Regional Plan for Public Land Development
Abitibi-Témiscamingue
Courtesy translation
Production and text: Direction régionale de lÊÉnergie, des Mines et du Territoire public de lÊAbitibi-Témiscamingue Coordination: Yves Drolet, regional director Project leader: Benoit Villeneuve Regional team: Nathalie Bonin Pascal Martel
Assistance: Denise Bourbeau Johanne Drolet
Design and support: Direction des affaires régionales et du soutien aux opérations Énergie, Mines et Territoire Coordination: Louise Pelletier Special assistance: Édouard Chrétien France Dumais DCOM (revision) Jean-François Larouche Sylvie Verreault Copywriter: Danièle Blain, Passez Go
Graphic design: Christiane Leclerc communication
Production: Direction des communications Distribution: Ministère des Ressources naturelles et de la Faune Direction générale du développement et de la coordination des opérations régionales Direction des affaires régionales et du soutien aux opérations Énergie, Mines et Territoire 5700, 4e Avenue Ouest, bureau E-302 Québec (Québec) G1H 6R1 http://www.mrnf.gouv.qc.ca/territoire/planification/planification-regionaux.jsp
© Gouvernement du Québec Ministère des Ressources naturelles et de la Faune Legal deposit – Bibliothèque et Archives nationales du Québec, 2008 XXX-XXX-XXX (printed version) XXX-XXX-XXX (PDF version) XXX-XXX-XXX (CD version) Distribution code: XXX-XXX
Foreword
Public land and resources are essential to QuébecÊs development, but they must be developed in a harmonious way that serves the public interest. For this reason, the Ministère des Ressources naturelles et de la Faune (MRNF) has designed planning tools and management mechanisms to promote the multi-purpose, balanced and sustainable use of public land to support economic growth in the regions.
The introduction of regional lodging development plans (known by their French acronym PRDV, for plans régionaux de développement de la villégiature) in 1993 demonstrated the value of planning land use for a specific purpose. It also confirmed the need for broader-based plans to meet an increasingly diverse range of land uses. The MRNF accordingly extended its approach to include all land uses, local and regional concerns and population needs in the planning process.
The result was the regional public land development plan (or PRDTP, the French acronym of Plan régional de développement du territoire public). To introduce this new concept, the MRNF organized an information tour throughout Québec to present it to the organizations concerned. It also set up a joint discussion table in each region to gather information on the concerns and needs of its regional and governmental partners, and to involve them in the decision-making process for public land use.
Thanks to this inclusive approach, the PRDTP will become a key tool in the harmonious development of public land based on the economic, social and environmental interests of the region concerned.
Table of Contents
INTRODUCTION ...... 1
CHAPITRE 1 REGIONAL PLAN FOR PUBLIC LAND DEVELOPMENT (PRDTP)...... 5 1.1 Definition...... 5 1.2 Roles of the PRDTP...... 5 1.3 Stages in the preparation of a PRDTP...... 6 1.3.1 Overview of the territory and its development problems...... 6 1.3.2 Development stakes and possibilities...... 7 1.3.3 Development scenario and action plan ...... 7
CHAPITRE 2 CONTEXT FOR THE PRODUCTION OF THE REGIONAL PLAN FOR PUBLIC LAND DEVELOPMENT...... 9 2.1 Recreotourism...... 9 2.1.1 Definition of recreotourism ...... 9 2.1.2 Guidelines for the preparation of the PRDTP – recreotourism section ...... 9 2.1.3 Basic documents for planning and managing recreotourism...... 10 2.1.4 Partners involved in the development of the recreotourism sector...... 13 2.1.5 Regional documents used in drafting the PRDTP...... 13
INTRODUCTION ...... 17
CHAPITRE 1 AREA COVERED BY THE PLAN AND REGIONAL CONTEXT ...... 17 1.1 Area covered ...... 17 1.2 Regional context...... 21 1.2.1 Environmental context ...... 21 1.2.2 Social context ...... 21 1.2.3 Economic context ...... 22 1.2.4 Multiple land use...... 24 1.2.5 Consultation of Native communities...... 24
CHAPITRE 2 TERRITORIAL OVERVIEW FOR RECREOTOURISM...... 25 2.1 Current situation ...... 25 2.1.1 Tourism in Québec...... 25 2.1.2 Tourist development strategy for the Abitibi-Témiscamingue region...... 26 2.1.3 Recreotourism in the Abitibi-Témiscamingue region...... 31 2.2 Development potential ...... 48 2.2.1 Lodging development ...... 48 2.2.2 Outdoor recreational activities...... 52 2.2.3 Cultural recreational activities...... 53 2.3 Summary of the recreotourism overview for the region...... 53
CHAPITRE 3 USE OF PUBLIC LAND FOR RECREOTOURISM: STAKES AND EXPECTED RESULTS FOR THE REGION ...... 59
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3.1 Regional recreotourism stakes...... 59 3.1.1 Environmental stakes...... 59 3.1.2 Social stakes ...... 60 3.1.3 Economic stakes...... 60 3.2 Expected results for the region ...... 61 3.2.1 Private vacation sites ...... 61 3.2.2 Rough shelter sites...... 61 3.2.3 Commercial and community lodging sites in a forest environment ...... 62 3.2.4 Recreational trails ...... 62 3.2.5 Public access points...... 62 3.2.6 Land suitable for outdoor recreational use...... 62 3.2.7 Areas suitable for cultural recreational use...... 63 3.2.8 Integrity of major heritage groups...... 63
CHAPITRE 4 SPATIAL DEVELOPMENT CONCEPT ...... 64 4.1 Immediate planning sector ...... 64 4.1.1 Lodging component ...... 65 4.1.2 Outdoor recreational activity component...... 69 4.1.3 Cultural recreational activity component...... 69 4.2 Peripheral planning sector...... 69 4.2.1 Lodging component ...... 70 4.2.2 Outdoor recreational activity component...... 70 4.2.3 Cultural recreational activity component...... 71 4.3 Remote planning sector...... 71 4.3.1 Lodging component ...... 71 4.3.2 Outdoor recreational activity component...... 72 4.3.3 Cultural recreational activity component...... 72 4.4 Regional guidelines for implementation of the MRNF – Société de la faune et des parcs du Québec Administrative Agreement Concerning the Development of Waterside Vacation Sites on Public Land ...... 72
CHAPITRE 5 DEVELOPMENT SCENARIO...... 75 5.1 General development conditions ...... 75 5.1.1 Structural recreotourism sectors...... 79 5.1.2 Secondary recreotourism sectors...... 80 5.1.3 Wildlife territory sectors ...... 80 5.1.4 Protected area sectors ...... 83 5.1.5 Structured wildlife territory sector ...... 84 5.1.6 Recreotourism poles ...... 87 5.2 Special development conditions ...... 92 5.2.1 Conditions applicable to private vacation sites...... 92 5.2.2 Conditions applicable to rough shelters...... 92 5.2.3 Conditions applicable to commercial and community lodging...... 96 5.2.4 Conditions applicable to public access ...... 96 5.2.5 Conditions applicable to recreational trails...... 97 5.2.6 Conditions applicable to outdoor recreational sites ...... 99 5.2.7 Conditions applicable to cultural recreational sites ...... 100 5.2.8 Other conditions ...... 100 5.3 Choice of vacation development sites...... 103
CHAPITRE 6 ACTION PLAN ...... 107
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6.1 Private vacation sites and rough shelters...... 107 6.1.1 Actions relating to private vacation sites ...... 107 6.1.2 Actions relating to rough shelters...... 108 6.2 Other PRDTP implementation activities ...... 108 6.2.1 Evaluation of recreotourism potential ...... 109 6.2.2 Evaluation of wildlife territory development sectors...... 109 6.3 Action Plan ...... 110 6.3.1 PRDTP support and partnerships ...... 110 6.3.1 PRDTP support and partnerships (Cont.)...... 111 6.3.1 PRDTP support and partnerships (Cont.)...... 112 6.3.1 PRDTP support and partnerships (Cont.)...... 113 6.3.1 PRDTP support and partnerships (Cont.)...... 114 6.3.1 PRDTP support and partnerships (Cont.)...... 115 ** Partner that will help implement the activity. This does not constitute a commitment by the partner...... 116 6.3.1 PRDTP support and partnerships (Cont.)...... 117
SUMMARY 119
APPENDIX 1: LIST OF PRDTP PARTNERS...... 127
APPENDIX 2: MANAGEMENT BY RESULTS – SOME NOTIONS...... 130
Introduction 130
Definitions 130 Land use planning notions ...... 130 Management by results – Some notions...... 131 Management by results: Managing by results involves considering the value of the results obtained and reporting to the population on the services provided and the benefits they generate...... 131 Result 131 Logical model...... 132 Issue: An issue is a core element, namely the anticipated gain to be made by risking certain action or risking a certain loss by not acting. A gain is a positive expression of an issue. It satisfies the need or changes the situation of the population in question. The question to be asked is: „What gains are needed to meet this need (lack)?‰ ...... 133 Characteristic: A characteristic (attribute, indicator, mark, particularity, property, feature, sign, trait, etc.) is used to assess the results. For example: ...... 133 Indicator: An indicator is a key characteristic whose variation can be observed over time. Characteristics are therefore the raw material for producing indicators. An indicator does just what its name suggests: it „indicates‰ the status of a situation but does not give reasons for that situation...... 133
Explanation of Working Method...... 135 Sequence of issues ...... 135 Sustainable development ...... 135
ACRONYMS 136
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GLOSSARY OF LAND USE PLANNING TERMS ...... 138
GLOSSARY OF LAND USE PLANNING TERMS (CONT.)...... 139
GLOSSARY OF LAND USE PLANNING TERMS (CONT.)...... 140
GLOSSARY OF LAND USE PLANNING TERMS (CONT.)...... 141
LEXICON 142
BIBLIOGRAPHY ...... 145
BIBLIOGRAPHY (CONT.)...... 146
BIBLIOGRAPHY (CONT.)...... 149
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List of Maps
Map 1 Recreotourism in the Abitibi-Témiscamingue region – area covered ...... 19 Map 2 Recreotourism overview for the Abitibi-Témiscamingue region – private vacation site density (cottages) ...... 33 Map 3 Recreotourism overview for the Abitibi-Témiscamingue region – density of rough shelters ...... 37 Map 4 Recreotourism overview for the Abitibi-Témiscamingue region – commercial and community lodging...... 40 Map 5 Recreotourism overview for the Abitibi-Témiscamingue region – outdoor recreational activities...... 45 Map 6 Recreotourism overview for the Abitibi-Témiscamingue region – cultural recreational activities...... 49 Map 7 Recreotourism overview for the Abitibi-Témiscamingue region – Overview of trends and potential for recreotourism activities on public land ...... 55 Map 8 Recreotourism overview for the Abitibi-Témiscamingue region – Planning sectors ...... 67 Map 9 Recreotourism overview for the Abitibi-Témiscamingue region – Development sectors développement ...... 77 Map 10 Recreotourism overview for the Abitibi-Témiscamingue region Recreotourism poles ...... 89
List of Diagrams
Diagram 1 Roles of the PRDTP ...... 6
List of Tables
Table 1 Protected areas in the Abitibi-Témiscamingue region...... 18 Table 2 Economic spin-offs generated by managed wildlife areas in the Abitibi- Témiscamingue region...... 28 Table 3 General development conditions for products, by development sector ...... 76 Table 4 Structural recreotourism sectors...... 79 Table 5 Secondary recreotourism sectors...... 80 Table 6 Wildlife territory sectors ...... 81 Table 7 Transitional measures ...... 83 Table 8 Protected area sectors ...... 84 Table 9 Structured wildlife territory development sectors...... 85 Table 10 Recreotourism poles ...... 91 Table 11 Mine tailings sites...... 101
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Table 12 Drinking water supply sources ...... 102 Table 13 Potential private vacation development sites...... 103
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Introduction A PRDTP is prepared for each administrative region in Québec with public land under the authority of the Minister of Natural Resources and Wildlife.
The PRDTP has two main parts. The first part focuses exclusively on general notions that apply to all regions of Québec, divided into two chapters. Chapter 1 includes a definition of the plan and its role, and describes the steps in the drafting process, while Chapter 2 sets out the context for the creation of the plan, including the guidelines for public land planning and management and the partners involved in the drafting of each section.
The second part sets out the PRDTP for the region concerned. It includes the following elements: an overview of the territory and its development problems, the public land use stakes, the development concept, the development scenario, and the plan implementation process.
Recreation and tourism is the first theme to be examined. Other themes may be dealt with later, such as industry and trade, public or community use, areas of special intervention, preservation and protection.
A review of the plan of action included in the PRDTP will be carried out each year.
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Part 1 Definition, roles and preparation of a regional plan for public land development
Abitibi-Témiscamingue
Partie 1
1.1 Definition The regional plan for public land development, known by its French acronym PRDTP, is a tool used in the management of land in the domain of the State, with the objective of developing public land in a harmonious and sustainable way for the benefit of the population as a whole. It serves to determine, with input from partners in the region, where, when and how land rights are granted for the shared use of public land.
The PRDTP is
9 Progressive and modular: it includes several sections on land planning and development, based on various points of view depending on the needs and problems of the local community.
9 Modifiable: it can be modified as new needs or trends emerge.
9 Reliable: the information it contains is up to date.
9 Broad-based: it is drawn up after consultation with regional organizations. In addition, it is based on a territorial overview of the region that focuses on various social, economic and environmental aspects.
9 Inclusive: it includes regional communities in the decision-making process for public land use.
1.2 Roles of the PRDTP The PRDTP plays many different roles (see Diagram 1). As the basic document for public land development and the planning of grants of land rights, it promotes the harmonious use of land and facilitates regional planning by MRNF partners. It is also a tool that increases knowledge of the land base, since the drafting process involves the gathering and analysis of a wide range of information about public land.
Among other things, the PRDTP helps the MRNF draft opinions on any changes connected with wildlife or recreational areas, forestry planning (general and annual forest management plans), projects presented by promoters, regional parks, protected areas and the land use planning and development plans of regional county municipalities.
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DIAGRAM 1 ROLES OF THE PRDTP
Promote the Gather and disseminate harmonious knowledge about use of public public land land
PRDTP
Support the preparation Plan public of MRNF opinions land development
Facilitate regional planning
1.3 Stages in the preparation of a PRDTP Each PRDTP is prepared in stages, as part of a cooperative process during which the MRNF consults various partners. The stages involve, in order: establishing an overview of the territory and its development problems, identifying key stakes and the development concept, drafting a development scenario, and defining an action plan.
1.3.1 Overview of the territory and its development problems The territorial overview summarizes a given territory, depending on the theme under examination. It may include a description of certain features of the region, the location of activities and infrastructures, current trends, the particularities of specific areas, etc. The overview also analyzes potential, and allows the territory and its development problems to be grasped at a glance.
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1.3.2 Development stakes and possibilities This stage is intended to identify the main stakes connected with the use of public land, whether economic, environmental, social, educational, cultural, administrative or institutional. Once they have been identified, a development concept can be drafted taking the development choices into account and presenting development objectives.
1.3.3 Development scenario and action plan Based on the development concept, the development scenario specifies objectives and development rules for a more circumscribed area of land. It defines types of intervention for various sectors in the region with particular problems and similar characteristics. It is based on a segmentation of the region that reflects knowledge of the land and its inherent needs.
The action plan describes the steps taken to implement the PRDPT. It identifies the steps in the implementation process, the methods selected, and the priorities for achieving the objectives. The action plan also sets deadlines and lists the partners in the implementation process.
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Partie 1
CHAPITRE 2 CONTEXT FOR THE PRODUCTION OF THE REGIONAL PLAN FOR PUBLIC LAND DEVELOPMENT
2.1 Recreotourism
2.1.1 Definition of recreotourism 1 The Québec neologism recreotourism covers both the tourism and recreation sectors. A recreotourism site or business is one that is likely to attract tourists and promotes recreational activities, which can be social, cultural, sports-based, outdoor or other.
For the purposes of the PRDTP, recreational activities are activities that take place in the region, but away from a personÊs home. They include trips to museums or sports events, for example, but exclude reading and stamp-collecting. Recreational activities are distinguished from tourism activities only in terms of the clientele, which is either from inside or outside the region. Recreotourism therefore covers local recreation, where the participants do not travel far, day trips outside the local neighbourhood but not involving an overnight stay, vacation tourism, and business tourism.2
2.1.2 Guidelines for the preparation of the PRDTP – recreotourism section The preparation of PRDTPs is part of the mission of the MRNF, which is to „to promote the development, conservation and acquisition of knowledge about land and natural resources, within a framework of sustainable development and integrated management, for the benefit of the population as a whole‰. Acts, regulations, and MRNF policies and programs help define the guidelines and objectives set out in the PRDTP, as well as the resulting priorities for intervention. The plan also reflects the specific characteristics of the public land in the region, the planning tools of the governmental and regional partners, and the results of the MRNFÊs own joint action and consultation activities.
The guidelines of the MRNFÊs strategic plan also influence the PRDTP. The guidelines are as follows: 9 strengthen QuébecÊs development and economic diversification by developing the land and its resources; 9 help protect and conserve the land and its resources; 9 improve the quality of services to the general public.
1 Denys Lessard, Tourisme Québec. 2 Pierre Bellerose, Le libre-échange et le champ récréotouristique, CET, June 1988, p. 25.
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2.1.3 Basic documents for planning and managing recreotourism To draft the PRDTP – Recreotourism section, the MRNF used various documents that govern the planning and development of recreational activities on public land and set out guidelines, principles and management standards for public land, especially concerning vacation sites.
The documents are as follows:
9 The Guide de développement de la villégiature sur les terres du domaine public (guide to cottage development on public land), based on another document, the Approche gouvernementale de développement de la villégiature sur les terres publiques du Québec (government approach to cottage development on public land in Québec). It applies mainly to vacation sites.
9 The Entente administrative relative au développement de la villégiature riveraine sur le territoire public entre le ministère des Ressources naturelles (MRN) et la Société de la faune et des parcs du Québec (administrative agreement on shoreline cottage development on public land between the Ministère des Ressources naturelles (MRN) and the Société de la faune et des parcs du Québec), ratified in February 2001. The agreement has been revised to include the new situations resulting from the regional plans for vacation sites.
9 The Act respecting the lands in the domain of the State (R.S.Q. .R Q., c. T-8.1) and the Regulation respecting the sale, lease and granting of immovable rights on lands in the domain of the State (c. T-8.1, r.6) which together govern the granting of rights and the use of campsites on public land.
9 The guidelines on rough shelters.
2.1.3.1 Guide de développement de la villégiature sur les terres du domaine public To provide a basic set of rules for vacation site development in all regions, the MRNF issued the Guide de développement de la villégiature sur les terres du domaine public in 1994. The Guide governs vacation site development in cases where land is leased or transferred by the MRNF for vacation site development. Various governmental and regional partners helped draft the Guide.
The basic guidelines for vacation site development on public land are as follows: „Promote the development of public land for recreational purposes through vacation site development based on the harmonization and integration of all uses of public land.‰ The MRNF has identified the following development objectives:
9 Plan vacation site development in a way that creates no disturbance.
9 Optimize the use of recreational potential while reducing the impact of development projects on the natural environment.
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9 Reserve land for public access to lakeshores and riverbanks.
9 Diversify vacation site development types and occupation densities and promote diversity in development projects.
9 Avoid conflict between vacation site developments and other land uses, especially recreational uses.
9 Promote site consolidation.
9 Enhance the range and quality of the activities connected with vacation site development.
2.1.3.2 Entente administrative relative au développement de la villégiature riveraine sur le territoire public MRN–Société de la faune et des parcs du Québec This agreement, signed in February 2001 by the MRN and the Société de la faune et des parcs du Québec, sets markers for all types of lodging development on shoreline sites. The agreement focuses on private vacation sites, commercial or community lodging development and campsites on public land.
The main points from the agreement that were used in drafting this PRDTP are as follows:
9 Harmonize shoreline vacation site development on public land with biodiversity protection and the development of wildlife and wildlife habitats, using an approach based on integrated resource management.
9 Consider the various needs connected with the use of public land, whether economic, social, environmental, or related to recreotourism or wildlife.
9 Promote the development of public land for recreational and socioeconomic purposes, while taking into account the more intense use of public land, the range of demands made and a shortage of available space.
9 Ensure harmonious cohabitation and the fair sharing of wildlife potential between vacation sites, fishing excursions and guests at commercial and community lodging establishments.
9 Transfer responsibility for vacation site development in parks, wildlife reserves and outfitting operations with exclusive rights to the managers of those areas, who will be required to apply the conservation principles set out in the agreements in their management plans.
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2.1.3.3 Temporary occupation of public land (temporary campsites) The MRNF has amended the Regulation respecting the sale, lease and granting of immovable rights on lands in the domain of the State under the Act respecting the lands in the domain of the State to add provisions concerning temporary campsites.3 Currently, it is possible to camp on public land on the same site for up to seven months in a single year.
When a PRDTP is drafted, it is possible to determine campsite zones with special conditions to supervise the use of public land. The zones can be determined with partners at the regional joint discussion table. The MRNF can then transfer responsibility for campsites to a partner, either under an agreement to delegate management pursuant to sections 13.3 and following of the Act respecting the lands in the domain of the State, or by a program to delegate management pursuant to sections 17.13 and following of the Act respecting the Ministère des Ressources naturelles et de la Faune (R.S.Q., c. M-25.2)
It is important to note that within a harvesting controlled zone (ZEC), the MRNF is responsible for managing campsites but can delegate management to the organization that manages the ZEC, which must then, if it wishes to charge for camping, produce a recreational activity development plan (Plan de développement dÊactivités récréatives or PDAR) defining the type of land occupation.
2.1.3.4 Rough shelters on public land In August 2001, the MRNF organized regional consultations in the lead-up to the drafting of the PRDTPs, with the goal of defining the need for rough shelters and clarifying the rules for the granting of leases. Government departments, public organizations, municipalities and the main users of public land were all asked to complete a questionnaire and to define their position on the guidelines proposed by the MRNF.
After analyzing all the regional comments received, in June 2002, the MRNF began to consult the government departments and central public organizations concerned by the questions of public land development and resource management. The MRNF also consulted representatives from municipalities, the main federations of public land users, and the wildlife industry.
The primary objective of the consultation process was to ensure that the new guidelines allowed the regional communities to make known their views on rough shelters, based on their respective needs. The involvement of the regional partners in the decision-making process for the use of public land for rough shelters allowed their needs to be taken into account and improved the development of the land and its potential.
In January 2004, the Minister of Natural Resources, Wildlife and Parks approved the new guidelines on rough shelters, which focused on the granting of new leases and the rules
3 It is important to note that these provisions do not concern campgrounds with permanent infrastructures, for which the Act provides other provisions.
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governing existing leases for rough shelters. The PRDTP will become the main tool for the implementation of the guidelines on rough shelters.
2.1.4 Partners involved in the development of the recreotourism sector The MRNF has involved various partners in the drafting of the PRDTP by setting up a regional joint discussion table. The members of the table all represent organizations with a legal sectoral planning mandate connected with the management and development of public land (for example, a land use planning and development plan or a protected area), the management of wildlife or forest resources, or the protection of cultural property. All these partners play an active role in the decision-making process for public land use. The representatives on the regional joint discussion table come from regional county municipalities, the MRNF (from the forests, wildlife management, energy and mines and public land sectors), the Ministère de la Culture et des Communications and the Ministère du Développement durable, de lÊEnvironnement et des Parcs.
2.1.5 Regional documents used in drafting the PRDTP Various regional planning tools were also used to draft the PRDTP, including the land use planning and development plans drawn up by the regional county municipalities, the strategic plan drawn up by the regional development council (Conseil régional de développement or CRD) in each region [now know as the regional conference of elected officials (Conférence régionale des élus or CRE)], the recreational activity development plans (plans de développement dÊactivités récréatives or PDAR) that may be drawn up by a ZEC, the regional development plan for wildlife resources (plan de développement régional associé aux ressources fauniques or PDRRF) under the responsibility of Faune Québec, the tourism development plans drawn up by regional tourism associations, and the general forest management plans drawn up by forestry companies. When preparing a PRDTP, the MRNF takes the positions set out in all these documents into consideration.
