the summer months when visitors are drawn to the attractions of Shuswap Lake. The City has a diverse range of parkland and outdoor recreation opportunities. The “four- season” climate, topography, lakes and natural features of the area support a variety of parks, natural open spaces, trails systems and other places for residents and visitors to enjoy.

Demographically, Salmon Arm has fewer younger (under 24) and middle-aged (25-44) people than BC as a whole, and significantly more seniors (65+) than BC as a whole50.

In the Salmon Arm OCP Review community survey, the public expressed strong support for topics related to parks and recreation. Upgrading and construction of new greenways and trails and providing more natural parks were two of the proposed strategies that received exceptionally high support. Other strategies with high levels of support included improving public access to Shuswap Lake. There is specific direction in the OCP to encourage the CSRD to examine ways in which the regional district can complement the parks, recreation and greenways functions in and around Salmon Arm, specifically opportunities for regional district involvement in the development of boating facilities (launches, landing sites and parking areas); and acquisition and development of waterfront properties for public purposes51.

3.1.4 Sicamous Sicamous is located approximately halfway between Calgary and Vancouver on the Trans Canada Highway, and is at the northern end of the Okanagan Valley. Sicamous is situated adjacent to Sicamous Narrows, and located between Shuswap and Mara Lakes.

50 City of Salmon Arm Official Community Plan – Bylaw No. 4000, November 2011

51Direction specifically for lake recreation can be found on page 109 of the OCP document: https://salmonarm.civicweb.net/Documents/DocumentList.aspx?ID=3800

The Eagle River also runs through the community. The scenic beauty of nearby mountains and crystal lakes are an attraction to both residents and visitors.

A considerable increase in the area’s seasonal population (including second home owners) is evidenced by the sale of new resort condo developments on the Sicamous waterfront. A growing summer seasonal market creates peak use patterns in the summer months particularly for outdoor facilities and services that support the resort nature of the area (e.g. trails, parking, beach and water access). The Sicamous population has a higher rate of seniors than in the BC population as a whole52. Also, there are fewer residents in their 20’s and 30’s who might be in the career, education or family formation stages of their life cycles. These statistics are significant in terms of planning for a sustainable community particularly in terms of addressing issues of affordability, employment, amenities and services.

Community response to a 2008 survey conducted by the Sicamous& District Chamber of Commerce, revealed the importance of quality of life to those who work, visit and live in Sicamous. The document, Sicamous 20/20 Vision summarized surveys from the general populace, seniors, business community, students, visitors and seasonal residents; it is notable that all groups mentioned the importance of outdoor recreation (trails, water based activities), natural environment (views, open space), community amenities (recreation and cultural services) and small-town community atmosphere. The respondents also emphasized the importance of building and protecting community amenities (waterfront walkway, Town Centre, recreation facilities).

The policies in the Sicamous OCP53express a commitment to protect and enhance the amenities that contribute to the quality of life in Sicamous. The establishment of continuous waterfront trails is a priority for the community because of their ability to enhance the resort identity of Sicamous.

52 Source: Sicamous and Area Parks, Recreation and Open Space Plan, True Consulting Group. March 2011.

53 Available at https://sicamous.civicweb.net/Documents/DocumentList.aspx?ID=18275

The Sicamous Parks, Recreation and Open Space Plan54 includes a vision, goals, and objectives for parks, recreation and open space in the District of Sicamous, and provides recommendations for park acquisition, indoor and outdoor recreation facilities, walkways/trails, beaches, culture, recreation programs, human resources and finances related to the delivery of parks and recreation services within the next 10 years. As part of the process, a community survey was conducted. Respondents identified lakes, beaches and trails as the community’s best recreational opportunities. In effect, access to the waterfront and opportunities on the water were amongst the most highly valued and sought after recreational amenities in the community.

3.1.5 Chase The Village of Chase is a picturesque little town nestled between the Trans Canada Highway on the south, Little Shuswap Lake and the South Thompson River on the east and north, and agricultural land on the west. Chase is a primary urban centre in the South Thompson Valley outside of the City of Kamloops, so this community plays a significant role within the Valley and the TNRD. While the age structure of the community is relatively even for the most part, there is a noticeable bulge in the 60+ category.

In the Chase Official Community Plan55, tourism is seen as an important avenue to economic prosperity. Tourism will be encouraged through support for local events and through overall community enhancement and promotion. Development of potential tourist attractions will be given special consideration. Also, it is an objective of Council to link parks and the Village Core by encouraging the development of linear walking and bicycling paths, particularly along public waterfronts.

3.1.6 Regional District North Okanagan

3.1.6.1 RDNO Area F RDNO Area F is located in the northern part of the Regional District. The communities within Area F include: Grindrod, Grandview Bench, Ashton Creek, Kingfisher and the recreational area at the south end of Mara Lake. Electoral Area F has a myriad of

54 Available at https://sicamous.civicweb.net/Documents/DocumentList.aspx?ID=18297

5555 Available at: http://www.chasebc.ca/docsnpics/OCP%20Bylaw%202009.pdf

tourism opportunities and caters to a large seasonal population. Grindrod straddles the Shuswap River and is a popular destination for vacationers and residents staying at Mara Lake, as it is easily accessible by watercraft. The south end of Mara Lake holds the popular Recreational Reservoir that caters to outdoor enthusiasts. The RDNO Area F has brought forth suggestions in order to improve infrastructure and tourism activities in the town of Grindrod. There is a proposal to expand on the existing Birchdale Golf Course which is located on Agricultural Land Reserve along Hwy 97A. A new hall for Grindrod Park is also underway and will provide new opportunities for recreation and tourism in the town.

3.2 Visitor Characteristics

3.2.1 Visitors to the Thompson Okanagan Region As Canadians make up about three quarters of the travel market to BC as well as to the Thompson-Okanagan Region, it is important to understand the motivations of Canadians so that tourism products can be developed to attract and maintain them. A Travel Activities and Motivations Survey was conducted in 2006 designed to examine the recreational activities and travel habits of Canadians over the previous two-year period (2004-2005)56. Results indicate that 16.9% of adult Canadians (3,631,615) took an overnight trip from another province to British Columbia (for any purpose). 76.1% (2,763,250) of those who took a trip to British Columbia report taking a “pleasure trip” to the province. Among those who took a pleasure trip to British Columbia, 49.0% took two or more pleasure trips to the province in the last two years, the second highest repeat visitor rate (behind the Atlantic Region). British Columbia was the second most frequently visited Canadian destination by Canadian Pleasure Travellers who visited another province (behind Ontario). Those who visited British Columbia are most likely to live in Alberta and Saskatchewan.

Those who visited British Columbia were much more active in outdoor activities while on trips than the typical Canadian Pleasure Traveler. They were especially likely to go downhill skiing and snowboarding, golfing and to participate in fitness activities. They were also much more active in nature-oriented activities (e.g., hiking, climbing

56 Travel Activities and Motivations of Canadian Residents: Resident Profile, Canadian Travellers to British Columbia, January 2009

&paddling), sports and games (e.g., tennis) and freshwater scuba diving and snorkeling. Canadian visitors to British Columbia prefer vacations that are physically challenging as well as intellectually stimulating. They value novelty, learning opportunities and a chance to enjoy nature and participate in a wide array of outdoor activities.57.

