York Factory National Historic Site of Canada Management Plan, 2007

Table of Contents

1. Foreword
2. Recommendation statement
3. Summary
4. 1.0 Introduction
5. 2.0 Planning context: York Factory at the turn of the 21st century
6. 3.0 Vision for York Factory NHSC
7. 4.0 Management plan implementation and evaluation
8. 5.0 Management plan implementation and evaluation

Appendices

• A. Summary of the planning and consultation process

© Her Majesty the Queen in Right of Canada, represented by the Chief Executive Officer of Parks Canada, 2007.

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Foreword

Canada’s national historic sites, national parks and national marine conservation areas offer Canadians from coast-to-coast-to-coast unique opportunities to experience and understand our wonderful country. They are places of learning, recreation and fun where Canadians can connect with our past and appreciate the natural, cultural and social forces that shaped Canada.

From our smallest national park to our most visited national historic site to our largest national marine conservation area, each of these places offers Canadians and visitors unique opportunities to experience Canada. These places of beauty, wonder and learning are valued by Canadians – they are part of our past, our present and our future.

Our Government’s goal is to ensure that each of these special places is conserved.

We see a future in which these special places will further Canadians’ appreciation, understanding and enjoyment of Canada, the economic well-being of communities, and the vitality of our society.

Our Government’s vision is to build a culture of heritage conservation in Canada by offering Canadians exceptional opportunities to experience our natural and cultural heritage.

These values form the foundation of the new management plan for York Factory National Historic Site of Canada. I offer my appreciation to the many thoughtful Canadians who helped to develop this plan, particularly to our dedicated team from Parks Canada, and to all those local organizations and individuals who have demonstrated their good will, hard work, spirit of co-operation and extraordinary sense of stewardship.

In this same spirit of partnership and responsibility, I am pleased to approve the York Factory National Historic Site of Canada Management Plan.

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Recommendation statement

Approved by and original signed by

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Summary

This document presents the management plan for York Factory National Historic Site of Canada (NHSC). Its purpose is to provide a framework for management of this nationally significant heritage place, including measures to ensure its commemorative integrity and provide memorable and meaningful visitor experiences.

York Factory (1684 – 1957) was one of the oldest and most important fur trade establishments of the Hudson’s Bay Company and a large, vibrant community, known as Kihci-wâskâhikan in the Cree language. Today York Factory is a national historic site administered by Parks Canada. Situated on the Hayes River, a Canadian Heritage River, and near Hudson Bay, York Factory is an adventure travel destination for canoeists and fly-in visitors. It is a destination of another kind, a homeland to many First Nations people of western Hudson Bay.

The development of this management plan involved the exchange of information and ideas among Parks Canada staff from a number of research and management functions, First Nations communities associated with York Factory, tour operators and outfitters, professional engineers and scientists outside of Parks Canada, and interested public.

The management plan is founded on a site vision statement for York Factory NHSC. Objectives, directions and actions describe how the vision will be achieved. Heritage conservation in the face of considerable riverbank erosion, permafrost degradation and other environmental threats at the site is a central component of this management plan.

The vision sees York Factory NHSC promoted and managed as an adventure travel destination where people arrive knowing it is a place of national significance and leave with a lasting memory of their personal journey, the importance of York Factory, and support for its protection. The history of the fur trade industry and its impacts on the peoples and land will be told as it relates to York Factory. First Nations’ stories of York Factory will be an integral part of the site’s presentation. Because of its remoteness, few Canadians will have an opportunity to visit this place. Thus outreach will be a critical part of telling the story of York Factory. The Depot and other buildings and archaeological remains of York Factory, the cemetery, and the spirit of place will be protected for the long-term. Research, traditional knowledge and monitoring will be integral to the management of York Factory NHSC, improving our understanding of its history, its cultural resources and its environmental threats. Partnering and public involvement, particularly with the First Nations communities associated with York Factory, tour operators and outfitters, and related research interests, will be vital to ensuring commemorative integrity and creating meaningful visitor experiences.

