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MNR Number 62782
© Queen’s Printer for Ontario, 2012 Printed in Ontario, Canada Design and Layout: OSS Design and Print Services
ISBN 978-1-4435-9226-0 (Print) ISBN 978-1-4435-9228-4 (PDF) ISBN 978-1-4435-9227-7 (HTML)
How to cite this manual: Ontario Ministry of Natural Resources. March 2012. Niagara Escarpment Parks and Open Space System Planning Manual. Toronto: Queen’s Printer for Ontario. 86 pp.
Ontario Ministry of Natural Resources, 300 Water Street, Peterborough ON K9H 8M5
Cette publication hautement spécialisée, Niagara Escarpment Parks and Open Space System Planning Manual March 2012, n’est disponible qu’en Anglais en vertu due Règlement 411/97 qui en exempte l’application de la Loi sur les services en français. Pour obtenir de l’aide en français, veuillez communiquer avec le ministère des Richesses naturelles 416 314-7933
Management agencies will prepare plans for each park or open space in the Niagara Escarpment Parks and Open Space System. Each Plan will establish policy guidelines for long term protection, development and management of the park or open space area. Niagara Escarpment Plan (2005), section 3.1.6
Agencies will be encouraged to bring such plans into conformity over a number of years when park and open space plans are renewed, updated or reviewed for conflict with the Niagara Escarpment Plan. Niagara Escarpment Plan (2005), section 3.1.5
The Niagara Escarpment is a 725-kilometre ridge of fossil-rich sedimentary rock that reaches 510 metres at its highest point and bisects southern Ontario from the islands off Tobermory on the Bruce Peninsula to Queenston on the Niagara River. The Escarpment has important geological and ecological characteristics and is a designated United Nations Educational, Scientific and Cultural Organization (UNESCO) World Biosphere Reserve.
In 1973, the Niagara Escarpment Planning and Development Act (NEPDA) established a planning process to ensure that the area would be protected. From this emerged the Niagara Escarpment Plan (1985; revised in 2005), which was Canada's first large-scale environmental land use plan and set the stage for subsequent environmental land use plans, including the Greenbelt Plan (2005) and the Oak Ridges Moraine Conservation Plan (2002).
Part 3 of the Niagara Escarpment Plan (2005) (NEP) sets out policies for the Niagara Escarpment Parks and Open Space System (NEPOSS). These policies form a framework for establishing and coordinating a system of publicly owned lands on the Escarpment.
The NEPOSS is owned and managed through the continued cooperation of seven conservation authorities, the Ontario Ministry of Natural Resources (MNR), the Ontario Heritage Trust, Parks Canada, the St. Lawrence Seaway Authority, the Niagara Parks Commission, the Royal Botanical Gardens, municipalities and other bodies (e.g., the Bruce Trail Conservancy (BTC) local service clubs, approved conservation organizations).
The NEPOSS is comprised of more than 140 parks and open space areas, most of which are or will be connected by the Bruce Trail. This system balances protection, conservation and sustainable development to ensure that the Escarpment will remain largely as a natural environment for future generations.
The NEP requires all park and open space agencies (hereafter referred to as "agencies") to prepare a master/management plan (hereafter "management plan") for each park and open space in the NEPOSS. This manual provides guidance to agencies on the design, development, implementation and maintenance of those management plans, and outlines the processes that agencies should follow to produce and maintain a management plan. The manual should be read in conjunction with the NEPDA and Part 3 of the NEP.
Each management plan will establish direction for long-term protection, development and management of the park or open space that meet the requirements of the Environmental Assessment Act and are consistent with the NEP. Management plans should reflect the predominant characteristics of the property while protecting natural heritage features and cultural heritage features, creating outdoor educational and recreational opportunities, and providing public access to the Niagara Escarpment.
This manual applies to parks and open spaces that are identified in Appendix 1 of the NEP and to any new parks or open spaces, and additions to existing ones, that are not cited in that Appendix.
1.1 Background of the Niagara Escarpment Parks and Open Space System 1.2 Legislation and Policy Context for NEPOSS Planning 1.3 NEPOSS Council
2.1 Management Plans 2.2 Management Planning Process
3.1 Developing a Project Charter
4.1 Completing the Inventory 4.2 Analyzing and Assessing the Information Gathered 4.3 Human and Financial Considerations for Undertaking Research
5.1 An Introduction to Parks and Open Space Classification 5.2 Nodal Parks 5.3 An Introduction to Parks and Open Space Zoning 5.4 Zone Policies 5.5 Establishing Zones 5.6 The Bruce Trail
6.1 The Benefits of Undertaking Public Consultation 6.2 Inclusiveness in the Public Consultation Process 6.3 Determining the Appropriate Level of Public Consultation 6.4 Incorporating Public Consultation into the Management Planning Process 6.5 Consultation Information to Include in the Management Plan
7.1 Monitoring the Implementing of Management Direction 7.2 Evaluating the Effectiveness of Management Actions 7.3 Reviewing and Updating of Other Items 7.4 Setting Monitoring Priorities
8.1 Suggested Content of the Management Plan
9.1 Management Plan Approval Process 9.2 Management Plan Approval Processes for Other Government Bodies That Manage NEPOSS Parks
10.1 Communications 10.2 Work Planning 10.3 Application of the Adaptive Management Approach 10.4 Development in the NEPOSS 10.5 Land Acquisition and Land Removal
11.1 Management Plan Amendment Process 11.2 Making Changes to Park Management Activities When No Approved Management Plan Exists
Table 2.1 Phases of the Management Planning Process Table 4.1 Inventory Categories Table 5.1 Parks and Open Space Classifications Table 5.2 NEPOSS Zones Table 6.1 Public Consultation Techniques Table 7.1 Steps in Setting Priorities for Monitoring the Effectiveness of Management Direction
Figure 5.1 Example of a Zone Map – Delphi Point Park Figure 5.2 Example of a Development Concept Map – Delphi Point Park
Appendix A Project Charter Outline Appendix B Background Information Document Appendix C Approval Statement Template
[Image: Terra Cotta Conservation Area, Courtesy of Credit Valley Conservation Authority]
In 1967, then Ontario premier John Robarts commissioned Dr. Len Gertler, a professor of planning at the University of Waterloo, to conduct a wide-ranging study to determine how best to ensure the preservation of the Niagara Escarpment. This study led to the government's decision to protect the Escarpment with a specific statute – the Niagara Escarpment Planning and Development Act (NEPDA), which came into force in 1973.
In the same year, a 17-member Niagara Escarpment Commission (NEC) was established under the Act. The NEC's initial task was to prepare a provincial plan for the Niagara Escarpment and to administer a system of development control.
Gertler's report introduced the concept of a Niagara Escarpment Parks System. The development of public parks along the Escarpment had been going on for many years, but not as part of a coordinated program. Gertler recommended that a network of Escarpment parks be established:
The emerging concept of a Niagara Escarpment Parks System can satisfy the goals of safeguarding the natural parkland assets of the Escarpment and of providing for greater public enjoyment of these resources. Such a system could be designed to yield excellent recreational and economic benefits to the people of Ontario. The co-operation of all levels of government, government agencies, and private groups within an overall plan is necessary to achieve the recreational development potential of the Niagara Escarpment. Natural Escarpment Study Conservation and Recreation Report (1968)1
In 1985, 12 years after the passing of the NEPDA and the establishment of the NEC, Cabinet approved the Niagara Escarpment Plan (NEP). Policies for the establishment of a Niagara Escarpment Parks and Open Space System (NEPOSS) were set out in Part 3 of the 1985 NEP.
The NEPOSS is comprised of more than 140 parks and open space areas, most of which are connected by the Bruce Trail. The parks and open spaces within the system contribute to the protection of the Escarpment's natural heritage features and cultural heritage features by providing opportunities for sustainable recreation.