3.2.2 Visitors to the Shuswap Area The 2002 Shuswap Tourism Opportunity Strategy is a very useful resource document; some of the key findings relative to this study include recognition that visitors to the Shuswap region are fairly independent, and come primarily during the summer months of July and August when the lake is the primary focus. (Fig 5) They come to the Shuswap region to rent cabins, houseboats or other accommodation, and to seek out activities on their own. There are relatively few outdoor recreation providers, or traditional "resorts", compared to other regions of the province. While tourism is recognized by many as an important key to developing the local economy and achieving diversification, residents of the Shuswap region have varying opinions about what types of tourism need to be developed, and in what way. It would appear that this pattern has not changed substantively in the last decade.

Over the five-year period from 2006 to 2011, the origin of tourists visiting the Salmon Arm Visitor Centre has remained fairly consistent (Figure 5). Approximately half of all visitors are either from Alberta or from BC (non-local). Canadian visitors from other provinces average around 5%, Europeans average about 12%, US visitors generally make up about 3% and Asians/Australians another 2%. The one group that has shown an increase over the period has been the local population who have increased visitation from roughly 16% to almost 29%.

57 Source: Travel Activities and Motivations of Canadian Residents: Resident Profile, Canadian Travellers to British Columbia, January 2009

35%

30% AB 25% BC

20% Europe Local 15% Canada 10% US

5% Asia/Aus

0% Sep. 2011 Sep. 2010 Sep. 2009 Aug. 2008 Aug. 2007 Sep. 2006

Figure 5 Visitor Statistics (Salmon Arm) - Tourist Origin (2006-11)

3.2.3 Parks Users This section describes what is known about park users in the area including: BC Parks, CSRD and TNRD parks

3.2.3.1 BC Parks Many of the visitors to the study area use BC Parks. The BC Parks Household Survey 200558 provides some insight to parks users. The respondents to the survey were asked their level of agreement with the statement “Compared to other interests, outdoor recreation is important to me.” 74% of the respondents said that they either agreed or strongly agreed with the statement. These respondents were dubbed “outdoor recreation enthusiasts” for the subsequent analysis.

Outdoor recreation enthusiasts were disproportionately more numerous in the 35-54 age group, and under-represented in the 55+ age categories. When asked to define their ethnic and racial background, 78% of white/Canadians were identified as outdoor recreation enthusiasts, compared to 70% of ethnic Canadians. Stated in more general terms, a large proportion of respondents were outdoor recreation enthusiasts regardless of race or ethnic origin, but those who defined themselves as white or Canadian were somewhat more likely to be outdoor recreation enthusiasts than other

58 See http://www.env.gov.bc.ca/bcparks/publications/household_survey_report_2005.pdf

respondents. Almost all (94%) of outdoor recreation enthusiasts who also visited a park in the past 12 months said that they intend to visit in the next 12 months. Most of the outdoor recreation enthusiasts, defined above, feel that the barriers to park use are, in general, quite low. The highest barrier is park fees, which are seen as being too high by as many people who feel they are not too high. The next highest barrier was that facilities or areas are too crowded.

The survey noted that there is significant overlap between the British Columbians for whom outdoor recreation is important, and the users of the BC Provincial Parks system. In other words, the two groups are for the most part one and the same: most outdoor recreation enthusiasts use BC’s provincial parks, and most of the users of BC provincial parks are outdoor recreation enthusiasts.

Learning about the natural environment and having a range of outdoor recreation opportunities was important for roughly seven out of ten respondents, while just over half (56%) said it was important that parks provide tourism and economic development opportunities.

Virtually all respondents (95%) said that it was “Important” or “Very important” that there are provincial parks in BC, and an almost equal number (93%) said that it was “Important” or “Very important” that the provincial parks preserve wilderness.

While the principal focus of this survey was BC Parks, a number of questions tested the level of interest of British Columbians in outdoor recreation. 86% of respondents indicated that they plan to engage in an outdoor recreation activity within the next 12 months and 97% indicated that they participated in outdoor leisure activities in the past 12 months.

3.2.3.2 CSRD Parks All CSRD parks plans were community driven and involved comprehensive public consultation. The first Parks Plan (Area C-2003) included a random community survey involving telephone interviews with an unbiased selection of individuals in the community using a random sampling technique. A non-random procedure was also included in order to include the opinions of individuals who wanted to have their opinions heard even though they were not selected through the randomized selection procedure. These surveys were particularly important, because they were designed to involve a broad cross-section of the community. In the random survey, 301 people were selected at random and interviewed with a telephone questionnaire. In the non-

random survey, a similar questionnaire was made available to anyone in the community who wished to participate, and 59 people took this opportunity.

The most compelling finding of the surveys was the exceptionally high support for Area ’C’ parks. At least 85% of the respondents rated each of the potential benefits of parks as being somewhat or very important. The most important benefits were:

• Protecting natural environments (97%) • Providing places for outdoor activities (97%) • Maintaining scenic areas (96%) • Places to experience nature (95%) • Further, all types of park opportunities were supported by at least 85% of the community. The most important types of park opportunities were as follows: • Places to access the beach and waterfront (97%) • Places for children to play (96%) • Places that protect special natural or historic features (95%) • Places that provide opportunities for sports (94%) • Trails 94%

It is noteworthy that all subsequent CSRD Parks Plans contain a “waterfront” category of parks, and each planning process tested the validity of the parks categories used. In each case, the majority of candidate parks identified were in the waterfront category – a reflection of the importance of waterfront access and water-based opportunities to residents of the study area.

In the summer of 2010, the CSRD conducted household and user surveys motivated by a desire for basic public feedback regarding the CSRD Parks’ Program since it began operations in 2005. Understanding the needs and interests of the park visitor as well as perceptions and feelings of local taxpayers was seen as integral to improvement of the parks program.

The results of the study suggest that CSRD parks attract visitors of all age groups, and who call many different places home. From Salmon Arm residents, to international visitors, it is clear that CSRD parks are hosting visitors from outside of CSRD electoral areas. One of the main attractions of the CSRD is without a doubt Shuswap Lake, and it follows that people want lake access. The study gathered the most on-site surveys from lakefront parks because they consistently had the highest number of visitors. Beaches and lake access dominated as the top uses of CSRD parks, and several anecdotal

statements were made regarding the need for lake access for all – not just lakefront property owners59.

3.2.3.3 TNRD Park There are no TNRD Parks within the study area.

59 CSRD Parks & Trails Study: Final Report, Kailey Canon, August 27, 2010

4 Lake Based Recreation Activities in the Study Area

The following activities are described in the context of the study area. The summaries provided are based on available data that is considerably lacking in most instances. Therefore the information should not be considered comprehensive.

