West Yellowhead Corridor Regional Integrated Decision

A refinement to the 1990 Coal Branch Sub‐Regional Integrated Resource Plan that identifies commercial recreation and tourism opportunities as a priority land use within nodes of designated public land managed by Sustainable Resource Development in the West Yellowhead Corridor.

A Project Led By Sustainable Resource Development In Collaboration With: Ministry of Tourism, Parks and Recreation Town of Hinton Yellowhead County

Endorsed by: Minister of Sustainable Resource Development

November 2008 Foothills Area

EXECUTIVE SUMMARY This Regional Integrated Decision designates 9 nodes of public land for commercial recreation and tourism development in the West Yellowhead Corridor of Alberta. The land management decision is a refinement of the 1990 Coal Branch Sub‐Regional Integrated Resource Plan and provides greater provincial land and resource management direction for municipal area structure planning. The coordination of commercial recreation and tourism activities within designated nodes addresses orderly development within the West Yellowhead Corridor in an effort to maintain the natural values of the area that are the foundation of recreation experiences.

2 TABLE OF CONTENTS PAGE 1.0 INTRODUCTION……………………………………………………………………………………………... 4 1.1 Purpose of Regional Integrated Decision…………………………………………………… 4 1.2 West Yellowhead Corridor Area………………………………………………………………... 4 2.0 NODE IDENTIFICATION & LAND MANAGEMENT DECISION‐MAKING PROCESS…. 5 3.0 REGIONAL INTEGRATED DECISION…………………………………………………………………… 7 3.1 Rationale For Selection of Total 9 Nodes……………………………………………………. 8 3.2 Node Resource Summary…………………………………………………………………………… 9 4.0 IMPLEMENTATION OF REGIONAL INTEGRATED DECISION……………………………….. 9 5.0 REGIONAL INTEGRATED DECISION EVALUATION AND SITE MONITORING……….. 12 Appendix A ‐ Map of three additional proposed development nodes proposed in 2008……….. 13 Appendix B ‐ Map of existing and additional development nodes …………………………………………. 14 Appendix C ‐ Map of total nine development nodes ……………………………………………………………… 15

1.0 INTRODUCTION The Land‐use Framework identifies managing growth as a key outcome with the development of regional plans to provide strategic, comprehensive and integrated social, economic and environmental outcomes. More refined land management planning and decision‐making are also required at sub‐regional and local scales. Increasing population, industrial, recreation and tourism pressures led to more detailed land management planning in the West Yellowhead Corridor between 1996 and November 2008. The culmination of this effort is the identification of nine public land areas (“nodes”) where commercial recreation and tourism development is a priority land use which other land uses must take into consideration.

The 1990 Coal Branch Sub‐Regional Integrated Resource Plan (IRP) recognizes the landscape suitability of the Yellowhead Corridor Resource Management Area and the Brule Lake Resource Management Area to provide for a range of recreation and tourism opportunities. The designation of nodes provides a mechanism to identify specific areas in the corridor with high recreation value that provide opportunities for unique recreation experiences in landscapes that cannot be replicated elsewhere in Alberta. Similarly, nodes enable the consolidation of commercial recreation and tourism developments in order to retain intact landscapes upon which the recreation experience depends. The Corridor already supports many other land uses including forestry, energy and residential activities which present management challenges to integrate land use and maintain important natural values.

The land management decision to create these nodes builds connections between provincial, regional and local outcomes. In particular, it provides greater clarity and provincial land management direction to municipal area structure planning that addresses the specific details of the node including the type of development permitted and municipal infrastructure and servicing requirements. This orderly planning, development and use of public land in turn provides greater certainty to potential recreation and tourism developers and the public.

As defined within the ‘July 23, 1999 West Yellowhead Corridor Commercial Tourism and Recreation Development Project Public Information Package’, “commercial recreation and tourism development” means developments that offer facility oriented recreational, tourism or accommodation services and/or programs to the general public which require a long term lease.