The implementation of this management plan over the coming years will lead to the achievement of the site’s vision. It will be reviewed every five years, including public consultation, to assess its continued effectiveness and relevance in the management of York Factory NHSC.

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1.0 Introduction

Operated continuously between 1684 and 1957, York Factory was one of the oldest and most important fur trade establishments of the Hudson’s Bay Company (HBC) and a large, vibrant community, known as Kihci-wâskâhikan in the Cree language. Today, York Factory is a National Historic Site of Canada (NHSC), a heritage place managed by Parks Canada.

This management plan describes the long-term vision for the protection, presentation and appropriate use of this fascinating, but endangered historic place, and the objectives, strategies and key actions to achieving that vision. Thus, this plan serves to focus Parks Canada’s attention, decision-making, partnering, and financial and human resources on York Factory’s commemorative integrity and providing a quality visitor experience. This management plan replaces the York Factory NHSC management plan that dates to 1988.

Parks Canada’s many stakeholders and partners, including the Tr’ondëk Hwëch’in in whose traditional territory Klondike National Historic Sites is located, helped shape this plan, which sets clear, strategic direction for the management and operation of these sites by articulating a vision, key strategies and objectives. Parks Canada will report annually on progress toward achieving the plan objectives and will review the plan every ten years or sooner if required.

This plan is not an end in itself. Parks Canada will maintain an open dialogue on the implementation of this management plan to ensure that it remains relevant and meaningful. The plan will serve as the focus for ongoing engagement on the management of Klondike National Historic Sites in years to come.

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1.1 National historic sites of Canada

The nation-wide network of Parks Canada heritage places includes national parks, national marine conservation areas and some national historic sites.1 National parks and national marine conservation areas are established to represent clearly identified land and marine environments (refer to the Parks Canada National Parks System Plan and the National Marine Conservation Areas System Plan). National historic sites are designated to commemorate various facets of Canada’s history (refer to the Parks Canada National Historic Sites of Canada System Plan). The objectives of national historic sites are:

• to foster knowledge and appreciation of Canada’s past through a national program of historical commemoration;
• to ensure the commemorative integrity of national historic sites administered by Parks Canada by protecting and presenting them for the benefit, education, and enjoyment of this and future generations, in a manner that respects the significant and irreplaceable legacy represented by these places and their associated resources; and
• to encourage and support the protection and presentation by others of places of national historic significance that are not administered by Parks Canada (Parks Canada National Historic Sites Policy).

“Commemorative intent” is the specific reason a place is designated nationally significant. Commemorative intent comes from the recommendations of the Historic Sites and Monuments Board of Canada (HSMBC), which are approved by the Minister responsible for Parks Canada.

“Commemorative integrity” is a concept created by Parks Canada to manage, evaluate and report on national historic sites. It is used to report to Parliament and the Canadian public on their condition and caretaking. A national historic site has commemorative integrity when:

the resources directly related to the reasons for designation as a national historic site are not impaired or under threat;
• the reasons for designation as a national historic site are effectively communicated to the public; and
• the site’s heritage values are respected in all decisions and actions affecting the site.

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1.2 York Factory: A place of national historic significance

York Factory was designated a national historic site in 1936. According to the HSMBC recommendation at that time, York Factory is commemorated for its critical role in the French-English struggle on Hudson Bay for the control of the fur trade, as an important HBC trading post and entrepôt for more than two and a half centuries, and as the principal base for expansion of the fur trade into the interior of western Canada.

York Factory’s historical importance is summarized here. It is for the following reasons that York Factory is protected and presented for the benefit of this and future generations of Canadians.

The fur trade has a prominent place in Canada’s history and heritage. As one of the oldest, continuously operated HBC posts in North America, York Factory played a pivotal role in this history. It served variously as a trading post, a distribution centre to other trading posts in the western interior, and was the headquarters of the HBC’s vast Northern Department. The long history of the post included York Factory I (known as York Fort, 1684-1715), York Factory II (1715-1788) and York Factory III (1788-1957). York Factory I and II have been lost to riverbank erosion of the Hayes River. York Factory NHSC is the site of York Factory III.