4.1 Motorized Lake-based Activities

4.1.1 Pleasure Boating Of all the activities that take place on the lakes of the Study area, power-boating (motorized pleasure craft including personal watercraft (jet-skis/seadoos, water-ski boats, fishing boats, pontoon boats, etc.) is one of the most popular and possibly the most contentious at the same time. Boating takes place from marinas, public accesses, parks, waterfront resorts, private residences, condominium or strata developments and from many informal access points around the lakes. Currently, very little information is available on participation rates for boating (of any kind) in the study area. Some data is captured by BC Parks Operators, but it is specific to houseboats (see Houseboating). The following Park Attendance – Boating statistics provided in the BC Parks Statistics Report 2010/11 are actually camping permits that are sold to parties who arrive by boat60.

50,000 39,190 40,000 32,026 32,560 26,192 30,000 20,000 10,000 0 2007/2008 2008/2009 2009/2010 2010/2011 % Change 09/10 to 10/11 (-33.2%)

Figure 6 Shuswap Lake Marine Park - Boating61

Figure 6 indicates that an average of 32,500 camping permits was sold for Shuswap Lake Marine Park over the last few years. Permits are issued to the vehicle (boat in this case) and BC Park uses a multiplication factor of 3.2 to arrive at the number of people

60 Personal Communication, Elaine Gustafson, Area Supervisor, Shuswap Lake Marine Park

61BC Parks Statistics Report 2010/11, BC Ministry of Environment, June 2011

camping per vehicle. If 32,492 boats arrive at Shuswap Lake Marine Park, this means that approximately 103,974 people camp at the Park between mid-May and mid- September in any given year. This does not account for day-use visits, and undoubtedly represents only a fraction of the total power-boat traffic on the lake.

In 2010, Bernhard Kramer of Shuswap Lake watch conducted an independent boat count using volunteers over the July long weekend (July 30, 31 & August 1) at three locations (Blind Bay, Salmon Arm and Sicamous). During the recording period a very high number of boats were recorded and classified by type and activity. While the effort is praiseworthy, the reliability of results is unknown62.

The Shuswap Watershed Mapping Project identified 200 concrete boat launches63. Only concrete boat launches were counted during the assessment. This total does not include gravel accesses to the lake. It is probable there are at least an additional 50% or more vehicular accesses to the lake on private and public lands. Shuswap Tourism lists six boat launches in the area (no such listing was found for Adams Lake):

1. Canoe Beach Public Boat Launch – Salmon Arm 2. Windsor Road Boat Launch – Swansea Point near Sicamous 3. Markward Road Boat Launch – South Shuswap 4. Marine Peace Park Launch – Salmon Arm 5. Shuswap Lake Provincial Park – North Shuswap 6. Harbour Road Boat Launch – South Shuswap.

The Shuswap Watershed Mapping Project also identified a total of 51 marinas with greater than 6 boat slips. Most of the marinas are small privately owned moorages that are part of resort or condo/strata developments catering to guests or residents respectively. However, there are 10 commercial marinas on Shuswap Lake & Sicamous Narrows and 1 commercial marina on Adams Lake; no commercial marinas are located on Little Shuswap or Mara Lake. These 11 marinas provide a total of 1704 summer season wet moorage spots in the study area. Each is described below:

62 See http://shuswaplakewatch.com/ for more information.

63 Source: Shuswap Watershed Mapping Project, p 31.

1. Anglemont Marina (summer wet moorage = 100) is located in the North Shuswap, is a small commercial marina with a general store, fuel dock, pump-out station, and seasonal and overnight moorage as well as boat storage. 2. Bayside Marina (summer wet moorage = 200) in Blind Bay features, moorage, a general store, and boat rentals, water toy rentals, pro shop and boat launch. 3. Captain’s Village Marina (summer wet moorage = 250) is located on the north shore of the main arm of Shuswap Lake in the community of Scotch Creek, BC. The Marina has moorage, a boat launch, new and used boat sales, a boardshop, restaurant and a proposed real estate development. 4. Captains Cove Marina (summer wet moorage = 220) is located 5 minutes east of Salmon Arm, is a full service marina. They have summer and winter storage for approximately the same number of boats. 5. Full Speed Marina (summer wet moorage = 24) in Sicamous has boat rentals including seadoos, sport boats specialty boats and pontoons. Along with rentals they have services such as sales, storage, mooring (wet & dry land), winterizing and repairs. 6. Little River Boatworld (summer wet moorage = 400) is a fully integrated marine business and boat dealership located on Shuswap Lake between Chase and Sorrento. They sell new and used boats, trailers and also offer summer moorage, winter storage and fuel sales. Boatworld has a full parts and service department for boat repair needs and an assortment of marine hardware, accessories and water toys. This Marina has moorage, a boat launch, trailer storage and parking for mooring customers. The Marina also has 11 indoor, secured-storage buildings with a total combined dry storage capacity for 200+ boats. 7. Shuswap Marina (summer wet moorage = 260) located 6 km from the Trans Canada Highway on Blind Bay Road between Blind Bay and Sorrento, BC. The full-service marina provides a boat launch, summer moorage and winter storage, used and consigned boat sales, boat & toy rentals, service & parts department, fuel sales, marine hardware. 8. Sicamous Marina (summer wet moorage = 78) is a full service marina located in Sicamous between Shuswap and Mara Lake. Services include marina fuel, wet moorage for boats and personal watercraft, dry storage and enclosed heated storage, marine technicians servicing, on-site fiberglass and gelcoat repairs, boat detailing, restrooms & shower, buy, sell, trade & consign boats & trailers. Sicamous Marina has wet a dry storage capacity for an additional 200+ boats.

9. Sunset Cove Marina & Grill (summer wet moorage = 88) in Blind Bay has wet moorage and dry storage for approximately 10 boats. They also offer 18 drive up, temporary boat moorage for restaurant guests. 10. The Marina (summer wet moorage = 52) in Sicamous specializes in boat moorage, boat storage, boat repairs, boat parts, service and accessories for boats on the Shuswap Lakes and Mara Lake. It is located 200 meters from the south eastern edge of Shuswap Lake and 1km north of Mara Lake on the Channel (Sicamous Narrows). The Marina has dry storage capacity for 100 boats. 11. Marnie’s Bay Marina (summer wet moorage = 84) on Adams Lake has a fixed raised walkway extending 15 m into the lake, where it ramps down to a floating main dock.

4.1.2 Houseboating Houseboating is particularly profiled because of its recreational and economic significance in the study area. Houseboating may have had its genesis in the study area more than a century ago when sternwheelers were the main carrier on the lakes, providing freight and passenger connections between communities for connections to the CPR Mainline at Sicamous via the Shuswap& Okanagan Railway. Smaller launch- sized vessels provided passenger service to smaller settlements around the lake, as well as excursions for tourists.