[Image: Re-enactment of the of the 1813 Battle of Stoney Creek, Courtesy of the City of Hamilton]
1 Niagara Escarpment Study Group. 1968. Niagara Escarpment Study Conservation and Recreation Report. Treasury Department, Finance and Economics, Government of Ontario.
The legislative basis for the NEPOSS is the NEPDA. The purpose of the Act is as follows:
To provide for the maintenance of the Niagara Escarpment and land in its vicinity substantially as a continuous natural environment, and to ensure only such development occurs as is compatible with that natural environment. Niagara Escarpment Planning and Development Act (1973)
Policies related to the NEPOSS are contained in Part 3 of the 2005 NEP. Section 3.1.3 of the NEP confirms that "The strength and public image of the NEPOSS are entirely dependent upon the cooperation of the various park and open space management agencies in complying with the policies of the Niagara Escarpment Plan." Specifically in relation to the content of this manual, section 3.1.3 also states that it is expected that there will be a "common application of a set of park and open space planning and management policies to individual parks and open space areas with the System." For example, all management plans for NEPOSS properties are expected to demonstrate consideration of the NEPOSS objectives shown below.
[Image: Crook's Hollow, Courtesy of Hamilton Conservation Authority]
NEPOSS Objectives
Niagara Escarpment Plan (2005), section 3.1.1
Section 3.1.6 of the NEP contains general policies in relation to the park and open space planning process that outline the following:
Other specific policies contained in Part 3 of the NEP relate to the following:
[Image: Tiffany Falls Conservation Area, Courtesy of Hamilton Conservation Authority]
These and other relevant policies contained in the NEP need to be thoroughly considered early in the planning process to meet the necessary requirements for final approval of a management plan.
Note: The NEPOSS Planning Manual should be read in conjunction with both the NEPDA and the NEP.
[Image: Dundas Valley Conservation Area, Courtesy of Hamilton Conservation Authority]
The concept of a NEPOSS Council was initiated during the first review of the NEP in 1990. The Hearing Officers recommended that a coordinating council be established to create a supportive network to assist park managers in learning from each other's triumphs and mistakes, and to bring about a progressive development of service delivery in Escarpment parks.
The 1993 Hearing Officers Executive Summary stated:
We consider the Niagara Escarpment Parks System vital to the success of the Plan. The System, as it was drawn up, depends on cooperation among municipalities, conservation authorities, the Bruce Trail Conservancy and other agencies whose lands, together, make up the System. It is time to expand and strengthen that cooperative approach, making it clear that the participating governments and agencies own not just some of the land in the Park System, but a piece of the System itself. We believe this will bring a renewed commitment from all partners to help the System thrive.
Also during that time period, the UNESCO recognized the Niagara Escarpment as a World Biosphere Reserve. UNESCO encourages collaborative efforts among park managers to promote the sustainability of local economies and communities, as well as the conservation and stewardship of Escarpment ecosystems. A council was initiated in the early 1990s to discuss common issues and exchange information, however, the council was discontinued in 1996.
The NEPOSS Council was re-established in 2009 with the belief that more could be accomplished in NEPOSS as a collective than as individual parks and natural spaces. The success of the NEPOSS Council is dependent upon the active support and cooperation of its members.
The NEPOSS agencies are responsible for managing public land on the Niagara Escarpment and for developing and supporting NEPOSS initiatives and programs.
The NEPOSS Council's purpose is to advance the NEPOSS objectives identified in the NEP. It was created in recognition of a need to foster dialogue on NEPOSS issues and improve liaison, shared resources, and coordinated action among various NEPOSS agencies.
The Council will provide advice to the Ontario Ministry of Natural Resources (MNR) and the NEC on NEPOSS policies and programs and bring awareness to Council issues. The Council will:
The Council is comprised of park and natural space agencies that are responsible for the management of public land in the NEPOSS, including the Bruce Trail. The Council should strive to maintain a membership that has strong geographic representation to ensure the diverse needs of the park agencies are met. MNR and NEC staff are non-voting advisors. (Refer to the NEPOSS Council Terms of Reference, 2008).
[Image: Kelso Conservation Area, Courtesy of Conservation Halton]
This section of the manual explains the need for management plans and outlines the management planning process for parks and open spaces. Developing the purpose and vision for a park or open space early in the management planning process helps the planning team focus on the most important features, pressures and activities. The planning process links practical actions to clear, site-specific objectives that enable achievement of the goals and vision for the park or open space. Monitoring the implementation of management direction allows an assessment of the effectiveness of that planning direction and informs adaptive management strategies based on lessons learned.
Not all parks and open spaces require the same level of planning and management. Each site and management plan is unique. Therefore, no single management plan template can be applied to all parks and open spaces. Successful management plans vary in terms of detail, structure and implementation. In some instances, it is possible to isolate or combine elements of the planning cycle when undertaking the planning process. The determination of planning needs depends on several factors, including the following:
The NEP requires all park and open space agencies to prepare management plans for the lands they manage and/or own in the NEPOSS. The management plans lay out the goals and objectives, and guide the protection and management of natural heritage features and cultural heritage features, and activities in parks and open space areas.
Generally, a management plan will conform to the NEP if it answers positively to the following questions:
Producing a single management plan for a grouping of protected areas based on common criteria is possible. Various parks and open space areas have incorporated the concept of one comprehensive planning/consulting process to produce a single management plan and, in the right context; this has streamlined the task of preparing management plans.
In certain circumstances, however, grouping areas to accommodate the production of a single management plan may not be appropriate, for example, when:
The management planning process will provide the agency, the public, the NEC, and the MNR with a high level of confidence that development and recreational activities permitted in a park or open space are appropriate, while adhering to the system's goals and objectives as identified in the NEP.
The NEC and the MNR are to be consulted at various times, as described below, throughout the development of the management plan and as necessary during its implementation:
[Image: Christie Conservation Area, Courtesy of Hamilton Conservation Authority]
Agencies are advised to start the parks and open space planning process with the development of a project charter.
A project charter is similar to a terms of reference document: once created, it will guide agencies through the management plan development process. A project charter is a very helpful document when engaging in early consultation with the agency's board of directors, the MNR, the NEC, the public and stakeholders. As a reference for the planning team, the project charter keeps the project on track and clearly identifies responsibilities and deliverables. External consultation about the project charter is not necessary. The agency team can update it as the process unfolds and more information becomes available.
The project charter should:
Appendix A outlines a project charter.
[Image: Bruce Trail at Cape Croker, Courtesy of Gary Hall and the Bruce Trail Conservancy]
In the early stages of the planning process, information should be gathered to create an inventory of the natural heritage features and cultural heritage features of a property, the species that inhabit it, and its existing infrastructure and uses. The information gathering stage could also include some preliminary consultation with the public and stakeholders to determine their interests in and concerns about the property. This information will be used to:
A summary of this research, the inventories and assessments completed should accompany the final management plan as a background document.
An inventory of natural heritage features and cultural heritage features will vary significantly from site to site, depending on the size and characteristics of the property and the variety of services, facilities and activities offered. In general, parks and open spaces with greater complexity require more data to support decisions.
Agencies with multiple or large parks or open spaces may wish to consider undertaking partial inventories, excluding the portion of the properties where no development or intrusion are considered in the short term. The specific area would be clearly indicated, and no development or intrusion (e.g., trails) would be allowed in the area until appropriate inventories are completed and management directives are made. Given the time and expense involved in undertaking inventories, undertaking partial inventories may help spread costs over time and allow completion of the management plan in a phased manner.
Agencies with small or non-operational parks or open spaces where use or potential for development are limited may wish to consider a limited inventory. For a limited inventory, agencies should either conduct a preliminary information assessment or use existing information, depending on the currency and extent of the existing area information. These options may provide specific direction for on-the-ground assessments or reduce the need for extensive assessments.