York Factory was strategically located to secure access to, and thereby control trade in, a vast northern territory of North America that was rich in fur-bearing animals. Hudson Bay was the HBC’s transportation route for furs to, and trading goods from, Europe. From 1714 to the mid-18th century, YorFactory emerged as a leading centre of the fur trade for the western interior. The Hayes River, a Canadian Heritage River, provided access for First Nations from as far as the western prairies to trade at the “baysideAfter 1774, when the HBC begto build a network of trading posts in the interior, the Hayes connected these posts to York Factory, which served as their supply centre. Because of this strategic location, York Factory served as starting point for famous explorations by David Thompson, Peter Fidler and others.

York Factory was the repeated scene of armed conflict between England and France for colonial domination of North America in the late 17th and early 18th centuries. Between 1684 and 1713 control of York Factory changed between the English and French six times through a series of raids. One of the most stirring naval battles in Canadian history occurred only a few miles off the coast from York Factory. The terms of the Treaty of Utrecht returned York Factory, then Fort Bourbon under the French, back to the HBC.

For much of the 19th century York Factory was the political, economic and social hub of western Canadian fur trade society. From 1810 to 1873, York Factory was the administrative headquarters, transhipment centre, and supply source of provisions and trade goods for the HBC’s Northern Department. Letitia Hargrave, the wife of Chief Factor James Hargrave, proclaimed York Factory “The most respectable place in the territory”.2 The extensive archaeological resources (more than seventy buildings identified and a collection of more than 300,000 artifacts) provide important information about this, and earlier periods of York Factory’s history. Today, the three-storey Depot is a landmark on the flat Hudson Bay Lowlands. Its function as a warehouse, its design and construction, and sheer size symbolize the significance of York Factory.

Throughout its transformation from trading post to entrepôt, distribution centre to district headquarters, York Factory remained an important place in the lives of the Aboriginal peoples of northern Manitoba. A number of Cree from the York Factory region became known to the HBCas the “Home Guard”. The Home Guard traded regularly at the factory and provided the company with country provisions and furs. Later, the post itself became home to a community of Cree employees, traders and their families. The nearby remains of camps, cabins and the cemetery are reminders of the community that surrounded the post proper during the 19th and 20th centuries. It was the main community in the coastal area until 1957 when the post closed and the community was dispersed. Kihci-wâskâhikan, the Cree name for York Factory, means “the great house”. Many members of the York Factory First Nation, Shamattawa First Nation, Tataskwayak First Nation and Fox Lake Cree Nation consider York Factory a vital part of their history and a part of their traditional homeland.

Further information on the history of York Factory can be found in two books, The Most Respectable Place in the Territory, by Michael Payne, and Voices from Hudson Bay: Cree Stories from York Factory, edited and compiled by Flora Beardy and Robert Coutts.

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1.3 York Factory under threat

York Factory is in trouble. As people who have lived and worked there know, erosion along the north bank of the Hayes River has been happening for a long time. York Factories I and II were lost to riverbank erosion, probably as long ago as 1900. It is estimated that much of the archaeological remains of York Factory III, the cemetery and the Depot, will be lost within 100 to 150 years at the current rate of bank loss. The rate of erosion has been about three metres / five years as averaged over a one hundred year period. However, in any given year or location along the bank, erosion can be minimal to extreme, with large slump blocks being common.

Permafrost decay and poor drainage also threaten York Factory’s historical remains. York Factory is near the southern edge of permafrost in Canada. The site faces permafrost degradation from combined effects of climate warming, increased water drainage and the softening and sloughing of soils, which will also contribute to riverbank loss. Invasive willow growth impacts archaeological features and grave markers and fences, affects site drainage, and conceals the vast area once occupied by York Factory.