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Part 2 Regional plan for public land development
Abitibi-Témiscamingue Section 1 · Recreotourism
Partie 2 Section 1 – Récréotourisme
Introduction The regional plan for public land development (Plan régional de développement du territoire public or PRDTP) for the Abitibi-Témiscamingue region – Recreotourism section has been approved by the Minister of Natural Resources and Wildlife. The PRDTP comes into force once approved, and replaces the regional plan for vacation site development (Plan régional de développement de la villégiature or PRDV) for the Abitibi-Témiscamingue region, drawn up in the 1990s. Part 1 has been integrated into this PRDTP. This section of the PRDTP is intended to govern the development of recreotourism activities on public land, as well as the granting of rights for such activities.
Chapter 1 describes the area covered by the plan and the regional context, while Chapter 2 contains the territorial overview, highlights the importance of recreotourism in the region, and discusses development potential. Chapter 3 examines the development stakes connected with recreotourism, while Chapter 4 and 5 set out guidelines and development options. Chapter 6 contains a plan of action and sets out the method for the implementation of the plan.
CHAPITRE 1 AREA COVERED BY THE PLAN AND REGIONAL CONTEXT
1.1 Area covered The Abitibi-Témiscamingue region has a total area of 64,656 km2, of which almost 85% is public land, ranking it fifth out of all Québec regions.4 It is bounded on the east by the administrative regions of Mauricie and Outaouais, and on the north by the Nord-du-Québec region. Its southern and western boundaries constitute the border with Ontario. The region has four regional county municipalities: Abitibi, Abitibi-Ouest, La Vallée-de-lÊOr and Témiscamingue, and one city, Ville de Rouyn-Noranda. Map 1 shows the regionÊs geographic location, administrative boundaries and main features.
The region had a population of 145,653 in 2003,5 making up roughly 1.9% of the total population of Québec, living in 65 municipalities, four Indian reserves and three Indian settlements.6 The 5,576 Natives in the region in 2003 represented around 4% of the regional population.7
The main highways in the region are Highway 117, the main link to southern Québec, also used by vehicles travelling to Ontario and Western Canada; Highway 101, a key link to southern Ontario; Highways 109 and 113, which join the region to James Bay and the Saguenay–Lac
4 Ministère des Ressources naturelles et de la Faune, Approximation des superficies du territoire québécois, Direction générale de lÊinformation géographique, September 2006. 5 Institut de la statistique du Québec, Bulletin statistique régional, December 2004. 6 Ministère des Affaires municipales, du Sport et du Loisir, Répertoire des municipalités du Québec, 2004. 7 LÊObservatoire, Fenêtre sur la région, Rouyn-Noranda, Abitibi-Témiscamingue, 2005.
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Saint-Jean region via Chibougamau, respectively. The region has two regional airports at Val dÊOr and Rouyn-Noranda, both with flights to Montréal, Québec City and Northern Québec. The Abitibi-Témiscamingue region has numerous structured wildlife zones for hunting and fishing, including one wildlife reserve, six harvesting controlled zones (ZECs), and ten outfitting operations with exclusive rights.8 These zones cover a total area of 17,595 km2, representing 27.2% of the region and almost one-third of its public land. They offer a range of potential, in particular for recreational activities, in addition to various possibilities for a diversification of recreotourism products. Last, the region has 196 protected areas or areas scheduled for protection (wildlife habitats, ecological reserves, national parks, exceptional forest ecosystems) covering 2,808.39 km2, of which 79.9% (2,245.07 km2)9 comprises a biodiversity reserve and eleven proposed biodiversity or aquatic reserves. It is reasonable to consider that all or some of these areas could be used for recreotourism in the region. Table 1 details the protected areas in the territory covered by the PRDTP. TABLE 1 PROTECTED AREAS IN THE ABITIBI-TÉMISCAMINGUE REGION
Status Number Area (km2) Québec national park 1 261.00 Ecological reserve 8 72.00 Wildlife habitat* 156 183.87 Exceptional forest ecosystem** 15 20.02 Privately-owned natural reserve 1 3.00 Site protected under the charter of a private 2 0.30 organization Habitat of a threatened or vulnerable species 1 0.01 Proposed aquatic reserve*** 1 23.12 Proposed biodiversity reserve*** 10 2052.00 Biodiversity reserve 1 193.07 Total 196 2 808.39 Ministère du Développement durable, de lÊEnvironnement et des Parcs, Stratégie québécoise sur les aires protégées, September 2006. * Ministère des Ressources naturelles et de la Faune, in-house compilation, August 2005. ** Ministère des Ressources naturelles et de la Faune, in-house compilation, November 2005. *** Ministère du Développement durable, de lÊEnvironnement et des Parcs, Registre des aires protégées par désignations, July 2007.
8 Société de la Faune et des Parcs du Québec, Plan de développement régional associé aux ressources fauniques de lÊAbitibi-Témiscamingue, Direction de lÊaménagement de la Faune, Rouyn-Noranda, April 2002. 9 Ministère du Développement durable, de lÊEnvironnement et des Parcs, Registre des aires protégées par désignation, July 2007.
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MAP 1
REGIONAL PLAN FOR PUBLIC LAND DEVELOPMENT – RECREOTOURISM IN THE ABITIBI- TÉMISCAMINGUE REGION – AREA COVERED
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1.2 Regional context The regional context is examined here from the standpoint of the three major components of sustainable development –environmental, social and economic.
1.2.1 Environmental context The land in the region falls into three natural provinces10 and was profoundly marked by the passage of the glaciers. It offers a range of landscapes and environmental features which determine the regionÊs socio-economic activities. Water is omnipresent, and the region contains many different lakes and rivers forming part of two watersheds – the St. Lawrence and James Bay watersheds. A major water resource, in terms of both quantity and quality, is found in the many eskers11 in the region. An unusual climate, characterized by relatively dry, long and cold winters, reduces the harshness of the conditions, ensures high-quality snowfall, and supports winter activities in the recreotourism field.
Forests cover 85% of the Abitibi-Témiscamingue region, in the form of softwood stands (36%), mixed stands (35%) and hardwood stands (23%), with 6% of unforested land (regenerating).12 The forest stands on public land are relatively young, with 46% aged 60 years old or less. The range of natural habitats in the region allows many different species of animals, birds and fish, including large numbers of migratory birds, to populate many different natural environments.
1.2.2 Social context Unlike more urban regions, the Abitibi-Témiscamingue region has public land located close to inhabited areas, often only a few minutesÊ drive away. For this reason, the local population uses public land extensively for various recreational activities, and also for educational and cultural purposes, which together make up the main social uses of the land. As of December 9, 2005, 403 archaeological sites had been identified in the region,13 bearing witness to its past and helping to protect its heritage. Recreational activities are facilitated by the existence of around 4,700 km of trails, including almost 3,100 km of snowmobile trails,14 and roughly 8,000 vacation site leases, including 6,058 leases for rough shelters, ranking the Abitibi-Témiscamingue region first out of all the regions with almost 55% of the total for
10 Ministère du Développement durable, de lÊEnvironnement et des Parcs, Le cadre écologique de référence (CER) pour lÊaménagement du territoire et des ressources, 2005, retrieved from
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Québec. In addition, six ZECs, the La Vérendrye wildlife reserve and the Aiguebelle national park cover a total of 15,413 square kilometres.15
Natives have been granted special trapping rights in the beaver reserves covering an area of 20,520 square kilometres16 or almost one third of the region (31.7%).
Together, the areas described above on which rights have been granted or to which a status has been assigned under these headings cover 47,000 square kilometres, or 73% of the total area of the region. This demonstrates the level of the demands made on public land for social activities.
1.2.3 Economic context The regional economy is mainly based on natural resource development and, to a lesser extent, on processing. Mining, forestry, farming and recreotourism are the main economic activities in the region.
The Abitibi-Témiscamingue region is known around the world for its mining industry. The region produces approximately 69% of all the gold, 64% of all the copper17 and 17% of all the other minerals produced in Québec. Mining investment in the Abitibi-Témiscamingue region amounts to almost one third (31%) of the total for Québec, and exploration and development expenditure represents 44% of the total for Québec. Many different mineral rights have been granted: together, leases for surface mineral substances, mining leases, mining concessions and claims18 cover approximately 7,417 square kilometres, or over 11% of the region.19
15 Ministère des Ressources naturelles et de la Faune, Direction régionale de la gestion du territoire public de lÊAbitibi-Témiscamingue, Compilation interne du système BGR, July 2004; 16 Ministère des Ressources naturelles et de la Faune, Direction régionale de la gestion du territoire public de lÊAbitibi- Témiscamingue, Compilation interne du système BGR, September 2004; 17 Ministère des Ressources naturelles et de la Faune, Direction de la politique et de lÊéconomie minérale, March 2004. 18 A claim is a mineral exploration title that gives its holder an exclusive right to search for all mineral substances on public land, except for sand, gravel, clay and other surface desposits in the area covered by the claim. Source: retrieved from MRNF website
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Forested land in the region covers over 55,000 square kilometres, making up 8.4% of all southern forests in Québec and supplying 14.3% of the annual allowable cut.20 The holders of wood processing plant licences share 3521 timber supply and forest management agreements covering 47,055 square kilometres, or 72.7% of the region. In addition, 2,689 square kilometres are subject to 22 forest management contracts with regional county municipalities and local municipalities in the region, raising the proportion of the region subject to forest rights to almost 77%.22 In the Abitibi-Témiscamingue region, in 2002, the forest provided employment for over 5,585 people.23 In 2001, farming in the region generated revenues of over $87.8 million. With 810 farms covering 2,025 square kilometres, the Abitibi -Témiscamingue region has 2.5% of QuébecÊs farms.24 Most raise livestock: meat cattle, dairy cattle and sheep. An area of 6,396 square kilometres, or 9.89% of the region, is protected by the Act respecting the preservation of agricultural land and agricultural activities. In addition, the Abitibi-Témiscamingue region has an abundant range of wildlife resources that constitute a significant economic motor. This has led to the development of a network of 90 outfitting operations without exclusive rights, and 10 outfitting operations with exclusive rights, the latter covering 2,476 square kilometres. Recreotourism activities in the Aiguebelle national park, the La Vérendrye wildlife reserve and the ZECs (see Table 2) also contribute to the regionÊs economy. The popularity of hunting and fishing has stimulated vacation site development. The assessed value of cottages in the region exceeds $150 million25 and recurrent annual expenditure on maintenance and subsistence amounts to almost $42.9 million.26 In 2000, wildlife-related and outdoor activities by residents of the Abitibi-Témiscamingue region generated over $128 million of expenditure27 in the region, while the previous year snowmobilers spent $37.6 million.28 Although the regionÊs economic structure remains sensitive to conjunctural events caused by fluctuating metal prices, the imposition of compensating export duties, and so on, it has strong potential for economic development, especially in the mining, forestry, farming and water resource sectors. It has major strengths in terms of mining expertise, organic farming, wood construction system components and water tapping, as well as recreotourism development
20 Ministère des Ressources naturelles et de la Faune, Une introduction au cadre forestier québécois, (PowerPoint presentation), October 2003. 21 Ministère des Ressources naturelles et de la Faune, Direction de la gestion des stocks forestiers, Répertoire des bénéficiaires de CAAF, Québec, September 2004. Figure updated February 2005. 22 Ministère des Ressources naturelles et de la Faune, Direction de la planification opérationnelle, March 2004. 23 Ministère des Ressources naturelles et de la Faune, 2004, in-house compilation based on Statistics Canada , Survey of employment, payrolls and hours (SPEH), 2002. 24 Ministère de lÊAgriculture, des Pêcheries et de lÊAlimentation, Portrait bioalimentaire régional de lÊAbitibi-Témiscamingue, [on-line] 2001. 25 Ministère des Affaires municipales et de la Métropole, Sommaire des rôles dÊévaluation municipale 2003. 26 Ministère des Ressources naturelles et de la Faune, Service du développement et de lÊintégrité du territoire, Jean François Lamarre, January 2004. Expenditure calculated at $6 570 per cottage per year, updated to October 2003, based on data from the Stratégie de développement économique du secteur du territoire – volet développement du territoire public, October 2001, p. 10-12. 27 Société de la Faune et des Parcs, Secrétariat général, LÊimportance des activités récréatives liées à la faune et à la nature au sein de la population des différentes régions du Québec en 2000. Québec, November 2003. 28 DEVAMCO, Développement du produit touristique de la motoneige en Abitibi-Témiscamingue, Rouyn-Noranda, September 1999.
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possibilities: the setting aside of 316 square kilometres to set up an outfitting operation with exclusive rights (around Lake Watson) and the possible creation of a recreotourism trail (the Fur Route) add to its potential.
1.2.4 Multiple land use The public land in the Abitibi-Témiscamingue region contains a wealth of natural resources that justify its designation as a resource region. The abundant, varied resources facilitate a range of socio-economic activities that help maintain and create jobs and sustain the quality of life of the population.
Because of the range of resources present, large areas of public land are subject to two more land uses. Together, the land rights and types of status granted cover an area of 130,000 square kilometres, twice the actual area of the region. In addition, various linear rights such as snowmobile trails and planned socioeconomic projects (ecological reserves, water park, etc.) cover another several hundred square kilometres. This situation reflects the potential of the public land base and the contribution it makes to the region, but also the complexity of the development situation. The main stakeholders, players and promoters, while safeguarding their own interests (whether environmental, social or economic), must have a shared vision of land use and development. The harmonization of land uses is the challenge that must be met if the population is to enjoy all the benefits of the development of this collective wealth.
1.2.5 Consultation of Native communities Natives have lived in the Abitibi-Témiscamingue region for the last 8,000 years. In two recent decisions (Haida Nation v. British Colombia, 2004 SCC 73; Taku River Tlingit First Nation v. British Colombia, 2004 SCC 74), the Supreme Court of Canada recognized that the Government has an obligation to consult Native communities and seek accommodation with them where applicable. From this point of view, it is important to stress that the MRNF applies the interim guide for consulting with Aboriginal communities, published by the Secrétariat aux affaires autochtones du Québec.29
29 Secrétariat aux affaires autochtones. Guide intérimaire en matière de consulation des communatautés autochtones. Gouvernement du Québec, 2006, 16 pages.
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The overview describes current recreotourism activities on public land in the region, although in some cases activities on private land are also considered. Next, the chapter identifies the potential of public land for recreotourism development.
2.1 Current situation
2.1.1 Tourism in Québec Tourism has already become the worldÊs largest industry, and by 2010 the number of tourists travelling outside their home country is expected to increase by 76%.30 According to Tourisme Québec, „Like tourism elsewhere in the world, tourism in Québec is growing.‰31 Statistics for Québec from 2002 show that tourism continued to grow for the fourth consecutive year, despite the uncertainty generated by the events of September 11, 2001.32 On the other hand, the composition of the tourist clientele depends on world events. Since 2001, more Québec tourists have visited Québec, while the percentage of US and international tourists has fluctuated depending on world events such as the war in Iraq, SARS (severe acute respiratory syndrome), a downturn in the world economy, the increased value of the Canadian dollar compared to the US currency, etc.
Québec has several trump cards (a strong basic infrastructure, a range of products, activities and events, competitive advantages in terms of quality), and is in a strong position to attract a high market share.33 The document 2000-2005 Tourism Marketing Strategy published by Tourisme Québec34 identifies eight priority products for Québec as a whole:
9 Tours, where the itinerary is focused on the discovery of communities and their natural and cultural environments. A tour often combines several different tourist attractions, and includes accommodation, transportations and frequent stops in retail outlets, generating economic benefits for a range of suppliers;35
9 Urban stays, dedicated to visits to the main attractions of a large city; 9 Resort stays, in high quality natural surroundings that are easily accessible and feature a wide range of activities;
30 Tourisme Québec, Résumé de la politique de développement touristique, Québec, 2001.
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9 Downhill skiing, characterized by a stay at a ski resort offering accommodation along with indoor and outdoor activities; 9 Hunting and fishing trips, almost exclusively dedicated to the main activity; 9 Snowmobiling, an activity that combines tours over long distances and accommodation over several nights; 9 Outdoor adventures, a trip that focuses on outdoor activities amid natural surroundings; 9 Meetings, conventions and incentive travel cater to business.
2.1.2 Tourist development strategy for the Abitibi-Témiscamingue region There are several reasons to develop initiatives based on the priority products in the Tourism Marketing Strategy to increase the Québec share of a target tourism market: the creation of new jobs with minimum investment, the investment of new money, the visibility of specific population groups and safeguarding of their traditions, etc.36 Because of this, each region in Québec must focus on its comparative advantages to develop the recreotourism sector of its economy. From this point of view, the Abitibi-Témiscamingue region is a developing region: in 2004, it attracted no more than 2.3% of all tourists in Québec, ranking it 15th out of 20 tourist regions (682,000 visitors out of a total of 29,992,000)37 in Québec and generating economic benefits of about $111 million.38. This last figure represents an increase of more than 105% between 2000 and 2004. During this same period, the number of visits to the region increased by 46.5%, well in excess of the average for Québec as a whole 39. Until the late 1990s, 73% of tourists came to the region to visit family and friends.40 Today, the situation has been reversed, and most tourists now come to the Abitibi-Témiscamingue region to complete tours (38%), for outdoor adventures (16%), to fish (5%), to take part in events (5%), or for business (2%).41 Visits to family and friends now account for only 28% of all trips.42 Most visitors from outside Québec are attracted by outdoor activities,43 made even more enjoyable by the features and advantages of the regionÊs specific characteristics: its northernness, wide open spaces, flora and fauna, and lakes and rivers. These features have gradually overcome prejudice (about the weather, bugs, etc.) and the unflattering image previously conveyed by the media (lumberjack territory, etc.).
36 Tourisme Abitibi-Témiscamingue, Plan stratégique de développement et de marketing, final report, Rouyn-Noranda, June 2000. 37 Tourisme Québec, Le tourisme au Québec en bref, 2003, Québec, Septembre 2004. 38 Ibid. 39 Tourisme Abitibi-Témiscamingue, Rapport annuel 2003 2004, Rouyn-Noranda, 2nd quarter 2004. 40 Conseil régional de développement de lÊAbitibi-Témiscamingue, Tourisme actuel, dans lÊObservatoire, Rouyn-Noranda, April 2001. 41 Tourisme Abitibi-Témiscamingue, Rapport annuel 2003 2004, Rouyn-Noranda, 2nd quarter 2004. 42 Ibid. 43 Conseil régional de développement de lÊAbitibi-Témiscamingue, Tourisme actuel, in LÊObservatoire, Rouyn-Noranda, April 2001.
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To make the tourism industry more dynamic, Tourisme Abitibi-Témiscamingue drew up a strategic development and marketing plan in 200044 specifically focused on five products previously targeted in the 1995 development plan for the Abitibi-Témiscamingue region and repeated in the tourism marketing strategy of Tourisme Québec. The participants in a regional symposium held in Rouyn-Noranda on January 15, 200445 confirmed the value of the following products, which are described in the 2007-2012 strategic marketing development plan.46
9 Snowmobiling
According to a study carried out in 1999, snowmobiling generates $37.6 million each year in economic benefits, including $4.4 million spent by tourists from outside the region.47 Most of the money is spent on snowmobile sales ($13.5 million), accommodation and food services ($7.7 million), fuel ($5.8 million) and other seasonal recreational items ($9.5 million). Snowmobilers from outside the region spend $2.2 million on accommodation and food and $1.4 million on fuel. The activity attracts 6,400 snowmobilers from outside the region, of whom 4,900 are from outside the province (Ontario, United States, Europe).48
The Abitibi-Témiscamingue region has one of the best, if not the best, network of snowmobile trails in Québec.49 Snowmobiling enjoys several advantages in the region, including the quality and duration of the snow cover, the quality of the trail maintenance, and the wide open spaces. The low level of traffic on the trails constitutes another advantage, since it improves the trekking experience. Paradoxically, it also confirms the development potential for this activity. The opening of an access trail to the La Vérendrye wildlife reserve has increased traffic on the regionÊs trails, whose geographic location allows it to offer a product integrated with adjacent networks in Ontario and the Mauricie region of Québec.
During the 2005-2006 season, the region accounted for 9.3% of all snowmobile trails in Québec, with a total of 3,100 kilometres maintained by eight clubs with over 4,000 members.50 In 2003, it there were 15,059 snowmobiles registered in the region,51 meaning that just over one third of snowmobilers belonged to a club. Since 1997, the number of snowmobiles registered in the region has dropped significantly, by 13%, showing that fewer people are taking up the sport and the competition from the quad-bike sector. This recreotourism sector relies heavily on volunteers, and the situation is a concern for snowmobiling clubs that count on their members to maintain a network of trails, a costly, time-consuming and complex task. Over the same
44 Tourisme Abitibi-Témiscamingue, Plan stratégique de développement et de marketing, final report, Rouyn-Noranda, June 2000. 45 Tourisme Abitibi-Témiscamingue, Colloque de lÊindustrie touristique : Le tourisme, une richesse dÊavenir, Centre des congrès de Rouyn-Noranda, 15 January 2004. 46 Tourisme Abitibi-Témiscamingue, Plan stratégique de développement et de marketing 2007-2012, final report, June 2006. 47 DEVAMCO, Développement du produit touristique de la motoneige en Abitibi-Témiscamingue, Rouyn-Noranda, September 1999, 95 p. 48 DEVAMCO, Développement du produit touristique de la motoneige en Abitibi-Témiscamingue, Rouyn-Noranda, September 1999, 95 p. 49 Ibid. 50 Calculation based on an in-house MRNF compilation (September) 2006 and data from the website of the Fédération des Clubs de motoneigistes du Québec (www.fcmq.qc.ca, 2004). 51 Société de lÊassurance automobile du Québec, Service des études et des stratégies en sécurité routière, May 2006.
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reference period, 1997 to 2003, the number of registered quadbikes rose by 56.6% to 19,390,52 more than the total number of snowmobiles. Quadbikes are more polyvalent and can be used year-round, which partly explains an increase whose impact on snowmobiling cannot be predicted with any accuracy.
9 Hunting and fishing
The Abitibi-Témiscamingue region has many different wildlife species, several of which play an importance economic role by supporting hunting and fishing (moose, black bear, walleye, etc.). Hunting is a popular and widespread activity in the region, taking place mainly on public land. In 2002, the region had 2.0% of all hunters in Québec,53 but only 2% of the total population. Sports fishing, however, is the regionÊs most important wildlife harvesting activity: there are twice as many fishing days annually than hunting days. The Abitibi-Témiscamingue region has around 7% of all fishers in Québec,54 roughly the same proportion as for hunters. However, once again the question of the next generation is a concern: for some years, the number of hunters and fishers has decreased in Québec, which raises various challenges connected with the recruitment of young people and the retention of older people. Moose hunting has remained relatively stable, but Faune Québec expect to see the number of hunters drop over the next five years. There are no comparable data for sports fishers.55
TABLE 2 ECONOMIC SPIN-OFFS GENERATED BY MANAGED WILDLIFE AREAS IN THE ABITIBI-TÉMISCAMINGUE REGION56 Managed Moose Black bear Small game Sports Total ($) % wildlife area ($) ($) ($) fishing ($) Aiguebelle national park n/a n/a n/a 28 000 28 000 0.1 Outfitting operations without exclusive rights 548 000 1 123 000 2 000 8 188 000 9 861 000 19.7 Outfitting operations with exclusive rights 508 000 64 000 10 000 1 971 000 2 553 000 5.1 La Vérendrye wildlife reserve 9 000 n/a n/a 934 000 943 000 1.9 Open land 10 839 000 78 000 2 714 000 18 127 000 31 758 000 63.4
52 Ibid. 53 Société de la Faune et des Parcs du Québec,Plan de développement régional associé aux ressources fauniques de lÊAbitibi-Témiscamingue, Direction de lÊaménagement de la faune, Rouyn-Noranda, avril 2002, 197 pages. 54 Ibid. 55 Société de la Faune et des Parcs du Québec, Les pêcheurs et les chasseurs québécois, des espèces menacées. PowerPoint presentation, 2003. 56 Société de la Faune et des Parcs du Québec, Plan de développement régional associé aux ressources fauniques de lÊAbitibi-Témiscamingue, Direction de lÊaménagement de la faune, Rouyn-Noranda, April 2002, 197 p.