1.1 Purpose of Regional Integrated Decision This Regional Integrated Decision (RID) is a refinement of the IRP and articulates the land management decision to designate 9 public land areas (“nodes”) within the West Yellowhead Corridor for commercial recreation and tourism development as a priority land use. The RID reaffirms the 1999 decision to establish 9 nodes and confirms the decision to add two new nodes (Overlander and Entrance). The Overlander node encompasses the existing Wildhorse/Kinky Lakes and Folding Mountain nodes. Amendments to the IRP are required to reflect the intent of this RID. An Implementation Agreement will be created to detail implementation roles and responsibilities. The RID will inform the future development of the Upper Athabasca Regional Plan.

1.2 West Yellowhead Corridor Area Alberta’s West Yellowhead Corridor is the province’s scenic and much‐travelled gateway to the northern Canadian Rockies. The Corridor extends along Highway 16 (Yellowhead Highway) and Highway 40 (Bighorn Highway), from the Jasper National Park gates in the west to near Obed Lake, near Edson, in the east. It covers an area of about 1,050 square km (397 sq. miles) of public land. The nine nodes comprise

4 a total area of 66 square km (25 sq. miles), approximately 6.3% of the total area of the West Yellowhead Corridor (see Appendix C).

The boundary of the area referred to as the West Yellowhead Corridor is shown in Appendix B. References to the ‘corridor’ throughout this document are in reference to this West Yellowhead Corridor boundary. This area encompasses approximately the west half of the Yellowhead Corridor Resource Management Area and most of the Brule Lake Resource Management Area as described in the 1990 Coal Branch Sub‐Regional Integrated Resource Plan. The West Yellowhead Corridor boundary includes additional area north of the IRP planning area.

The corridor area consists mostly of Boreal Foothills, with pine and aspen as the major forest species. A small western portion of the Athabasca Valley is within the Montane Ecoregion, with vegetation ranging from white spruce and aspen to grasslands. Parts of the Athabasca and McLeod rivers flow through the corridor.

The corridor, with its foothills, forests, streams, lakes, mountain vistas and wildlife, is appealing for tourists both as a scenic route and a destination. The area is attractive for recreation opportunities such as camping, trail use, resort holidays, fishing, hunting and other activities. The corridor supports a variety of land uses with commitments in place for such activities as forestry, mining, and oil and gas development. The Alberta government recognizes the beauty and natural environment of the region, and is dedicated to managing these varied activities in a way that maintains its overall integrity.

2.0 NODE IDENTIFICATION & LAND MANAGEMENT DECISION‐MAKING PROCESS With the direction provided by the IRP, the identification of public land suitable for commercial recreation and tourism in the West Yellowhead Corridor has occurred within two distinct time periods: 1996‐1999 and 2006‐November 2008.

1996 ‐ Initiation of Process In 1996, increasing local land use pressures within the West Yellowhead Corridor (WYC) led the Northern East Slopes Resource Committee (ERC) to initiate the identification of areas (nodes) for commercial recreational and tourism development within the corridor. An analysis conducted by Butler Krebes & Associates Inc. resulted in a document titled the ‘West Yellowhead Corridor Development Node Evaluation (1997)’ and identified 12 areas for node development. Five broad suitability criteria used for node assessment included: environment; resources; infrastructure; regulatory requirements; and existing development.

1999 – West Yellowhead Corridor Commercial Tourism and Recreation Memorandum of Understanding In June of 1999, after extensive public consultation that supported development in the nodes, the Alberta Government approved nine nodes and articulated this in the ‘1999 West Yellowhead Corridor Commercial Tourism and Recreation Memorandum of Understanding (MOU)’ signed between the Province of Alberta, Yellowhead County, Town of Hinton, Weldwood of Canada Limited (now West Fraser) and Weyerhaeuser Canada Limited. The nine nodes included: Obed Lake Eccles Pond Obed Summit Pedley Hinton West

5 Athabasca Lookout Airport Road/Maskuta Creek Wildhorse/Kinky Lakes Folding Mountain

The MOU established roles and responsibilities of the separate agencies for the review and approval of commercial recreation and tourism dispositions within these nodes. The MOU was administered as a “living document” and stipulated a review of the document in five year intervals.

Between 1999 and 2008, proposed commercial recreation and tourism development applications were restricted to the agreed‐upon development nodes. Development applications were then reviewed through the appropriate provincial and municipal government approval processes.