In more recent years the houseboat industry has flourished in the Shuswap, to the point where the Lake now accommodates the highest houseboat numbers on any inland waterbody in the Province64. Today there are at least three major houseboat companies (Waterway, Twin Anchors, Blue Water) providing a large fleet of houseboats for vacation rentals on Shuswap and Mara Lakes. In 2011, 178 commercial houseboats were registered with BC Parks, down from approximately 225 houseboats 5 years earlier. This reduction is due in part to challenging economic times, but also to the construction of larger houseboats that can contain more passengers. Larger vessels command higher rentals and are more economical, enabling the removal of older, smaller vessels from the fleet. Houseboats also need to be bigger to accommodate larger holding tanks for grey water.

64 Source: Evaluation of Risk from Houseboat Greywater discharges to Recreational Water Users on Shuswap Lake Beaches, BC Ministry of Environment, December 2009.

In addition to the commercial fleet of rental houseboats, there are a number of privately owned houseboats that ply the lake. No hard numbers are available on privately owned houseboats, but it possible that there could be as many as 100 on the lake (top estimate)65.

BC Parks Operators conduct a daily visual tally of the number of houseboats visiting sites of Shuswap Lake Marine Park between May 1 and September 30. (Figure 7) This is an informal survey and houseboats are counted only during the period the operator is at each site, therefore houseboats that come earlier or later are not counted. (Note: houseboats often come ashore late in the day when looking to tie up for the night.)

30000

25000

Total 20000 13565 September

10805 August 15000 9800 2351 8460 8650 July 10000 1385 June 4417 1377 1165 1247 3901 3398 May 2513 2774 5000 4201 3220 2600 2725 3443 2091 1339 1685 1438 1599 0 505 466 497 466 477 2005 2006 2007 2008 2009

Figure 7 Visual Tally of Houseboats - Shuswap Lake Marine Park66

4.1.3 Fishing Fishing is a significant activity in the study area. Fishing itself is a non-motorized activity, but since it very often takes place from a motorboat, it is considered a motorized activity for the purpose of this study. Shuswap Lake, with a surface area of 310 square

65 Personal Communication: Carol Danyluk, BC Ministry of Environment, March 08, 2012

66Source: BC Parks – Visual Tally of Houseboats 2005-2009, Elaine Gustafson, Shuswap Lake Area Supervisor

km., is the largest lake in the region and supports one of the most diverse recreational fisheries in the province. The 2010 Shuswap Lake Angler Survey67 indicates that this lake is the nursery area to the largest sockeye population in British Columbia that spawns in the lower reaches of the Adams River as well as a few other rivers including the Eagle. It is the most important nursery system for the world famous Adams River sockeye population, the largest in the Fraser River system. While the lake is best known for its production of sockeye, other commercial species of salmon, coho and chinook, also spawn and rear in the lake’s numerous tributaries. Kokanee, bull trout, rainbow trout, lake trout and mountain whitefish are the primary sport fish species of interest to Shuswap Lake anglers.

7000

6000

5000

4000 Resident

3000 Non-resident Grand Total 2000

1000

Figure 8 Fishing License Sales by Residency (1994-2010) 68

License sales have demonstrated relatively consistent numbers from year to year with a recent peak in 2008 and small declines since then. Amongst all 17 years surveyed, 2001 had the highest sales and 2003 had the lowest. (Figure 8)

67Shuswap Lake Angler Survey, 2010 Data Report (Draft), Greg Andrusak, December 2011

68 Table reproduced from Shuswap Lake Angler Survey, 2010 Data Report (Draft), Greg Andrusak, December 2011

The estimated angler effort (angler-days) for rainbow trout has shown very little variation over the years, ranging between 20,000 and 24,000 days. (Figure 9) Lake Char fishing on Shuswap Lake is far less intensive than for rainbow trout. The angler effort for Lake Char is about one quarter that for rainbow trout, and has shown a declining trend in the last few years up until 2010, when there was a slight increase.

180000

160000

140000

120000

100000

80000

60000

40000

20000

0 1994 1995 2003 2004 2005 2006 2007 2008 2009 2010

Esmated rod hours Esmated angler days Esmated total harvest

Figure 9 Summary of Angler Effort, Harvest & CPUE (1994, 1995, 2003-2010) 69

In the spring and fall, the largest conglomeration of anglers occurs in a few locations like the mouth of the Adams River, Little River, and the mouth of the Eagle River. During the summer months, fishing activity is more spread out around the lakes, with most activity taking place near tributary mouths70. BC residents represent the majority of all anglers (81%) with 18% from the rest of Canada (mostly Alberta) and less than 1% from the USA.

69Figure reproduced from Shuswap Lake Angler Survey, 2010 Data Report (Draft), Greg Andrusak, December 2011

70 Andy Morris, MOE, Fish & Wildlife Branch, Personal Communication, March 08, 2012

4.2 Non-Motorized Lake-Based Activities

4.2.1 Canoeing & Kayaking The lakes and some of the major tributary rivers of the Study area provide a variety of opportunities for canoeing and kayaking, from beginner to advanced levels of experience. Some participants plan for a leisurely paddle on a lake while the more experienced seek out fast water for an adrenaline pumping white water thrill.

Some of the rivers in the Study area are easily accessible by vehicle while others are situated in more rugged backcountry regions tucked away in remote wilderness locations. Some paddle routes on some of the rivers include very well signed put-in and pull-out markers while other rivers have no markings and paddlers must rely on their own research and experience to find access.

While there are no readily available statistics on the number of participants in canoeing and kayaking in the study area, anecdotally, it is apparent that there has been an increase in this activity over the past decade. There are several businesses that have been established to cater specifically to paddling enthusiasts on the lakes. The vast majority of tourism and recreation businesses in the region promote the variety of water-based opportunities on the lakes including canoeing and kayaking.

With the support of groups like the Shuswap Association for Rowing & Paddling, dragon boating in the area has seen a recent surge in popularity, and has become a major community festival attracting hundreds of participants from all over BC and Alberta.

4.2.2 Whitewater Rafting River rafters are a niche market for British Columbia. While a small niche market, River Rafters are nearly one and half times as likely to have travelled to British Columbia recently as would be expected given their share of the total Canadian pleasure travel market. River Rafting seems to be particularly popular among pleasure tourists who reside in the larger cities such as Montreal, Vancouver, Edmonton and Toronto. Vancouver is home to about 1in12 adult Canadians but significantly more River Rafters (1 in 7) live in the city71.

White water rafting activities have grown steadily since the mid 1980’s. In the Study area, this activity takes place on the lower Adams River between Adams Lake and

71Canadian Tourist Profiles: White Water Rafters, November 2008

Shuswap Lake where there is easy road and public access to the river. Adams River Rafting Ltd runs rafting tours on the Adams River from early May to mid-September. BC Parks statistics indicate 2,807 people rafted the Adams River in 2011 using these guided services. A number of public recreationists descend the river in a variety of craft (canoes, kayaks, rubber tubes); however, the level of participation is not known.