The Hayes River gave life to York Factory, helped shape its history, and will have a major impact on its future. Planning in the face of riverbank erosion and other environmental threats is essential to York Factory’s future and the focus of this management plan. When preparing this management plan, we knew very little about these threats, or the best available and affordable means to mitigate them.

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1.4 Management planning

A management plan, with provisions for commemorative integrity, resource protection and visitor use, must be tabled in Parliament for each and every national historic site administered by Parks Canada (from the Parks Canada Agency Act). This plan meets that requirement.

The heritage values, resources, and messages defining the commemorative integrity for York Factory NHSC are described in the York Factory National Historic Site Commemorative Integrity Statement (1988). This document serves as a reference point for management planning. As well as giving direction to maintain or improve a site’s commemorative integrity, the management plan must also give direction for enhancing meaningful visitor experiences, and promoting public awareness and understanding about York Factory and the Parks Canada mandate. The principles and practice of Parks Canada’s Cultural Resource Management Policy were applied in developing these directions and an environmental assessment of the plan was done as per The Cabinet Directive on the Environmental Assessment of Policy, Plan and Program Proposals, 2004.

The development of this plan involved the exchange of information and ideas among Parks Canada staff from a number of research and management functions, First Nations communities associated with York Factory, tour operators and outfitters, professional engineers and scientists outside of Parks Canada, and interested public. Parks Canada is committed to continuing consultation and dialogue with First Nations, stakeholders and interested public on York Factory NHSC for the life of the management plan, its implementation and review, and beyond. A summary of the planning and consultation process is in Appendix A. This plan will guide Parks Canada and its partners as we protect and present York Factory NHSC for the benefit of all Canadians. While the plan should be effective for fifteen years, Parks Canada will initiate a review at least every five years to assess its relevance and effectiveness for site management.

In the following chapters the current state of York Factory NHSC is reviewed (Chapter 2), the vision for York Factory’s future is described (Chapter 3), the objectives, strategies and actions to achieving the vision are given (Chapter 4), and a framework for implementing the plan is offered (Chapter 5).

 

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2.0 Planning context:
York Factory at the turn of the 21st century

This chapter describes York Factory NHSC when management planning began. It provides information to understand the conditions, issues and needs that have affected the direction taken in planning, and includes views about the site expressed by members of First Nations communities, stakeholders and the interested public.

Of particular importance to the planning of York Factory NHSC is the fact that its commemorative integrity is significantly impaired (refer to York Factory National Historic Site of Canada Commemorative Integrity Evaluation 2002/03). A number of threats, as already mentioned, are highly likely to have an effect on the site and could destroy valuable cultural resources.

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2.1 Cultural resource management

Cultural resource management involves generally accepted practices for protecting and presenting cultural resources found in national historic sites, national parks, and national marine conservation areas. A cultural resource is a human work or place that gives evidence of human activity, or a place that has spiritual or cultural meaning, and has been determined to have heritage value by way of a recognized designation, or by an associated community’s shared belief of what has important historical, cultural or spiritual meaning. Described in the Parks Canada Cultural Resource Management Policy, cultural resource management is practised by:

• inventorying resources on the property;
• evaluating which resources are cultural resources by identifying their heritage values;
• considering the heritage values in decisions and actions that may affect the protection and presentation of the individual cultural resources and the site as a whole; and
• monitoring cultural resources and our actions to ensure their conservation and protection.

Cultural resource management, from inventory to monitoring, has been and continues to be a major effort, as well as a challenge, at York Factory NHSC.

York Factory NHSC is 48 hectares (118 acres) in area. This is the property that the HBC transferred to the federal government in 1968, including some private holdings and the former Provincial Game Branch property that were later acquired by Parks Canada. Less than half the property, about a 250 metre wide strip by the Hayes River, bears most of the cultural resources. The land further back from the river is (and was) low, wet fen, not suited for habitation. Next to the river, there are the remains of the core of York Factory III, dating from 1788 to 1957, and the remains of a number of buildings, camps and the cemetery associated with the surrounding community.