2005 – Working Group Review Based on a commitment to review the 1999 MOU within five years, a Working Group was convened in 2005, led by SRD with representation from Tourism, Parks and Recreation, and Infrastructure and Transportation, Yellowhead County, Town of Hinton and West Fraser Mills Ltd. The Working Group assessed the nodes and determined that there was very little interest to date by developers in the nodes east of Hinton (Obed Lake, Eccles Pond, Obed Summit, Pedley). In response, the Working Group initiated an assessment process to identify additional areas for commercial recreation and tourism development west of Hinton.

An assessment of the corridor titled ‘West Yellowhead Corridor Evaluation‐Matrix Planning ‐ March 2005’ evaluated potential nodes based on: Environmental and physical capability to support development, based on consideration of such factors as soils, slopes, erosion, wind, streambed protection, wildlife, viewscapes, road access, groundwater sources, municipal servicing capacity etc. Opportunities and constraints that would influence attractiveness of the site and costs, such as views, road access and noise. Existing land‐use commitments and provincial and municipal policies.

This assessment resulted in the identification of three potential additional nodes: Brule (1,907 hectares/4,712 acres) Entrance (182 hectares/451 acres) Overlander (2,479 hectares/6,126 acres) – The Overlander node is an expansion of existing nodes, encompassing the Wildhorse/Kinky Lakes and Folding Mountain nodes identified in 1999.

2007 – Public Participation Process Results and Issues Identification The Working Group used the information provided in the Matrix 2005 evaluation to refine the boundaries of the three nodes and embarked on a public participation process between February and May 2007, which included stakeholder and Aboriginal engagement. The purpose of the public participation process was to: seek input from the public and specific groups on the three potential node locations; obtain a clear understanding of any concerns about the potential node locations; and help residents be more aware of and better understand the possibilities for commercial recreation and tourism development in the West Yellowhead Corridor area.

General Public Participation Process

6 A range of consultation and communication tools were developed to provide general information about the proposed nodes and obtain a clear understanding of any concerns or other feedback about the proposed nodes. Some tools were designed to reach a broader audience than the local communities. The detailed methodology and results of the public participation process are summarized in the following document: ‘West Yellowhead Corridor Commercial Recreation and Tourism Planning Project Consultation Summary Report October 2007’.

An overview of the range of feedback received included concerns regarding: potential impact on quality of life of local residents; wildlife habitat; aesthetics; water availability; provincial leasing processes; municipal planning processes; aboriginal issues; current uses such as grazing within the nodes; and the public consultation and planning process used for node determination.

The document ‘West Yellowhead Corridor Commercial Recreation and Tourism Planning Project Consultation Summary Report October 2007’ summarizes the feedback received specific to the three proposed nodes. In particular, the summary report provides information regarding the feedback received in response to one of the primary tools used during the process: the ‘West Yellowhead Corridor Commercial Recreation and Tourism Planning Project Public Consultation Information and Comment Booklet’. The public participation feedback suggested strong opposition from respondents to the creation of the Brule node with less opposition towards the Entrance and Overlander nodes. As a result, this determined the need for additional consultation efforts and focus group sessions were established to obtain targeted perspectives from communities of interest and municipalities.

Targeted Public Participation Process: a. Communities of Interest Focus Groups Following the conclusion of the period for general public comment in response to the ‘Information and Comment Booklet’ the WYC Working Group organized two Focus Group sessions September 5 and December 3, 2007 comprised of individuals that represented a range of communities of interest including residential, environmental, grazing, tourism and commercial, and municipal perspectives.

The purpose of the focus group sessions was to: provide more detailed land management information and provincial context for commercial recreation and tourism development; provide a forum for more detailed discussion regarding the potential nodes; and generate further input that could inform the consideration of the potential nodes.

b. Municipalities The Working Group made a presentation to the Joint Council (Yellowhead County and Town of Hinton) on June 10, 2008 regarding the proposed three development nodes. Subsequently Yellowhead County and the Town of Hinton expressed support for the Entrance and Overlander nodes. However the municipalities did not support the Brule node, citing the public feedback and concerns that the planning process did not engage the public adequately in the node determination. The County expressed concerns regarding the proposed Brule node, specific to the effect on the existing tourism operators by the proposed tourism activities, displacement of the current horse holding leases, and the location of the node and its distance from Highway 16.