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ZECs 1 145 000 59 000 375 000 3 346 000 4 925 000 9.8 Total 13 049 000 1 324 000 3 101 000 32 594 000 50 068 000 100.0 % 26.1 2.6 6.2 65.1 100.0 n/a Wildlife harvesting (hunting and sports fishing) generates major economic benefits of over $50 million (1999)57 in the region, of which over one third comes from non-residents of Québec, although they account for only 10% of days of activity.58 While Québec residents hunt and fish mainly on open land unencumbered by wildlife rights,59 non-residents are generally the clients of outfitting operations. Overall, 83% of residents and non-residents hunt and fish on open land. Two thirds of the economic benefits are generated on open land, in addition to the benefits generated by outfitting operations without exclusive rights, which also operate on open land. This clear preference for land unencumbered by wildlife rights can be attributed to the fact that it lies close to the main towns, to the presence of numerous outfitting operations without exclusive rights, and to the availability of leases on public land for rough shelters. It is also linked to the fact that hunting and fishing are often successful, since game and fish are both abundant.
9 Circuits Recreational tourism circuits are an increasingly important product in Abitibi-Témiscamingue, mainly because there are not many major or key tourist attractions able to generate large volumes of tourists. Practically all the existing tourist attractions are on private land, including four of the regionÊs five key attractions. It is also important to note that, with the exception of the Aiguebelle national park – which is the regionÊs key attraction on public land - most of the handful of remaining sites of interest on public land have not yet been developed to any significant degree. Despite the existence of some interesting circuits and attractions, there are a number of weaknesses, including low attraction density, the absence of strong iconic attractions and activities for children, poor signage of equipment, and so on.60 Having said this, in 2003, sites in the region attracted over 125,000 visitors and more than 25% of tourists said they had come to the Abitibi-Témiscamingue region to discover its history, culture, landscapes and so on. These tourists spent an estimated $4.25 million on accommodation, helping to maintain more than 2,500 hotel jobs in the region. Circuits therefore have significant economic benefits for all the sectors concerned (attraction operators, suppliers, restaurant owners, etc.).
57 Société de la Faune et des Parcs du Québec, Plan de développement régional associé aux ressources fauniques de lÊAbitibi-Témiscamingue, Direction de lÊaménagement de la faune, Rouyn-Noranda, April 2002, 197 p. Note: More recent data (Société de la Faune et des Parcs du Québec, LÊimportance des activités récréatives liées à la faune et à la nature au sein de la population des différentes régions du Québec en 2000, November 2003) estimate the economic spin-offs at almost $70 million for hunting and sports fishing, solely for spending in the region by residents of the region. 58 Tourisme Abitibi-Témiscamingue, Plan stratégique de développement et de marketing, final report, Rouyn-Noranda, June 2000. 59 „Open land‰ is used to refer to land where hunting and fishing are neither managed by a delagatee (a ZEC, outfitting operation with exclusive rights, park or reserve) nor subject to any constraint other than the applicable national and provincial legislation. 60 Tourisme Abitibi-Témiscamingue, Plan stratégique de développement et de marketing 2007-2012, Final Report, Rouyn-Noranda, June 2006.
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9 Events
Events include festivals, fairs, shows, exhibitions, competitions or sports challenges that attract tourists, including the Abitibi-Témiscamingue international film festival, the Notre-Dame-du- Nord truck rodeo, the Paradis du Nord show, „Osisko en lumière‰, and „Le Tour de lÊAbitibi‰. Around twenty events are held in the region each year, the most popular of which attract between 20,000 and 60,000 visitors.61 Most visitors are residents, and the events have a mainly local attraction.62However, some of them are known outside the region and may attract 5% to 12% of visitors from outside Québec,63 helping to promote the Abitibi-Témiscamingue region. Presently, public land is not used for these events.
61 Ibid. 62 Tourisme Abitibi-Témiscamingue, Plan stratégique de développement et de marketing, final report, Rouyn-Noranda, June 2000. 63 Corbeil, Gestion J. P. / ADEC. Analyse des impacts économiques de lÊindustrie touristique en Abitibi-Témiscamingue, January 2004, under a mandate from the regional tourism association. Results presented at the tourism industry symposium, Centre des congrès, Rouyn-Noranda, 15 January 2004.
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9 Outdoor adventures
This product includes many different activities that take advantage of the regionÊs strengths (a varied natural environment, a range of wildlife, numerous large lakes, northernness, etc.). The presence of specific natural sites, close to urban sites, (including the Kekeko hills, the Cheminis hill, the Val-dÊOr recreational forest), encourages recreational activities such as hiking, cross- country skiing, snowshoeing, biking, etc. The sites are known to and used by the local population, in some cases despite the lack of infrastructures or organizations responsible for maintenance. Several sites still have no official protection status (for example, the Kekeko hills). In general, the population in the region uses public land for various activities, from rock- climbing to wildlife observation, and from berry and mushroom picking to sea kayaking and sailing. The residents of the region involved in outdoor activities (51,713 in 2000), represented 2.2% of all outdoor enthusiasts in Québec,64 or roughly the percentage that the population represents compared to the total population of Québec.
Although tourists are also attracted to the region by adventure and outdoor activities, few statistics are available to map the trend.65 Currently, it is estimated that 40% of the tourists on vacation in the region come for outdoor activities and sports, of whom over half are from outside Québec.66
The interest of Europeans in adventure and outdoor activities, including activities associated with Aboriginal traditions (trapping, dog sledding, canoeing, Indian camping, etc.), is well known.
Waterborne activities such as canoeing and kayaking are some of the most popular outdoor activities. The region is especially advantaged by a continuous network of lakes and rivers and by rail access to some areas to the east of Senneterre (VIA Rail Canada). There is also renewed interest in „soft‰ activities such as cross-country skiing, snowshoeing and hiking. Adventure tourism activities (that take place in a specific natural environment or use a particular type of equipment with its associated risks), and ecotourism (the discovery of the natural environment, the interpretation of the natural or cultural components of the environment) are also considered to be promising avenues for recreotourism development.
2.1.3 Recreotourism in the Abitibi-Témiscamingue region This section examines three sectors (lodging, outdoor recreational activities, cultural recreational activities), and presents an overview of recreotourism in the region, especially for activities on public land. Issues, expected outcomes, and the PRDTP development concept and scenario are all based on this overview.
64 Société de la faune et des parcs du Québec, LÊimportance des activités récréatives liées à la faune et à la nature au sein de la population des différentes régions du Québec en 2000, November 2003. 65 Tourisme Abitibi-Témiscamingue, Plan stratégique de développement et de marketing, final report, Rouyn-Noranda, June 2000. 66 Corbeil, Gestion J. P. / ADEC. Analyse des impacts économiques de lÊindustrie touristique en Abitibi-Témiscamingue, January 2004, under a mandate from the regional tourism association. Results presented at the tourism industry symposium, Centre des congrès, Rouyn-Noranda, 15 January 2004.
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2.1.3.1 Lodging This component has three parts: private cottages, rough shelters and commercial and community resorts.
9 Private cottages
Private cottages are built on large plots (around 4 000 square metres), generally on a lakeshore or riverbank. There are 6,527 cottages in the region67, including 1,896 on public land leased from the MRNF.68 Almost half (46.2%) of these sites are rented by people from outside the region, of whom one third are from outside Québec, either from Ontario or the United States.69
An examination of the distribution of private cottages in the region shows that densities are higher in more accessible areas closer to inhabited zones such as Rouyn-Noranda, Val-dÊOr, La Sarre and Amos (see Map 2). The high cottage densities observed around the town of Témiscaming are connected to the proximity of towns in Ontario. The areas to the east of Témiscamingue, to the east of Senneterre and to the south of Val-dÊOr have lower cottage densities, especially because of their remoteness and the existence of structured wildlife zones (ZECs, outfitting operations with exclusive rights and wildlife reserves).
Cottages generate significant local economic activity. The 6,527 cottages in the Abitibi-Témiscamingue region, with an average value of $22,990 each, represent a total value of over $150 million,70 and total recurrent expenditure by the 1,896 leaseholders of public land for cottages in the region is estimated at $12.3 million per year (maintenance, improvements, renovation, etc.).71
67 Ministère des Affaires municipales et de la Métropole, Sommaire des rôles dÊévaluation municipale 2003. 68 Ministère des Ressources naturelles et de la Faune, Direction générale de la gestion du territoire public, Système de gestion des droits fonciers, in-house compilation, July 2004. 69 Ministère des Ressources naturelles et de la Faune, Direction générale de la gestion du territoire public, Système de gestion des droits fonciers, in-house compilation, July 2004. 70 Ministère des Ressources naturelles et de la Faune, Direction générale de la gestion du territoire public, Système de gestion des droits fonciers, July 2004 (for the number of leases). Ministère des Affaires municipales et de la Métropole, Sommaire des rôles dÊévaluation municipale 2003 (for the average values). 71 Ministère des Ressources naturelles et de la Faune, Service du développement et de lÊintégrité du territoire, January 2004. Expenditure estimated at $6,513 dollars per cottage per year, updated to October 2003, based on data from: Stratégie de développement économique du secteur du territoire – volet développement du territoire public, October 2001, p. 10-12.
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MAP 2 PRDTP RECREOTOURISM OVERVIEW FOR THE ABITIBI-TÉMISCAMINGUE REGION – PRIVATE VACATION SITE DENSITY (COTTAGES)
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The municipalities in the region keep a close watch on vacation site development in their territory, since it can lead to an increased demand for services, especially waste disposal and road maintenance. It also generates extra expenditure on land planning services (enforcement of by-laws, inspections, etc.). In some areas, the transformation of second homes into permanent residences creates a demand for public services such as electricity, telephone lines, snow removal, etc. (urban sprawl). To deal with these concerns, the vacation site development on public land must be planned.
The clay plain that underlies most of the region is composed of soils with low permeability that are difficult to drain, which creates problems for the treatment of wastewater from houses and cottages.72 Most of the regionÊs population lives on the plain, which is also where the lakes with most vacation site development are situated. Over time, the inadequate or non-existent treatment of wastewater could create health problems for cottage dwellers and environmental damage. For this reason, it is important for vacation site development to take place on sites where the soil conditions are conducive to the construction of septic facilities that comply with the regulations in force.73 By zoning the area along the shoreline of lakes chosen during the planning process, the problems could be reduced by selecting the best possible sites for vacation site development.
72 Ministère de lÊEnvironnement du Québec, Direction générale des politiques environnementales en matière dÊeau et dÊactivités agricoles et municipales. Captage des eaux souterraines et traitement des eaux usées des résidences isolées. Québec, May 2003. 73 It is important to note that the MRNF has no power to apply the Regulation respecting waste water disposal systems for isolated dwellings (Q-2, r.8). When the MRNF assesses soil quality for water treatement, it uses the standard established by the Guide de développement de la villégiature, which is more restrictive that the standards in Q-2, r.8, to ensure that the MRNF does not infringe on the responsibilities of the municipalities by appliying a regulation outside its jurisdiction.
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9 Rough shelters
Rough shelters74 are a form of building found only on public land. The plots are small (100 square metres) and must meet specific criteria in terms of location, distribution and construction. In 2004, 6,058 rough shelter leases had been granted in the region,75 an increase of 17% compared to 1993.76 The rough shelter leases represent around 76.1% of the combined cottage/rough shelter leases in the region, and over half (55.0%) of the 11,012 rough shelter leases on public land in Québec as a whole.77 Over two thirds of the holders of rough shelter leases are residents of the region; most of the others are from other regions of Québec,78 and a few are from Ontario or the United States.
The plots are found throughout the region (see Map 3). However, higher concentrations of rough shelters exist around inhabited areas and the most accessible zones, especially in the territory of Ville de Rouyn-Noranda and around Duparquet and Hébécourt lakes in the Abitibi-Ouest regional county municipality.
The availability of rough shelter leases on public land is known to be behind the popularity of moose hunting in the Abitibi Témiscamingue, which generates major economic benefits. Recurrent expenditure (renovation, maintenance, improvements, etc.) on rough shelters amounts to $4.7 million each year in the region.79 However, large concentrations of rough shelters can cause problems with other users of public land, especially during the hunting season.
Rough shelters create a „privatization‰ effect, as their owners appropriate a hunting territory. This situation may have been caused by a regional standard, in force for several years, which sets a minimum distance of one kilometre between sites leased for rough shelters. It important to ensure that the density of rough shelters in these areas remains low. The lowest concentrations are found in the east of the region, and are practically zero in structured wildlife zones.
74 A rough shelter allows forest activity enthusiasts, mainly hunters and fishers, to lease a maximum of 100 m2 of public land to construct a rudimentary building of not more than 20 m2 without permanent foundations, running water or electricity. 75 Ministère des Ressources naturelles et de la Faune, Direction régionale de la gestion du territoire public, Données du système GDF, in-house compilation, July 2004. 76 Ministère des Ressources naturelles, Bilan du Plan régional de développement de lÊAbitibi-Témiscamingue (PRDV), Rouyn-Noranda, May 2001, 25 p. 77 Ministère des Ressources naturelles et de la Faune, Direction générale de la gestion du territoire public, Données du système GDF, in-house compilation, July 2004. 78 Ibid. 79 Ministère des Ressources naturelles et de la Faune, Service du développement et de lÊintégrité du territoire, January 2004. Expenditure is estimated at $776 per rough shelter, updated to October 2003, based on data from the Stratégie de développement économique du secteur du territoire – volet développement du territoire public, October 2001, p. 10-12.
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MAP 3 PRDTP RECREOTOURISM OVERVIEW FOR THE ABITIBI-TÉMISCAMINGUE REGION – DENSITY OF ROUGH SHELTERS
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Distribution is closely correlated to accessibility, but also to various management decisions such as the province-wide decision to prohibit leases for rough shelters in wildlife reserves and outfitting operations with exclusive rights, and the regional decision taken in 1993 to no longer issue leases in ZECs.
A system to determine sectors where new leases for rough shelters will be granted and to establish rules for siting and cohabitation is a necessity in order to maintain the quality of the recreotourism experience connected with the use of rough shelters while minimizing inconvenience.
9 Commercial and community lodging
Commercial lodging includes lodging provided by outfitting operations, campgrounds and other forest lodging undertakings (inns, hotels and motels, outdoor recreation centres). Community lodging is similar, but operates on the basis of services offered free of charge, or for the equivalent of operating and maintenance costs, to all citizens or to a specific category of citizens: the outdoor recreation centre at Flavrian lake, for example, caters to people with a disability. Since both forms of lodging are distributed similarly and have similar characteristics, they are dealt with together here.
Outfitting operations are common in the Abitibi-Témiscamingue region, which has ten outfitting operations with exclusive rights, all located in the Témiscamingue area and to the east of Senneterre. There are also 90 outfitting operations without exclusive rights,80or 18% of the total for Québec81. The outfitting operations without exclusive rights are located throughout the region, with a higher concentration in the Témiscamingue area, in particular around Des Quinze and Kipawa lakes. Map 4 shows the distribution of outfitting operations (outfitting operations with exclusive rights and outfitting operations without exclusive rights) in the region. Their lodging capacity is 4,621 people, representing 13.8% of the total capacity for Québec.82
However, the outfitting industry is facing several challenges. The lack of new hunting and fishing enthusiasts is affecting its client base. The shortage of qualified workers and the difficulty of retaining employees, the sometimes difficult and costly access to sites, and the aging of equipment and infrastructures are other causes for concern, in addition to cohabitation with other land users. In addition, like other lodging undertakings in the forest environment, the outfitting operations are aware of the deterioration in the natural aspect of the environment, especially in terms of landscape quality. Another point to consider is that outfitting operations offer similar products to those offered by the Société des établissements de plein air du Québec (Sépaq) and the various ZECs.
80 Ministère des Ressources naturelles et de la Faune, Direction régionale de lÊAbitibi-Témiscamingue, in-house compilation based on data from the Société de la faune et des parcs du Québec, June 2003. 81 Société de la faune et des parcs du Québec, Plan de développement régional associé aux ressources fauniques de lÊAbitibi-Témiscamingue, Direction de lÊaménagement de la faune, Rouyn-Noranda, April 2002, 197 p. 82 Société de la faune et des parcs du Québec, Plan de développement régional associé aux ressources fauniques de lÊAbitibi-Témiscamingue, Direction de lÊaménagement de la faune, Rouyn-Noranda, April 2002, 197 p.
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The Abitibi-Témiscamingue region has 29 developed campgrounds, of which six occupy land leased from the MRNF. Most of the 29 campgrounds are in the Abitibi-Ouest and La Vallée-de- lÊOr regional county municipalities and in the territory of Ville de Rouyn-Noranda.83 Many other sites are used informally by outfitters and ZECs, and wilderness campgrounds, without any services, are used by a small number of campers. Most of these sites are in ZECs and along canoe rivers, and also in the wildlife reserve, but the MRNF has no inventory. Last, many campers set up camp on public land for periods from one weekend to several weeks. This type of temporary occupation is closely correlated to new access roads and in particular to improvements in road quality. An increase in the number of roads easily accessible to trailers and recreational vehicles leads to increased occupation in new areas. In some cases, the temporary occupation of public land raises the question of cohabitation or the harmonization of land use with other users. In some cases, groups of campers have been seen to occupy the same sites year after year. Over time, recurrent occupation is likely to harm the environment (waste water, garbage, deforestation, etc.).
Other types of commercial and community lodging in the region include 16 outdoor recreation centres, five holiday camps, six inns in a natural environment and 15 cottage rental businesses. The outdoor recreation centres and holiday camps are mainly located in the north of the region, around Rouyn-Noranda, Amos and Val-dÊOr. Last, an undetermined number of refuges offer an alternative to camping during various activities (canoeing, cross-country skiing, snowmobiling, etc.). The length of the routes and trails involved requires the construction of refuges at regular intervals for reasons of comfort, enjoyment and also security.
To promote the development of all kinds of commercial and community lodging in the forest environment, the most suitable sites must be identified, conditions must be set for new construction and cohabitation with other users, and landscape protection measures must be agreed.
83 Ministère des Ressources naturelles et de la Faune, Direction générale de la gestion du territoire public, data from the GDF system, in-house compilation, July 2004.
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MAP 4 PRDTP RECREOTOURISM OVERVIEW FOR THE ABITIBI-TÉMISCAMINGUE REGION –COMMERCIAL AND COMMUNITY LODGING
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2.1.3.2 Outdoor recreational activities The region offers several outdoor activity possibilities on both private and public land. As indicated above, hunting and fishing remain the main outdoor recreational activities in the Abitibi-Témiscamingue region, but snowmobiling, quadbiking, cross-country skiing, snowshoeing, dogsledding, canoeing and kayaking, cycling and hiking are also popular. Recreational berry picking, especially blueberry picking, is another leading activity. In addition, downhill skiing is available at two resorts, one in Rouyn-Noranda and the other in Barraute (Abitibi regional county municipality). Several recreational activities take place at a specific, specially laid out site (such as an outdoor recreation centre, ski resort, marked trail, etc.). As shown on Map 5, these activities are concentrated in the most populated areas, within the quadrilateral formed by the towns of Rouyn-Noranda, La Sarre, Amos and Val-dÊOr and the area around Ville-Marie. Specifically, the Aiguebelle national park, located at the centre of the quadrilateral, offers many different possibilities for outdoor activities. Many specific natural attractions are located on public land (for example, the Kekeko hills, the Oditan and Nissing hills, Cheminis hill), and could major heritage groups or poles for many different recreational activities. In many cases they are located close to inhabited zones and are used informally by the local population. However, many hunting, fishing and outdoor adventure activities take place in more remote zones. The network of ZECs, the La Vérendrye wildlife reserve and the outfitting operations with exclusive rights attract many residents and non-residents, although not as many as open land. These structured wildlife areas form an almost continuous border from the south of the region to its northeastern extremity. The region also has an extensive network of recreational trails, 4,000 kilometres of canoeable rivers,84 especially in the Témiscamingue and La Vallée-de-lÊOr regional county municipalities; almost 3,100 kilometres of snowmobiling trails, linking the inhabited portion of the region to networks in Ontario, and the Outaouais and Mauricie regions of Québec, and over 680 kilometres of quadbike trails85 on public land, along with another network on private land. Quadbiking is an emerging activity in the region, and the structured network is mainly found in the La Vallée-de-lÊOr regional county municipality. There is a network of just under 800 kilometres of cycle trails, in addition to 568 kilometres of the Green Route, linking the main towns (except Ville de La Sarre) and allowing the entire region to be traversed on a bicycle. Last, there are over 1,000 kilometres of various recreational trails, including 435 kilometres of cross-country ski trails, 142 kilometres of snowshoeing trails, 603 kilometres of hiking trails and several dozen kilometres of dogsledding and horse riding trails, as well as archery trails.86
84 Fédération québécoise du canot et du kayak, Guide des parcours canotables du Québec, tome 1 et 2 (Ottawa: Édition Broquet Inc., 1999). 85 Ministère des Ressources naturelles et de la Faune, Direction régionale de lÊAbitibi-Témiscamingue, regional geographic base system, in-house compilation, June 2006. 86 Ministère des Ressources naturelles et de la Faune, Direction régionale de lÊAbitibi-Témiscamingue, regional geographic base system, in-house compilation, September 2004.
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MAP 5 PRDTP RECREOTOURISM OVERVIEW FOR THE ABITIBI-TÉMISCAMINGUE REGION – OUTDOOR RECREATIONAL ACTIVITIES
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Most recreational trails are laid out around inhabited zones to meet the needs of the local population. There are many multi-purpose trails on public land, used informally and for which no rights have been granted (for example, the trails on Cheminis hill, etc.). In the absence of any rights or status, these trails have no protection, whether in terms of land or landscape. In general, there is no overall plan for recreational trail development. By identifying precise criteria for their long-term survival, integration into the existing network, priority for projects to link various local trails or take advantage of specific potential in the area, more synergy could be introduced into the initiatives taken by various stakeholders. In addition, despite the immense area under public ownership, the region has only a few long-distance trails (hiking or other). The region is especially well suited to long-distance trails, since promoters would only have to negotiate rights of way with a single owner, namely the Gouvernement du Québec, in contrast to the situation on privately-owned land. The many lakes and rivers in the region are used for a wide range of water sports (fishing, canoeing, sea kayaking, sailing, etc.). Access to lakes and rivers is facilitated by various infrastructures, including over one hundred docks and boat ramps,87 along with many unofficial public access points. Access points are essential to the development of the recreotourism potential of the regionÊs lakes and rivers, and their use should be supervised to avoid damage to the immediately surrounding area (caused by vehicle traffic, etc.) and to wildlife habitats (such as spawning grounds) in the vicinity. Last, the region has two navigable waterways. The first, the Témiskawa waterway, follows the „fur route‰ formerly used by Aboriginals and settlers from Notre-Dame-du-Nord to Ottawa, on the Outaouais River. The second is on the Harricana river, from Mourier lake to Amos.
2.1.3.3 Cultural recreational activities Cultural recreational activities include all recreotourism activities connected to culture, heritage or education (for example, interpretation of the natural environment), which mainly take place on public land. Currently, most activities on public land are informal or one-off events (for example, bird watching). However, the various focuses for the activities offer genuine development potential, in particular when they are joined up as part of a recreotourism tour and linked to an activity such as hiking. The creation, in 2004, of a wildlife and natural environment observation tour based on the attraction of six specific sites in the region (the Abitibi-Témiscamingue wildlife observation network)88 is a good example of this approach. Archaeological sites, geological or ecological curiosities, undeveloped heritage sites, etc., can be linked to increase their attractiveness for tourists. Various tourism guides already promote many different tours of the Abitibi-Témiscamingue region based on specific themes and related tourist attractions. The „Route des Pionniers‰, „Route des prospecteurs et des défricheurs‰, „Circuit Champêtre du Témiscamingue‰, etc., are some examples. However, these road-based tours and most of the associated tourist attractions
87 Ministère des Ressources naturelles et de la Faune, Direction régionale de lÊAbitibi-Témiscamingue, in-house compilation based on various databases, November 2004. 88 These sites are: the Aiguebelle national park, the Antoine marsh, the Pageau refuge, the Joannès lake forest education centre, the Kipawa ZEC and the Laperrière marsh.