More cabin remains and other features, including the Anglican Mission, are beyond the boundary of York Factory NHSC, but are not a part of this management plan.

 

The cultural resources of York Factory NHSC include:

• a few standing or partly standing structures, specifically the Depot, Library, Powder Magazine, and Ice House;
• archaeological and landscape features of more than 150 buildings, structures and other features (e.g., palisades, boardwalks and drains);
• the fences and markers of more than 160 graves in the cemetery; and
• more than 300,000 artifacts that have been collected from archaeological investigations or recovered eroding from the riverbank.

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2.1.1 Structures

By the mid-20th century all but a few of the buildings of York Factory were demolished because they were no longer needed, and their wood and hardware were salvaged and used elsewhere. Among the standing or partly standing buildings that remain today are the Depot, Library, Powder Magazine and Ice House.

The Depot building is the symbol of York Factory. Constructed between 1831 and 1838, it housed many of the warehouse and packing functions essential to York Factory’s role as the HBC transhipment and supply centre for the Northern Department.

Its function as a warehouse, its design and construction adapted to a harsh climate and the permafrost, and its sheer size and presence on the northern landscape, are characteristic of what makes York Factory significant. The Depot is a Classified Federal Heritage Building. It is in good condition and, for the foreseeable future, should require no more than ongoing monitoring and maintenance (e.g., painting, shingling) although this is a considerable investment given its size and remote location. Work was done on the foundation in the 1990s, including replacement of rotten sills and the original main floor, and insulating the ground to stabilize the permafrost.

The Library behind the Depot dates from 1918 and its value rests with it being the only other standing building left on site. It is not associated with York Factory’s period of importance in the fur trade. The Library is in poor condition. Its structural integrity is at risk because of ice heaving that is pushing and twisting the building off its foundation.

 

The semi-subterranean Ice House was used from 1839 to 1911. It has been partly excavated and recorded by archaeologists. It is under immediate threat of loss from riverbank erosion.

All the buildings have been recorded in some detail and are being monitored by various means for their condition and threats to them.

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2.1.2 Archaeological remains

York Factory NHSC is an archaeological site waiting to be discovered. The more than 150 buildings and other features at York Factory are known or expected to have below-ground archaeological remains because of the excellent preservation conditions of the site. Most of the buildings are known about because of extensive historical documentation (e.g., photographs, maps and written accounts), but few have been confirmed by archaeology.

From 1978 to 1982 archaeological inventory and salvage excavations were done along the riverbank to identify and document cultural resources threatened with loss from bank erosion. Of the eight buildings partially or fully investigated in this period, two (the 1842 Sawpit and a cribbed feature) are now lost to erosion and two (the East Fur Store and Inland Cargo House) are threatened. Since 1982 the riverbank has been monitored for the exposure of more cultural resources. Eleven major features, including the Church of St. John, are eroding out of the riverbank and require continued monitoring, recording and salvage. Further in from the riverbank, little archaeology has been done. Remains of the old Octagon were extensively recorded in the early 1990s during foundation work on the Depot. The Octagon was a star-shaped fort, built between 1788 and 1795, and is the oldest part of York Factory III.

Archaeology, whether monitoring, recording or salvaging of cultural resources, will continue to be needed at York Factory NHSC so long as they are threatened and being impacted. The need may be great. The challenge will be prioritizing what resources get attention and how much can be done (i.e., excavated and documented), given the large costs, limitations (e.g., crew accommodations) and impacts (e.g., digging in permafrost) of working at York Factory.

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2.1.3 Cemetery

The cemetery is located just north of Sloop Creek. The earliest known internment at the cemetery is 1790 and its use ceased in the 1950s with the abandonment of York Factory. The known area of the cemetery contains at least 160 graves identifiable by marker, fence or both. More unmarked graves are within and just beyond this area, including for example, graves exposed by the eroding bank of the Hayes River, which was noted by Isaac Cowie in 1867 and documented more recently.