3.0 REGIONAL INTEGRATED DECISION The planning process between 1996 and November 2008 resulted in the identification of a total of 9 nodes of public land managed by Sustainable Resource Development for commercial recreation and tourism development as a priority land use in these nodes in the West Yellowhead Corridor (see Appendix

7 C). Other land uses may continue to occur however in consideration of commercial recreation and tourism as a priority land use. These nodes include:

Nodes established by ‘1999 West Yellowhead Corridor Commercial Tourism and Recreation Memorandum of Understanding’ (MOU): 1) Obed Lake 2) Eccles Pond 3) Obed Summit 4) Pedley 5) Hinton West 6) Athabasca Lookout 7) Airport Road/Maskuta Creek 8) Wildhorse/Kinky Lakes 9) Folding Mountain

Two additional nodes identified in 2008 process: 8) Entrance 9) Overlander – encompasses 2 nodes established in 1999 Memorandum of Understanding (MOU) (See Appendix B): o Wildhorse/Kinky Lakes o Folding Mountain

The Brule node proposed in 2008 is not selected as a node at this time and will be reviewed in 5 years in 2014 to reassess the potential of this site as a node (see Appendix A). This review may be initiated by Sustainable Resource Development prior to 2014 if information warrants such a review.

3.1 Rationale For Selection of Total 9 Nodes Several criteria contributed to the decision‐making process including: results from public consultation from the 2006‐2009 phase; environmental and bio‐physical capability to support development; provincial/municipal policies and regulatory structure; existing land‐use commitments; opportunities and constraints; socio‐economic circumstances; environmental sensitivities; local, regional and provincial perspectives.

This Regional Integrated Decision reaffirms the designation of the 9 nodes established in 1999 as they continue to provide potential for commercial recreation and tourism developments. Following is some specific commentary regarding rationale for the selection of the additional Overlander and Entrance nodes and the decision to not select the Brule node at this time.

The Overlander node encompasses the Wildhorse/Kinky Lakes and Folding Mountain nodes previously identified in 1999. The Overlander node is selected due to its location within a current human travel flow and settlement pattern. It is located just off of the main travel corridor of Highway 16, is near the Jasper National Park gate, and only 15 kilometers west of the town of Hinton. The node has slopes that may provide opportunities for development while providing for scenic views. A former sawmill site and proximity to previously developed resource roads may provide an opportunity for development while utilizing previous clearing and infrastructure. The IRP provides land and resource management direction

8 for enabling recreation in this area. The node may provide for a range of commercial recreation and tourism opportunities while protecting the ecological and cultural resource values of the area including an environmentally significant area and critical wildlife zones. A portion of the node in the south of the node is within the Brule Lake Forest Land Use Zone that enables access restrictions. The node’s proximity to Wildhorse Lakes Provincial Recreation Area may provide additional opportunities for visitors to the node to recreate at this recreation area. Brule Lake is in the vicinity of the node and provides recreational opportunities. A designated OHV trail runs within the south of the node linking Highway 16 to Brule Lake.

The Entrance node is selected as it is also located in proximity to Highway 40, Highway 16, Jasper National Park, and Hinton. It provides viewscapes of the mountains and the Athabasca River valley. It has forested cover and well drained soils suitable for development. The presence of the adjacent subdivision of Aspen Heights would complement development within the node and provide access opportunities. The IRP provides for multiple use outcomes in this area.

Though 53% and 61% of the public participation respondents strongly opposed development within the Overlander and Entrance nodes respectively, 29% and 23% had more favourable responses. It is determined that concerns expressed may be mitigated through more detailed planning within both of these nodes. Some of the concerns raised were impact on the quality of life, impact on the environment, water availability, provincial leasing process, and type of development.

The Brule node is not selected at this time. The proposed node is located outside of the 1990 Coal Branch Sub‐Regional Integrated Resource Plan area, north of the northwest boundary of the IRP that follows the Athabasca River. The combination of strong local opposition (72% of respondents) to the node, concerns regarding impacts on wildlife habitat and aesthetics, the compatibility with existing use including grazing, and the potential to negatively impact the quality of life of local residents of Brule resulted in this management decision. In addition, the lack of support at this time from Yellowhead County and the Town of Hinton for the creation of the Brule node contributed to this management decision. This approach does not align with the provincial outcomes of the Ministry of Tourism, Parks and Recreation to provide for commercial recreation and tourism opportunities in this area, however, the commitment to review the potential for this site in 2014 demonstrates commitment to these provincial outcomes.