To support agencies in identifying and evaluating natural heritage features, provincially available information sources are identified in Appendix B of the Natural Heritage Reference Manual for the Natural Heritage Policies of the Provincial Policy Statement, 2005, MNR, second edition, 2010 (Natural Heritage Information Sources). For more information on cultural heritage features, refer to the Ontario Heritage Tool Kit as developed by the Ministry of Tourism, Culture, and Sport. The suggested information sources are not exhaustive. Additional information sources (e.g., a local naturalist group) may need to be consulted when further information on a particular natural heritage feature or area is required. Questions on the proper use of MNR's data for municipal land use planning purposes should be referred to the local MNR district office.
Table 4.1 describes six broad categories of background information and provides examples of the type of content they might contain. The categories are also discussed in Appendix B. The exercise of collecting information to be included in a background information document primarily consists of (a) identifying and defining the values, (b) assessing the benefits (quantitative and/or qualitative) that may be derived from those values and (c) assessing the potential for those values to be compromised in some manner. Other types of information may be collected.
Appendix B of this manual gives more details about the background information to be collected.
The analysis and assessment of the inventory of site features should:
[Image: Jefferson Salamander, Courtesy of Bruce Trail Conservancy]
[Image: Trillium, Courtesy of Niagara Peninsula Conservation Authority]
If the analysis and assessment process reveals that the site has features of significance or is affected by pressures that have not been planned for, they should be reflected in the vision, aims and objectives of the park management plan and resulting work plan.
The human and financial resources required to carry out an inventory of site features will depend on the size and type of site, the complexity of the issues involved, available information and the agency's capacity to accomplish the tasks.
Support and expertise for conducting inventories may come from a variety of internal and external sources. Agencies may want to consider involving volunteers (e.g., local interest groups, university students) to help collect data. Volunteers are often professionals who have diverse skill sets, for example, planners, landscape architects, fundraisers, ecologists, educators, and so on. Volunteers may require direction from staff to ensure that data is collected and documented appropriately.
Limited human and financial resources should not prevent the development of an inventory. It is acceptable to indicate in the management plan that additional work or research are needed to improve existing information, along with an estimated time frame for completing the additional work or research.
[Image: Garter Snake, Courtesy of Royal Botanical Gardens]
[Image: Country Heritage Park, Courtesy of Country Heritage Agricultural Society]
Classifications and zones serve as a guide to agencies in the management and use of a park or open space. This section explains the process by which agencies build on the information collected in the research phase and helps to ensure that the park or open space is correctly classified and zoned with appropriate, site-specific management direction (see sections 3.1.4 and 3.1.5 of the 2005 NEP).
Parks and open space areas currently in the NEPOSS are assigned a classification based on the predominant characteristics of the property (see Appendix 1 of the 2005 NEP). The classifications identify the variety and diversity in the system. Each of the six classifications serves a specific purpose and provides planning and management direction to agencies. Table 5.1 provides information on the classification and planning guidelines. The classifications are as follows:
The inventories undertaken in the research phase will help agencies confirm or consider changing the classification assigned to the park or open space.
Where a number of agencies own and/or manage contiguous lands within a common park or open space area boundary, the agencies will determine the classification by consensus.
[Image: Old Baldy, Courtesy of Grey Sauble Conservation Authority]
Where permitted by the Park Classification, recreation uses in parks and open space, other than in Recreation Parks, shall be incidental or secondary to the protection of land within the park or open space area for public enjoyment and as habitat for wildlife and plant communities. Niagara Escarpment Plan (2005), section 3.1.4.1
Nodal Parks represent distinct regional features and characteristics. The function of Nodal Parks is to provide visitor reception services and information about broader NEPOSS park and open space activities, points of interest and attractions in the region. The goals of Nodal Parks are as follows:
To promote the distinctiveness and visual identity of the NEPOSS, literature about it, as well as the Escarpment and the NEP, will be available at Nodal Parks. The following ten Nodal Parks have been selected to serve segments of the Escarpment:
New Nodal Parks may be added or existing ones replaced without requiring an amendment to the NEP, provided that the MNR and NEC are satisfied that, following consultation with the public and the agency, such a modification would be consistent with the NEPOSS objectives and the Nodal Park concept outlined in the NEP.
A Nodal Park may contain facilities and support uses directly related to its administrative role in the NEPOSS, as outlined in section 3.1.2 of the NEP.
[Image: Bruce Peninsula National Park Visitor's Centre, Courtesy of Parks Canada]
Zoning, according to section 3.1.5 of the NEP, is essential to the planning, development and effective management of a park or open space area. Zoning is a process undertaken in the park and open space planning process that examines each specific geographic area within the protected area to determine:
Zoning assigns uses to lands based on their significance for protection and their potential for recreation within the classification policy.
Zones are intended to fulfill a variety of functions in a park or open space, including the following:
The land use designations of the Niagara Escarpment Plan and Development Criteria in Part 2 (of the NEP) will be used as a guide in the planning process instead of a final statement on permitted uses. Zoning developed through the park and open space planning process takes precedence over land use designations in the Niagara Escarpment Plan once a Parks Master/Management Plan is approved and not in conflict with the Niagara Escarpment Plan. Niagara Escarpment Plan (2005), section 3.1.6.2
There are six zones in the NEPOSS, each of which serves a specific purpose and provides planning and management direction to agencies. Table 5.2 contains guidelines for zoning and planning. The six types of zone are as follows:
If zones other than those listed above are needed to resolve special planning requirements, agencies will be expected to provide supporting documentation and rationale when recommending a new zone category. Creation of a new zone category as a result of the planning process will not require an amendment to the NEP but should be done in consultation with the NEC and the MNR.
The zones can be applied to all parks and open space classes, except in the case of Natural Zones, Development Zones and Resource Management Zones which are not permitted in the Nature Reserve class. Niagara Escarpment Plan (2005), section 3.1.6
All park and open space management plans will include zone policies, zone descriptions and a zone map.
As shown in figure 5.1, a zone map of Delphi Point Park, zones should be based on the best understanding of the significant and representative features of the park or open space. At the same time, zoning also recognizes the existence of ideal locations for nature appreciation and recreational opportunities; the Delphi Point Park Development Concept shown in figure 5.2 is based on the zones outlined in figure 5.1.
[Image: Bruce Peninsula National Park, Courtesy of Parks Canada]
Note: The Bruce Trail (either the existing or an optimal route) should be clearly identified on the map and will be managed in cooperation with the BTC.
Zoning will be achieved through the park and open space planning process. To establish zones, it is necessary to distinguish among different degrees of ecological sensitivity on the landscape. Developing the site description, completing the resource inventory and conducting the information analysis will guide the assignment of zones in the park or open space. Zoning recognizes that every park includes a particular combination of significant resources, features and potential or existing development.
[Image: Delphi Point Park Zone Map]
[Image: Delphi Point Park Concept Map]
[Image: Mount Nemo Conservation Area, Courtesy of Halton Conservation]
The Bruce Trail is the oldest and longest continuous footpath in Canada. It runs along the Niagara Escarpment, spanning more than 850 km of main trail and 250 km of side trails. The NEP recognizes the Bruce Trail as an essential component of the NEPOSS as the corridor provides continuous public access to the Escarpment and connects to the majority of the parks and open spaces. The long term goal is to secure a permanent corridor for the Bruce Trail along the Escarpment's entire length.
The Bruce Trail Conservancy is a charitable organization committed to establishing this conservation corridor in order to protect its natural ecosystems and to promote environmentally responsible public access to this World Biosphere Reserve.
Bruce Trail – A continuous footpath from Queenston to Tobermory on which users can experience on foot the scenic, natural, wooded, pastoral and culturally significant areas of the Niagara Escarpment. Bruce Trail Corridor – Property managed and/or acquired in whole or in part under Part 3 of the Niagara Escarpment Plan or by other means for the purpose of securing the Bruce Trail and facilitating the establishment of Overnight Rest Areas and Bruce Trail Access Points. Niagara Escarpment Plan (2005), Appendix 2
With consideration to section 3.1.3 of the NEP, the planning, design, development, maintenance and management of the Bruce Trail will be implemented in accordance with the provisions of the NEP and management agreements with partner agencies.