4.2.3 Swimming The clear and relatively warm waters (summer surface water temperatures often exceed 20°C from July to September) of Shuswap and Mara Lakes are a major part of the attraction of the area for residents, tourists and recreationists alike. There is an abundance of both provincial and regional parks with good swimming beaches, but these do not have lifeguards on duty. Most locations do not have designated swimming areas, but the larger, more popular beaches do have cordoned-off areas (Table 6) Additionally, more than 2700 docks72 of various shapes and sizes around the lakes also provide a platform for this activity.

Table 6 Designated Swimming Areas

BC Parks (Provincial) CSRD Parks (Regional) Municipal

Herald Park Scotch Creek Wharf Canoe Beach, Salmon Arm Road Park

Cinnemousun Magna Bay Wharf Sandy Point, Salmon Arm Narrows Road Park

Shuswap Lake Park Ross Creek Park Pierre’s Point, Salmon Arm

Roberts Bay Lakeview Park Finlayson Park, Sicamous

Silver Beach Beswick Road Park Memorial Park, Chase

Mara Park Gillespie Road Park

Blind Bay Park (2 locations)

Shannon Beach

72 Source: Shuswap Watershed Mapping Project

Swansea Point (2 locations)

Note: Swimming areas are designated by signage and cordoned-off zones. There are no TNRD Regional Parks in the Study Area

As swimming is an informal activity that takes place at random times and locations, numbers of participants have not been tracked. It is known that when warm weather coincides with long weekends during the summer, most of the larger beaches on the lakes are busy, if not crowded. People also swim from docks, boats, and houseboats. This is an activity requiring further study.

4.2.4 Bird-watching There are many lakes, rivers, estuaries and wetlands in the Shuswap region ideal for bird-watching enthusiasts. The most important of these locations is the wetland surrounding Salmon Arm Bay. Other good locations for birding include White Lake, Eagle River, the old burn (forest fire) area on Mount Ida south of Salmon Arm, and the lower Adams River – especially during the fall Salmon run. The birding season runs from early April to late October.

Salmon Arm Bay has gained the reputation of being a birding destination as it is one of the largest intact wetlands remaining in the interior of BC. It is particularly well known for grebes, and is one of the last remaining nesting areas for the Western Grebe in British Columbia, with its elaborate “dancing” mating ritual.

The grebes are soon to become the subject of a BBC/CBC documentary chronicling the life cycle of western grebes. Naturalist clubs from around the Southern Interior of BC plan annual field trips to Salmon Arm Bay to coincide with various birding events such as the nesting grebes or the fall migration of shorebirds. Birders also come from the lower mainland, Vancouver Island, as well as Germany, England and Sweden to view birds in Salmon Arm Bay73.

The number of participants in this activity is hard to estimate. From anecdotal evidence it appears that several hundred “birders” make a specific trip to the area to participate in bird-watching activities each year. It is likely that several hundred more participate in

73 Personal Communication, Ed McDonald, President, Shuswap Naturalists, March 07, 2012

bird-watching as part of a trip combining a variety of other outdoor activities such as camping, fishing, or boating. This is an activity that is likely to increase in the study area in years to come as wetlands elsewhere diminish and media events such as the above noted documentary spread the word to a wider audience.

The Tom Brighouse Interpretation Centre in Salmon Arm Bay operated by the Salmon Arm Bay Nature Enhancement Society (SABNES) (See Section 4.2.2) has a number of static displays and video programs that interpret the bay and its bird life. In 20ll, between mid May and the end of August, 4911 visitors were recorded as visiting the centre or bird watching on the wharf or nearby nature trail. A “guest book” where visitors can sign their name and their place of origin is kept by the Society and it reveals that visitors come from all over the world (including New Zealand, Holland, Germany, Britain, Spain, France, Switzerland, Czech Republic, USA, Italy, Belgium, Hong Kong, Taiwan, Scotland, and Australia) to visit this special place.

4.2.5 Camping Although it is difficult to quantify, lakeside camping is thought to have been in diminishing supply around the lakes over the last decade or more. As waterfront property has become more expensive, some campgrounds have been turned into condo/strata developments that command a greater return to the owner/investor. However, there remain over 20 campgrounds /RV resorts that are either located directly on the lakeshore or are close enough that they actively promote ease of access for lake- based activities. See Table 7 below.

Table 7 Campground On/Near Lakeshores in Study Area

Name Location

Adams Lake Provincial Park (Bush Creek) Adams Lake

Blind Bay Resort Blind Bay

Magna Bay Resort Magna Bay

Mara Camping and RV Mara

Apple Grove Motel, Campground & RV Park Salmon Arm

Glen Echo Resorts Salmon Arm

Greentrees Campground and RV Park Salmon Arm

Hidden Valley Camping & RV Park Salmon Arm

Pierre’s Point Family Campground Resort Salmon Arm

Salmon Arm Camping Resort Salmon Arm

Salmon River Motel & RV Park Salmon Arm

Sandy Point Beach Campground Salmon Arm

Viewpoint RV Park & Cottages Salmon Arm

White Water Slides RV Park Salmon Arm

Shuswap Lake Provincial Park Scotch Creek

Silver Beach Provincial Park Seymour Arm

Shuswap Lake Marine Provincial Park North Shuswap

Alpiner Motel & Campground Sicamous

Homestead Campground & RV Park Sicamous

Sicamous KOA Sicamous

Silver Sands RV Resort Sicamous

Shuswap Lake Motel, Resort & Campground Sorrento

Herald Provincial Park Sunnybrae

Sky Blue Waters Resort, Tappen

Sunny Shore Fishing Resort White Lake

White Lake Provincial Park White Lake

Woodhaven Campground White Lake

BC Parks is a major supplier of camping opportunities in the study area, and is the only source of readily available information on numbers and trends for camping attendance. According to BC Parks74, overall park attendance has increased by about 9% since 2004. Attendance in 2009/10 was 2.9% higher than normal, largely due to exceptional summer weather. Higher 2010camping fees impacted attendance in some campgrounds and nearby day use areas.

Adams Lake (Bush Creek) Cinnemousun Narrows Herald Shuswap Lake Marine Shuswap Lake Silver Beach White Lake

80,000 70,000 60,000 50,000 40,000 30,000 20,000 10,000 0 2007/2008 2008/2009 2009/2010 2010/2011

Figure 10 Camping Attendance in BC Parks in Study Region

Camping attendance has shown a slow, steady increase in the Thompson and Okanagan Regions between 2005 and 2009, but declined somewhat in every region in 2010, with an overall decrease of 6.4%. (Figure 10) The increase in camping fees implemented for 2010 affected attendance across the province. The number of campers decreased 4.5% in the Thompson Region and 3.6% in the Okanagan Region between 09/10 and 10/11 camping seasons. Poor weather, increased fuel costs, the strong Canadian dollar and the U.S. economic recession also led to a decline in US visitors. Marine attendance, in general, is strongly affected by weather (dropped by 9.3% overall). In addition, campfire bans contributed to decreased attendance in the Thompson and Okanagan Region campgrounds.