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(museums, interpretation centres and industrial tours, artisans, farms, etc.) are based on privately-owned land. Publicly-owned land contains many points of interests, such as lookout points and outstanding landscapes (waterfalls, islands) and sites of archaeological or cultural interest (remains of log- driving facilities, Aboriginal sites, etc.). Map 6 shows the various routes and sites that could encourage cultural recreational activities on public land.
2.2 Development potential Based on the overview presented above, development potential can be identified in order to determine the recreotourism products and services that should be planned and implemented on public land. Development potential underlies the stakes, expected outcomes, concept, scenario and action plan under the recreotourism section of the PRDTP. Overall, the existence of accessible public land, available for leisure, recreation and relaxation close to inhabited zones, increases the quality of life in the region. The accessibility and extent of the public land base are two advantages for a more dynamic approach to recreotourism development and the diversification of the regional economy.
2.2.1 Lodging development Despite a negative demographic outlook in the region, there is still some pressure for more vacation site development on public land. Any development must take the concerns of the municipalities into account. Many cottages have been converted into permanent residences, especially close to inhabited zones, and have increased costs for the municipalities (road maintenance, lighting, snow removal, garbage removal, public security, etc.) and, in some cases, have increased demands for services. When bridges are closed and roads are no longer maintained by forestry companies, cottage owners and other users have reduced access. These situations are increasingly frequent; given that responsibility for the maintenance of forest roads may be transferred, on request, to a regional county municipality or local municipality, this type of pressure can be expected.89
89 Bill 54, An Act to amend various legisltative provisions concerning municipal affairs, was passed by the National Assembly of Québec (Gazette officielle # 48 dated 01-12-2004). The Bill introduced provisions allowing a municipality to see to the maintenance and repair of all or part of a road in its territory constructed on land in the domain of the State. To exercise this power, the municipality must apply to obtain authorization from the Minsiter of Natural Resources and Wildlife.
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MAP 6 PRDTP RECREOTOURISM OVERVIEW FOR THE ABITIBI-TÉMISCAMINGUE REGION – CULTURAL RECREATIONAL ACTIVITIES
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As a result, municipal guidelines to control private vacation site development, stricter environmental standards and wildlife protection are all elements that limit the number of potential sites for new development. However, despite the major constraints imposed by soil quality, especially on the Abitibi clay plain, several lakes could still be used for private vacation site development while respecting the concerns of all the stakeholders. This potential for development is low.
As indicated above, the availability of leases for rough shelters on public land is an important element in the popularity of moose hunting in the Abitibi-Témiscamingue region. The size of the public land base and ease of access are advantages for the development of this type of lodging, which generates economic benefits for the region and remains popular among the population. This potential must be developed, however, in a way that complies with the standards in force.
The use of public land is changing. Hunters and fishers have new needs, because this client group now includes families with children. Outfitting operations and ZECs must diversify their products to adapt to the requirements of new customers. They have begun to offer residential family packages, and ecotourism, adventure and nature observation activities. Over the medium term, a increase in recreotourism projects can be expected (commercial lodging and recreation and leisure services), targeting a client base that is more provincial and international than local and regional. As a result, the areas with the best recreotourism potential (in terms of landscape, activities or other elements), able to support the development of commercial and community lodging, must be identified. Some areas, or poles, are already well known (for example, the Kekeko hills, the recreational forests in Val-dÊOr and Piché-Lemoyne, Berry, Duparquet and Kipawa lakes, etc.), but there is no reason why commercial or community lodging projects should not target other areas in the region. Last, an area of land has been set aside in the Témiscamingue region for the development of an outfitting operation with exclusive rights, that may increase the commercial lodging capacity in the forest environment.
Overall, the consolidation and development of private vacation sites should continue to meet the low but ongoing demand, especially in the more accessible areas in the region. The number of rough shelter sites should be maintained and increased to meet steady demand and to respond to the needs of hunters and other outdoor enthusiasts in remoter areas. Last, commercial or community lodging sites should be given priority to increase and diversify the economic benefits of increased tourism in the region.
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2.2.2 Outdoor recreational activities The large number of lakes, the diversity of wildlife, the many structured wildlife zones (ZECs and outfitting operations) and the large area of public land free of wildlife rights are some of the advantages of the region for hunting and fishing. However, the same characteristics also encourage a number of other recreational activities. For example, lakes and rivers have strong potential for canoeing and kayaking. In addition, the range of wildlife species and natural environments promote nature interpretation and wildlife observation, especially bird-watching, which is an activity experiencing strong growth even if it has not been developed extensively in the Abitibi-Témiscamingue region, where there is strong potential. The region lies under two major migration corridors (from New England and the Midwest)90 and is frequented by over 300 species of birds, a definite attraction for bird-watchers.
The large area of public land promotes the establishment of trails, with more stability than on private land·especially in terms of permanent rights of way. The high percentage of land under public ownership in the region promotes the development and consolidation of trail networks. The climatic conditions in the region are also an advantage for the development of winter tourism products: the long, cold and dry winters make the cold weather tolerable and result in high-quality snow that lasts until the end of the season.
The existence in the Abitibi-Témiscamingue region of a large number of relatively undisturbed natural environments and extensive protected areas could encourage visits by ecotourists. This emerging activity can play a role in the region, where the range of landscapes offers a corresponding range of experiences. Another advantage is the rail line used by VIA Rail from Senneterre to Montréal. Many people already use this infrastructure in the sector to the east of Senneterre, where other access is limited. The development of lodging infrastructures along the rail corridor could be envisaged, to allow promoters to take advantage of this original mode of transportation to attract visitors.
Last, several major heritage groups with potential as major outdoor recreational sites are underused and could be developed for recreotourism, in addition to commercial or community lodging in the forest environment. The most important areas are the Cheminis hill, the Kekeko hills, the Opémican regional park, Dumoine river, the Récré-Eau des Quinze project (Ottawa River), the Val-dÊOr recreational forest, the Piché-Lemoyne forest and the La Vérendrye wildlife reserve. Other smaller sites exist elsewhere in the region.
In terms of events, the regionÊs potential for adventure tourism·with its wide open spaces, northernness and wilderness landscapes·offers development possibilities provided the intrinsic features of this potential, such as landscape beauty, are preserved. In the field of outdoor recreational activities, the recreotourism PRDTP identifies recreational trails, public access points and outdoor recreation sites91 as the products that should be given
90 Société de la faune et des parcs du Québec, Plan de développement régional associé aux ressources fauniques de lÊAbitibi-Témiscamingue, Direction de lÊaménagement de la faune, Rouyn-Noranda, April 2002, 197 p. 91 An area is deemed suitable for development for outdoor recreation purposes if it has identified potential for one or more recreational activities such as wildlife observation, landscape appreciation, climbing, hiking, berry picking, etc.
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priority in the Abitibi-Témiscamingue region. However, the development of these products creates an imperative need to protect the area with the best recreotourism potential (landscape, recreational areas, etc.) and challenges connected to harmonization with other land users.
2.2.3 Cultural recreational activities The Abitibi-Témiscamingue region has potential for the creation of recreotourism tours based on discovery of the region. The Green Route, a long-distance bike trail currently under construction, will make the regionÊs attractions accessible to cyclists. In addition, the route formerly used by travellers to Hudson Bay (from Témiscamingue lake to Abitibi lake) has clear recreotourism potential for the interpretation of archaeological sites, adventure tourism and historical tourism. The route, known as the „fur route‰, is travelled by canoe. Another facet of the regionÊs history can be highlighted using the railway between Témiscaming and Mattawa. Some rivers, such as the Dumoine and Harricana rivers, also have cultural potential because of their role in the regionÊs development and their use by Aboriginal communities, in addition to their recreational potential. Together, these sites make up major heritage groups because of their specific characteristics. The development of tours could lead to the establishment of complementary services such as lodging, restaurant services, and outdoor equipment rental. In addition, the La Vérendrye wildlife reserve has potential for the development of cultural recreational activities based on the presence of Aboriginals and their use of the land. As a result, the recreotourism section of the PRDTP identifies cultural recreational sites92 and major heritage groups93 as the main products to be considered and promoted. The objective is to reserve these sites and areas for specific activities in order to development them for recreotourism purposes.
2.3 Summary of the recreotourism overview for the region
The recreotourism section of the PRDTP identifies eight products that should become a focus or whose development should be planned on public land in the Abitibi-Témiscamingue region. These products are identified with the objective of contributing to the development of the recreotourism industry, and therefore to the economic development and wellbeing of all communities in the region. An analysis of the recreotourism situation in the region has identified trends and highlighted the recreotourism potential of most of the products. These trends and potential are shown in Map 7, including the following elements:
9 A sector located close to inhabited areas, with a high density of private development, in which the low availability of public land creates a pressure of use in terms of public access
92 An area is deemed suitated for development for cultural recreational purposes if it contains one or more sites with historical, archeological or educational value and potential for development, such as an archaeological site, remains from a key economic activitiy in the past (such as a trading post, log slide, etc.), a biophysical feature (such as a kettle, peat bog, forest stand, etc.) or another special characteristic. 93 A major heritage group is an area where an outstanding landscape is combined with recreational potential to form a whole, supporting its integral development. For example, the Dumoine river valley could be one of the major heritage groups in the region.
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and recreational activities. The lack of public access to certain lakes could even become a problem. The sector is readily accessibly via maintained roads and forest roads. As a result, public access, recreational uses and commercial or community lodging will be given priority in the development of public land in this sector.
9 Around the preceding sector is the main body of public land; private development is sometimes dense, mainly in the form of rough shelters. There are many outfitting operations without exclusive rights, but no structured wildlife zone. For this reason, this is the „free‰ sector for hunting and fishing, also available for private vacation site development (cottages and rough shelters) and easily accessible via a dense network of forest roads.
9 The extreme east/southeast of the region is covered by ZECs, outfitting operations with exclusive rights and the La Vérendrye wildlife reserve. Recreotourism is this area is mainly directed towards the wildlife resources. Its remoteness and the low density of the forest road network make access more difficult, except for the La Vérendrye wildlife reserve which is crossed by Highway 117.
9 In some sectors, recreotourism activities of local or regional importance are concentrated. The activities are sometimes formal and structured, as at Mont Vidéo or in the Aiguebelle national park, and sometimes informal, as in the Dufay and Hébert lakes sector, and the Cheminis hill. Other sectors are currently becoming more structured, like the Kekeko hills and the Opémican regional park. All these sectors have obtained a degree of recognition, and have potential for recreotourism development.
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MAP 7 PRDTP RECREOTOURISM OVERVIEW FOR THE ABITIBI-TÉMISCAMINGUE REGION – OVERVIEW OF TRENDS AND POTENTIAL FOR RECREOTOURISM ACTIVITIES ON PUBLIC LAND
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9 Various wildlife territories (territoires à caractère faunique or TCF) have been identified; most are lakes. These territories have regional importance for recreotourism, but their development must take into account the need to protect the wildlife resources and habitats that give them their importance. More detailed planning is necessary development their full recreotourism potential is developed.
9 Biodiversity reserves and aquatic reserves are places primarily dedicated to the protection of the environment. This can potentially lead to their use for recreotourism, and the sectors could be developed on the basis of the conditions set out in the definitive conservation plan.
9 The southern extremity of the Témiscamingue region has characteristics that make it suitable for increased recreotourism development. Its landscape is similar to the Laurentians·in terms of relief and bioclimatic domain·and its accessibility for population pools in Ontario and southern Québec increases its development potential. This sector should be assessed more thoroughly.
9 Recreational lake and river routes in the region (canoeing, kayaking and waterways) are extensive, have recognized but underutilized recreotourism potential, and require protection for their landscape. Some, in addition, have cultural dimensions such as the „fur route‰ and the Dumoine river, where archaeological and historical remains add to their significance for the region. On the Harricana river, for example, the historical context has already been developed by an Aboriginal community which organizes various activities.
9 The recreotourism potential of the railway linking Témiscaming to Mattawa has been noted. However, the emergence of projects based on the discovery of the landscape in this part of the region is conditional on the preservation of those landscapes.
9 The area set aside for the establishment of an outfitting operation with exclusive rights has been noted. Its potential for the creation of a new outfitting operation is significant, and must be maintained.
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CHAPITRE 3 USE OF PUBLIC LAND FOR RECREOTOURISM: STAKES AND EXPECTED RESULTS FOR THE REGION The public land use stakes for the recreotourism section of the PDRTP were established using a management-by-results approach within a sustainable development perspective. This approach is derived from the Public Administration Act adopted by the Québec government in 1999, which sets out a new results-oriented management framework. Appendix 2 to this document describes the principal characteristics of the approach, along with the working method used to identify the stakes of most importance to the region. The regional joint discussion table partners have used this approach to identify a number of environmental, social and economic stakes, along with expected measurable results.
3.1 Regional recreotourism stakes The stakes have been established with a view to meeting present recreational needs without compromising the ability of future generations to meet their own needs. In broad terms, this corresponds to the definition of sustainable development, but adapted to recreotourism. The stakes are based on the eight recreotourism products identified previously, and represent the environmental, social and economic gains expected by the general public. The main aims of the joint discussion table participants, in each of these three areas, are to maintain biodiversity, to ensure that the population remains in the region and to develop employment in the region. The impacts of the recreotourism products must be directed towards the achievement of these aims, through their effects and impacts.
3.1.1 Environmental stakes The environmental stakes vary according to the products. For example, the choice of sites for wastewater treatment in accordance with current regulations is important for the development of private vacation sites. Selection of the best possible sites will ensure that the water quality and the health of vacationers and other lake users is protected.
In the case of rough shelters, control of site choices is vital in ensuring that shelters are not built in protected areas or sensitive natural areas, thus protecting wildlife and plant habitats and maintaining biodiversity.
The need to harmonize and integrate recreotourism planning into the natural environment involves ensuring that sites with potential for commercial or community lodging, recreational trails, public access and outdoor and cultural recreational sites are identified and reserved for those purposes. This, in turn, helps preserve the natural character of the sites and protects wildlife and plant habitats.
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In addition, the creation of marked trails will allow movement through the natural environment to be concentrated in specific places, and will help avoid damage from too many trails and from unorganized circulation. Another important stake is the organization of and access to different sites for outdoor or cultural recreational activities by a specific agency that will oversee the planning of access points, trails and other infrastructures. The effect of this will be to limit the damage to natural environments. For major heritage groups, the most important stake is the protection of component landscapes. This involves maintaining the interactions between ecosystems, along with ecosystem diversity. The result is less damage to the land, and maintenance of biodiversity.
3.1.2 Social stakes At the social level, the joint discussion table participants have retained maintenance of access to land and water as one of the major stakes. Access can be achieved in a number of ways. For example, the renting of a private vacation site alongside a stretch of water, or the creation of a public access point along the same stretch of water, are both forms of access. In addition, leases for rough shelter sites and the use of recreational trails are both forms of access to public land. The practice of outdoor and cultural recreational activities by the regionÊs population is another important stake. The availability of rough shelters, public access points, recreational trails and outdoor and cultural recreational sites in the region are all factors that will help increase the practice of recreational activities. Combined with the availability of commercial and community lodging sites, these factors will help maintain the quality of life in the region, which may, in turn, be a key factor in encouraging the population to stay in the region, since people will be able to satisfy their recreational needs without travelling outside the region. A final social stake is the protection of the regional collective heritage, in the shape of cultural recreational sites and major heritage groups. Depending on the level of conservation achieved, such protection improves the entire collective heritage and also enhances the populationÊs sense of belonging to the region. A population that feels it belongs will be more likely to remain in the region.
3.1.3 Economic stakes One of the main economic stakes for recreotourism retained by the joint discussion table participants is an increase in purchases of goods and services in local communities. Vacationers, hunters, fishers and other public access users who practise recreational activities are likely to make purchases from local stores (sports equipment, food, lodging, fuel and other items). Construction and renovation of private vacation sites and rough shelters is often also spent on goods and services in the region. This new client base, combined with the resulting direct and indirect jobs (new jobs or maintained existing jobs), will have an impact on the development of regional employment.
Another significant economic stake is an increase in recreotourism investments generated by the preservation of sites conducive to specific types of development, such as commercial and community lodging, recreational trails or outdoor and cultural recreational sites. Protection of
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the integrity of major heritage groups may also generate similar impacts by reassuring promoters as to the sustainability of heritage group landscapes. Recreotourism investments will include the introduction of new firms or the expansion of existing firms. This, in turn, will lead to an increase in and diversification of the recreational activity supply, and hence an increase in the number of tourists.
Hunting, facilitated by the existence of rough shelters, is also a major stake due to the activityÊs significant economic repercussions for the region. Rough shelters are of great importance to moose hunters, and the availability of this product may have an impact on the number of new hunters coming into the region.
Overall, these economic stakes, or anticipated gains, are likely to contribute to the stability and diversity of recreotourism jobs, and may even lead to the creation of new jobs. At the same time, recreotourism development is likely to increase the opportunities for discovering regional landscapes resulting from the enhancement of outdoor and cultural recreational sites. It will also help to develop the regionÊs image as a recreotourism destination, and will ensure that tourists return to the region for subsequent visits (more activities, more things to discover, etc.). Ultimately, all this will result in the growth of regional employment.
3.2 Expected results for the region In the context of public land management, the management-by-results approach also involves measuring what has been achieved and the resulting changes for the population. It is therefore necessary to assess these achievements: as an indispensable first step, the expected results for each product are described below.
3.2.1 Private vacation sites Based on a rate of 20 new sites per year, the MRNF will have offered 100 new private vacation sites on public land by 2011. These sites will all have the biophysical features required to ensure that wastewater can be treated in accordance with current regulations.
3.2.2 Rough shelter sites Based on a rate of 50 new sites per year, the MRNF will have assigned 250 new rough shelter sites on public land within the region by 2013. In selecting the areas in which rough shelters will be permitted, care will be taken to avoid protected areas and other sensitive wildlife and plant habitats. The availability of rough shelter sites will have encouraged new hunters to come to the region.
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3.2.3 Commercial and community lodging sites in a forest environment
By 2013, the MRNF will have identified five areas conducive to the exclusive development of commercial or community lodging on public land in the Abitibi-Témiscamingue region. These areas will all have significant potential. Regional agreement on the fact that they should be set aside for lodging purposes and to protect the surrounding landscape will help foster recreotourism investments.
3.2.4 Recreational trails
By 2013, the MRNF will have helped consolidate and structure the recreational trail networks on the regionÊs public land. This result will be assessed from the length of the new trails, the number of users, the connections between trails and their stability.
3.2.5 Public access points
By 2013, the MRNF will have set aside 50 new public access zones along lakeshores and watercourses in the Abitibi-Témiscamingue region. The new access points will be established during riparian zoning exercises by the MRNF or its partners. The setting aside of these areas for public access purposes will foster their subsequent development and their use by the general public.
3.2.6 Land suitable for outdoor recreational use
By 2013, the MRNF will have helped identify 20 new areas suitable for the development for outdoor recreational use94 in the Abitibi-Témiscamingue region. These areas will be identified during riparian zoning exercises and surveys of high-interest land units95 carried out by the MRNF or its partners. After identification, these areas will have been taken over by other bodies, and development investments will have been made.
94 An area is deemed suitatlbe for outdoor recreational use when it has identified potential for one or more recreational activities, such as wildlife observation, landscape appreciation, climbing, hiking, berry picking, etc. 95 A high-interest land unit is an area with specific characteristics that set it apart, but without official status. The inventory of high-interest land units will identify sites with potential for recreotourism and determine protection or development objectives.
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3.2.7 Areas suitable for cultural recreational use By 2013, the MRNF will have identified five new areas suitable for cultural recreational use96 in the Abitibi-Témiscamingue region. These areas will be identified during riparian zoning exercises and surveys of high-interest land units carried out by the MRNF or its partners. After identification, these areas will have been taken over by other bodies, and development investments will have been made.
3.2.8 Integrity of major heritage groups By 2013, the MRNF will have contributed to the identification by partners and the regional population of three major heritage groups97 on public land, as a permanent recreational development asset for the Abitibi-Témiscamingue region. These groups will be identified under this PRDTP. Following recognition by the regional community, the groups will have been included in various other planning documents (PATP, the land use planning and development plan of regional county municipalities, etc.) and will have generated recreotourism investments.
96 An area is deemed suitated for development for cultural recreational purposes if it contains one or more sites with historical, archeological or educational value and potential for development, such as an archaeological site, remains from a key economic activitiy in the past (such as a trading post, log slide, etc.), a biophysical feature (such as a kettle, peat bog, forest stand, etc.) or another special characteristic. 97 A major heritage group is an area where an outstanding landscape is combined with recreational potential to form a whole, supporting its integral development. For example, the Dumoine river valley could be one of the major heritage groups in the region.
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CHAPITRE 4 SPATIAL DEVELOPMENT CONCEPT
The concept represents a vision of recreotourism development that includes the MRNFÊs guidelines and a series of more regionally focused guidelines established with the Joint Discussion Table partners. The concept identifies areas with shared characteristics, then clarifies the guidelines and describes how they will be applied in each sector of the region. It covers lodging, outdoor tourist and recreational activities and cultural recreotourism activities, and shows how the recreotourism sector will be developed in the coming years, as well as how the PRDTP will respond to the needs of different recreotourism client groups.
The area has been divided on the basis of access for the purposes of the spatial development concept. Access naturally includes the notion of proximity, the presence and quality of roads, the existence of public access points, and so on, as well as the notion of access controls for certain activities (especially hunting and fishing) in structured wildlife territories, as opposed to the lack of control elsewhere in the area, which is described as „free‰. These very simple parameters have been used to divide the region into three main planning sectors.98 Map 8 shows the regional divisions used in the spatial development concept.
The concept is implemented through the development scenario and the Action Plan. Generally speaking, the partners involved in the implementation of the PRDTP concept will be able to identify the specific actions of concern to them in the Action Plan.
4.1 Immediate planning sector The boundary formed by privately-owned land and intra-municipal lots delimits the immediate planning sector, which is characterized by the proximity of inhabited areas, the large number of good quality, well-maintained roads and the number of public access points. This sector is where most of the regional population lives. Here, public land is located close to inhabited areas. There is less public land, proportionally speaking, than in the rest of the region, and as a result it is used heavily by the general public for private vacation purposes, and also for numerous extensive recreational activities such as hunting, fishing and various excursions (rambling, quad biking, snowmobiling, mountain biking, etc.)
98 A planning sector is an area within the region that contains parts of territories with the same general access features. Each planning sector therefore has its own specific orientations and objectives.
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However, due to the scarcity of public land in the sector, especially in riparian environments, and its proximity to inhabited sectors, one of the principal guidelines for this sector must be to maximize access by the general public to the sectorÊs recreational potential. Access is defined as the possibility for the general public to take advantage of a recreotourism resource such as a lake, a watercourse, a beach, a rambling trail and so on. Infrastructures other than private vacation sites on public land will help ensure that access is available for the majority. Areas offering a number of recreational development possibilities will be set aside for the development of commercial and community lodging.
.
4.1.1 Lodging component The planning sectorÊs guideline with regard to lodging has been translated into a number of objectives, namely:
9 Consolidating99 existing private vacation development to allow the municipalities to secure a return on their service infrastructures where applicable. It will also enable a limited number of cottage sites to be offered in order to satisfy the demand while giving the municipalities control over the spread of urban development.
9 Giving priority to commercial and community lodging, especially multiple purpose projects including public access or the development of a recreotourism resource on sites offering the broadest range of activities and the greatest development potential.
9 Limiting rough shelter development in order to leave public land free for new types of occupation. This is necessary because rough shelters tend to privatize areas, and also because of the high occupation density currently observed in this planning sector.
99 Consolidation of a vacation site means that private vacation development will be permitted provided it does not involve the prolongation of existing roads. For example, subdivision into two rows, one along the side of the road not adjacent to the lakeshore, would constitute consolidation. Consolidation will be permitted around lakes not stipulated in the Action Plan, but will be authorized only in areas that meet the standards set out in the Guide de développement de la villégiature sur les terres du domaine public and in the Règlement sur lÊévacuation et le traitement des eaux usées des résidences isolées (Q-2, r.8).