In accordance with section 3.1.6 (5) of the NEP, when the Bruce Trail Conservancy (BTC) has identified the existing and optimal route of the Bruce Trail, it must be identified in management plans. An agency, in collaboration with the BTC, will make final decisions with regard to the location of the trail, access points and overnight rest areas.
The Bruce Trail is permitted in most park classifications and zoning areas. However, the Bruce trail should be designed to avoid impact on natural heritage features and cultural heritage features of local, regional, and provincial significance.
The optimum route is defined as the most desirable route for the Bruce Trail. The optimum route follows the edge of the Niagara Escarpment but may also be placed inland from the Escarpment brow, or pass below the brow, as ecological or geological considerations dictate. Generally the optimum route of the Bruce Trail is not more than 100 m from the Escarpment brow, but that span may increase or decrease depending on ecological considerations, terrain, existing structures, etc.
According to NEP section 3.2 where the route of the Bruce Trail does not follow the optimum route or where the optimum route has become available because the opportunity for acquisition has occurred, the method of securing the Trail will be fee simple acquisition and lesser rights will be acquired where appropriate. Acquisition will occur on a willing seller/ buyer basis.
The optimum route of the Bruce Trail shall be determined by the Bruce Trail Conservancy and the Development Criteria in section 2.16 of the NEP. The process of final corridor selection and acquisition from willing sellers shall include consultations with partner agencies.
The policy objective of 2.16 of the NEP (2005) is to design and locate uses within the Bruce Trail corridor in an environmentally sound manner, direction includes:
[Image: Bruce Trail near Burlington, Courtesy of Bruce Trail Conservancy]
[Image: Map of the Bruce Trail, Courtesy of Bruce Trail Conservancy]
Overnight Rest Areas – property managed and/or acquired by the Bruce Trail Conservancy or through agreements with landowners or public agencies for the purpose of allowing small basic unserviced camping sites for Bruce Trail users. Niagara Escarpment Plan (2005), Appendix 2
Section 2.16 of the NEP provides the following direction on the development of overnight rest areas:
Bruce Trail Access Points – Property managed and/or acquired in whole or in part for the purpose of providing public access to the Bruce Trail (e.g. parking areas). Niagara Escarpment Plan (2005), Appendix 2
The development of Bruce Trail access points shall be subject to the General Provisions of section 2.16 of the NEP and the following:
Public consultation is an opportunity for agencies to involve the public and stakeholders in the management planning process of a park or open space. As the management plan is being developed, agencies should gather input from members of the public and stakeholder groups on the natural heritage features and cultural heritage features and issues of interest to them. Such input is an important part of planning during the research and analysis phase of the planning process, as well as during the decision-making phase.
Each public consultation process is unique and should be designed to meet the needs of the public and interested and affected parties. The type and frequency of public consultation depend on the planning context and complexity of issues concerning the site. While consultation may take different formats (e.g., opportunities to view planning documents online, open houses, workshops), it will provide open and transparent opportunities for input and for access to information, planning proposals and their impacts, and include the reasoning behind the decisions made.
For agencies, the main benefit of gathering public input and exploring different viewpoints is to help them make balanced planning decisions that support the sustainable long-term planning direction of the park or open space. Agencies can use public consultation as an opportunity to explain the planning process, confirm the natural heritage features and cultural heritage features, as well as existing pressures, and discuss proposed management direction. Consultation also provides an opportunity to hear the views, concerns and recommendations of the public and stakeholders. By communicating regularly, agencies can ensure that the public and stakeholders are aware of the planning process and their opportunities to provide comments. Consistent communication also builds strong relationships, which are critical for the implementation and long-term success of the management plan.
To understand community interests in the park or open space and build support for the planning process, public consultation at various stages in the planning process should involve all parties with an interest or concern in the park or open space. They may include:
Public involvement will depend largely on the size and complexity of the management plan but could range from providing advice and input (e.g., on existing or proposed recreational uses, park infrastructure, or park programs) to reviewing material such as the research and inventory results.
The planning team should determine the extent of public consultation needed on the basis of planning issues, the controversy surrounding proposed development options, and the interests of individuals and/or agencies involved in the park or open space. Once an agency has presented several development options at community workshops, a follow-up workshop should be scheduled to present the recommended/finalized option.
As the agency moves through each phase of the planning process, opportunities and issues may arise that will trigger public and stakeholder interests in the management planning process.
Whenever it occurs during the planning process, the public consultation process should be transparent, accessible, accountable and timely. Public consultation can take many different formats, and agencies should consider which format will best meet their needs and the needs and desires of the public and stakeholders. This could mean posting planning material on a website, placing advertisements in newspapers, or holding open houses or local meetings to discuss management plans and options. Table 6.1 describes suggested techniques for public consultation. Regardless of what techniques agencies use, open and clear communication is key to successful public consultation.
I: Informing IG: Information gathering EP: Engaging Participation CP: Creating Partnerships
*Adapted from the Ontario Parks draft Public and Stakeholder Involvement Guideline (2009)
**Discussion groups can come in many forms (e.g., workshops, charrettes, working groups), but their outcomes are generally the same; common understanding. When people are brought together to discuss challenges, input, thoughts and opinions can be discussed and examined by the group; efficiently and effectively resolving concerns.
In addition to developing a common understanding, the advantage to using discussion groups is that they can develop a higher level of expertise in planning and the planning project. Discussion groups are better able to focus on the landscape level perspectives affecting a park or open space rather than individual positions and can act as ambassadors to the groups they are associated with. Group members also become advocates as they are invested in the project compared to others who may learn of the project for the first time on the website or at a public meeting.
Those administering the group could also choose to seek the advice of existing committees such as Stewardship Councils, Local Citizens Committees or Regional Advisory Committees.
A brief summary of the public consultation should be included in the management plan and should note the following:
It is important to focus on the significant concerns, what people had to say about them and how the management plan addresses those concerns.
Monitoring and evaluating the success of management plan allow agencies to ensure that its goals and objectives and its commitments to resource management actions are being reached.
Monitoring activities are important for:
The legal obligations of a park or open space (e.g., obligations relating to species at risk) and the protection of its natural heritage features and cultural heritage features should be the primary focus of monitoring efforts. Monitoring can also help the agency learn from experience and adapt existing strategies, thereby improving its ability to manage protected areas successfully. This is called adaptive management.
Determining how the success of the management plan will be evaluated needs to be considered during the process of developing the management plan. After setting planning goals, it is important that agencies consider what information will be required to determine whether the plan is successful in meeting those goals. For example, to be able to demonstrate a positive change in the status of a natural heritage feature or cultural heritage feature over time in a manner that can be repeated in the future requires that data on the current state of the feature be gathered before the management plan is implemented.
The consequence of not planning for monitoring projects before a plan is implemented is that managers struggle to find performance measures that are supported by reliable data and evidence to inform future planning and protection efforts.
Monitoring answers the question "Did we do what we said we would do?" Essentially, monitoring is an audit of performance and could be applied to all actions and policies associated with the management direction. The audit assesses whether implementation has been successful or whether a new direction and actions need to be taken.
[Image: Craigleith Provincial Park, Courtesy of Ontario Parks]
Monitoring can also answer the question "Were our actions effective?" Through monitoring, managers are able to learn, share information about successes or failures and adapt as necessary and as resources are available. This assessment is an essential component of an adaptive management approach.
The following should also be reviewed and updated periodically:
To set their monitoring priorities, agencies need to consider the various pressures and their impacts (including management decisions and associated actions) on the park or open space as a whole and on the condition of specific features.