A map and inventory of graves in the cemetery was done by Parks Canada in 1982. The inventory mapped all observable graves and described the grave markers and fences. There was no below ground examination. In 1985 two York Factory First Nation elders identified more individual graves. In consultation with York Factory First Nation elders, Parks Canada has maintained and repaired the markers and fences. Since the 1990s willows have been routinely cleared and water drainage has been improved. Routine vegetation clearing of the cemetery and care of the markers and fences are needed. Further discussion with communities on matters of care and maintenance of the cemetery needs to occur.

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2.1.4 Artifacts

The York Factory artifact collection includes artifacts from archaeological excavations, shoreline finds from riverbank erosion, and some items left by the HBC in the Depot. Archaeology has unearthed some 300,000 artifacts that represent many aspects of the fur trade between 1788 and 1957. The richness and quantity of artifacts make this an important fur trade collection and a valuable part of telling the story of York Factory. The bulk of these artifacts are properly cared for at a Parks Canada facility in Winnipeg, while some 8000 artifacts (mainly shore finds), are on public display in the Depot Building. The York Factory Reference Collection (>5000 artifacts) is a special collection housed in Winnipeg for research use and display.

Unauthorized collecting of artifacts eroding from the riverbank is a problem as will be the management of the abovementioned collections as they likely continue to grow from archaeological and incidental recovery.

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2.1.5 Spirit of place

Spirit of place (genius loci) is a sense of authenticity and continuity found in a particular location. The spirit of place helps make the historic site meaningful and memorable to all visitors, most importantly by connecting people across time, space and cultural differences. Aspects of the spirit of place can be found in the landscape setting, among the physical remains, but also in non-tangible aspects that evoke a strong emotion and personal rapport between the person and the place.

Aspects that contribute to York Factory’s spirit of place, which should be considered in protection and presentation, include (but are not limited to):

• the sense of arrival (whether by boat or plane), having reached one’s destination, that has not changed in more than 175 years;
• the sense of a once grand place as depicted by the large area of the site, the size of the cemetery and the massiveness of the Depot;
• the sense of a place abandoned but not forgotten, because it remains a traditional homeland with deep-rooted connections in stories, song and return visits by First Nations people;
• the enormity of the Hayes River and its bearing on York Factory;
• the poignant reminders of the people who once lived and worked at York Factory, and their challenges and hardships as recorded at the cemetery, in the Depot, and in the oral histories and written accounts.

In discussion with First Nation community members and consultations with the interested public, several themes were raised concerning heritage protection of York Factory. They were:

• reasonable efforts should be taken to at least slow down erosion of the bank without impairing the historical nature of York Factory and the environment of the river;
• historic practices used by the HBC and the people of York Factory to retard erosion and drain the site should be considered by Parks Canada;
• the Depot is the icon of York Factory and must be looked after;
• York Factory will remain important and significant to the First Nation communities, even if the physical buildings and historical evidence are eventually lost. Their connection is to the land, the rivers, the animals and the place where their ancestors are buried. It is hoped that measures can be taken to slow down erosion and permafrost changes that threaten the site and the Depot, but regardless York Factory will remain alive through memories, stories and photos;
• protect the artifacts being found on the site and on the riverbank; and
• further document the cemetery, keep it clear of vegetation, and explore further with the First Nation communities a program for its ongoing care and maintenance.

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2.2 Heritage presentation

Heritage presentation is how Parks Canada provides opportunities to enjoy and learn about its parks and sites. Such opportunities may be on-site for visitors or off-site, known as outreach, for interested Canadians. Heritage presentation forms a large part of the visitor experience for national historic sites.