74 http://www.env.gov.bc.ca/bcparks/research/research.html,

80.00% 68.10%

60.00% Adams Lake (Bush Creek) 40.00% Cinnemousun Narrows

20.00% Herald 3.60% 0.00% Shuswap Lake Marine -3.10% -20.00% -9.10% Shuswap Lake -18.10% Silver Beach -40.00% -37.70% White Lake -60.00%

Figure 11 Percentage Change in Camping (09/10 - 10/11)

Shuswap Lake Marine Park showed a 37.7% drop in camping attendance in 2010/11 (3,210 down to 2,000) that was largely attributable to poor weather conditions75. (Figure 11) Silver Beach Park had a 68.1% increase, largely due to the temporary wildlife (bear) closure of nearby Albas Park during the main camping season of 201076

75 Source: BC Parks Statistics Report 2010/11, BC Ministry of Environment, June 2011

76 Source: Personal Communication: Elaine Gustafson, BC Parks Area Supervisor, Shuswap Lake Marine Park, March 08, 2012

5 Analysis of Links between Recreationists, Recreation and Supporting Environments

This section discusses what is known about residents’ and visitors’ values towards lake based recreation in the study area. A value is defined as a belief or a philosophy that is meaningful77. What is meaningful in life are things that are truly valued. Once an individual or organization identifies their values, strategies are usually developed to promote an appropriate course of action and to energize individuals associated with a particular issue to achieve positive outcomes78 The SLIPP management process represents efforts by local organizations to clarify a core set of values that promote a desirable visitor experience that is safe and sustainable.

As part of the process of gathering information regarding recreational values and possible solutions, SLIPP held a series of strategic planning consultations consisting of several public meetings and technical working group meetings in 2007 and 2008 to identify the issues influencing the public’s core set of values about the Shuswap Lakes. This preliminary research pulls from a number of prior consultation processes in the region. A summary of results is presented in Appendix A. These social, environmental and economic values and issues are discussed in turn below and represent the first stage in clarifying a list of recreational management priorities for the region.

5.1 Social Issues At these previous SLIPP public consultations, the Public Advisory Committee and Technical Team members heard a litany of complaints about inappropriate and/or illegal behaviours taking place on the lakes a consequence of the lakes are being “loved to death.”The conundrum facing policy makers and regulators is that official community plans in the watershed clearly identify access to the lakes and developments that facilitate that access, as a top priority. Additionally, tourism organizations promote the lakes as a recreational attraction. Table 8 presents a combined summary of social issues identified through earlier SLIPP consultations.

77 Source: Posner, R. 2012. The Power of Personal Values. Growth Online.

78 Ibid.

Table 8 Social Issues Identified Through Early SLIPP Meetings

Recreation conflicts occur in high-use areas (Copper Island, Magna Bay, Blind Bay, Sicamous Narrows, Cinnemousin Narrows, Eagle River, Nielsen Beach, Marble Point, Hungry Cove)

Non-motorized users have limited safe areas to recreate

Dangerous operation of motorized boats / Drinking and boating

Noise pollution from loud boats and parties / Fireworks issues

No speed limits on lakes (except shorelines and tributaries)

Access limited by lack of public/community infrastructure (docks, boat launches, beaches)

Access impeded by illegal structures in shoreline area (docks, boat launches, buoys etc.)

Unauthorized activities: houseboat moorage (Locations and/or duration); vandalism, illegal/inappropriate behaviour

Limited public parking at lake access points / Illegal parking practices

Limited and poor quality signage for Rec. Mgmt. regulations and guidelines

Insufficient enforcement of existing regulations and legislation

Lack of data identifying / differentiating values & issues among permanent residents, seasonal residents, and visitors.

Lack of data on boating types, activities and numbers.

5.2 Environmental Issues There is very little research documenting the direct environmental impact of recreational activities in the study area. However, in early 2008, as part of the move towards better governance and environmental stewardship, the CSRD, in partnership with Fisheries and Oceans Canada (DFO) and the BC Ministry of Environment, applied and received funding from the Real Estate Foundation of BC and the Fraser Salmon Watersheds Program to conduct the Foreshore Inventory Map (FIM) of the Shuswap

Lake watershed. The results of this study that can be associated, at least to some degree, with recreational activities, are provided below.7980

5.2.1 Shoreline impacts Based upon the results of the FIM survey, of the 406.2 km of shoreline, 57% of Shuswap& Mara Lake shorelines are estimated to remain in a more natural state (no, low or moderate impact). Seymour Arm, Sicamous Arm, Cinnemousun Narrows and Anstey Arm are the most natural areas. The remaining 43% of the shoreline has been classified as disturbed. Sicamous Narrows, Mara Lake, Little Shuswap, and the main Arm and Sicamous Arm of Shuswap Lake are the most impacted of the different watercourses. This is due to the proximity to the more urban centers of Sicamous, Salmon Arm, and Chase and due to access constraints in more remote areas of Seymour and Anstey Arm. The level of impact is described in Figure 12.

High Levels of Impact Moderate Levels of Impact Low Levels of Impact Lile to no Impact

43% 32%

17%

Figure 12 Shoreline Impact Levels

Activities that impact the shorelines are described below:

79Shuswap Watershed Mapping Project: Foreshore Inventory & Mapping, Ecoscape Environmental consultants, June 2009

80 No such similar data is available for Adams Lake at time of writing

• Docks for the most part, are constructed for recreational purposes. The FIM Project identified docks as the most common habitat modification, with a total of 2,789 observed. However, nearly all docks observed were not constructed following best management practices that require elevated walkways on piles to floating portions in deeper water zones at low water level. In many areas, these docks were observed grounding (i.e., floating portions were not elevated at low water level), were not elevated, or were left at the water’s edge. Further, in many cases, the structures were so large that motorized equipment (e.g., quads, trucks, etc.) was required to pull them up on shore for winter. Although individually the impact of non compliance is small, cumulatively the impacts are noticeable (i.e., numerous grounding docks in shore spawning zones can potentially limit access to spawning areas).

• Retaining Walls were the next most common modification, with a total of 1,529. In many cases, retaining walls extended beyond the high water level of the lake, and construction practices were not compliant with Best Management Practices. It is estimated that nearly 48% of the retaining walls observed were constructed below the high water level. These retaining walls occupied approximately 13% of the shoreline, or over 52,000 m (i.e., 52 km). Retaining wall construction around the lake was apparent in nearly all areas, even remote cottage areas. Retaining walls were constructed out of varying materials, but often substrates from the lakebed were used to construct the walls. Surveys during the spring at high water level were conducted and it is estimated that 746 retaining walls have been constructed below the high water level. In one observation, a retaining wall was constructed below the high water level in a newly created subdivision with a Section 2.19 restrictive no build / no disturb covenant registered to protect riparian and foreshore areas. The above example highlights that even in cases where riparian and foreshore protection mechanisms are being used, impacts are still occurring. As mentioned above, it is probable that many of the retaining walls observed have been constructed without a Water Act or Fisheries Act approval.