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MAP 8 REGIONAL PLAN FOR PUBLIC LAND DEVELOPMENT RECREOTOURISM OVERVIEW OF THE ABITIBI-TÉMISCAMINGUE REGION – PLANNING SECTORS
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4.1.2 Outdoor recreational activity component The planning sectorÊs guideline with regard to outdoor recreational activities has been translated into a number of objectives, namely:
9 Giving priority to public access by setting aside suitable areas during the zoning of riparian corridors around lakes. 9 Avoiding private vacation development on riparian and non-riparian public land with recreational potential, in order to foster its development and enhance its use by the general public. 9 Identifying potentially structural sites that could eventually support major recreotourism developments, and incorporating outdoor recreational activities, associated lodging facilities and public access points (the notion of growth pole). 9 Foster the consolidation and expansion of recreational trail networks on public land, especially stretches of trails that connect to other trails, those used for multiple purposes and those used throughout the year.
4.1.3 Cultural recreational activity component
The following objectives have been established for cultural recreational activities in the immediate planning sector: 9 Avoiding private vacation development on riparian and non-riparian public land with cultural recreational potential, in order to foster its development.
9 Preserving the integrity of major heritage sets, especially their landscape characteristics, to foster the development of recreotourism tours.
4.2 Peripheral planning sector
The peripheral planning sector extends from the immediate planning sector to the boundary of the structured wildlife territories. It is characterized by a very high percentage of public land, and hence by the absence of structured wildlife territories (ZECs, private outfitters with exclusive harvesting rights, wildlife sanctuaries). Theoretically, the general public has free access to all watercourses, lakes and sites suitable for recreational activities. In practice, however, access may be limited due to the distance from inhabited areas and the density and quality of the roads, both of which tend to be exacerbated in more remote areas. As is the case for the immediate planning sector, the general public also uses this sector for private vacationing and for numerous extensive recreational activities.
A lot of rough shelter leases have been granted in this sector, and it is still possible to grant more. The preponderance of public land in this sector will allow the trail network to be
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stabilized, especially for snowmobiles. A special effort will be made to create links between trails, so as to extend the long-haul network.
Based on the more extensive use of this sector and its more limited access, the guideline retained is to „continue with the multiple use of public land for recreational and tourism purposes, while giving priority to public access‰. The eight previously identified products will all be developed in this sector, so as to respond to a range of demands. The areas offering the best potential for each product will be identified and specific conditions will be applied. Generally speaking, however, the public must continue to have free access to the sectorÊs recreational and tourism resources.
4.2.1 Lodging component The sectorÊs guideline with regard to lodging has been translated into a number of objectives, namely: 9 Developing private vacation sites in the best possible locations, taking into account wildlife, environmental and municipal concerns. This will allow the demand to be met by sites that satisfy sustainable development criteria. The consolidation of existing vacation sites will also be maintained. 9 Giving priority to commercial and community lodging, especially multiple purpose projects including public access or the development of a recreotourism resource on sites offering the broadest range of activities and the greatest development potential. 9 Developing lodging in the form of rough shelters while ensuring that public land remains free for new occupations.
4.2.2 Outdoor recreational activity component The planning sectorÊs guideline with regard to outdoor recreational activities has been translated into a number of objectives, namely: 9 Giving priority to public access by setting aside suitable areas during the zoning of riparian corridors around lakes. 9 Avoiding private vacation development on riparian and non-riparian public land with recreational potential, in order to foster its development and enhance its use by the general public. 9 Protecting sites that could eventually support major recreotourism developments, and incorporating outdoor recreational activities, associated lodging facilities and public access points (the notion of growth pole). 9 Fostering the consolidation and expansion of recreation trail networks on public land, especially stretches of trails that connect to other trails, those used for multiple purposes and those used throughout the year.
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4.2.3 Cultural recreational activity component The planning sectorÊs guideline with regard to cultural recreational activities has been translated into a number of objectives, namely:
9 Preserving sites with cultural recreational potential in order to foster their subsequent development. 9 Preserving the integrity of major heritage sets, especially their landscape characteristics, to foster the development of recreotourism tours.
4.3 Remote planning sector The remote planning sector is delimited by the boundaries of the structured wildlife territories, where access for recreational purposes is more controlled. This planning sector is composed almost entirely of public land. Generally speaking, it is located far from inhabited areas and access is more difficult due to the weak density and variable quality of its forest roads. Other than Route 117, very few of the roads are maintained in winter. It is here that the regionÊs six ZECs are located, along with outfitters with exclusive harvesting rights and the La Vérendrye wildlife sanctuary. The general public and tourists use these areas mainly for hunting and fishing, but increasingly for other recreational activities too. There are very few private vacation sites and rough shelters in the ZECs, and virtually none in the outfitter territories and wildlife sanctuaries. The sector also contains some areas with no official wildlife status. The guideline retained for the remote planning sector is „to continue commercial developments of hunting and fishing activities, while promoting the enhancement of other types of potential for outdoor and cultural recreational activities‰. Accordingly, commercial and community lodging, public access and the other products previously identified in the PRDTP may be developed. However, private vacation sites and rough shelters will only be permitted outside the structured wildlife territories.
4.3.1 Lodging component The sectorÊs guideline with regard to lodging has been translated into a number of objectives, namely:
9 Developing private vacation sites in the best possible locations around lakes situated outside the structured wildlife territories where private vacation development has already taken place, and with due regard for wildlife, environmental and municipal concerns. This will enable the demand to be met by sites that satisfy sustainable development criteria. 9 Giving priority to commercial and community lodging, especially multiple purpose projects including public access or the development of a recreotourism resource on sites offering the broadest range of activities and the greatest development potential.
9 Developing rough shelter sites outside the structured wildlife territories.
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4.3.2 Outdoor recreational activity component The following objectives have been established for outdoor recreational activities in the remote planning sector: 9 Fostering public access by setting aside suitable areas during the zoning of riparian corridors around lakes. 9 Preserving sites with outdoor recreational potential in order to foster their subsequent development and enhance their use by the general public. 9 Giving priority to the creation of long-haul recreational trail networks and higher level networks (e.g. the Trans-Québec snowmobile trail), especially stretches of trail that connect to other trails and those that connect to networks outside the region.
4.3.3 Cultural recreational activity component The following objectives have been established for cultural recreational activities in the remote planning sector: 9 Preserving sites with cultural recreational potential in order to foster their subsequent development; 9 Preserving the integrity of major heritage groups, especially their landscape characteristics, to foster the development of recreotourism tours.
4.4 Regional guidelines for implementation of the MRNF – Société de la faune et des parcs du Québec Administrative Agreement Concerning the Development of Waterside Vacation Sites on Public Land The regional guidelines used to structure the development of waterside vacation sites on public land in Abitibi-Témiscamingue are as follows: 9 Exclude the development of private vacation sites on lakes of less than 20 hectares, for conservation reasons and for the sake of fairness. 9 Identify mitigation measures that will help solve the problems encountered when areas are shared by outfitters without exclusive harvesting rights and other forms of vacation development. 9 Direct the development of private vacation sites and commercial and community lodging sites to bodies of water other than lakes containing lake trout and other sensitive species. 9 Limit the development of private vacation sites and commercial and community lodging sites close to wildlife habitats that are regulated or likely to be regulated in the short term, and close to sensitive environments requiring protection. 9 Make the development of wildlife territory development sectors (see section 5.1.3) conditional upon the existence of a joint development plan and introduce interim measures that will apply until the plans come into force.
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CHAPITRE 5 DEVELOPMENT SCENARIO
The development scenario implements the guidelines and objectives established in the spatial development concept. It also identifies development sectors100, which are portions of land within a planning sector to which specific objectives and development conditions will apply.
To meet the need for certain recreotourism products or to take into account the situation of certain land units, the scenario also identifies a number of special development conditions that complete but do not take precedence over the specific conditions101. Lastly, the scenario identifies development sites102 that could support private vacation development. Map 9 shows the development sectors and development sites identified in the region, while the main recreational and tourist areas are shown on Map 10.
5.1 General development conditions The general development conditions for each recreotourism product are identified for each development sector and are described in the table below.
Where a product is identified as authorized, this means a development project for the product in question could be permitted in this sector, or a lease could be issued, provided the project satisfies the MRNFÊs usual requirements, including all the conditions set out in the recreotourism section of the PRDTP, including its objectives and rules governing availability.
Some specific conditions also apply to the development sectors.
100 Development sector: an area exhibiting special characteristics requiring the application of specific development conditions for recreotourism development. Specific development objectives may also be assigned to a development sector. 101 The Ministère des Ressources naturelles et de la Faune will apply the most restrictive standard or condition, unless otherwise indicated. 102 Development site: An area established with a view to carrying out one or more development projects. Generally, such sites are identified for the development of private vacation sites or commercial and community lodging.
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TABLE 3 GENERAL DEVELOPMENT CONDITIONS FOR PRODUCTS, BY DEVELOPMENT SECTOR Development Sector - Recreotourism Immediate Peripheral Remote Product Private vacation sites Authorized only for Authorized only on Authorized only on consolidation103 of development sites development sites existing sites. identified in Table 13. identified in Table 13 Consolidation and on lakes with authorized. existing private vacation sites.104 Consolidation authorized. Rough shelters Prohibited, except in Authorized. Authorized outside the sub-development sector structured wildlife SS-01. territories Commercial and Authorized, but priority Authorized, but priority Authorized, but priority community lodging given to multiple given to multiple given to multiple purpose projects. purpose projects. purpose projects. Public access Authorized, areas set Authorized, areas set Authorized, areas set aside during zoning of aside during zoning of aside during zoning of riparian corridors. riparian corridors. riparian corridors. Recreational trails Authorized, but priority Authorized, but priority Authorized, but priority given to multi-purpose given to multi-purpose given to long-haul trails, trails and connecting trails and connecting connecting trails and trails. trails. inter-regional trails. Outdoor recreational Authorized, the best Authorized, the best Authorized, the best sites areas are set aside areas are set aside areas are set aside during zoning of during zoning of riparian during zoning of riparian corridors or corridors or following riparian corridors or following UTI UTI surveys. following UTI surveys. surveys.105 Cultural recreational Authorized, the best Authorized, the best Authorized, the best sites areas are set aside areas are set aside areas are set aside during zoning of during zoning of riparian during zoning of riparian corridors or corridors or following riparian corridors or following UTI surveys. UTI surveys. following UTI surveys. Integrity of major Authorized. Authorized. Authorized. heritage groups
103 Consolidation of a vacation site means that private vacation development is permitted provided it does not involve the prolongation of existing roads. For example, subdivision into two rows, one along the side of the road not adjacent to the lakeshore, would constitute consolidation. Consolidation will be permitted around lakes not stipulated in Table 13, but will be authorized only in areas that meet the standards set out in the Guide de développement de la villégiature sur les terres du domaine public or in the Règlement sur lÊévacuation et le traitement des eaux usées des résidences isolées (Q-2, r.8). 104 In this development sector, only lakes with existing private vacation developments can be entered in Table 13 (see section 4.3.1). 105 Unité territoriale dÊintérêt (UTI or high-interest land unit) is a portion of the area that has no official status, but that does have specific characteristics that distinguish it from the rest of the area. UTIs are surveyed to identify sites with recreotourism potential, and to establish protection and development objectives.
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MAP 9 REGIONAL PLAN FOR PUBLIC LAND DEVELOPMENT
RECREOTOURISM OVERVIEW OF THE ABITIBI-TÉMISCAMINGUE REGION DEVELOPMENT SECTORS
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5.1.1 Structural recreotourism sectors The structural recreotourism sectors are areas that exhibit a range of characteristics, such as heavy recreational use (formal or informal) or high recreotourism potential. They are recognized by the regional authorities, usually officially, by means of a right, a status or a note in the MRC land use planning and development plan. Because of their potential, they have a structural or potentially structural impact on the regional community. The following objectives apply to these particular development sectors: 9 Developing the sector through the enhancement of recreational activities, among other things by giving priority to recreotourism projects with which a certain type of lodging (e.g. inn, campground, cottage rental, etc.) is associated, and maintaining public access. Private vacation development is therefore limited in these sectors. 9 Protecting landscape quality in order to maintain the sectorÊs attraction along with conditions conducive to recreotourism investments.
TABLE 4 STRUCTURAL RECREOTOURISM SECTORS Sector Name and Number Parc national dÊAiguebelle #101 Mont Kanasuta, Colline Cheminis and Collines Kekeko #105 Mont Vidéo #102 Rivière des Quinze #106 Lac Berry #103 Parc régional Opémican #107 Val-dÊOr Recreational Forest #104 Refuge Pageau #108 Product Conditions Private vacation sites Authorized only for the consolidation of existing vacation sites in the Lac Berry (# 103) and Mont Kanasuta, Colline Cheminis and Collines Kekeko (# 105) sectors. Rough shelters Prohibited. Commercial and Authorized, but priority given to multiple purpose projects.106 community lodging Preservation of the visual framework (see section 5.2.3). Public access Authorized, areas are set aside during zoning of riparian corridors. Recreational trails Authorized, but priority given to multi-purpose trails and connecting trails. Outdoor recreational sites Authorized, the best areas are set aside during zoning of riparian corridors or following UTI surveys Protection required for specific sites. Cultural recreational sites Authorized, the best areas are set aside during zoning of riparian corridors or following UTI surveys. Protection required for specified sites. Integrity of major heritage Not applicable. groups NOTE: The Lac Duparquet sector (# 310) also satisfies these requirements, especially as it is identified as a wildlife territory. However, it is this latter classification that has been retained for this area (see section 5.1.3).
106 A multi-purpose lodging project is one that includes the development of at least one recreational site or the operation of at least one recreotourism activity. An example would be an inn used as a reception point for a cross-country skiing circuit or operating a beach or public access point. A further example would be a campground that also operates and maintains a beach or public docking area.
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5.1.2 Secondary recreotourism sectors Secondary recreotourism sectors are areas exhibiting similar characteristics to structural recreotourism sectors, but to a lesser extent. Most are located close to structural recreotourism sectors and could eventually play a complementary role in their development, or allow for the expansion of certain activities. These sectors share basically the same objectives as the structural recreotourism sectors, namely: 9 Developing the sector through the enhancement of recreational activities among other things by giving priority to recreotourism projects with which a certain type of lodging (e.g. inn, campground, cottage rental, etc.) is associated, and maintaining public access. Private vacation development is also possible on certain sites in these sectors. 9 Protecting landscape quality in order to maintain the sectorÊs attraction along with conditions conducive to recreotourism investments. TABLE 5 SECONDARY RECREOTOURISM SECTORS
Sector Name and Number Lac Témiscamingue #201 Lac Preissac #206 Skipie #202 Lac Lemoine #207 Lac Dufay #203 Saint-Mathieu-dÊHarricana #208 Lac Flavrian #204 Lac Beauchamp – La Ferme #209 Marais Lefève #205 Product Conditions Private vacation sites Authorized for the consolidation or extension of existing vacation development sites, but prohibited in the Lac Flavrian sector (# 204). Rough shelters Prohibited. Commercial and Authorized, but priority given to multiple purpose projects. community lodging Preservation of the visual framework (see section 5.2.3). Public access Authorized, areas are set aside during zoning of riparian corridors. Recreational trails Authorized, but priority is given to multi-purpose trails and connecting trails. Outdoor recreational Authorized, the best areas are set aside during zoning of riparian sites corridors or following UTI surveys. Protection required for specific sites. Cultural recreational Authorized, the best areas are set aside during zoning of riparian sites corridors or following UTI surveys. Protection required for specific sites. Integrity of major Not applicable. heritage groups
5.1.3 Wildlife territory sectors Implementation of MRNF-FAPAQ Agreement concerning the development of waterside vacation sites involves the identification of areas in which the preponderance of wildlife features requires certain adjustments to recreotourism development activities. The criteria used to identify these areas are community recognition, wildlife potential, the outfitter lodging
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capacity, the extent of tourism, the number of casual users, the existence of wildlife-related interests (popular wildlife festivals, stocking or management of spawning grounds, etc.) and the extent of development constraints (e.g. scarcity of public land, number of private cottages, etc.). The objective applicable to wildlife territory sectors is therefore: 9 Developing recreotourism activities based on the sectorÊs overall characteristics, but subjecting all development to the predominant wildlife characteristics in order to protect the wildlife resource and its habitat and to meet the needs of different users. The preferred (but by no means mandatory) means of achieving this objective is through the creation of a joint development plan for each development sector. Where necessary, a special advisory committee will be set up to prepare the plan. A total of twelve wildlife territories have been identified in the sector, all of them bodies of water.
TABLE 6 WILDLIFE TERRITORY SECTORS
Sector Name and Number Lac Kipawa #301 Lac Parent #305 Lac Faillon #309 Réservoir Decelles #302 Lac Guéguen #306 Lac Duparquet #310 Lac des Quinze #303 Lac Simard #307 Lac Dasserat #311 Lac Matchi-Manitou #304 Lac Rémigny and Lac Barrière #308 Lac Villebon #312 Product Conditions Private vacation sites Authorized, but subject to the special conditions set out in the joint development plan for the area in question. Prohibited in the Lac Matchi-Manitou development sector (#304). Rough shelters Prohibited. Commercial and Authorized, but subject to the special conditions set out in the joint community lodging development plan for the area in question Preservation of the visual framework (see section 5.2.3). Public access Authorized, areas are set aside during zoning of riparian corridors. Recreational trails Authorized, but priority is given to multi-purpose trails and connecting trails. Outdoor recreational sites Authorized, the best areas are set aside during zoning of riparian corridors or following UTI surveys. Protection required for specific sites. Cultural recreational sites Authorized, the best areas are set aside during zoning of riparian corridors or following UTI surveys. Protection required for specific sites. Integrity of major Not applicable. heritage groups
The members of the Joint Discussion Table have agreed that unless otherwise indicated, these development sectors will include a 300-metre strip measured from the high water mark107 on the lakeshore. However, the special advisory committee may decide that special development or protection conditions (e.g. surrounding landscape) should apply to larger areas.
107 The high water mark is as defined by the Protection Policy for Lakeshores, River Banks, Littoral Zones and Floodplains (R.S.Q., c. Q-2, r.17.3).
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5.1.3.1 Joint development plans: A joint development plan may be prepared for each wildlife sector. The plan development process may be initiated by the MRNF or by any other interested party, according to the needs of the community. Composition of the special advisory committee may vary depending on the issues at stake in the wildlife territory. The content of each joint development play will be determined by the appropriate special advisory committee. However, it must cover zoning of the riparian corridor (see MRNF – Guide de développement de la villégiature sur les terres du domaine public). Once approved, the MRNF will treat the plan and its conditions as additional criteria when examining land use applications for the areas in question. Lac Kipawa, Lac Duparquet, Lac Dasserat, Lac des Quinze and the Decelles reservoir are considered to be priority for the purposes of this exercise, due to the high demand for vacation sites and strong pressure from the fishing community. Where necessary, the PRDTP Action Plan (Chapter 6) describes the activities permitted in wildlife territories.
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5.1.3.2 Transitional measures: The members of the Joint Discussion Table have agreed that a number of interim measures governing the sharing of the wildlife resource will apply in every wildlife development territory sector until a joint development plan can be brought into force. The measures are as follows: TABLE 7 TRANSITIONAL MEASURES
Product Kipawa Territory Other Territories Private vacation sites No new development and no Consolidation authorized along existing consolidation measures. roads. Outfitters without exclusive Consolidation of outfitters is Consolidation of outfitters is possible. It harvesting rights authorized provided it does not lead may involve increasing the lodging capacity, to an increase of total lodging capacity but only on sites already in existence when in the wildlife development territory. the PRDTP comes into force. Consolidation may also include increasing the size of sites. Commercial and The MRNF will examine projects as part of its usual procedure, and selected projects community lodging (except will then be submitted to Joint Discussion Table members, who will issue an opinion outfitters without exclusive on the relevance of issuing the requested right. rights) Other recreotourism The MRNF will examine projects as part of its usual procedure, and selected projects activities will then be submitted to Joint Discussion Table members, who will issue an opinion on the relevance of issuing the requested right.
5.1.4 Protected area sectors Under QuébecÊs Strategy Respecting Protected Areas, the region takes part in the process of identifying territories that meet the requirements for designation as protected areas. It already has one biodiversity reserve (the Lacs-Vaudrey-et-Joannès reserve), plus 11 other sites with status as proposed biodiversity reserves or aquatic reserves. The protected area development sectors are established from these proposed or designated biodiversity reserves. When definitive status is granted, the practice and development of certain recreotourism activities may still be possible and even desirable. The objectives pursued in these development sectors are therefore as follows: 9 Limiting all forms of private, commercial and community lodging in order to give priority to the development of public access and outdoor and cultural recreotourism activities; 9 Subjecting the recreotourism activity development conditions to the conditions set out in the conservation plan.
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TABLE 8 PROTECTED AREA SECTORS Sector Name and Number Lac Vaudray, Lac Joannès #401 Piché-Lemoyne Forest #405 Lac Wetetnagami #409 Lac Sabourin #402 Lac Opasatica #406 Lac Saint-Cyr #410 Decelles Reservoir #403 Lac des Quinze #407 Dunes-de-la-rivière-Attic #411 Lac Parent swamp #404 Haute Harricana protected aquatic reserve #408 Opémican #412 Product Conditions Private vacation sites Authorized only on lakes where private vacation sites already exist, but subject to the restrictions set out in the special protection plan for the protected area concerned. Rough shelters Prohibited Commercial and Authorized, but subject to the restrictions set out in the special protection community lodging plan for the protected area concerned. Public access Authorized, but subject to the restrictions set out in the special protection plan for the protected area concerned. Recreational trails Authorized, but subject to the restrictions set out in the special protection plan for the protected area concerned. Outdoor recreational Authorized, but subject to the restrictions set out in the special protection sites plan for the protected area concerned. Cultural recreational Authorized, but subject to the restrictions set out in the special protection sites plan for the protected area concerned. Integrity of major Not applicable. heritage groups
Exceptionally, the Joint Discussion Table members have agreed that the PRDTP will automatically be amended to add new protected area development sectors whenever new biodiversity reserves or new aquatic reserves are proposed by order of the Government, when a reserve boundary is modified, or when definitive status is awarded. The new development sector will correspond to the exact area of the biodiversity reserve to which the Government order applies.
5.1.5 Structured wildlife territory sector The region boasts a large number of structured wildlife territories. All its ZECs, outfitters with exclusive harvesting rights (PADEs) and its wildlife sanctuary are oriented towards the harvesting and development of wildlife for hunting and fishing. However, it is likely that they will diversify their activities in the future, as well as consolidating and developing their traditional activities. For example, the ZECs have an opportunity to propose recreational and tourist activities for their territories by preparing recreational activity development plans (PDARs). Conditions are therefore required that are conducive to the development and enhancement of their full recreational and tourist potential.
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The following objectives have therefore been established for the structured wildlife territory development sectors:
9 Continuing the development of hunting and fishing activities while maintaining the possibility of also developing outdoor and cultural recreotourism activities, as well as public access. The implementation of associated commercial and community lodging is also encouraged, provided it is consistent with the special development plans for the territories in question (PDAR, PADE and wildlife sanctuary management plans); 9 Maintaining the restrictions on the development of private vacation sites in the form of cottages and rough shelters.