Heritage presentation is based on the site’s commemorative intent, that is, its reason for designation. The principal messages for York Factory’s heritage presentation are:

• York Factory’s critical role in the 18th century French – English struggle on Hudson Bay for control of the fur trade;
• York Factory’s continuous operation by the HBC from 1684 to 1957;
• the function of York Factory as an important HBC trading post and later as an entrepôt for the interior trade;
• the role of York Factory in establishing viable routes to the interior of western Canada; and
• the role of Aboriginal peoples in the fur trade associated with York Factory.

Heritage presentation has been done as a tour of the Depot and the cemetery guided by Parks Canada staff. Within the Depot, staff tell stories about living and working at York Factory while referring to the building’s architecture, layout, the graffiti, artifacts and photographs. Besides the Depot, there is a Parks Canada welcoming sign at the north and south entry points to the site and a sign about the cemetery and Powder magazine, but nothing else for signage. The intent has been to use as few signs and displays as possible so not to intrude on the spirit of place of York Factory.

From public consultation a number of ideas were suggested to enhance the stories told at York Factory and make more use of the wealth of historical documents, photographs and artifacts that can be creatively displayed in the Depot. Even so, most visitors rate the program and services as very satisfactory. Keeping the guided tours was seen as fundamental. Some see the changing environment in Canada’s North, the environmental threats facing York Factory, and the challenge to protect this historic place as very topical stories waiting to be told to visitors and the Canadian public. Also important to completing the story of York Factory is the telling of the community’s history, including what happened to the people and where did they go after the trading post closed.

Outreach is done via the Parks Canada website and an exhibit at the Parks Canada Visitor Centre in Churchill. An education kit is available on the Hayes River. Because York Factory is inaccessible to most Canadians due to its remoteness, comprehensive outreach will be necessary to meet Parks Canada objectives.

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2.3 Visitors, and visitor services and facilities

The Hudson Bay coast, the hugeness of the Depot and the historic graffiti within, the unpredictable weather, polar bears, and old markers in the cemetery, are among the unique qualities that make York Factory an unforgettable experience of history and nature. For some people, it is personal memories or the meaning of York Factory as part of their family’s traditional homeland that bonds them to this place. For others it is the accomplishment of getting there and literally touching history. But few Canadians will get to experience York Factory firsthand. Less than two to three hundred people each year visit this special place because York Factory is remote (accessible by chartered aircraft or boat in the summer or over-snow machine in the winter).

Among those who come to York Factory are people from York Factory First Nation, Shamattawa First Nation, Tataskwayak First Nation and Fox Lake Cree Nation who consider York Factory traditional homeland. In 2005 and 2006, York Factory Heritage Gatherings were held that brought members of these communities back to York Factory for several days to reconnect with a vital part of their history.

Many recreational canoeists who paddle the Hayes River (an arduous 18-day trip) consider York Factory their end of trip where they can be flown out to Gillam. On arrival, most are drawn to the site’s history having just experienced the water routes and portages once used by the York Boat crews that once went to and from York Factory.

Over the long run visitation should increase, but not in great numbers. In the short run, a noticeable increase in the number of visitors is expected from: First Nations gathering like that in 2005 and 2006; promotion of the Hayes as a Canadian Heritage River; group travel packages to northern attractions that include York Factory; and, resource management and development projects in the vicinity of the site. York Factory NHSC receives some visitation outside of its June to September operating season. York

The visitor offer is rudimentary. Other than washrooms, visitor safety and emergency services, and heritage presentation, there are no visitor amenities. Nonetheless, recent visitor interviews identified a high degree of satisfaction with their visit.

Parks Canada advises the public that the Silver Goose Lodge, located next to York Factory NHSC, is the only accommodation available. Camping has not been permitted on site. Parks Canada does not provide nor maintain the airstrip on Hay Island nor does it usually provide boat transportation between the site and Hay Island. The Silver Goose Lodge maintains this facility and service now and for the foreseeable future.