• Groynes were the next most commonly observed modification, with over 1,170 observed. Lakebed rocks and boulders were most commonly used to construct groynes and often construction required the use of heavy equipment. The use of lakebed substrates to construct groynes has resulted in significant impacts to emergent vegetation and shore spawning areas, among others. Groynes along 75

the shoreline were not typically constructed to protect boats or for sediment control, but rather, the groynes were constructed to improve access and create gravel/sand beaches for recreational purposes. The construction of groynes has resulted in the loss of aquatic vegetation (actual loss has not been determined), a loss of productivity along the shoreline, the alteration of shorelines from a rocky shore to gravel or sand beaches, has covered valuable fish habitat, has resulted in the erosion of shoreline and lake bed substrates, and has most likely resulted in reduced shore spawning success due to sedimentation impacts. In many cases, the construction of groynes required the use of heavy equipment, and in one circumstance a groyne of over 6 vertical feet with large boulders was observed. All groynes observed were constructed on Crown lands below the high water level, and it is likely that many, if not all, were not permitted under the BC Water Act or Federal Fisheries Act.

• Boat Launches - a total of 200 concrete boat launches and 51 marinas identified along the shores of Shuswap and Mara Lakes. Substrate modification was observed on 25% of the shore length and was most commonly associated with the large number of groynes, retaining walls, transportation land uses, and sand importation to create beaches. Numerous private boat launches constructed out of concrete were observed. These boat launches were almost all associated with vehicular access, which impacts riparian vegetation. It is conservatively estimated that these boat launches have resulted in the loss of at least 2,500 m2 of habitat around the lakes (assuming the average boat launch is 2.4 m wide and 6 m long, which is presumed to be an underestimate given the large drawdown on Shuswap Lake). It is likely that most of these boat launches were constructed without a provincial Water Act or federal Fisheries Act approval.

• Beach Clearing/Grooming - in many areas, it is apparent that aquatic vegetation has been lost due to foreshore disturbance such as substrate modification. In these areas, emergent riparian vegetation (e.g., willows and cottonwoods), grasses and sedges, and other types of vegetation have all been cleared. It is believed that most of this vegetation removal is the result of beach creation (i.e., beach grooming for swimming and other recreational purposes). The losses of soil material that aquatic vegetation grows will likely take years or decades to naturally regenerate, if it does at all. In one instance, a “beach mining” operation was observed on the foreshore, which included equipment for moving substrates and gravel screeners. The continued losses of this vegetation will 76

further impact juvenile salmonids during high water in the spring when they are known to feed upon organisms within the vegetation (Adams and Haycock, 1989).

Other significant losses, including those from disturbance of riparian vegetation, log handling sites, boat wake erosion, abandoned docks, Crown land trespass and buoys was observed during the FIM survey however, detailed assessments and quantification of these impacts were not fully assessed.

5.2.2 Water Quality Impacts from Houseboats A fleet of up to 300 houseboats plies the waters of Shuswap and Mara Lakes during the summer period. Most houseboats used on the lakes during this time are rental boats that provide running water in fully equipped kitchens and bathrooms (toilet, shower, sink). All rental boats prevent black water (toilet wastewater) from entering the lake by collecting it in onboard tanks that are pumped out into land based sewage systems after each journey. However, very few boats provide the same for household grey water (kitchen and bathroom sinks, showers, bath tubs, hot tubs). The grey water of most boats is directly discharged into Shuswap Lake, although provincial legislation prohibits the discharge of grey water into inland waters81.

Greywater can contain nutrients, bacteria, viruses and a variety of chemicals, including endocrine disruptors, associated with detergents and personal care products. Poorly diluted greywater can cause impacts on human health, which may include gastroenteritis (e.g. stomach flu, beaver fever) and other infectious diseases. The cumulative effects of multiple vessels discharging greywater may result in long term disruption of natural nutrient levels and subsequent impacts on the natural ecology of the waterbody.

The Ministry of Environment is currently working with the houseboat industry to develop a compliance strategy to meet the discharge regulations as soon as possible. All newly constructed vessels must have on-board containment and options are being investigated to deal with the current paucity of pump-out and treatment facilities to

81Evaluation of Risk from Houseboat Greywater discharges to Recreational Water Users on Shuswap Lake Beaches, BC Ministry of Environment, December 2009.

process the effluent82. Table 9 provides an indication of progress on modifications made by houseboat companies to eliminate or reduce the impact of greywater discharge.

Table 9 Houseboat Modification for Greywater Elimination to Date by Company83

Modification Waterway Twin Blue Anchors Water

Educational material on greywater provided and discussed at pre- √ √ √ boarding orientation meetings

Bio-degradable soaps and cleaning products provided for use on √ √ √ board

Scent free and EDC free soap products developed and being used on √ vessels

R&D done regarding greywater treatment before discharge √ √

All kitchen and bar sinks and some showers are plumbed to √ √ blackwater tank

Clothes washing machines have been removed from vessels √ Don’t offer washers

Hot tubs are locked out to prevent discharge to the lake √

Older boats unable to contain greywater will be removed from the √ fleet over the next several years

New vessels being built are 100% greywater contained √

MOE/SLIPP greywater and green boating brochures and √ √ posters provided on board for educational purposes

82 Personal Communication: Carol Danyluk, BC Ministry of Environment, March 08, 2012

83 Chart tracking progress from companies in achieving greywater reduction and containment: Verbal reports – not confirmed by inspection, BC Ministry of Environment, March 2012

√Indicates compliance with modification

With the high houseboat densities in Shuswap Lake and large numbers of boats docking at BC Parks Beaches, such as Nielson Beach, Marble Point and Hungry Cove, there is concern that greywater discharges, particularly from showers, may result in a health risk for swimmers. This concern is supported by various studies (Casanova et al, 2001; Rose et al, 1991; Birks et al, 2004) that show persistence of pathogens in greywater and fecal bacteria concentrations close to those in untreated sewage. (Source: Evaluation of Risk from Houseboat Greywater discharges to Recreational Water Users on Shuswap Lake Beaches, BC Ministry of Environment, December 2009)84.

5.2.3 Parks Issues Heavy recreational use pressures at popular BC Parks’ locations are creating numerous impacts such as illegal firewood cutting, littering, and vandalism to park environments and facilities. At Hungry Cove, Nielsen Beach and Marble Point, between 500 and 1,000 houseboats have been recorded at each site during the months of July and August for the past several years – averaging between 15 and 30 houseboats per day85. Apart from the potential damage to the environment, cultural values (pictographs) are susceptible to vandalism, and on many sites there are conflicts between user groups.

CSRD parks are experiencing overcrowding issues at some beaches and boat launches at peak times, with noise disturbances, littering, vandalism, household garbage dumping and vegetation disturbance and/or removal.