TABLE 9 STRUCTURED WILDLIFE TERRITORY DEVELOPMENT SECTORS
SECTOR NAME AND NUMBER
Dumoine ZEC #501 Kipawa ZEC #507 Lac Suzie #513 Maganasipi ZEC #502 Lac-La-Truite #508 Sud Lac Choiseul #514 Réserve Beauchêne #503 Réserve faunique La Vérendrye #509 Balbuzard Sauvage #515 Restigo ZEC #504 Capitachouane ZEC #510 Monet #516 Lac Watson #505 Festubert ZEC #511 Club Kapitachuan #517 Kipawa Outfitter #506 Camachigama #512 Royal Saint-Cyr #518 Product Conditions Private vacation sites Prohibited. Rough shelters Prohibited. Commercial and Authorized, with priority given to multiple purpose projects. community lodging Preservation of the visual framework (see section 5.2.3). Public access Authorized, areas are set aside during zoning of riparian corridors. Recreational trails Authorized, but priority is given to multi-purpose trails and connecting trails. Outdoor recreational sites Authorized, the best areas are set aside during zoning of riparian corridors or following UTI surveys. Protection required for specific sites. Cultural recreational sites Authorized, the best areas are set aside during zoning of riparian corridors or following UTI surveys. Protection required for specific sites. Integrity of major heritage Not applicable. groups
Specific features:
9 Where there is no PDAR for a ZEC: Where a ZEC does not have a recreational and tourist activity development plan (PDAR), the MRNF will consult the members of the Joint Discussion Table and the ZEC management agency on all proposed recreational and tourism projects.
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9 Restriction on the development of lodging in ZECs: As far as possible, lodging (private, commercial and community) will be developed at locations other than lakes containing lake trout, lakes managed for wildlife purposes and lakes of interest for wildlife or tourism purposes.
9 Development of recreational and tourist activities in a PADE: The MRNF will consult the Joint Discussion Table members and the outfitter concerned, if the outfitter is not the project promoter, on all recreational and tourist activity development projects other than hunting and fishing in PADE territories.
9 Relocation of existing leases in a ZEC: It is possible to relocate private vacation and rough shelter leases in a ZEC, but the following conditions must be met:
The original lease is already located in the ZEC in question, and relocation is possible only within the same ZEC. Relocation is required to facilitate a recreotourism development (e.g. commercial or community lodging, recreational activity), to protect wildlife (e.g. habitat, sensitive species, etc.), or to protect the public interest (e.g. protected area). A riparian or non-riparian lease for 4,000 square metres (LOC) will be relocated in similar conditions, i.e. a riparian lease will be relocated to a riparian site, and a non- riparian lease will be relocated to a non-riparian site. A lease (LOC) covering an area of less than 4,000 square metres will be increased to 4,000 square metres (and the rent will be adjusted accordingly). A non-riparian lease covering an area of 100 square metres (LAS) will be relocated in similar conditions (i.e. to a non-riparian area of 100 square metres). A riparian lease covering an area of 100 square metres may be relocated either to a riparian area of 4,000 square metres (LOC) or to a non-riparian area of 100 square metres (LAS).
In all cases, the destination site must:
Meet the location standards set out in the Guide de développement de la villégiature sur les terres du domaine public and in the PRDTP. In the case of a riparian site, be located on the shore of a lake on which vacation sites already exist. In the case of a riparian site, not be located on the shore of a lake containing lake trout or other sensitive species. Not be located in a public access zone or in a place with recreotourism potential for outdoor activities or commercial lodging (camping, etc.). Be the subject of an agreement with the ZEC in question, and be the subject of usage consultations held by the MRNF.
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5.1.6 Recreotourism poles The development scenario also identifies a number of recreotourism poles, along with specific conditions for their development. These poles constitute the backbone of the regionÊs rambling and discovery trails, and are likely to trigger the development of lodging and related recreotourism activities. For these reasons, and because these poles receive a large number of tourists, emphasis has been placed mainly on the protection of surrounding landscapes, especially since landscape protection is one of the conditions regarded by potential promoters and investors as being likely to promote the development and enhancement of the recreotourism potential. Similarly, it is also important for the best sites along these poles to be set aside for commercial or community lodging, recreational activities and public access.
The recreotourism poles require objectives similar to those for the structural recreotourism sectors, namely: 9 Developing recreational activities, among other things by giving priority to recreotourism projects with which a certain type of lodging (e.g. inn, campground, cottage rental, etc.) is associated, and maintaining public access. Private vacation development is therefore limited in these sectors, so as not to compromise future enhancement projects; 9 Protecting landscape quality in order to maintain the sectorÊs attraction and conditions conducive to recreotourism investments. The Trans-Québec network of snowmobile trails comprises the first such pole. It is present throughout the region, and is used by a large number of snowmobilers. Cycle touring is becoming increasingly popular as a means of discovering the regions of Québec, and the Route verte, used mainly as a cycle path, is another major pole. Some nautical circuits are also recreotourism poles. The principal canoe circuits offer greater potential for the development of canoeing as an activity. They include rivers in the Rivière Bell basin and the Dozois and Kipawa reservoir basins. Similarly, the waterways of the Rivière Harricana, Lac Mourier to Amos and the so-called Témiskawa waterway on the Rivière des Outaouais are also identified. However, the conditions stated here are applicable only to the rivers shown on Map 10 of the scenario. Preservation of landscapes along all these watercourses is one of the reasons why enthusiasts enjoy them so much, and is also one of the conditions for successful development. Some recreotourism poles are historical or cultural nature discovery circuits. The Route des prospecteurs et des défricheurs and the Route des pionniers are the best-known of the road circuits proposed in tourist guides. These circuits allow visitors to discover the regionÊs history and culture through various theme-based sites. The circuits are mostly located on private land but also cross areas of public land, and special attention must be given to adjacent landscapes in these cases. The regional also has some historical or cultural nature discovery circuits that can be explored by boat. These circuits are clearly not as heavily used as the road circuits, but they nevertheless combine discovery with an adventure activity (canoe-camping). The poles of this type identified in the region are the Fur Route, which extends from lac Témiscamingue to Lac Abitibi, the Rivière Dumoine and the Rivière Harricana.108 The intrinsic beauty of the Rivière Dumoine and its wilderness features merit additional protection for its recreotourism potential. As a result, private vacation sites will not be developed in this sector, although certain sites may be set aside for commercial lodging.
108 In the case of Rivière Harricana, the recreotourism pole overlaps the Haute Harricana (# 408) protected area development sector downstream of Lac Obalski. In this case, the conditions governing the Haute Harricana sector take precedence.
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Lastly, the railway lines between Senneterre and Montreal via La Tuque and between Témiscaming and Mattawa, also require special attention. They bring tourists to the region and provide access to recreotourism resources (in the case of the Senneterre-Montreal line). It is therefore extremely important to protect the landscapes on either side of the tracks, and this may become a condition of development in the region. For the time being, it is not possible to delimit the development sectors formed by these various poles. The members of the Joint Discussion Table have agreed that a 100-metre strip on either side should be a minimum requirement. In the case of the water-based circuits, a protective strip of 300 metres is required, measured from the ordinary high water mark109. However, the surrounding landscape protection conditions applicable to the various types of circuits may also apply over larger areas.
109 The high water mark is as defined by the Protection Policy for Lakeshores, River Banks, Littoral Zones and Floodplains (R.S.Q., c. Q-2, r.17.3).
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MAP 10 REGIONAL PLAN FOR PUBLIC LAND DEVELOPMENT RECREOTOURISM OVERVIEW OF THE ABITIBI-TÉMISCAMINGUE REGION RECREOTOURISM POLES
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TABLE 10 RECREOTOURISM POLES
NAMES - Waterways (nautical) - Trans-Québec Snowmobile Trail network - Canoeable rivers - Historic and cultural road circuits - Recreotourism railway line - Historic and cultural water circuit - Structural cycle circuit (Route verte and multi-purpose trail) Product Conditions Private vacation sites Limited to projects consistent with the objectives of this type of development sector,110 except for the Rivière Dumoine sector, where all private vacation development is prohibited. Sites must be shown on Table 13 (potential private vacation development sites). Rough shelters Prohibited.111 Commercial and Authorized, but priority given to multiple purpose projects. community lodging Visual framework (see section 5.2.3). Public access Authorized, areas are set aside during zoning of riparian corridors. Recreational trails Authorized, but priority is given to multi-purpose trails and connecting trails. Outdoor recreational Authorized, the best areas are set aside during zoning of riparian corridors sites or following UTI surveys. Protection required for specific sites. Cultural recreational Authorized, the best areas are set aside during zoning of riparian corridors sites or following UTI surveys. Protection required for specific sites. Integrity of major Protection of landscape quality along major poles.112 heritage groups
110 The recreotourism poles have objectives that are similar to those of structural recreotourism sectors (see section 5.1.1). 111 Rough shelter leases must be located more than 1.0 km from major recreotourism poles, except in the case of the Trans-Québec Snowmobile Trail network and the railway lines between Senneterre and Montreal via La Tuque, and between Témiscaming and Mattawa, where the distance is set at 100 metres. 112 The major recreotourism poles also benefit from protection of the visual framework for up to 1.5 km from the site boundaries. Before any land right with a potentially negative impact on the natural landscape is granted, the visual landscape is first examined using a method recognized by the MRNF. Depending on the results of the study, mitigation measures may be imposed or the right may not be granted.
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5.2 Special development conditions Special development conditions have been established for all the recreotourism products. They apply to all development sectors and sites, unless otherwise specified.
5.2.1 Conditions applicable to private vacation sites
5.2.1.1 Site access The MRNF will consult the municipalities or MRCs concerned before making private vacation sites available, to ensure that access complies with their requirements. Users are always responsible for the cost of access roads (construction and maintenance).
5.2.1.2 Authorized development New private vacation developments will be authorized only on the development sites listed in Table 13. The only exceptions to this are vacation consolidation sites, which are not tied to the program. They are, however, subject to all the other requirements of the PRDTP, the Guide de développement de la villégiature sur les terres du domaine publique (1994) and the MRNFÊs rules governing site availability.
5.2.1.3 Other conditions Private vacation sites must be located more than 250 metres from the boundaries of an Aboriginal cemetery.
Non-riparian vacation development is not permitted, except for conversions of rough shelter leases (100 square metres) to vacation leases (4,000 square metres), and even then, only in cases where the municipality in question agrees to the conversion. All cases must, of course, also comply with the MRNFÊs rules.
5.2.2 Conditions applicable to rough shelters
5.2.2.1 Minimum distances for new rough shelter leases Certain minimum distances must be maintained between new rough shelters and the following sites or elements, in addition to the requirements set out in the Guide de développement de la villégiature sur les terres du domaine public:
9 25 metres between a new rough shelter lease and the allowance of any public forest road other than a numbered road.
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9 100 metres between a new rough shelter lease and the following elements: 4e and 5e Rangs (Guyenne); The Duverny-Castagnier and Lithium roads; The boundaries of exceptional forest ecosystems (EFEs); The allowances of all forest roads in the higher network (numbered roads) and their future extensions; The right-of-way of the Trans-Québec Snowmobile Trail network; The Senneterre-La Tuque and Témiscaming-Mattawa railway lines.
9 250 metres between a new rough shelter lease and the following elements: The boundaries of an Aboriginal cemetery; The boundaries of a proposed or existing biodiversity reserve and a proposed or existing aquatic reserve; The shared boundary between Ontario and the Abitibi-Ouest RCM.
9 500 metres between a new rough shelter lease and the following elements: The 340-metre contour line delimiting the Colline Oditan (Abitibi-Ouest MRC) and the 360-metre contour line delimiting the Colline Nissing (Abitibi-Ouest MRC); The 350-metre contour line delimiting the Collines Béarn (Abitibi MRC); The boundaries of an outfitter with exclusive harvesting rights (PADE); The boundaries of the Réserve faunique La Vérendrye.
9 1.0 kilometres between a new rough shelter and the following elements: Any other rough shelter, cottage, residence or place of lodging; Any trapping camp; The boundaries of the allowance of every numbered road under the authority of the Ministère des Transports du Québec; The border of the Province of Ontario, except in the Abitibi-Ouest RCM, where the distance is 250 metres; The boundary of the development sector, except for the boundary delimiting the SS- 01 sub-sector of the peripheral development sector; The boundaries of the zones suitable for development identified during lake zoning exercises. Rough shelters currently existing within these boundaries, although they enjoy acquired rights to the location, must not compromise the development of private vacation sites or commercial and community lodging sites; The boundaries of a major recreotourism waterway, canoeable river or historic and cultural waterway.
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9 2.0 kilometres between a new rough shelter lease and the following elements: The Parc national dÊAiguebelle; The allowances of the Rapide-Deux; Rapide-Sept, and Baie-Carrière roads; The boundaries of a commercial or community lodging site having four lodging units or more, or a lodging capacity of 20 beds or more, and the boundaries of a campground having 40 sites or more.
9 3 kilometres between a new rough shelter lease and the boundaries of the following elements: The urban perimeters of the towns of Témiscaming, Kipawa, Belleterre, Rouyn-Noranda (Arntfield and Cadillac sectors), Malartic and Val-dÊOr (Louvicourt sector); The Indian reserves of Lac-Simon, Timiskaming and Kebaowek, and the Aboriginal settlements of Winneway and HunterÊs Point; An outfitter with exclusive harvesting rights located east of the 76th degree of longitude.113
5.2.2.2 Other conditions 9 New rough shelter leases must be located outside the territories of teaching and research forests (FERs).
9 New rough shelter leases are not permitted on islands, regardless of their size, or on riparian environments as defined in the Guide de développement de la villégiature sur les terres du domaine public (1994).
9 The MRNF will comply with more restrictive distance standards established by the MRCs or municipalities for their territories, by means of their urban by-laws.
5.2.2.3 Existing rough shelter leases The conditions set out in section 5.2.2.1 do not apply to existing rough shelter leases if they would have the effect of compromising a private vacation development or a recreotourism, commercial or community lodging project.
Rough shelter leases (100 square metres) may be converted into cottage leases (4,000 square metres) only if the new lease complies with all the conditions set out in the PRDTP and is consistent with the regional orientations to be agreed with the Joint Discussion Table (see Action Plan, section 6.3)
113 See the zoning plan of the Ville de Senneterre.
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5.2.3 Conditions applicable to commercial and community lodging 9 Access: The MRNF will consult the municipalities or MRCs concerned before making private vacation sites available, to ensure that access to commercial and community lodging development sites complies with their requirements. Users are always responsible for the cost of access roads (construction and maintenance). 9 Protection of the Saint-Mathieu / Berry esker: All new commercial and community lodging sites must be located outside the boundaries of the territory set aside for mine staking and the territory of the Saint-Mathieu / Berry esker State reserve. 9 Protection of the visual framework: All new commercial and community lodging sites may benefit from protection of the visual framework over a distance of up to 1.5 kilometres from the site boundaries. Before any land right with a potentially negative impact on the natural landscape is granted (e.g. telecommunications tower, private vacation site, etc.), the visible landscape is first examined using a method recognized by the MRNF. Depending on the results of the study, mitigation measures may be imposed or the right may not be granted. 9 Outfitters without exclusive harvesting rights east of Senneterre: The outfitters without exclusive harvesting rights (PSDEs) to the east of Senneterre114 to which the PSDE protection and development plan applies are covered by the following protective measures: Within a radius of 5.0 kilometres around the principal site of an outfitter, there cannot be more than 10 rough shelter leases, and the distance between two rough shelter leases or between a rough shelter lease and the outfitterÊs site must be no less than 3.0 kilometres. Outfitter sites with four or more lodging units or a lodging capacity of 20 beds or more receive exclusivity for commercial lodging purposes over a radius of 5.0 kilometres.
5.2.4 Conditions applicable to public access 9 Facilities and occupation: Public access facilities (landing dock, launching ramp, etc.) are authorized on all public land throughout the region. Public access points must remain free of private vacation developments of all kinds, including temporary occupations.
9 Aboriginal cemeteries: Public access points must be located more than 250 metres from the boundaries of an Aboriginal cemetery.
114 Ministère du Loisir, de la Chasse et de la Pêche, Plan de développement et de consolidation de la pourvoirie à lÊest de Senneterre, June 1993.
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5.2.5 Conditions applicable to recreational trails
5.2.5.1 Objectives The members of the Joint Discussion Table have agreed on regional objectives for the development of the recreational trail network. These objectives form the analysis framework for the regionÊs trail development projects. They are:
9 Giving priority to the development or consolidation of regional poles before fostering the development and consolidation of local trails;
9 Giving priority to links between urban centres, structural recreotourism poles, commercial and community lodging sites, sites of interest and inter-regional links;
9 Encouraging the creation of recreational facilities along trails, including look-outs, rest areas, shelters, picnic areas, etc.;
9 Encouraging the sharing of trails by means of a multi-purpose, multi-functional approach where the activities concerned are mutually compatible or complement one another; The expected impact of these objectives would be to increase the quality of the regionÊs recreational trails. They also require a certain number of conditions that would be applicable to different types of recreational trails.
5.2.5.2 General conditions for trails
9 Lodging: As far as possible, new recreational activity trails should provide access to commercial or community lodging sites, especially outfitters, in order to bring in new clients and offer users and opportunity for longer stays or extended trips.
9 Connecting trails: If a trail or network of trails exists for the same recreational activity within 5 kilometres of a new trail, the new trail must be connected to the existing network wherever possible, in order to avoid isolated loops;
9 Aboriginal cemeteries: Recreational trails must be located more than 250 metres from the boundaries of an Aboriginal cemetery.
9 Esker protection: Because of the importance and the fragile nature of the eskers, the Joint Discussion Table members have agreed to limit the number of quad bike and snowmobile trails on all the major eskers identified by the Geological Survey of Canada, namely the La Sarre, Lac Macamic, Lac Joannès [Lac Vaudray], Rouyn-Noranda, Lac Preissac, Launay, Saint-Mathieu-Berry, Lac Villebon [or Lac Despinassy], Colombière [or Lac Sabourin], Louvicourt, Lac Guéguen, Lac Matchi-Manitou amd Harricana moraine eskers.
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Quad bike and snowmobile trails may cross an esker if this would be the shortest route, but not as part of a loop or circuit. They may not cross territories set aside for mine staking or the Saint-Mathieu-Berry esker State reserve. The map of major eskers prepared by the Geological Survey of Canada115 will be used for the purpose of this condition. 9 Trail junctions: The application of these conditions to recreational trails shall not have the effect of preventing junctions of trails where necessary (e.g. a cross-country ski trail and a snowmobile trail, a hiking trail and a cycle trail or quad bike trail, etc.).
5.2.5.3 Conditions for hiking and rambling trails The following conditions apply to new hiking and rambling trails:
9 The planning of new trails must be based on the Guide de réalisation dÊun sentier pédestre en milieu naturel;116
9 New hiking and rambling trails must be located more than 100 metres from existing quad bike trails;
9 Trails must provide access to high-interest sites (UTIs);
9 Trail departure points must be located close to suitable parking lots;
9 Loops are encouraged wherever possible, so that the same trail need not be used for the return trip, thereby limiting damage to the natural environment.117
5.2.5.4 Conditions for cross-country ski and snowshoe trails The following conditions apply to new cross-country ski and snowshoe trails:
9 Cross-country ski and snowshoe trails may use hiking and rambling trails that are not utilized during the winter (multi-purpose trails);
9 New trails must be located more than 100 metres from existing snowmobile and quad bike trails;
9 Trail departure points must, where possible, be located near reception sites.
115 Natural Resources Canada (Geological Survey of Canada), Les cartes de formations en surface de lÊAbitibi (CD-ROM), Ottawa, 2003. 116 Fédération québécoise de la marche, Guide de réalisation dÊun sentier pédestre en milieu naturel, 158 pages. 117 Fédération québécoise de la marche, Guide de réalisation dÊun sentier pédestre en milieu naturel, 158 pages.
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5.2.5.5 Conditions for cycle paths The following condition applies to new cycle paths:
9 New cycle paths must be located more than 100 metres from existing quad bike trails, except where the latter are multi-purpose trails.
5.2.5.6 Conditions for snowmobile and quad bike trails The following conditions apply to new snowmobile and quad bike trails:
9 New trails must connect to the existing network wherever possible, in order to foster network integration;
9 New snowmobile and quad bike trails must be located more than 100 metres from private vacation sites (cottages), Aboriginal camps and permanent residences, except where they give access to a reception site, rest area or forest inn;
9 New snowmobile trails must be located more than 100 metres from cross-country ski trails, except where they provide access to a reception site, rest area or forest inn;
9 New quad bike trails must be based on the Guide dÊaménagement et dÊentretien des sentiers quad au Québec118;
9 New quad bike trails must be located more than 100 metres from hiking and rambling trails, cross-country and snowshoe trails and cycle paths, except where they provide access to reception sites, rest areas, or forest inns.
5.2.6 Conditions applicable to outdoor recreational sites 9 Aboriginal cemeteries: All outdoor recreational sites must be located more than 250 metres from the boundaries of an Aboriginal cemetery. 9 Saint-Mathieu / Berry Esker: Facilities for outdoor recreational purposes such as paved parking lots, reception buildings, heavy equipment (e.g. water parks, outdoor bases, etc.) and other facilities likely to affect water quality, must be located outside the boundaries of the territory set aside for mine staking and the Saint-Mathieu / Berry Esker State reserve.
118 Fondation de la faune du Québec, Guide dÊaménagement et dÊentretien des sentiers de quad; en toute sécurité et dans le respect de la faune et de lÊenvironnement. Québec, 2003. 126 pages.
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5.2.7 Conditions applicable to cultural recreational sites
5.2.7.1 Archaeological sites and sectors 9 Private vacation sites and commercial or community lodging are not authorized on archaeological sites or sectors unless an archaeological dig to collect data or remove artefacts or other elements of value has been carried out by a certified archaeologist in accordance with the Regulation respecting archaeological research (R.R.Q., 1981, chap. B-4.1.2). However, a dig is an exceptional measure that shall be instituted only where the proposed facilities cannot reasonably be located elsewhere. 9 Facilities relating to recreational trails, public access points, look-outs, interpretation sites, beaches and other recreational equipment may be authorized on an archaeological site or sector provided they do not hinder its preservation and development, or if they are complementary to it. 9 Other facilities may be permitted, subject to the preceding conditions. 9 In all cases, the Ministère de la Culture et des Communications (MCC) must be consulted before rights are issued on archaeological sites and sectors.
5.2.8 Other conditions
5.2.8.1 Trapping camps Although these camps are subject to the standards set out in the Act respecting the conservation and development of wildlife (R.S.Q., chap. C-61.1), the members of the Joint Discussion Table have agreed on the following additional conditions for new trapping camps: 9 New trapping camps located in the riparian corridor of a lake or watercourse must be situated in zones suitable for development; 9 Trapping camps must be located outside the vacation development sites identified in the program, and outside structural or secondary recreotourism development sectors, wildlife territory sectors (except as otherwise stipulated in the special development plan of a particular territory) and protected area sectors (except as otherwise stipulated in the conservation plan), subject to the provisions of the Act respecting the conservation and development of wildlife (R.S.Q., chap. C-61.1).
5.2.8.2 Temporary occupation Temporary occupation of public land is authorized in all development and planning sectors, unless otherwise specified in another special condition. However, every temporary occupation must comply with the provisions of sections 36 to 36.4 of the Regulation respecting the sale, lease and granting of immovable rights on lands in the domain of the State (c. T-8.1, r. 6). The members of the Joint Discussion Table have also agreed on the following special condition: 9 Temporary occupations are not permitted on public access sites.
