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Park Management Plans: Understanding Visitor and Tourism Policy

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Park Management Plans: Understanding Visitor and Tourism Policy Park Management Plans: Understanding Visitor and Tourism Policy by Julia Coburn A thesis presented to the University of Waterloo in fulfillment of the thesis requirement for the degree of Master of Environmental Studies in Planning Waterloo, Ontario, Canada, 2011 ©Julia Coburn 2011 AUTHOR'S DECLARATION I hereby declare that I am the sole author of this thesis. This is a true copy of the thesis, including any required final revisions, as accepted by my examiners. I understand that my thesis may be made electronically available to the public. ii Abstract A park management plan is an important tool used in protected areas to successfully develop and achieve goals and objectives. Planning in modern protected area environments is challenging due to the requirement of finding the balance between its primary goal of preserving ecological and cultural features while managing to achieve tourism and visitation objectives. There are different perspectives regarding the purpose of a management plan and the role that the public should play in having an influence over the decision making process, including access to information required. This study evaluated the amount of detail in visitor and tourism policies that was found in park management plans compared to the amount of detail that park stakeholders desired, revealed through a case study of Ontario Provincial Parks. Findings include: a consistently low level of detail provided in park management plans; a large gap between the larger amount degree of detail desired by stakeholders’ compared to the sparse detail contained in plans; and a significant difference in the degree of detail desired by stakeholders affiliated with one park, Algonquin Park, over others. The low level of detail contained in management plans can be a reflection of five elements: 1) a low value of visitation and tourism, 2) a blueprint planning goal of management plans, 3) a weak role of the public in decision making, 4) sparse human resources/finances, and 5) imprecise legislation and guiding provincial policy. The large gap between the detail stakeholders desire compared to the content provided in plans reflect weak public participation and governance principles such as transparency, accountability, and fairness and power sharing. Lastly, differences in the degree of detail desired based on park affiliation suggest that park features, beside park classification and park visitation levels, also have an effect on the degree of detail expected from park stakeholders. iii Acknowledgements Writing a thesis is a challenging experience requiring great self-motivation and the intellectual and personal support from a team of people. I was fortunate to have a supportive adviser in Professor Paul Eagles, who has spent numerous hours in conversation helping to develop the founding ideas and framework for this project. This project has allowed me the opportunity to contemplate key planning topics in depth, for which I am greatly appreciative. For my committee members Professor Scott Slocombe and Professor Mark Seasons, thank you for taking time to provide highly insightful advice that has greatly improved the nature of this project. Thank you to all of my interview and survey participants. The quality of your feedback was so outstanding, I almost feel as though you could have written my thesis for me. I also want to thank Edie, for handling my occasional inquiries and truly helping to make this degree economically feasible. Thank you for the support from OGSST and TD Bank Graduate Scholarship in the Environment. To my Mom and Dad, thank you for always supporting me in any venture I have chosen to pursue; Olivia, a special thank you for your hours of support, without it, I may still have been in school. Students in the grad lounge, Canning, Kathleen, Shannon, the thesis writing experience was much more enjoyable with the company of all of you. Last but not least, thank you Matt for being there with me every step of the way. iv Dedication To all the individuals tirelessly working to maintain and improve our protected area systems. v Table of Contents AUTHOR'S DECLARATION .............................................................................................................. ii Abstract ................................................................................................................................................. iii Acknowledgements ................................................................................................................................ iv Dedication ............................................................................................................................................... v Table of Contents ................................................................................................................................... vi List of Figures ......................................................................................................................................... x List of Tables ......................................................................................................................................... xi Chapter 1 Introduction ............................................................................................................................ 1 1.1 Purpose and Rationale .................................................................................................................. 1 1.2 Background Literature .................................................................................................................. 4 1.2.1 Park Classification ................................................................................................................. 4 1.2.2 Planning Structure .................................................................................................................. 7 1.2.3 Case Study Introduction ......................................................................................................... 8 1.3 Study Participant Introduction .................................................................................................... 11 1.4 Purpose Statement....................................................................................................................... 12 Chapter 2 Literature Review ................................................................................................................. 14 2.0 Introduction ................................................................................................................................. 14 2.1 Visitation and Tourism Values in Protected Areas ..................................................................... 14 2.1.1 Evolving Attitudes toward Visitation and Tourism in Protected Areas ............................... 14 2.1.2 Current Perceptions of Visitation and Tourism in Protected Areas ..................................... 15 2.2 Plan Quality and Plan Evaluation ............................................................................................... 19 2.2.1 Defining Plan Quality – What Makes a “Good Plan”? ........................................................ 20 2.2.2 Plan Quality, Plan Implementation Success and Planning Process Quality ........................ 22 2.2.3 Plan Quality Evaluation Methods and Findings .................................................................. 24 2.2.4 Algonquin Provincial Park Plan Evaluation Findings ......................................................... 25 2.3 Management Planning Values in Protected Areas ...................................................................... 26 2.3.1 Purpose and Function of Management Plans ....................................................................... 26 2.3.2 Role of Subsidiary Plans ...................................................................................................... 31 2.4 Legislation/Policy Guidelines and Human and Financial Resources for Plans .......................... 32 2.4.1 Ontario Park Legislation and Guiding Policy Documents ................................................... 32 2.4.2 Human and Financial Resources Dedicated to Management Planning ............................... 36 vi 2.5 Public Participation Values ......................................................................................................... 37 2.5.1 Public Participation Purpose, Benefits, and Limitations...................................................... 37 2.5.2 Factors Affecting Public Participation Qualities ................................................................. 41 2.5.3 Relationship between Public Participation and Governance ............................................... 44 Chapter 3 Research Methods ................................................................................................................ 46 3.1 Introduction ................................................................................................................................. 46 3.2 Study Framework ........................................................................................................................ 46 3.3 Phase 1: Park Plan Content Analysis .......................................................................................... 52 3.3.1 Phase 1: Sampling Method .................................................................................................. 52 3.3.2 Phase 1: Research Instrument .............................................................................................
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