Monitoring provides a means to track changes in the condition of site features over time and can serve as an early warning of undesirable changes in the condition of a feature.
Monitoring answers the question "What is the condition of the feature?" and further analysis through the monitoring process may identify existing and potential threats to the feature.
The management plan should describe monitoring needs to consider as capacity and resources allow. Table 7.1 shows the five general steps in setting priorities for monitoring the effectiveness of management direction.
[Image: Courtesy of Ontario Parks]
Taking into consideration all the information and opinions gathered throughout the planning process, management plans will set out the vision for the park or open space, and identify a desired end state and the steps required to achieve it.
The following list of topics that might be contained in a management plan is not definitive. Agencies may include all or some of the topics listed below or include additional topics:
[Image: Hockley Valley Provincial Nature Reserve, Courtesy of Ontario Parks]
When stakeholders, the public and agency advisors (the MNR and the NEC) have reviewed an agency's final draft management plan and outstanding issues have been resolved, the agency must then submit its management plan to the NEC for endorsement and to the MNR for approval.
The approval process is as follows:
Completed management plans are submitted to the NEC along with three approval statements signed by the person in the agency with authority for approving the management plan. Approval statements should be brief and contain the following elements:
An approval statement should appear in all approved management plans for public lands in the NEPOSS.
Appendix C contains an approval statement template.
If Ontario Parks has approved management plans or management statements for an Ontario provincial park and they conform to the NEP, they qualify as management plans under the NEP. After the NEC and MNR review, the MNR will issue a letter stating that the management plan or management statement conforms to the NEP. The NEC and the MNR, Natural Heritage and Land Use Planning Section, must review Ontario Parks management plan amendments that propose changes to or expansion of existing uses. Sections 3.1.4 and 3.1.6 of the NEP are to be followed when preparing or revising a management plan.
Parks that are managed by Parks Canada and the St. Lawrence Seaway Authority are not subject to provincial legislation. Those agencies are partners in the NEPOSS and have indicated that their park planning, management and development will conform to the greatest degree possible with the general intent and purpose of the NEP and the NEPOSS guidelines. Parks Canada and the St. Lawrence Seaway Authority will provide the MNR and the NEC with copies of all draft and preliminary park management plans for review and comment, as well as copies of the approved management plans.
[Image: Ball's Falls Centre for Conservation, Courtesy of Stephen Dominick and Niagara Peninsula Conservation Authority]
It is recommended that agencies incorporate in their management plan an approach for overseeing its implementation. The zone policies and map(s) that agencies have created during the planning process will be useful tools to help develop the longer term direction for implementing land use planning and resource management activities.
One approach that has proven to be successful is for a management planning team to meet quarterly or biannually to oversee the delivery of the operational work plan.
Planning teams, in their meetings, could consider the following implementation components:
Approaches may vary, but clearly articulated accountability for the implementation of the management plan, within the plan itself, is critical to achieving the vision for the park or open space.
After the management plan has been approved, agencies should communicate that the plan is complete and readily available to the public and stakeholders (e.g., post the document on the agency website, issue a press release). The agency should look for opportunities to inform partners and the public about the importance of the approved management direction, how to interpret it and its implementation strategy.
In order for management plans to be implemented, agencies may wish to create and use annual operational work plans. At a minimum, these work plans should establish implementation priorities for the year, and define roles and outline responsibilities for each action, as well as timelines for completion and the budget.
Ecosystems are complex and dynamic, so predicting how they will respond to management actions and human use is difficult. Despite these uncertainties, however, management decisions (to either take action or not) must be implemented. Adaptive management allows managers to proceed responsibly in the face of such uncertainty. Adaptive management can be visualized as a five-step cycle including design, implementation, monitoring, evaluation and adjustment.
Whether a project is simple and straightforward or very complex (e.g., ecosystem management), the need for adaptive management approaches based on effective monitoring and evaluation should be considered when evidence suggests that not everything is going according to plan. Agencies may wish to work with ecologists and other specialists to design adaptive management approaches, when needed, in the more complex cases.
[Image: Courtesy of City of Hamilton]
Some level of development may have been proposed in the approved management plan. To ensure conformity with the NEP when moving forward with the development of a project, the development requirements as outlined in the NEPDA and NEP must be followed.
Development includes a change in the use of any land, building, or structure. Niagara Escarpment Planning and Development Act (1973)
Agencies considering a proposed development should first contact the NEC to determine whether a development permit for it is required.
The NEC may, at its discretion, streamline or eliminate the development permit process if the agency's approved management plan contains a detailed development strategy or concept plan for the proposed development.
Note: If an NEC development permit is required, it must be obtained before any other approvals.
In circumstances where municipalities and ministries that have properties within the NEPOSS do not require an NEC development permit, it is recommended that development plans be forwarded to the NEC for review and assessment of compliance before their implementation.
If a development permit is required, agencies will follow the process laid out by the NEPDA. The NEC has the delegated authority to make decisions on development permits and will ensure that the provincial interest in the NEP and the NEPOSS is protected.
Note: Proposed development in an approved management plan does not automatically mean that a development permit will be issued. Each proposed development will be assessed individually to determine whether it is consistent with the NEP, the NEPOSS and the management plan.
The proposed demolition of a structure or partial structure or landscape alteration in the NEPOSS may require a development permit from the NEC.
Where land is acquired to add to an existing park or open space, it is considered public land in the NEPOSS and is subject to the policies of the NEP. Agencies should provide to the NEC and the MNR a map illustrating the revised park boundaries so that the NEP maps remain current and accurate.
The removal of lands from the NEPOSS does not require an NEP amendment except under limited circumstances (see section 3.4 of the NEP). Agencies seeking to remove lands from the NEPOSS should contact the NEC and the MNR as a first step.
Management direction and site-specific policies are typically prepared for a 20-year period. The agency should monitor the implementation of management direction continually, with reviews at 10-year intervals, in an effort to keep the plan current and relevant. Requests for a plan review or specific changes may also arise from the public or stakeholders at any time throughout the term of the management plan.
Amendments or changes may be necessary during the term of the management plan when unforeseen circumstances arise or new information becomes available. The management plan approval and amendment processes apply to such changes.
Amendments are proposed changes to the management plan and its policies. Proposed changes may have a significant effect on the environment of the park or open space, and on adjacent landowners or users, or may result in a significant public reaction on a local, regional or provincial scale.
The following are examples of circumstances that might require an amendment:
*Note: If a permitted activity is causing harm to humans or having a significant impact on the environment, the agency may take immediate action to prohibit the permitted activity and will then notify the MNR, the NEC and any affected parties.
[Image: Glen Haffey Conservation Area, Courtesy of Toronto Region Conservation Authority]
The amendment approach will vary depending on the types of changes being proposed. Changes that are generally in keeping with the spirit and intent of the existing management plan usually only involve notifying the NEC and the MNR (a formal planning process or management plan amendment is not needed). Major changes to a park or open space will require a formal planning process and an amendment to the management plan.
Agencies should notify the MNR and the NEC of the proposed amendment. Specific planning and public consultation requirements will depend on the nature and scope of the amendment being considered.
If a proposed amendment affects only a portion of the park or only a segment of park users, consultation about the amendment to the plan may be scoped to include only the affected stakeholders (e.g., owners of adjacent lands, park or natural space volunteers, trail users, local municipalities). Public notice is recommended.
Proposals for amendments should be evaluated by the MNR and NEC to determine the following:
At a minimum, notification of an approved amendment should be sent, by mail or email, to all parties on the mandatory contact list and placed on the agency website.
Approved amendments should be added to the agency's information repository and inserted or attached to printed copies of the original management plan. As well, they should be inserted into the electronic master version of the management plan and placed on the agency website.