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5.2.8.3 Mine tailings sites Mine tailings sites can endanger human life and be detrimental to landscapes. Accordingly, the Joint Discussion Table members have agreed on a number of special conditions for recreotourism developments in the vicinity of such sites, some but not all of which are identified in Table 11: 9 Occasional recreational facilities such as beaches and picnic areas must be located more than 500 metres from the boundaries of identified mile tailings sites; 9 Private vacation sites and commercial or community lodging sites (including campgrounds) must be located more than one kilometre from the boundaries of identified mine tailings sites. 9 In addition, certain bodies of water and watercourses have been affected by mine tailings sites. Accordingly, private vacation developments and commercial or community lodging, along with recreational facilities such as beaches, look-outs, etc., must be located outside the riparian corridors (i.e. 100 m for a river and 300 m for a lake) of the following territories: Rivière des Méloizes, Rivière Laflamme (from the Barvue mine tailings site to the southern boundary of the Rochebaucourt municipality), Rivière Bourlamaque (downstream of the Val-d'Or recreational forest), Rivière Colombière (downstream of the Louvem mine tailings site), Rivière Noire, Lac Arnoux and Baie Arnoux in Lac Dasserat; 9 The mine tailings site delimitations used for the purposes of the above conditions are those of the MRNF (Energy and Mines Sector). TABLE 11 Mine tailings sites
MRC/City Site Name Abitibi Barvue, Bousquet, Cadillac Molybdenite, Canadian Bolduc, Molybdenite Corporation, Preissac Molybdene and Québec Lithium. Abitibi-Ouest Beattie and Normétal. Ville de Rouyn-Noranda Aldermac, Arntfield, Bouchard-Hébert, Bousquet, Darius, Donalda, Don Rouyn, Doyon, Francoeur, Gallen, Granada, Horne (1 to 5), Laronde, Norbec, McWatters, Mic-Mac, Powell Rouyn, Quémont (1 eand 2), Quesabe, Senator, Stadacona, Vauze, Waite-Amulet, Wasamac, Wood Cadillac and Y. Vézina. Témiscamingue Belleterre and Lorraine. La Vallée-de-lÊOr Barnat, Beaufor, Bevcon, Camflo, Canadian Malartic, Chimo, Cournor, D'Orval (Beacon), East Amphi, East Malartic, East Sullivan, Ferderber, Kiena, Lamaque, Lapa, Louvem, Louvicourt, Lucien Béliveau, Manitou, Pandora 4, Rainville, Sigma, Sigma 2, Simkar, Siscoe, Sullivan, Terrains Aurifères A, Terrains Aurifères B, Thompson Cadillac and West Malartic. Source: MRN, Mining Sector, September 2002.
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5.2.8.4 Drinking water supply sources In view of the importance of protecting drinking water supply sources from every possible form of contamination, the Joint Discussion Table members have agreed that vacation sites, commercial and community lodging sites and snowmobile and quad bike trails119 should all be located more than 300 metres from the ordinary high water mark of the supply sources identified in the table below:
TABLE 12 DRINKING WATER SUPPLY SOURCES Alternative Drinking MRC/City Lakes Drinking Water Source Water Source Lac Baillargé n.a. X Abitibi (proposed) Lac Beauchamp X n.a. Ville de Rivière DÊAlembert n.a. X Rouyn-Noranda Lac Labrecque n.a. X Lac Dufault X n.a. Lac Clair n.a. X Lac Beauchemin n.a. X Lac King of the North n.a. X Lac Duprat n.a. X Petit lac Orignal n.a. X Lac Bonchamp n.a. X Témiscamingue Lac aux Brochets X n.a. Lac Croteau X n.a. La Vallée-de-lÊOr Lac Clair X n.a. Sources: Abitibi MRC, Témiscamingue MRC, La Vallée-de-lÊOr MRC and Ville de Rouyn-Noranda.
119 Snowmobile trails leading to and crossing over these water supply sources are also prohibited.
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5.3 Choice of vacation development sites
The Joint Discussion Table members have identified a number of sites that may be able to support private vacation development between now and 2011. These sites, which must be zoned as riparian corridors, are listed in Table 13. The MRNF reserves the right to extend the program of studies required for their development, depending on the priorities and available resources.
TABLE 13 POTENTIAL PRIVATE VACATION DEVELOPMENT SITES
Site Name Features Abitibi MRC Berry (lac) Consolidation only.120 Castagnier (lac) Consolidation only. du Centre (lac) No special feature. Chassignolle (lac) Consolidation only. Deferred development. Chicobi (lac) No special feature. Cornier (lac) Consolidation only. Despinassy (lac) No special feature. Fiedmont (lac) Consolidation only. Obalski (lac) No special feature. Vassal (lac) No special feature. Abitibi-Ouest MRC Bazin (lac) Consolidation only. Chazel (lac) Consolidation only. Duparquet (lac) Wildlife territory. Hébécourt (lac) No special feature. Langy (lac) No special feature.
120Consolidation of a vacation site means that private vacation development is permitted provided it does not involve the prolongation of existing roads. For example, subdivision into two rows, one along the side of the road not adjacent to the lakeshore, would constitute consolidation. Consolidation will be permitted around lakes not stipulated in the Action Plan, but will be authorized only in areas that meet the standards set out in the Guide de développement de la villégiature sur les terres du domaine public or in the Règlement sur lÊévacuation et le traitement des eaux usées des résidences isolées (Q-2, r.8).
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TABLE 13 (CONT.) POTENTIAL PRIVATE VACATION DEVELOPMENT SITES Ville de Rouyn-Noranda Basserode (lac) No special feature. Caire (lac) No special feature. Dasserat (lac) Wildlife territory. Consolidation only. Desvaux (lac) Consolidation only. Kinojévis (lac) Consolidation only. Kinojévis (river – between Lac No special feature. Caron and Rivière des Outaouais) Labyrinthe (lac) No special feature. La Pause (lac) No special feature. Opasatica (lac) Consolidation only. Preissac (lac) Consolidation only. Témiscamingue MRC Allard (lac) No special feature. Beaudry (lac) Priority given to scattered vacation development. Black (petit lac) Priority given to scattered vacation development. Developments currently in progress must be reviewed. Brisebois (lac) No special feature. des Douze (lac) Consolidation only. Florio (lac) Priority given to scattered vacation development. Developments currently in progress must be reviewed. Jadot (lac) No special feature. Moore (lac) No special feature. Moran (lac) No special feature. des Outaouais (river - Block F, No special feature. Campeau township) Pigeon (lac) Consolidation only. Plassez (lac) Priority given to scattered vacation development. Developments currently in progress must be reviewed. Prévost (lac) No special feature. Roger (lac) Priority given to scattered vacation development. des Quinze (lac) Wildlife territory. Rémigny (lac) Wildlife territory. des Seize (lac) Consolidation only. Simard (lac) Wildlife territory Soufflot (lac) No special feature. Témiscamingue (lake - Pointe Consolidation only. Martel, southwards)
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TABLE 13 (CONT.) POTENTIAL PRIVATE VACATION SITES La Vallée-de-l'Or MRC
Blanchin (lac) No special feature. Blouin (lac) Consolidation only. Faillon (lac) Wildlife territory (TCF). Fish (lac) No special feature. Labrie (lac) No special feature. Lemoine (lac) Consolidation only. Piché (rivière) No special feature. des Pins (lac) No special feature. Tiblemont (lac) Consolidation only. Thompson (river) No special feature. Valets (lac) Lake partly covered by the Peace of Braves.
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CHAPITRE 6 ACTION PLAN
The Action Plan sets out what must be done to implement the PRDTP – Recreotourism section. The actions are divided into two separate groups. The first group contains activities relating to the analysis and development of private vacation sites and rough shelters. It is of particular concern to the MRNF in its efforts to enhance its knowledge of potential development sites and, where applicable, make new sites available.
The second group contains activities relating to the MRNFÊs commitment to develop the other PRDTP products, along with the specific actions or commitments of partners wishing to be involved in the implementation of the PRDTP.
6.1 Private vacation sites and rough shelters The MRNF intends to develop private vacation sites and rough shelters in the Abitibi- Témiscamingue region. This will involve numerous actions, which will apply to the potential sites identified in the development scenario (Table 13).
6.1.1 Actions relating to private vacation sites 9 Waterfront zoning: To develop private vacation sites, the MRNF will zone the riparian corridors of certain lakes and watercourses identified in conjunction with the Joint Discussion Table members. At the zoning stage, the lakeÊs potential is assessed, and this involves:
Identifying and setting aside zones suitable for private vacation development or commercial and community lodging;
Identifying and setting aside potential public access zones;
Identifying and setting aside zones with potential for outdoor or cultural recreational activities.
Before visiting a given site, the MRNF will contact the municipality concerned to confirm the municipalityÊs interest in developing the lake or watercourse, as well as the pertinence of a MRNF-municipality partnership for the study.
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9 Evaluation of development opportunities: When producing the zoning report, the MRNF will consult the partners involved in the development of a given site, including the municipalities and MRCs. Its purpose in doing this is to confirm the relevance of developing the site in question (choice of site, access, amendments to the riparian corridor zoning, timing, etc.).
9 Availability of sites: Where applicable, the MRNF will make sites available in accordance with its usual procedure, namely:
Application for a notice of conformity by the MRNF pursuant to sections 149 and following of the Act respecting land use planning and development (R.S.Q. A-19.1); Publication of a notice announcing the new sites. Sites will be allocated by means of a drawing in the immediate planning sector, the wildlife territory development sectors and sites where, in the MRNFÊs opinion, the recreational pressure is sufficient to justify this approach. In all other cases they will be allocated on a first-come, first- served basis. 9 Partnership: The municipalities and MRCs have an opportunity to carry out the zoning studies required by the Guide de développement de la villégiature sur les terres du domaine public and the PRDTP. Interested municipalities and MRCs can sign agreements to this effect with the MRNF, setting out the obligations and commitments of the two parties. It is also possible to carry out joint studies, with a municipal representative accompanying the MRNF representative on the site visit pursuant to the Regulation respecting waste water disposal systems for isolated dwellings (R.S.Q. c. Q-2, r.8).
6.1.2 Actions relating to rough shelters There is no program to provide for the availability of rough shelter sites, since this type of lodging is offered on a first-come, first-served basis. However, the PRDTP does stipulate some new areas in which rough shelters will be permitted in the future. In some of these areas, rough shelters had been prohibited since 1993. The MRNF will decide when and how the new sites will be made available.
6.2 Other PRDTP implementation activities These activities relate to the implementation of other PRDTP products (commercial and community lodging, outdoor recreational activities, public access, etc.). They include site study programs for recreotourism developments other than private vacation sites and for the preparation of special development plans for wildlife territory sectors.
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6.2.1 Evaluation of recreotourism potential The Joint Discussion Table members have identified sites with recreotourism potential that should be evaluated between now and 2013. The list includes two major sites, namely the structural recreotourism sector of Mont Kanasuta, Colline Cheminis and Collines Kekeko (# 105) and the Dumoine ZEC wildlife territory sector (# 501). A number of secondary recreotourism sectors have also been identified, and some other sites, mostly lakes located in the immediate planning sector, have been identified for possible evaluation of their commercial lodging potential. Where appropriate, the Action Plan proposes special actions for these sites.
6.2.2 Evaluation of wildlife territory development sectors Special advisory committees will be needed to evaluate each wildlife territory development sector (potential, riparian zoning, etc.). The timeframe for creating these committees will depend on the needs of regional communities and the initiatives of the MRCs and municipalities concerned. The Action Plan may include activities leading up to the creation of the special committees.
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Partie 2 Section 1 – Récréotourisme Ongoing Ongoing Ongoing Timeline . * * * ** ** ** ** Partners * users MRNF MRNF Government departments and agencies MRNF FERLD / UQAT Abitibi-Témiscamingue CEGEP Board School Harricana MRNF MRCs concerned and other companies Forestry Various local organizations Project Leader Project Leader Collaborators Collaborators Collaborators Project Leader does not constitute a commitment by the partner does not constitute a commitment Area Covered the mandatory for activity in question. Lac Duparquet teaching and research forest Kinojévis teaching and research forest and Harricana teaching research forest to # 312 # 301 Region Subjects Subjects
Partner that will help implement the activity. This
The partner type will act as shown in bold Continue to identify the UTIs recreotourism offering the best potential. Consult the organizations responsible for managing teaching issuing and research forests before new rights on their territory Take part in the special advisory committees created where necessary for wildlife territories information, discussions, (support, agreement on special protection conditions, etc.) or development * Plan 6.3 Action 6.3.1 PRDTP support and partnerships **
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6.3.1 PRDTP support and partnerships (Cont.) Page 111
Subjects Area Covered Partners* Timeline
Agree on regional guidelines for Region Project Leader* Ongoing dealing with existing rough shelter leases MRNF Collaborator**
Joint Discussion Table Raise huntersÊ awareness of the Region Project Leader* Ongoing scope of their rough shelter lease MRNF Collaborators** Public land tenantsÊ group Fédération québécoise de la faune de lÊAbitibi- Témiscamingue
Identify the method used to study Region Project Leader* 2008 landscapes and establish how it MRNF will be applied121 Collaborator** Joint discussion table * The partner shown in bold type will act as the mandatory for the activity in question. ** Partner that will help implement the activity. This does not constitute a commitment by the partner. Mise àjour Mise Section 1–Récréotourisme
121 Visual landscape preservation conditions for certain land units are set out in the Regulation respecting standards of forest management for forests in
the domain of the State (RSFM). However, the MRNF has recently introduced an approach that enables special protection and development objectives (PDOs) to be establish for a given forest management unit (FMU). http://www.mrnfp.gouv.qc.ca/forets/consultation/consultation-objectifs.jsp. One of Partie 2 these conditions is the visual integration of logging into the landscape: http://www.mrnfp.gouv.qc.ca/publications/forets/consultation/strategie- amenagement.pdf. The strategy established to identify potential sensitive zones and any special measures that may be required is based on recognized concepts and operates with means that allow for quantified multiple criterion evaluations. Tools such as this allow for coherent, rational actions to support multiple forest use and allow the various types of use to function smoothly.
Mise àjour 6.3.1 PRDTP support and partnerships (Cont.) Section 1–Récréotourisme Partie 2
Subject Area Covered Partners * Timeline
Prepare a process for issuing rights Region or MRC territory Project Leader* Ongoing where applicable and monitoring Component II MRNF projects with MRCs Collaborateur**
MRC and Ville de Rouyn- Noranda Target an area of the Dumoine Dumoine ZEC (# 501) Project Leader* 2010 ZEC to serve as a tourist MRNF development pole Collaborators** Dumoine ZEC Témiscamingue MRC Wolf Lake and Eagle Village First Nations Assess the recreotourism potential Lac Robinson Project Leader* 2009 of Lac Robinson and Lac Trudeau Lac Trudeau MRNF for commercial lodging Collaborators** Témiscamingue MRC Municipalities concerned Assess the recreotourism potential Lac Chambeau Project Leader* 2009 of Lac Chambeau. MRNF Collaborators** Abitibi MRC Page 112 Municipality concerned
* The partner shown in bold type will act as the mandatory for the activity in question. ** Partner that will help implement the activity. This does not constitute a commitment by the partner.
6.3.1 PRDTP support and partnerships (Cont.) Page 113
Subjects Area covered Partners Timeline
Where necessary, make available #503, #505, #506, #508, #512 Project Leader* Ongoing to Joint Discussion Table partners to #518 MRNF all the information concerning the lodging infrastructures of outfitters with exclusive harvesting rights Where necessary, and where Region Project Leader* Ongoing documentation is available, MRNF provide the Joint Discussion Table partners with the following Collaborator** profiles: wildlife, outfitters, Ducks Unlimited sensitive habitats and sites, and waterfront characterizations Convey the needs of the ZECS, the Region Project Leader* Ongoing wildlife reserve, outfitters and MRNF other partners Collaborators** ZEC Société des établissements de plein air du Québec (SÉPAQ) PADE and PSDE Fédération québécoise de la faune de lÊAbitibi-Témiscamingue Mise àjour Mise Every year, provide the MRNF with Region Project Leader* Yearly a schedule of actions for the Ministère de la Culture, des
archaeological zones, so that lake Communications et de la Section 1–Récréotourisme studies can be coordinated with Condition féminine archaeological work where Collaborator** necessary Archéo-08 Partie 2
Mise àjour Every year, provide the MRNF with Region Project Leader* Yearly an up-to-date list of archaeological Ministère de la Culture, des sites and sectors Communications et de la Condition féminine Collaborator**
Archéo-08
* The partner shown in bold type will act as the mandatory for the activity in question. ** Partner that will help implement the activity. This does not constitute a commitment by the partner.
6.3.1 PRDTP support and partnerships (Cont.) Section 1–Récréotourisme Partie 2
Subjects Area Covered Partners * Timeline
With regard to logging, examine Region Project Leader* Ongoing the relevance of applying special MRNF adapted conditions designed to preserve the quality of Collaborators** particularly sensitive strategic MRC and Ville de Rouyn- visual frameworks that require Noranda additional protection during recreotourism development Project promoter work122
Give opinions on the compatibility Rivers and bodies of water Project Leader* Ongoing of recreotourism activities with the identified in section 5.2.8.3 Ministère du Développement protection of water quality durable, de lÊEnvironnement et des Parcs
Page 114 122Visual landscape preservation conditions for certain land units are set out in the Regulation respecting standards of forest management for forests in the domain of the State (RSFM). However, the MRNF has recently introduced an approach that enables special protection and development objectives (PDOs) to be establish for a given forest management unit (FMU). http://www.mrnfp.gouv.qc.ca/forets/consultation/consultation-objectifs.jsp. One of
these conditions is the visual integration of logging into the landscape: http://www.mrnfp.gouv.qc.ca/publications/forets/consultation/strategie- amenagement.pdf. The strategy established to identify potential sensitive zones and any special measures that may be required is based on recognized concepts and operates with means that allow for quantified multiple criterion evaluations. Tools such as this allow for coherent, rational actions to support multiple forest use and allow the various types of use to function smoothly.
Give opinions on the compatibility Region Project Leader* Ongoing of recreotourism activities with the Ministère du Développement protection of underground water durable, de lÊEnvironnement quality in certain eskers et des Parcs Collaborators** Government departments and agencies involved in the protected area identification process
* The partner shown in bold type will act as the mandatory for the activity in question. ** Partner that will help implement the activity. This does not constitute a commitment by the partner.
6.3.1 PRDTP support and partnerships (Cont.) Page 115
Subjects Area Covered Partners * Timeline
Consult the MRNF on the various Region Project Leader* En continu Component II projects before Abitibi-Ouest MRC giving final approval t the Abitibi MRC promoters Ville de Rouyn-Noranda Témiscamingue MRC La Vallée-de-lÊOr MRC Collaborator** MRNF
Mise à j à Mise
Sectio o
n
In Component II of the Forest Region Project Leader* Ongoing Resource Development Program, Abitibi-Ouest MRC consider PRDTP implementation as Abitibi MRC a criterion when ranking recreotourism projects in priority Ville de Rouyn-Noranda order123 Témiscamingue MRC La Vallée-de-lÊOr MRC Collaborator** MRNF As far as possible, ensure that the Region Project Leader* planning and development Abitibi-Ouest MRC framework allows the PRDTP to be Abitibi MRC implemented Ville de Rouyn-Noranda Témiscamingue MRC La Vallée-de-lÊOr MRC Collaborator** MRNF
* The partner shown in bold type will act as the mandatory for the activity in question.
** Partner that will help implement the activity. This does not constitute a commitment by the partner.
123 However, the programs admissibility criteria (Component (II) already agreed with the MRNF continue to apply.
Mise àjour 6.3.1 PRDTP support and partnerships (Cont.) Section 1–Récréotourisme Partie 2
Subjects Area Covered Partners * Timeline
Take part in the various special Abitibi-Ouest MRC (# 310) Project Leader* Ongoing advisory committees created Ville de Rouyn-Noranda where required for wildlife Abitibi-Ouest MRC (# 302, # 308 and # 311) territories Ville de Rouyn-Noranda
Témiscamingue MRC (# 301,
# 303, # 307 and # 308 Témiscamingue MRC La Vallée-de-lÊOr MRC (# 302, La Vallée-de-lÊOr MRC # 304, # 305, # 306 and # 312) Collaborator**
MRNF Prepare a watershed Ville de Rouyn-Noranda Project Leader* Ongoing characterization model for vacation laces that takes Ville de Rouyn-Noranda phosphorus deposits into account, to be used as a decision-making Collaborator** tool for recreotourism development Joint Discussion Table
* The partner shown in bold type will act as the mandatory for the activity in question. ** Partner that will help implement the activity. This does not constitute a commitment by the partner.
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Summary REGIONAL PLAN FOR PUBLIC LAND DEVELOPMENT – ABITIBI-TÉMISCAMINGUE REGION The regional plan for public land development, Abitibi-Témiscamingue region – recretourism section (Plan régional de développement du territoire public (PRDTP) de lÊAbitibi- Témiscamingue – section récréotourisme) is a tool for the development of land in the domain of the Sate. It has been drawn up in collaboration with all the regional partners concerned by public land development and resource management, based on a shared objective of harmonious and sustainable development of public land for the benefit of the entire population.
DEVELOPMENT STAKES The public consultations and analysis completed for the PRDTP drafting process led to the preparation of a territorial overview of recreotourism and the identification of the major regional recreotourism stakes: Environmental stakes The stakes vary, depending on the product concerned. 9 wastewater treatment in accordance with current regulations is important for the development of private vacation development. 9 for rough shelters, control of site choices is vital to ensure protection for wildlife and plant habitats and maintain biodiversity. 9 The harmonization and integration of recreotourism planning into the natural environment will ensure that sites with potential for commercial or community lodging, recreational trails, public access points and outdoor and cultural recreational sites are identified and reserved for those purposes. The creation of marked trails will allow movement through the natural environment to be concentrated in specific places, and will help avoid damage from too many trails and from unorganized circulation. A transfer of responsibility for trails to a specific agency that will oversee the planning of access points and other infrastructures is another key stake. 9 For major heritage groups, the most important stake is the protection of component landscapes. Social stakes The PRDTP identifies three main social stakes: 9 maintenance of access to land and water is a major social stake: it will always be taken into account when private vacation sites, public access points to bodies of water, rough shelter leases and recreational trail use are authorized. 9 The pratice of recreational activities by the local population is another important stake: the availability of rough shelters, public access points, recreational trails and outdoor and cultural recreational sites in the region are all determining factors. 9 The protection of the regional collective heritage is another major social stake.
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Economic stakes The participants in the joint discussion table identified four main economic stakes: 9 an increase in purchases of goods and services in local communities. 9 an increase in recreotourism investments through the preservation of sites conducive to specific types of development, such as commercial and community lodging, recreational trails or outdoor and cultural recreational sites. 9 hunting, which generates important economic benefits in the region. 9 an increase in the opportunieis for discovering regional landscapes, through the development of outdoor and cultural recreational sites as the result of recreotourism development.
CONCEPT, GUIDELINES AND DEVELOPMENT SCENARIO
The spatial development concept is derived from the issues and anticipated results identified by the partners involved in preparing the PRDTP. For the purposes of the concept, the area has been divided into sectors, on the basis of accessibility and access control. These simple parameters have been used to divide the region into three main planning sectors, and a development scenario has been prepared for each sector.
The immediate planning sector includes most of the regional population. Public land in this sector is located close to inhabited areas and is used heavily by the general public. Due to the scarcity of public land in the sector, especially in riparian environments, and its proximity to inhabited sectors, the guidelines is to maximize access by the general public to the sector
The peripheral planning sector is characterized by a very high percentage of public land and by the absence of structured wildlife territories (ZECs, outfitters with exclusive harvesting rights, wildlife sanctuaries). Although access is more limited, this sector is nevertheless used for private vacationing and for numerous extensive recreational activities. The guideline retained is to continue with the multiple use of public land for recreational and tourism purposes, while giving priority to public access.
The remote planning sector is composed almost entirely of public land, and is generally located far from inhabited areas. Access is therefore more difficult. It is here that the regionÊs six ZECs are located, along with outfitters with exclusive harvesting rights and the La Vérendrye wildlife sanctuary. The general public and tourists use these areas mainly for hunting and fishing, but increasingly for other recreational activities too. The guideline retained for the remote planning sector is to continue commercial developments of hunting and fishing activities while promoting the enhancement of other types of potential for outdoor and cultural recreational activities. The development scenario implements the guidelines and objectives established in the spatial development concept for each planning sector, which at this stage become development sectors. The scenario identifies a series of development conditions for each recreotourism product in each development sector. These conditions are summarized in the following table.