3.2 Node Resource Summary Detailed information regarding the land and resource attributes of the nine nodes established in 1999 is captured within the following documents: ‘West Yellowhead Corridor Development Node Evaluation by Butler Krebes & Associates (1997)’; and ‘West Yellowhead Corridor Evaluation by Matrix Planning (2005)’; and ‘West Yellowhead Corridor Commercial Tourism and Recreation Development Project Public Information Package July 23, 1999’.

Information regarding the Overlander and Entrance nodes and the proposed Brule node is captured in the 2007 document titled “West Yellowhead Corridor Commercial Recreation and Tourism Planning Project Public Consultation Information and Comment Booklet” that was used in the public participation process.

4.0 IMPLEMENTATION OF REGIONAL INTEGRATED DECISION The Regional Integrated Decision replaces the 1999 MOU and provides land and resource management direction specific to commercial recreation and tourism nodes in the West Yellowhead Corridor. The implementation of the Regional Integrated Decision requires amendments to be made to the Coal

9 Branch Sub‐Regional IRP and an Implementation Agreement to be drafted that describes the roles and responsibilities associated with implementing the Regional Integrated Decision.

Amendments to the Coal Branch Sub‐Regional Integrated Resource Plan: The following amendments to the Coal Branch Sub‐Regional Integrated Resource Plan are required to reflect the intent of the West Yellowhead Corridor Regional Integrated Decision:

A. Yellowhead Corridor Resource Management Area Amendment 1) Section 3.1 – Yellowhead Corridor Resource Management Area – Page 23 – Management Intent The following text will be amended to include the text within the brackets below: The management intent for the Yellowhead Corridor RMA is to provide for a range of extensive and intensive recreation and tourism opportunities within a multiple land use context, and to recognize the development needs of existing communities. [In the West Yellowhead Corridor portion of the Yellowhead Corridor Resource Management Area, facility based commercial recreation and tourism opportunities will be considered only within the development nodes, pursuant to the ‘West Yellowhead Corridor Regional Integrated Decision’.]

Amendment 2) Section 3.1 – Yellowhead Corridor Resource Management Area – Page 30 – Recreation and Tourism ‐ Objectives The following text will be amended to include the text within the brackets below: Objective No. 5 ‐‐ To provide opportunities for commercial tourism development (eg. campgrounds, guest ranches) and associated recreation development. [In the West Yellowhead Corridor portion of the Yellowhead Corridor Resource Management Area, facility based commercial recreation and tourism opportunities will be considered only within the development nodes, pursuant to the ‘West Yellowhead Corridor Regional Integrated Decision’.]

Amendment 3) Section 3.1 – Yellowhead Corridor Resource Management Area – Page 30 – Recreation and Tourism ‐ Guidelines The following text will be amended to include the text within the brackets below: Guideline No. 1 ‐‐ Development of commercial recreation facilities and services will be a high priority. [In the West Yellowhead Corridor portion of the Yellowhead Corridor Resource Management Area, facility based commercial recreation and tourism opportunities will be considered only within the development nodes and will be a priority land use within these nodes, pursuant to the ‘West Yellowhead Corridor Regional Integrated Decision’.]

B. Brule Lake Resource Management Area Amendment 4) Section 3.6 – Brule Lake Resource Management Area – Page 61 – Management Intent The following text will be amended to include the text within the brackets below: The management intent for Brule Lake RMA is to retain the high visual qualities and protect the high wildlife, fisheries, recreational, tourism and historical resource values and sensitive soils. In addition, opportunities for intensive commercial recreation and tourism development will be provided while allowing for a limited range of multiple use activities. [In the West Yellowhead Corridor portion of the Brule Lake Resource Management Area, facility based commercial recreation and tourism opportunities will be considered only within the development nodes, pursuant to the ‘West Yellowhead Corridor Regional Integrated Decision’.]