5.3 Economic Value & Issues Tourism and recreation plays a significant role in the Provincial and Thompson Okanagan regional economies. It plays an important role in the local Shuswap economy as well, but there is a lack of specific data on the economic value and impacts of lake- based recreation. Furthermore, visitor characteristics, perceptions of the Shuswap and spending habits are not at all understood.

84 Source: Evaluation of Risk from Houseboat Greywater Discharges to Recreational Water Users on Shuswap Lake Beaches, BC Ministry of Environment, December 2009.

85 Source: Visual Tally of Number of Houseboats, BC Parks, BC Parks 2005-2009

The Shuswap is heavily reliant upon peak summer visitation but new product development has lagged since the 2008 recession. BC Parks are a major attraction in the study area, and increasingly CSRD Parks are receiving visitors from far beyond regional boundaries. The economic impact of parks in the Shuswap watershed has not been studied.

Table 10 Economic Issues Identified Through Early SLIPP Meetings

Visitor characteristics, spending, travel habits and perceptions of the Shuswap area are not at all understood

Lack of public awareness & support for recreation & tourism as an economic generator

Poor / undeveloped product - market match

Heavily reliant on peak summer visitation

6 Summary of Current Situation

The Situational Analysis Report represents the completion of the secondary review of literature for Phase I of the Recreation Management Planning process for selected lakes in the Shuswap Watershed. The study region includes the Shuswap, Little Shuswap, Mara and Adams Lakes. Due to increasing development, wastewater discharge, and conflicting demands on recreational resources on these lakes, local policymakers have identified the need for a five-year recreation management plan to support interagency coordination, impact assessment, and strategic decision-making to promote sustainable development. The report applies a Recreation Optimization Management Model (ROMM) as an organizational tool to address: (1) supporting conditions for recreation, (2) a profile of the recreationists, and a (3) summary of recreational activities.

The supporting conditions for lake-based recreation are divided into ecological, sociocultural and economic conditions. The ecological environment is recognized for its natural beauty that has attracted visitors for centuries. The Shuswap watershed includes six oligotrophic lakes and a number of important tributaries that provide important habitats for a variety of fish and wildlife, which has served to promote recreational development in the region.

Socioculturally, the watershed is located in the traditional territory of the Secwepemc, or Shuswap people who have resided in south central British Columbia for approximately 4000 years establishing an economy founded on fishing, hunting, gathering and trading. Early pioneers arrived in the 19thcentury, utilizing the lakes as a transportation route that continued to develop over time with the development of the trans-continental railroad and the highway in the late 19th and 20th centuries. Increased access has led to further recreational development and tourism.

Four levels of governance – Local (community & regional), Provincial, First Nations and Federal are responsible for policy, regulation and legislation regarding recreation management in the region. At the local government level alone, there are three regional government jurisdictions: Columbia Shuswap Regional District, Thompson Nicola Regional District, and Regional District of North Okanagan. Additional local governments at the municipal level include: Salmon Arm, Sicamous and Chase. The complex governance structure has limited coordination and management of the lakes that is needed to promote a more holistic, sustainable approach to recreation planning and development in the region.

Economically, water-based recreation is big business in the Shuswap watershed. Data collected from the houseboat industry on the lakes as well as from the regional parks reveals that these recreational activities alone support a multi-million dollar tourism industry that includes over 300 businesses and a local population of 36,000 residents. The Shuswap is also part of a fast growing regional tourism industry in BC’s Thompson- Okanagan Tourism Region.

The recreationists of the Shuswap watershed include: local residents (both permanent and seasonal (or second home-owners)) and visitors. The profile of local residents reveals an older population in their 50s and 60s compared to other communities in BC. They have worked in primary industries (forestry, farming) and the service industry and are interested in quality of life issues (e.g., open space, walking paths, parks, scenery, pristine environment, water-based recreation). Visitors to the region were found to be younger in the 35-54 age category, from Alberta or BC, and active in nature-oriented, outdoor activities that are intellectually and physically challenging. Outdoor recreation is important to them. Approximately 17% of visitors are international tourists. They value novelty and learning opportunities that offer a chance to enjoy nature. Visitors identified that parks and wilderness and water based access was important to them.

Recreational activities that are important to Shuswap recreationists include pleasure boating, house boating and fishing. Non-motorized boating, such as canoeing, kayaking, and whitewater rafting are also popular in the region. Other water-based activities include swimming, bird-watching, and camping.

In understanding the present links between the recreational environment, the recreationists and the activities in the region, one of the greatest issues facing the region is the increasing awareness by residents and visitors that the lakes are “being loved to death.” Conflicts due to crowding, noise pollution, boats travelling at different speeds, limited access to the lakes, limited public and community infrastructure, insufficient enforcement, and a lack of research all contribute to a growing concern that there is a need for the sustainable management of recreational resources.

Environmentally, shoreline impacts are increasing through infrastructure development and foreshore modification, resulting in disturbance to and loss of riparian vegetation, and boat wake erosion. Discharge from land based industrial (e.g., agriculture) and recreational activities (e.g., houseboating) impact the natural ecology of the lakes. Increasing visitation to regional parks on the lakes also contributes negative environmental (and sociocultural) impacts. As the economic value of water-based

recreation in the region is unknown, this hampers strategic sustainable policy and planning efforts.

The next steps of the RMP are to gather more primary data from residents and visitors to respond to and assess the present recreational issues impacting the study area - an intercept survey will be completed to assist with strategic decision-making. At the same time a comparative case study analysis of recreation management plans on other lakes in North America and internationally will be conducted to complete Phase I. Once these data are summarized, the information will serve as a basis for Phase II – the writing of the recreation management plan.

Appendix A – Recreational Issues Identified Through Earlier SLIPP Processes

Recreation Management Issues

Summary Issue: Cumulative impacts are exceeding the carrying capacity of the lakes and reducing the quality of recreational experiences

Regulation Limited resources to monitor houseboat activities and parks activities

No limits on park activities

Planning, Limited cross agency coordination of compliance and Coordination, enforcement efforts Communication Limited coordination around commercial houseboat industry

Ecological Health Spawning beds damaged by park users and Safety Impacts

Summary of Issues Raised by the Public

Boating Grey water/garbage from houseboats

Dangerous operation of seadoos, power boats & houseboats

Erosion & habitat destruction from wakes

Noise pollution

Contribution to GHG –

Public Access Limited signage, poor quality

illegal docks

Non-motorized users have no safe areas

Limited parking

Regulations, Illegal parking practices Controls & Enforcement

Limited RCMP presence

Fireworks issues

Illegal docks etc., impeding access to foreshore

Size and horsepower of boats/houseboats

Jet-skis/wave boats

2-cycle engines

Formaldehyde products

Fossil-fuel consumption

Lack of capacity limits for houseboats & all vessels

Random buoy proliferation

Lack of Enforcement of noise bylaws

Lack of Money for enforcement staffing

Citizens Patrol

Waste facilities & Grey water dumping in the lake infrastructure

Lack of pump-out facilities

Lack of public/community docks

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