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GENERAL DEVELOPMENT CONDITIONS FOR PRODUCTS, BY DEVELOPMENT SECTOR Development Sector - Recreotourism Immediate Peripheral Remote Product Private vacation sites Authorized only for Authorized only on Authorized only on consolidation124 of development sites development sites existing sites. identified in Table 13. identified in Table 13 Consolidation and on lakes with authorized. existing private vacation sites. Consolidation authorized. Rough shelters Prohibited, except in Authorized. Authorized outside the sub-development sector structured wildlife SS-01. territories Commercial and Authorized, but priority Authorized, but priority Authorized, but priority community lodging given to multiple given to multiple given to multiple purpose projects. purpose projects. purpose projects. Public access Authorized, areas set Authorized, areas set Authorized, areas set aside during zoning of aside during zoning of aside during zoning of riparian corridors. riparian corridors. riparian corridors. Recreational trails Authorized, but priority Authorized, but priority Authorized, but priority given to multi-purpose given to multi-purpose given to long-haul trails, trails and connecting trails and connecting connecting trails and trails. trails. inter-regional trails. Outdoor recreational Authorized, the best Authorized, the best Authorized, the best sites areas are set aside areas are set aside areas are set aside during zoning of during zoning of riparian during zoning of riparian corridors or corridors or following riparian corridors or following UTI UTI surveys. following UTI surveys. surveys.125 Cultural recreational Authorized, the best Authorized, the best Authorized, the best sites areas are set aside areas are set aside areas are set aside during zoning of during zoning of riparian during zoning of riparian corridors or corridors or following riparian corridors or following UTI surveys. UTI surveys. following UTI surveys. Integrity of major Authorized. Authorized. Authorized. heritage groups
124 Consolidation of a vacation site means that private vacation development is permitted provided it does not involve the prolongation of existing roads. For example, subdivision into two rows, one along the side of the road not adjacent to the lakeshore, would constitute consolidation. Consolidation will be permitted around lakes not stipulated in Table 13, but will be authorized only in areas that meet the standards set out in the Guide de développement de la villégiature sur les terres du domaine public or in the Règlement sur lÊévacuation et le traitement des eaux usées des résidences isolées (Q-2, r.8). 125 Unité territoriale dÊintérêt (UTI or high-interest land unit) is a portion of the area that has no official status, but that does have specific characteristics that distinguish it from the rest of the area. UTIs are surveyed to identify sites with recreotourism potential, and to establish protection and development objectives.
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Sommaire
In addition, the PRDTP development scenario identifies six categories of recreotourism sectors, which are separate areas within a given planning sector to which special development objectives and conditions apply. They are:
9 The structural recreotourism sectors;
9 The secondary recreotourism sectors;
9 The wildlife territory sectors;
9 The protected area sectors;
9 The structured wildlife territory sectors;
9 The recreotourism poles.
Lastly, the development scenario contains special development conditions for each recreotourism product. Unless otherwise stipulated, these special conditions apply to every sector and to every development site.
In the development scenario, the Joint Discussion Table members have also identified a number of sites that may be able to support private vacation development between now and 2013. The MRNF reserves the right to extend the study program required for development purposes, depending on the priorities and available resources.
The Abitibi-Témiscamingue PRDTP, Recreotourism section, also contains an Action Plan identifying all the implementation activities proposed by the Joint Discussion Table members.
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Annexes
Appendices
Annexe 1
Appendix 1: List of PRDTP Partners
Joint Discussion Table Members
Organization Representative
Ministère de la Culture, des Communications Mr. Jean-Jacques Adjizian et de la Condition féminine
MRNF (Regional Operations - Land) Mr. Benoit Villeneuve
MRNF (Regional Operations – Forests) Mr. Paul Gilbert
MRNF (Regional Operations – Wildlife) Mr. Alain Fort
Ministère du Développement durable, de Mr. Benoit Larouche l'Environnement et des Parcs
Abitibi Ouest MRC Mr. Ian Cameron
Abitibi MRC Mr. Normand Grenier
Témiscamingue MRC Mr. Daniel Dufault
Ville de Rouyn-Noranda Ms. Violaine Lafortune
La Vallée-de-l'Or MRC Mr. Sylvain Létourneau (until August 2007)
Mr. Mario Sylvain (since August2007)
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Consultation Partners (Regional Organizations)
Organization
Association des trappeurs de lÊAbitibi-Témiscamingue Association des Trappeurs du Témiscamingue Inc. Association régionale des pourvoiries de lÊAbitibi-Témiscamingue (ARPAT) Association touristique régionale de lÊAbitibi-Témiscamingue (ATRAT) Abitibi CLD Abitibi-Ouest CLD La Vallée-de-lÊOr CLD Rouyn-Noranda CLD Aboriginal Communities 9 HunterÊs Point Community (Wolf Lake First Nation) 9 Kebaowek Community (Eagle Village-Kipawa First Nation) 9 Anicinapek Community of Kitcisakik (Kitcisakik Anicinapek Council) 9 Lac-Simon Community(Lac Simon Anishnabe Nation Council) 9 Pikogan Community (Abitibiwini First Nation Council) 9 Timiskaming Community (Timiskaming Band Council) 9 Winneway Community (Longue-Pointe First Nation) Abitibi-Témiscamingue Regional Conference of Elected Officials (CRÉAT) Fédération des clubs de motoneige du Québec (FCMQ) Fédération québécoise de la faune (Abitibi-Témiscamingue) Fédération québécoise des clubs quad (FQCQ) Hydro-Québec (La Grande Rivière Regional Branch) Regroupement des locataires des terres publiques de lÊAbitibi-Témiscamingue Ministère de lÊAgriculture, des Pêcheries et de lÊAlimentation Ministère de lÊEmploi, de la Solidarité sociale et de la Famille Ministère des Affaires municipales et des Régions
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Annexe 1
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Annexe 2
Appendix 2: Management by Results – Some Notions
Introduction In 1999, the Québec Government adopted the Public Administration Act, confirming the introduction of a new, results-oriented management framework. Management by results is an approach that allows public administrators to report to the population on the services rendered and benefits obtained.
To meet the demands of this new legislation, the MRNF has taken a management-by-results approach to the recreotourism section of the PRDTP. The chosen methodology is based on the notion of issues. This section clarifies the basic national content underlying the preparation of anticipated national results (issues) and development guidelines (concept), along with the regional choices (scenarios) for better use of public land. It also presents a grid of measurable characteristics that can be used to build national indicators that will, in turn, be used as a basis for the regional process.
Definitions
Land use planning notions
Accessibility of public land: The fact that the population has access to land for recreational and tourism purposes.
Biodiversity: „The variability among living organisms from all sources including, inter alia, terrestrial, marine and other aquatic ecosystems and the ecological complexes of which they are part; this includes diversity within species, between species and of ecosystems.‰ (Source: Convention on Biological Diversity, 1992, Article 2. UNEP).
Sustainable development: „Development that meets the needs of the present without compromising the ability of future generations to meet their own needs.‰ (Source: Brundtland Commission Report, „Our Common Future‰, 1987).
Heritage groups: an area of aesthetic, ecological, historical or cultural interest.
Commercial lodging on public land: Commercial lodging is a facility in which individuals, in exchange for payment, are able to stay. It is operated at a vacation site on public land in Québec by a commercial enterprise offering lodging services. The term also covers stays at a vacation site operated with the aim of providing the general public or a specific category of people with free lodging services, or lodging at a predetermined price based on operating and maintenance costs.
Form of occupation: Different forms of vacation sites on public land, based on the scope and density of the development, i.e. dispersed vacation sites or grouped vacation sites. Dispersed vacation sites are vacation sites that are isolated or that form small groups of less
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Annexe 2
than five sites. Grouped vacation sites are groups of at least five sites with a minimum density of 1.25 sites per hectare.
Recreational trails: A recreation trail used for a single purpose or shared by different types of users, which lies on public land, and for which the MRNF has issued a right of use.
Structured recreational trails: Recreational trails that have been classified according to their level of use and their local, regional or national importance, for which the MRNF will grant priority of use for consolidation purposes.
Supply variety: Supply variety is defined as the opportunities available to vacationers to practise different recreational activities such as canoeing, dog sledding, sailing, trail use, etc.
Private vacation sites: A private vacation site is a site for which an individual or group of individuals holds an exclusive right of occupation. This right may be established through ownership or, in the case of public land, by means of a lease or temporary permit issued by the Ministère des Ressources naturelles et de la Faune.
Management by results – Some notions
Management by results: Managing by results involves considering the value of the results obtained and reporting to the population on the services provided and the benefits they generate.
Result
A result is established on the basis of a need Pourquoi? (Why?). It relates to an object (What?), is aimed at Besoin 126 objet people (Who? ), must become real at a certain populations conjoncture time (When?) and occur within a specific area milieu (Where?). A manager implements resources in rˇponse Quoi? 127 pour order to achieve a result . The diagram le gain Qui? Quand? illustrates the five aspects to be considered. O¯?
126 It is important to differentiate between who benefits from the result i.e. „for whom‰, and who carries out the activities, i.e. „by whom‰. The latter „who‰ is classified as a means. 127 The expression of the result does not include „How‰ – in other words, a reference to the methods used to obtain it, or the activities implemented – because it is the result of the application of resources.
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Acronymes
Logical model The logical model is normally used as a basic tool for identifying cause and effect in the various levels of results. Results level #1 refers to the implementation, methods activity structure and means used for operations and production. It is here that the notion of performance128 takes on its full meaning. The actions taken must combine the resources and activities in the best possible way. The simple questions asked at this level are: „Are things being done as well as possible?‰, „Are they being done at the best possible cost?‰, and „Are we getting everything we can from them?‰. The management principle applied at this level is Efficiency (performance, productivity).
o f b i j n e a c ressources activitˇs produits / services utilisation + effets impacts l t i i t f ˇ s s 1 2 3 4 5 intrants (inputs) extrants (outputs) rˇsultats externes (outcomes) moyens objets / personnes changements la vie utiles et utilisables des populations
Results level #2 relates to product and service delivery. Delivery is a „useful‰ contribution to the client, of something that is „usable‰ by the client. A product is „an object or good that is useful to and usable by a person‰, while a service is „assistance given by one person to another‰. A product is tangible, while a service129 is intangible. The question asked at this level is divided into two parts: „Are the products and services provided useful and of sufficiently high quality to meet the clientsÊ needs?‰. The management principles applied at this level are quality130, utility and production. Results level #3 refers to the „effective‰ use of the products and services. It is at this level that the anticipated effect occurs – in other words, the use that justifies production of the products or services. It is expressed in terms of the effects obtained by the clients who use the products and services. It is here, too, that the principle of Effectiveness (what is effectively done) takes on its full meaning. The simple fact of making a product or service available does not necessarily mean the product or service in question will be effective. True effectiveness occurs only when the product or service is of use to the client. The management principle applied at this level is Effectiveness. Results level #4 refers to the impacts or changes affecting the population (citizens), which allow them to move towards the goals they are pursuing. It is at this level that true relevance131 takes on its full meaning.
Results level #5 refers to the outcomes or final state being aimed for, pursuant to the vision selected (in this case, sustainable development).
128 In economic terms, the notion of performance refers basically to yield and productivity. 129 A service is always dependent on the existence of a product and cannot exist alone. A service is a complement to the use of a product; therefore, the expression „products and services‰ cannot be inversed. 130 The principles of total quality management as described by Edward Deming apply at levels X and Y (v. http://www.deming.org/). 131 As opposed to hypothetical relevance, expressed at the planning stage during the analysis of needs.
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Acronymes
Issue: An issue is a core element, namely the anticipated gain to be made by risking certain action or risking a certain loss by not acting. A gain is a positive expression of an issue. It satisfies the need or changes the situation of the population in question. The question to be asked is: „What gains are needed to meet this need (lack)?‰
Characteristic: A characteristic (attribute, indicator, mark, particularity, property, feature, sign, trait, etc.) is used to assess the results. For example:
⁄For Whom? What? When? Where? Tourists use ⁄25 % more kilometres of safe ⁄beginning in April In region X recreational trails 2004 Examples of characteristics: Type of tourists Number of km Availability at a given Specific location Target activities Trail markers date Specific interest of Level of difficulty access
Indicator: An indicator is a key characteristic whose variation can be observed over time. Characteristics are therefore the raw material for producing indicators. An indicator does just what its name suggests: it „indicates‰ the status of a situation but does not give reasons for that situation.
An indicator is measured by comparing a characteristic that has varied with a basic characteristic, which ideally will be a reference constant. To appreciate the positive or negative meaning of the information provided by an indicator, a „standard‰ or „benchmark‰ is needed as a point of reference. For example:
Object Characteristic reflecting Measurement utility Rambling Rate of use Actual rate of use trail Average rate of use for other, similar trails elsewhere
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Annexe 2
Explanation of Working Method
Sequence of issues The working grid classifies issues into four types: Products, effects of product use, impacts and outcomes.
These issue types are placed in a logical sequence.
Measurable characteristics are proposed for each product and each effect.
Sustainable development The national issues are defined according to the three aspects of sustainable development, namely environment, economy and society. For each aspect, the MRNF (Land and Parks Sector) identified an anticipated outcome. The target outcomes are: Maintenance of biodiversity (environment) Consolidation of an increase in the number of enterprises and jobs (economy) Universal access to public land (society) These three outcomes must be achieved with due regard for balance and harmony, in order to meet the recreational needs of the present without compromising the ability of future generations to meet their own needs. Figure 1: Diagram of sustainable development outcomes
Accessibilité pour tous au territoire public
Société
DD
Environnement Économie
Maintien de la Consolidation et accroissement biodiversité du nombre d’entreprises et d’emplois
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Acronymes
Acronyms
ATR Regional tourist association BDTA Topographic and administrative database BDTQ Québec topographic database BGR Regional geographic database TSFMA Timber supply and forest management agreement CGT Land management agreement CLD Local development centre CRD Regional development board CREDD Regional environment and sustainable development board EDIT System used to register harvesting and tenure rights FCMQ Fédération des clubs de motoneigistes du Québec FQCQ Fédération québécoise des clubs quad GDF System used to manage land rights Ha Hectare MAMR Ministère des Affaires municipales et des Régions MCC Ministère de la Culture et des Communications MDEIE Ministère du Développement économique, de lÊInnovation et de lÊExportation MDDEP Ministère du Développement durable, de lÊEnvironnement et des Parcs MRC Regional county municipality MRN Ministère des Ressources naturelles MRNF Ministère des Ressources naturelles et de la Faune MRNFP Ministère des Ressources naturelles, de la Faune et des Parcs PADE Outfitter with exclusive harvesting rights PATP Public land use plan PDAR Recreational activity develop plan PDRRF Regional development plan for wildlife resources PGAF General forest management plan PRDTP Regional Plan for Public Land Development PRDV Regional Vacation Sites Development Plan
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Acronymes
Acronyms (cont.)
PSDE Outfitter without exclusive harvesting rights RDE Register of the domain of the State RLTP Public land tenantsÊ group RRGZ Regional group of ZEC managers SAAQ Société dÊassurance automobile du Québec SADC Société dÊaide au développement des collectivités SDA Administrative boundaries system SEPAQ Société des établissements de plein air du Québec SIGT Public land information and management system SOPFEU Société de protection des forêts contre le feu STAQ Société touristique des Autochtones du Québec STIM Integrated parcel landholding system TCF Wildlife territory TNO Unorganized territory UTI High-interest land unit ZEC Controlled harvesting zone
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Lexique
Glossary of land use planning terms
Term Definition Observations Spatial analysis of the economic, social and The more concrete environmental aspects of an area under study, term of territorial Territorial analysis resulted in a summary, documented profile to be profile has now considered when making subsequent regional replaced the term planning and development choices. territorial analysis. The Regional Geographic Database, commonly The structure and known by its French acronym BGR, was designed to nature of BGR data meet the specific needs of a regional public land have been upgraded BGR management branch of the Ministère des since 1995. Ressources naturelles et de la Faune. The BGR is specific to The BGR is the database used for the SIGT. the SIGT. Regional public land development guidelines for a The term spatial Regional spatial given section of the PRDTP, which takes into development concept development account the territorial report and profile for the is specific to the concept theme in question. It includes the national PRDTP. guidelines and any compulsory guidelines. Produced for a section of the PRDTP, it sets out a The term territorial Theme-based diagnosis of the current situation and identifies report is specific to the territorial report potential. PRDTP. The MRNFÊs system to manage land rights on public GDF land. Public land use plans set out land and resource PATP development and conservation uses based on the GovernmentÊs objectives and orientations.
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Lexique
Glossary of land use planning terms (Cont.)
Term Definition Observations Profil is one of the modules in SIGT. It is used to Profil is a tool. produce and consult information by theme, The Profil prototype is domain, criterion and indicator. currently under Profil Raw data are stored by the producer. development. Summary information is sent to the SIGT database. The term Profil is specific to to SIGT. Profil uses a web-based interface. Spatial analysis of the economic, social and The profile is the environmental aspects of a site under study, which common basis for all results in a summary, documented profile to be integrated land Territorial profile considered when making subsequent regional management issues. planning and development choices. It is also an The territorial profile is entered into the SIGT information database. management tool. Regional Plan for Public Land Development. The A PRDTP production PRDTP is prepared in cooperation with government guide and model PRDTP and regional partners, and sets out where, when report set out the and how land right scan be issued on public land. procedure to be used. French acronym for Register in the domain of the RDE State Type of intervention in a given section of the PRDTP The term is specific to Scenario that can apply to one or more regional territorial the PRDTP. sectors. A specific area for which a scenario is prepared. The term is specific to Sector the PRDTP.
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Lexique
Glossary of land use planning terms (cont.)
Term Definition Observations In the PRDTP, the sections are major fields of The PRDTP is divided activity where interventions (issuing of rights) on into five sections: public land are possible or can be envisaged. recreotourism, industry, trade and The PRDTP is a continuous process, and the sections Section others, public or are processed and reviewed in order of priority, community utility, and with the first in line being the recreotourism special intervention, section. preservation and protection areas. The French acronym for the MRNFÊs Public Land The system was Information and Management System. The system developed and comprises several different modules used to implemented in June manage, process and circulate the various layers of 2002. SIGT geographic information in the BGR. The SIGT will be used to update the territorial profile and the PRDTPs. A detailed land unit within a sector, for which an The term is specific to intervention scenario is prepared within a given the PRDTP. section. Site E.g. a lake, in a sector for which outfitters will be developed. A particular aspect of a component. This term is specific to the PRDTP. E.g. private vacation Subject site is a subject of the lodging component of the recreotourism section.
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Lexique
Glossary of land use planning terms (cont.)
Term Definition Observations A management area is one of the inputs to be The expression is taken into consideration when drawing up the specific to the vacation regional spatial development concept for the development guide, recreotourism section of the PRDTP. However, and was inherited because the criteria on which it is based overlap from the PRDVs. those used to produce the territorial profile and report, its use may be regarded as redundant at this stage in the PRDTP process. Management area On the other hand, at the recreotourism development scenario preparation stage for sectors and sites where vacation development is a dominant or significant element, management areas can be used to refine the boundary divisions and develop the Action Plan. This helps ensure a good fit with the ministerial guidelines for vacation development. Each section is composed of subjects to be The recreotourism considered. In the case of recreotourism, the section is divided into subjects are grouped together to form components. three components, Component The components are not mutually exclusive. They namely lodging, should be analyzed in a way that reflects their outdoor recreational interdependency and cumulative effects. activities and cultural activities. Portions of land within the region that have the This expression is same sustainable development characteristics, issues specific to the Homogeneous and concerns. territorial profile and zones The polygon establishing the homogeneous zones report. and the associated documentation will be placed in the SIGT database
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Lexique
LEXICON
Adventure tourism: An outdoor leisure activity that usually takes place in an unusual, exotic, remote or wilderness setting, requiring unconventional transportation and some level of physical effort.
Allopatric: Presence of a single species of fish in a body of water (i.e. no competing species).
Camp: A rustic dwelling with few comforts.
Cottage: A country home usually located near a lake, river or mountain, and used for vacation purposes.
Day visitor: A person who makes a return trip to a destination within the same day, without using commercial or private lodging services.
Developed campground: A site that has been developed for use by campers, that is able to host tents, camping vehicles and trailers, and that has all the usual facilities (e.g. marked campsites, picnic areas, fir wells, water, sewers, toilet blocks, etc.).
Development potential: Theoretical number of private vacation sites that are able to be developed over a ten-year period, depending on the biophysical characteristics, wildlife protection measures, current access and demand.
Dispersed vacation site: Any form of occupation of public land for private vacation purposes, where the sites occupied by housing units are isolated or form small groups of less than five sites.
Ecotourism: All forms of nature-based tourism, where the primary motivation is to discover, observe and learn about traditional cultures in natural spaces. It includes interpretation and/or study. It is generally, but not necessarily, organized for independent travelers and small groups, by small, specialized companies, and is designed so as to minimize negative impacts on the natural and socio-cultural environment.
Free area: An area in which no wildlife rights have been granted (e.g. ZECs, outfitters, wildlife sanctuaries).
Grouped vacation site: Any form of occupation of public land for private vacation purposes where at least five sites are grouped together with a net density of at least 1.25 sites per hectare, or one site per 0.8 hectare.
Guide de développement de la villégiature sur les terres du domaine public: A tool used to implement the GovernmentÊs approach to vacation development on public land in Québec, presented by the MRN in 1991.
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Lexique
Issue: A gain or loss that is likely to be obtained by acting or not acting in a specific way. The notion of „issue‰ is extremely useful in helping stakeholders to clarify the expectations for a program.
Land management agreement: An agreement by which certain land and resource management and development powers and responsibilities of one or more Government departments are delegated to a MRC or city.
MRC: Regional county municipality. An umbrella for municipalities and, in some cases, unorganized territories, governed by an authority defined in a general law.
MRN·Société de la faune et des parcs du Québec Agreement: An administrative agreement concerning waterside vacation development on public land (February 2001).
Multi-purpose trail: An organized trail suitable for different types of use, on which different activities may take place at different times of the year (e.g. summer/winter).
Outfitter with exclusive harvesting rights: An enterprise that has exclusive rights to hunting, fishing or trapping activities over a portion of land in the domain of the State, by order of the Government.
Outfitter without exclusive harvesting rights: An enterprise that offers specific services to hunters and fishers but does not have exclusive rights to hunt, fish or trap in a given area.
Private vacation site: A private vacation site is a site for which an individual or group of individuals holds an exclusive right of occupation. This right may be established through ownership or, in the case of public land, by means of a lease or temporary permit issued by the Ministère des Ressources naturelles et de la Faune.
Quad bike: A four-wheeled all-terrain vehicle equipped with a steering wheel and seat.
Recreotourism activity: Recreotourism is a term that refers to all outdoor leisure and tourism activities, including recreational activities designed to discover natural environments, various sports and cultural activities taking place in a natural environment. The term excludes all forms of private, commercial and community lodging.
Rough shelter: A single storey building with no permanent foundations, running water or electricity, with a floor area not exceeding 20 square metres.
Seasonal camping: Camping for a predetermined period of 30 days or more, or for an entire season or part of a year.
Semi-developed campground: A space that has been cleaned and cleared for use by tents, which offers basic comfort. Few services are available, and their quality is reduced (e.g. picnic space, dry toilet).
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Lexique
Sensitive area for woodland caribou: An area identified by Faune Québec for woodland caribou protection. It may include the yard itself, as well as protection blocks and replacement blocks.
Shelter: A building located along a backpacking trail, in which groups of hikers can stay overnight.
Short stay: Occupation of a site for an uninterrupted period of less than 30 days.
Structured territory: A legally-defined territory to which access is usually controlled.
Tenure: A term used to refer to the type of ownership of a portion of land (e.g. public, private).
Tourist: A person who stays for more than 24 hours away from home (one night or more) and uses commercial or private lodging facilities.
Vacation: A trip away from home for recreational or leisure purposes, usually to a rural or forest destination.
Waterside: A site located less than 300 metres from a lake or less than 100 metres from a river.
Wilderness campground: A space that has been cleaned and cleared, but offers no services other than a toilet.
Wildlife territory: A territory recognized at the regional level by the MRNF (Direction régionale de la gestion du territorie public and Faune Québec), within which special conditions apply to waterside vacation development in order to protect wildlife.
ZEC: Controlled harvesting zone. An area in which wildlife management is handed over to a non-provit association via a memorandum of understanding with the Government. The ZEC concept is based on four principles, namely wildlife conservation, access to the wildlife resource, user participation, and self-funding of operations.
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Bibliographie
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Bibliography (cont.) MINIST˚RE DU DÉVELOPPEMENT ÉCONOMIQUE ET RÉGIONAL ET DE LA RECHERCHE, Portrait régional de lÊAbitibi-Témiscamingue, Website http://www.mderr.gouv.qc.ca/mder/web/portail/developpementRegional, novembre 2004.
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