Amendment 5) Section 3.6 – Brule Lake Resource Management Area – Page 63 – Recreation and Tourism ‐ Objectives

10 The following text will be amended to include the text within the brackets below: Objective No. 7 ‐‐ To support expansion of existing tourism facilities and services, as demands warrants. [In the West Yellowhead Corridor portion of the Brule Lake Resource Management Area, facility based commercial recreation and tourism opportunities will be considered only within the development nodes, pursuant to the ‘West Yellowhead Corridor Regional Integrated Decision’.]

Amendment 6) Section 3.6 – Brule Lake Resource Management Area – Page 63 – Recreation and Tourism ‐ Objectives The following text will be amended to include the text within the brackets below: Objective No. 8. ‐‐ To provide opportunities for commercial tourism developments and associated recreation activity developments. [In the West Yellowhead Corridor portion of the Brule Lake Resource Management Area, facility based commercial recreation and tourism opportunities will be considered only within the development nodes, pursuant to the ‘West Yellowhead Corridor Regional Integrated Decision’.]

Amendment 7) Section 3.6 – Brule Lake Resource Management Area – Page 63 – Recreation and Tourism ‐ Guidelines The following text will be amended to include the text within the brackets below: Guidelines No. 3 ‐‐ The Department of Recreation and Parks, in conjunction with other agencies such as the Department of Tourism and the Department of Forestry, Lands and Wildlife, will work with any potential private sector operator interested in developing tourism and recreation opportunities on lands reserved by the Department of Recreation and Parks. [In the West Yellowhead Corridor portion of the Brule Lake Resource Management Area, in addition to those lands managed by the Ministry of Tourism, Parks and Recreation, facility based commercial recreation and tourism opportunities will be considered only within the development nodes and will be a priority land use within these nodes, pursuant to the ‘West Yellowhead Corridor Regional Integrated Decision’.]

Implementation Agreement: SRD will lead the development of an Implementation Agreement document to describe the roles and responsibilities associated with implementing the regional integrated decision. This Implementation Agreement document will be conceptually similar to the Memorandum of Understanding (MOU) developed for the David Thompson Corridor. The regional integrated decision will provide direction to the municipalities for the creation of Area Structure Plans for the selected node areas that will further define the developable areas, suitable types of development, and allocation and disposal mechanisms. It is recognized that municipal planning will need to address the following items that were identified during the planning process: ‐Identify and protect sites that have natural characteristics capable of attracting and sustaining a variety of integrated recreation and tourism development for both intensive and extensive level of use. ‐Consider the existing road use, sewage, water supply and buffer concerns of the local residents and business operators during any new development. ‐Considerations for wildlife and human interactions.

Following establishment of the nodes, protective notations (PNT) held by SRD will be placed on the node areas and energy and other surface dispositions will be permitted, however only in with consultation with key SRD staff and with referral to TPR staff. The PNTs will be conditioned in a manner that will require energy and other surface activities to consider commercial recreation and tourism as a priority land use in the nodes and mitigate accordingly. Commercial tourism and recreation development will not occur outside of the approved 9 nodes in the West Yellowhead Corridor.

SRD will place a consultative notation (CNT) on the proposed Brule node to indicate that facility based commercial recreation and tourism developments are not permitted in this area. Energy and other surface activities proposed for this area must consider and be conducted in a manner that maintains the aesthetics and recreation value of this area. This CNT will be held by SRD and will require consultation with key SRD staff with referral to TPR staff in response to proposed activities in this area. As indicated in section 3.0, the Brule area will be reviewed in 5 years in 2014 to reassess the potential of this site as a node.

5.0 REGIONAL INTEGRATED DECISION EVALUATION AND SITE MONITORING SRD will lead a review of the Regional Integrated Decision in 5 years in 2014, or prior to if information and the planning environment warrants. This review will address any required amendments based on new information. Following implementation of this Regional Integrated Decision, SRD will monitor the amount and type of interest by developers in the approved nodes. In addition, this Regional Integrated Decision will both inform the development of the Upper Athabasca Regional Plan and will be reviewed following the completion of the Regional Plan to ensure the Regional Integrated Decision is aligned with the outcomes of the regional plan.

Appendix A

Map of three additional development nodes proposed in 2008

Appendix B

Map of existing and additional development nodes

Appendix C

Map of total nine development nodes