An administrative amendment could be a clarification, addition, deletion or other change to an approved management direction. Such an amendment is considered a minimal or modest change to an existing management direction and may fall into one or more of the following categories:
Formal documentation is not required when processing administrative amendments.
The agency may defer administrative amendments until future amendments or revisions of management direction are undertaken.
Administrative amendments do not require public and stakeholder involvement or notification. It may be prudent, however, for agency staff to advise potentially interested parties, by appropriate means, when contemplating administrative amendments.
Administrative amendments will also be inserted into the electronic master version of the management direction and placed on the agency website.
[Image: Fathom Five National Marine Park, Courtesy of Parks Canada]
If the agency does not have an approved management plan for the park or open space, any proposed change in the use of the park and open space must take into account the following:
[Image: Nottawasaga Bluffs Conservation Area, Courtesy of Nottawasaga Valley Conservation Authority]
As required, the MNR may revise the manual from time to time. A revision or modernization will be based on the best information available at the time. The MNR may append minor and major revisions as an addendum to this manual. Alternatively, the MNR may incorporate revisions directly into the text. The MNR, Natural Heritage, Lands and Protected Spaces Branch, will maintain a master copy of the manual, as well as a consolidated version on the MNR and NEPOSS Council websites. Agencies will be able to download addendums to the manual.
Nottawasaga Bluffs Conservation Area, Courtesy of Nottawasaga Valley Conservation Authority A number of supplementary tools and guidelines to the manual may be developed to modernize or recommend efficiencies in parks and open space planning. The MNR will manage these materials independently of the manual, and they may be changed, created or deleted at the MNR's discretion, with agency involvement.
Thanks go to the NEC and its staff and to members of the NEPOSS Council for their help in developing this manual.
1.1 Project Charter Content
2.1 Rationale for Planning 2.2 Purpose Statement
6.1 Ministry Programs
8.1 Consultation 8.2 Timelines
This guide, which supplements the Niagara Escarpment Parks and Open Space System Planning Manual (2011), will assist agencies in scoping a management plan and is flexible enough to be adjusted to local situations.
The general steps in preparing a management plan are outlined here. The guide is not a template for management plan authors to simply fill in the blanks. Instead, it outlines the components that may be incorporated into a project charter. Authors may work on the components in any order.
The project charter should include the name of the park or open space, its NEPOSS classification and a brief description of the distinct features of the park or open space. The project charter should link practical actions to clear, site-specific objectives, which will enable achievement of the vision. A full-page map should be included to identify the location and boundaries of the park or open space to which the project charter relates.
[Image: Limehouse Conservation Area, Courtesy of Credit Valley Conservation Authority]
This section provides guidance on the rationale for initiating management direction and the purpose for the park or open space.
Some of the reasons for initiating management planning may be:
Formulating a purpose statement early in the process sets the context for planning. Such a statement defines the most important values in the park or open space, thereby helping to focus analysis and decision making on recreational activities and pressures that may negatively affect the park or open space.
Describing how the park or open space is representative of the Niagara Escarpment's natural regions, its provincially significant natural or cultural heritage values, including its contributions to ecological integrity and the opportunities it presents for sustainable recreation will provide the context for planning. Other directions, such as the area-specific land use intent described in land use planning documents or determined through a land use planning process, will also help frame the purpose statement.
In establishing the purpose statement, the agency may wish to consider the following:
Purpose statements may vary in length. Some are brief, perhaps only one or two sentences, others may run to many paragraphs and several pages. An effective purpose statement can be a powerful tool for generating increased interest in the park or open space and encouraging increased involvement and support from influential parties such as the community, elected members, visitors, and grant-giving bodies.
[Image: Borer's Falls Conservation Area, Courtesy of Hamilton Conservation Authority]
This section of the project charter should describe the planning area that the park or open space cover. Although the planning process should address internal and adjacent uses that have an influence within the park or open space, the management direction documents will relate only to the park or open space. The management plan should also describe the influence that activities within the park or open space would have on adjacent land uses. A map clearly showing the location and boundaries of the park or open space must also be produced. It may be appropriate to consider adjustments to park or open space boundaries during planning.
The project charter should clearly provide the rationale for grouping parks or open spaces in one planning project. Considerations may include:
Circumstances where grouping may not be appropriate are:
The project charter should include a listing of the parks or open spaces covered by the management plan, their classification if applicable, size(s) in hectares, and a detailed map of the planning area. If applicable, a brief rationale for grouping of parks or open spaces for planning purposes should also be included.
Each project charter will address what the planning team has identified as being in scope. Key topics for a planning exercise may include values, pressures and risks, priorities for management response, actions to be taken, monitoring and evaluation. These topics would be guided by a vision and objectives that will be developed during the planning exercise. Other topics to be addressed could come from the planning process and pre-consultation with individuals and stakeholders.
The following topics may be included in the project charter:
The planning team will identify topics for review and assessment and keep a record of them for future monitoring and evaluation.
[Image: Lion's Head Provincial Nature Reserve, Courtesy of Ontario Parks]
A planning team should be identified for all planning projects. For large, complex projects, the team may consist of several people; one or two staff may be enough for less complicated planning exercises. The team will determine priorities for preparing a management plan.
For each management plan, particular areas of expertise may be required of planning team members, including expertise in the following:
The expertise of specialists in information management, GIS analysis, species at risk, cultural heritage or other fields may be beneficial to the planning team. Depending on the nature and complexity of the plan, it may be appropriate for some of these specialists to serve as plan advisors. The team may also include members of or seek advice from partner organizations that share a concern for protected areas, such as the Nature Conservancy of Canada and local agencies (e.g., conservation authority, field naturalists, municipality, Parks Canada).
The project charter should identify planning team members along with their responsibilities. Advisors to the planning team should also be listed.
[Image: Cootes Paradise, Courtesy Royal Botanical Gardens]
The location of the planning area may be adjacent to private sector, government or agency projects. These projects, whether pre-existing or in the planning stages, could have a profound impact on the park or open space. The planning process should survey all such projects and in some way address whether and how their impact on the park or open space will be addressed. The project charter should list the adjacent projects and identify ways of involving their proponents in the planning process, such as the following:
Many Ministry of Natural Resources (MNR) program areas have an interest in the planning process or its outcomes to support their individual mandates. It is important to document these programs to ensure they have an opportunity to engage in the project. Documentation may include:
The project charter should list external projects and internal programs that could impact on the protected area and strategies to have consideration for their impacts.
The planning process may specifically address other legislated requirements where there are opportunities for coordination of processes (e.g., permits/approvals by approval agencies e.g. provincial and municipal governments, conservation authorities, and the NEC). Proponents should attempt to take advantage of these other processes and develop efficiencies with the relevant agencies.
The stages of executing an effective management plan should be systematic and follow a logical order. The information in the management plan should identify and describe the current situation, expectations, a way of achieving the desired future situation, and methods of measuring progress.
The following are stages in the planning process:
It is important to identify all stages for the management plan and plan along with a timeline for each stage. Also provide public consultation initiatives that will be carried out as part of this project.
The project charter should identify the type and timing of public consultations or communications that will take place throughout the planning process. The planning team should communicate that this is an opportunity for interested parties and organizations to voice their comments and recommendations and contribute to the management plan. Individuals or organizations with a vested interest in the park or open space should be identified and their interests described.
The project charter should indicate when major project plan activities will start and finish. In general, timelines for the preparation of management direction could be significantly shorter for Nature Reserve management plans with limited infrastructure than for more complex management plans with multiple issues.
Timelines provided need to be only estimates. Circumstances may lengthen or shorten. estimated timelines, which should not include the time required for the final approval process.
The planning team should identify the human, administrative, logistical and financial resources needed to carry out the proposed project. This component is intended to provide operational direction and is only for the agency's use.
5.1 Regional Context 5.2 Natural Heritage Features 5.3 Cultural Heritage Features 5.3.1 Historical and Archaeological Values 5.3.2 Aboriginal Site Values 5.4 Recreational Uses 5.5 Visitor Support Infrastructure 5.6 Social and Economic Benefits 5.6.1 Direct Use Benefits 5.6.2 Community Benefits 5.6.3 Scientific and Educational Benefits 5.7 Planning Considerations 5.8 Existing Park and Open Space Policy 5.8.1 Past Management Direction Documents
Table 1: Natural Heritage Feature Description and Management Considerations Table 2: Cultural Heritage Feature Definitions and Management Considerations Table 3: Examples of Recreational Values Table 4: Examples of Planning Considerations
[Image: Courtesy of Niagara Parks Commission]
The background information document provides agencies with guidance in gathering, interpreting, presenting and archiving resource information that is relevant to management planning for parks or open spaces. The background information provides the basis for the analysis of natural heritage features, cultural heritage features and pressures, which informs the setting of site-specific objectives, zoning and management actions later in the planning process. It is also useful in defining baseline conditions against which agencies can evaluate the effectiveness of management actions.
The key steps at this stage of the planning process are as follows:
Each of the planning steps leading to the production of the background information document has specific information requirements, which are discussed in the following sections.
This step begins with the collection and organization of the best available information. This is the foundation for a meaningful and accessible planning process.
Depending on the park or open space, this step may include collecting information about natural heritage features, cultural heritage features, recreational uses and visitor support infrastructure, social and economic benefits, research activities, public input and other relevant information.
The background information provides the basis for identifying and assessing features and constraints, which ultimately inform the setting of site-specific objectives, zoning and management actions later in the planning process. Background information is also useful in defining baseline conditions against which agencies can evaluate the effectiveness of management actions and make adaptations as required.
To accurately assess the features of a park or open space, planning teams need to explore a variety of information sources, including existing background information, reports and maps.
The documentation standards discussed in this appendix should be viewed as a suggested minimum; the degree to which these standards can be met will be influenced by (a) the availability of information and (b) the complexity of the site and any proposed development.
Having identified and documented the parks and open space features, it is important for the planning team to determine what factors are at play that may have an impact on the protected area. This may include existing uses or impacts (including long-term impacts) and those that have a high likelihood of occurrence (e.g., invasive species, urban development, road building, etc.).
A broad geographic perspective is important given that ecosystem functions often operate at a landscape scale that may be larger than the park or open space. In this respect, adjacent features and activities may need to be considered. It should be recognized that there may also be pressures related to other types of features and/or the use of other values (e.g., cultural heritage features, recreational and land use activities and associated values).
Throughout the process of gathering and interpreting information, planning teams need to focus on three questions:
In some cases, the answer to each question will be clear from the outset, but as the complexity of the management plan increases, a variety of other factors may complicate the analysis. There is a variety of provincial information sources (e.g., Natural Resource Values Information System (NRVIS) of the Ontario Ministry of Natural Resources (MNR) and the Natural Heritage Information Centre (NHIC). The NRVIS database describes values (e.g., coldwater fishery, pictograph assemblage) and infrastructure features (e.g., roads, access points). Local sources may include earth and life science inventories, ecological and recreational mapping from MNR district offices and conservation authorities.
The NHIC compiles, maintains and distributes information on species, plant communities and spaces of conservation concern in Ontario. This information is stored in a spatial database used for tracking this information. The NHIC also has a library containing conservation-related literature, reports, books and maps, which are accessible for use in conservation, land use planning and natural resource management. The NHIC website (http://nhic.mnr.gov.on.ca) provides much of this information.
Analysis of the features and pressures allows the planning team to advance beyond a simple cataloguing in order to identify potential management issues.
Risk analysis leads to the identification of one or more potential management responses. In general, the values associated with the purpose of the park or open space (i.e., its role in the NEPOSS) and legislative mandates (e.g., species at risk, sustainable recreation) must be a first consideration.
In the background information stage, the initial focus of risk analysis is documenting the existing features and pressures.
The most significant features within a park or open space may not necessarily be those at greatest risk. The level of risk may be affected by other factors, such as:
For example, an enduring geological feature that is not well known or that cannot be easily accessed may be at low risk of impact and therefore have a lower priority for active management and monitoring. A fossil bed or species-at-risk habitat near a road or trail may be under greater threat and require a specific management response (e.g., rerouting of trails, special protective devices) and may also require more frequent and elaborate monitoring.
Planning teams are encouraged to ask probing questions, such as those below, about components that my influence or impact features:
It is critical that the results of the assessment of risk to the features are accurately captured and reflected in subsequent planning stages, and that the rationale for subsequent policy recommendations is clearly documented. Refer to Box 1 containing example objectives and actions.
2 Ministry of Natural Resources Determining Planning and Management Priorities in the Context of Ecological Integrity: A Practical Approach for Planning Teams (Ontario Parks: 2010)
The background information document should address all important values and benefits of the park or open space and the pressures that affect it, as well as relevant policy and past management direction.
To provide regional context, planning teams should provide regional and local maps of the NEPOSS area. The regional context section should also describe the surrounding population centres, access and transportation routes and surrounding land use. This section should also describe the history of planning for the area.
[Image: Climbing Lion's Head, Courtesy Ontario Access Coalition]
The background information document should identify and describe the natural heritage features present and proximate to the area.
A structured and objective approach to the assessment of natural heritage features, supported by comprehensive background information and inventory work allows the planning team to gauge the significance of the park or open space on local, regional and provincial levels. Once natural heritage features have been identified and verified, they need to be fully documented. Documentation should be completed for all significant features, regardless of the complexity of the plan.
Table 1 describes seven natural heritage features and provides examples of documentation and management considerations. Collecting information to be included in a background information document primarily consists of (a) identifying and defining the features, (b) assessing the benefits (quantitative and/or qualitative) that may be derived from those features and (c) assessing the potential for those features to be compromised in some manner. Table 1 is not an exhaustive listing, other information may be collected.
Many cultural heritage features and properties are icons in the Escarpment landscape. They are important to the social, economic and cultural well-being of Ontario communities.
In Ontario, the task of conserving and protecting our inheritance of historically and architecturally significant features and properties is mandatory for ministries and public bodies under the Ontario Heritage Act. The Ontario Heritage Act provides the framework for provincial and municipal responsibilities and powers in the conservation of cultural heritage resources.
The Ministry of Tourism, Culture and Sport have developed the Standards and Guidelines for Conservation of Provincial Heritage Properties (2010). The purpose of these standards and guidelines is the appropriate conservation and management of provincial heritage properties.
The Ontario Heritage Tool Kit is a series of written guides developed by the Ministry of Tourism, Culture, and Sport to help land use planners understand the heritage conservation process in Ontario and to explain the Ontario Heritage Act, the Planning Act, and related programs.
The Ontario Heritage Tool Kit includes:
The NEP (2005), Section 2.12, provides direction to inventory, interpret, evaluate, maintain and conserve cultural heritage features of the NEP area. Table 2 defines six NEP cultural heritage features and provides direction on how the feature information might be presented in the background information document.
Aboriginal site values are generally acquired from individuals or groups within First Nation or Métis communities who are affected by a planning project. It is important to note that when information about Aboriginal site values is acquired, the community that provided it maintains ownership of it, and it is to be used only for express purposes with the community's explicit consent.
Some examples of Aboriginal site values are as follows:
Site values are often unique to an individual community, and it is important to ask its members what they consider to be significant. In many cases, information on Aboriginal site values has not been previously documented, but rather has been passed along verbally. As such, it is important to fully document information received and to handle it with sensitivity.
Recreational uses are influenced by a variety of provincial policy direction for protected areas (e.g., Niagara Escarpment Plan, Ontario Provincial Parks planning and management policies, Conservation Reserves policy) and adjacent lands (e.g., Crown Land Use Policy). All parks fall into one of six classifications, each with associated policies that may influence various uses and activities.
Parks and open spaces may have recreational values that are governed by legislation and policy. These values can be physical features such as trails, boardwalks and lakes or attributes such as a scenic view or a sport fishery, see Table 3 for examples of recreational values.
In addition, the background information document may elaborate on the qualitative and quantitative extent of use of a particular recreational value e.g. the frequency or popularity of use of a particular trail. This may provide information essential to future management direction.
Support infrastructure may include development necessary to support park operations and activities such as visitor centers, specialized recreational facilities, administrative and maintenance facilities, roads, trailheads and parking areas, utilities, etc.
Nature Reserve parks and Natural Environment parks may includes facilities, limited in scope and impact, but critical to support park operations and activities. Where feasible, the agency shall utilize design and development techniques that avoid or minimize negative impacts to features. Limited support infrastructure may include the following:
Special care should be taken during the planning, design and development of support infrastructure in these parks and the Nature Reserve Zone and the Natural Zone in order to protect natural heritage features and cultural heritage features.
The assessment of the social and economic benefits that a park or open space generates may be influenced by when the assessment takes place. At the background information stage, the focus may be on documenting the current situation or trends of use. Later in the planning process, the focus may be on quantifying the potential benefits of different management proposals, relative to current or baseline conditions. Social and economic benefits information in the background information document may include a quantitative and qualitative assessment of past, current and potential benefits. This may include a monetary assessment of benefits (e.g. from user fees or money generated from sustainable resource management) and an assessment of social benefits which may be more qualitative (e.g. recreational opportunities).
Direct use benefits are acquired through some form of direct physical contact with a park or open space. Examples include the benefits to visitors from on-site recreation, natural or cultural heritage appreciation or fishing.
All of the direct uses (permitted, potential, nonconforming, etc.) currently occurring in the park or open space should be documented, as well as information about who the users are, the extent of use, alternative sites for the use, environmental costs of the use and what value users place on the use.
Community benefits are the benefits that local and regional communities acquire as a result of establishing the park or open space. This benefit category includes items such as tourism and related job creation, enhanced quality of life, and increased economic diversity and sustainability. Descriptions of the local communities (including demographic and industry profiles) should be included in this section.
Additionally, if data is available, the economic impact of government and visitor spending should be assessed.
Scientific and educational benefits are those benefits received through an increase in personal appreciation, knowledge and scientific discovery. Research activities that have occurred in the park or open space should be documented, and the educational opportunities that the park or open space provides should be described.
After identifying the features of the park or open space, the planning team must then consider negative or positive impacts on values or ecosystem functions. In some cases, activities on adjacent lands or waters can have impacts on the park or open space as great as those resulting from activities within it.
A planning consideration may be a value or pressure, or potentially both. Differentiating between a value and a pressure may be difficult. For instance, a viewing platform at a scenic vista may be categorized as a structural value that yields a direct benefit (nature appreciation) to its users. At low to moderate use levels, the platform would probably continue to be characterized as a "value." If the use of the platform increases to the point that it results in environmental degradation to the surrounding ecosystem, however, the value may become a pressure. Table 4, while not intended to be exhaustive, identifies a number of planning considerations that can occur within a park or open space that may need to be identified during planning:
The majority of parks and open spaces have some form of management direction. For parks or open spaces for which approved management direction documents have not been prepared, general management direction must be drawn from higher level policies.
If the park or open space already has some form of management direction, the initial focus of the background information stage will be on assessing the quality of existing resource information, confirming its accuracy and continuing relevance, and identifying any significant gaps.
Past management direction documents will help the planning team:
When past management direction documents exist (e.g., terms of reference, background information, management proposals, approved management direction, implementation plans), they may be revised as appropriate.
Recommended maps that should be presented for public review include an overview map of the park or open space, and maps showing particular aspects of it, such as natural heritage features and cultural heritage features, recreational values, zones, ecological function, and so on. A complex planning project may warrant including these and other types of customized maps.
The aboriginal values map is intended to highlight significant aboriginal sites within and adjacent to a suite of parks or open spaces. Aboriginal values can include community meeting areas, spiritual sites, places of worship, cemeteries and burial sites, etc. The information portrayed on the aboriginal values map is highly sensitive in nature, it is critical that this information is not disseminated to inappropriate audiences.
Condition mapping is designed to display the state of the protected area. Condition highlights areas that are free from human-related pressures and are presumably in better condition than areas impacted by human pressure.
Cultural heritage mapping is designed to portray information related to cultural heritage in Ontario, such information as archaeological sites defining past cultural activities within a protected area. Information indicated on a cultural heritage map may include locations of homesteads, village communities, logging chutes, cemeteries, depot farms, logging camps, etc.
The landscape diversity map portrays the landform variations within a protected area. This map highlights both forest-vegetative communities and localized geological representation.
The map of special natural heritage features highlights populations of species and vegetation communities known to be rare in Ontario, and may include localized habitat features that are critical to their persistence. Other features that may be mapped include distinct locations for bird migration, such as Important Bird Areas. In the context of earth science, special features may include bedrock type sections, fossil localities and distinct landforms.
The overview map of the park or open space provides a regional perspective for the park or natural space in the context of its surroundings.
The map of permanent ecological functions highlights those of significant importance on the landscape, such as hydrological functions. This map may include water bodies, drainage, wetlands, groundwater recharge and discharge areas, and headwater and catchment areas.
Transient (short-term) ecological function mapping highlights ecological functions such as fire disturbances that are more dynamic in nature. Other transient functions may include wind-throw, naturally flooded areas, native insect damage, ice storm damage, etc. Transient earth science processes are also highlighted on this map, some examples include landslides talus (mass wasting) forming processes, frost heaving and riverbank erosion.
The map of recreational values and facilities shows, for example, where trails, buildings, comfort stations, educational centres, access points and roads are on the landscape
The map of the social and economic context highlights the demographic attributes of the region in which the park or open space is situated. Such attributes include, but are not limited to, population size, density and distribution; ethnicity; household income; age; user origin; and postal codes. This map is intended to increase awareness about the region and the visitors who are, or could be, using the site.
The zoning map is designed to provide a clear depiction of the NEPOSS zones relative to the park or open space. This map is based on the completed resource inventory and information analysis which guided the assignment of zones in the park or open space.
The agency must submit the management plan and approval statement to the Niagara Escarpment Commission (NEC) and the Ministry of Natural Resources (MNR) for formal approval. The final draft of the management plan must conform to the Niagara Escarpment Plan (NEP), in accordance with the Niagara Escarpment Planning and Development Act (NEPDA). An approved management plan may facilitate the process for subsequent development permits.
Completed management plans are submitted to the NEC along with three (3) signed approval statements. An approval statement should appear in all approved management plans for public lands in the NEPOSS.
[Image: Mountainview Conservation Area, Courtesy of Niagara Peninsula Conservation Authority]
Approval statements should be brief and contain the following elements:
Paragraph 1 – The first paragraph should contain a brief description of the park or open space.
Paragraph 2 – The second and third paragraphs should illustrate that the individual with signing authority commits to the management plan, as shown in the following example:
I am pleased to approve the [name of park or open space area] Management Plan as the policy for the management and development of this park. The plan reflects the [managing agency's] intent to protect the natural environment of the Niagara Escarpment and the natural [and cultural, if applicable] features of the [park name] and to [maintain and/ or develop] high-quality opportunities for natural [and cultural, if applicable] interpretation, recreation and enjoyment of the Niagara Escarpment by Ontario residents and visitors.
Note: For provincial parks, the approval statement appearing in the Protected Areas Planning Manual will be substituted for the above.
Paragraph 3 – This paragraph states that the management plan conforms to the NEP and other relevant legislative requirements.
[Image: Hilton Falls Conservation Area, Courtesy of Halton Conservation]
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62782 (2012/03) © Queen’s Printer for Ontario, 2012