In the course of discussion with First Nation community members, tour operators and outfitters and past visitors, a number of ideas and concerns were raised about visitor opportunities at York Factory, including:

• the need for a defined camping area in the area of York Factory NHSC, but not necessarily on the site itself. The concern for accommodation was raised especially when the Silver Goose Lodge was not open during the York Factory NHSC operating season;
• activity-based programming for youth of the First Nations communities, centred on learning respect for the site, the land, and its history; and
• improving communications with tour operators about the site, its history and Parks Canada program offer to better inform visitors in pre-visit planning.

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2.4 Natural resource management

York Factory NHSC is a product of its natural environment. The site is situated in the transition zone between boreal and arctic along the coast of Hudson Bay.3 It is in a fragile coastal ecosystem. The site is on the southern edge of continuous permafrost in Canada. This region is predicted to experience significant changes to permafrost with climate warming. The geomorphological processes found at York Factory include active isostatic rebound, river erosion, tidal scouring and estuarine sedimentation. In the transitional zone between continuous and discontinuous permafrost these processes produce a particularly varied and unstable terrain. This terrain supports a diverse array of plant communities within complex successional sequences, ranging from coastal marshes through willow scrub to treed fen in the low-lying areas. Raised ancient beach ridges support white and black spruce forest. A large variety of animal life is associated with this transitional area of vegetation including, for example, polar bear, caribou and geese. Shorebirds are an important part of the fauna. Plant life is a mix of arctic, sub-arctic, and boreal species.

Natural resource management is a significant consideration at York Factory for two reasons. First, the functions and dynamic processes of the river, permafrost, surface and ground water drainage, and vegetation encroachment affect the condition of the site’s cultural resources. We know little of these processes and how they are affecting the commemorative integrity of York Factory. Second, the recorded history of York Factory could make it a particularly valuable place for the study of geological and ecological processes in relation to climate over an extended period.

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2.5 Relations

Parks Canada and the Silver Goose Lodge, owned by the York Factory First Nation, have cooperated in their efforts to maintain an area suitable for landing aircraft on Hay Island and to provide boat access from the island to the north shore where the site and lodge are located. Parks Canada refers visitors enquiring about overnight accommodation to the lodge, since the site offers no visitor accommodations. The site and lodge cooperate in waste management practices as part of the polar bear management and visitor safety program.

Parks Canada has worked with elders of York Factory First Nation in the care and maintenance of the cemetery.

Notable opportunities to build relationships important to the commemorative integrity and visitor experience, include:

• partnering with First Nations communities to maintain the cemetery (there is a need to further discuss in the communities);
• improving coordination between Parks Canada, the Silver Goose Lodge and tour operators and outfitters, in the visitor service offer;
• cooperating with First Nations communities to hold events such as gatherings that build support and stewardship for the site;
• promoting York Factory as a base for multi-disciplinary research involving the uniqueness of York Factory’s history and environment; and
• harmonizing the management plan for York Factory NHSC with the Canadian Heritage River management plan goals and intent for the Hayes River.

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2.6 Administration and operations

Parks Canada administers York Factory under authority of the Historic Sites and Monuments Act (1985). The Manitoba Field Unit manages the site from its administrative office in Churchill, which also has responsibilities for Prince of Wales Fort NHSC and Wapusk National Park of Canada. York Factory NHSC is a seasonal operation; open seven days a week from June to mid-September. Two seasonal employees provide visitor services, guided tours, maintenance and security during the operational season.

While Parks Canada’s efforts in northern Manitoba have focussed on the establishment of Wapusk National Park and the conservation of the walls of Prince of Wales Fort NHSC, management of York Factory has seen a modest program of monitoring, maintenance and salvage of the cultural resources being threatened, impaired or lost. With this management plan, the program will see a science and knowledge-based program of heritage management revitalized to meet a vision to protect York Factory NHSC for the long-term and improve heritage presentation and visitor experience.

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3.0 Vision for York Factory NHSC

This vision describes the desired and achievable future for York Factory National Historic Site of Canada. It is an inspirational view to focus and guide the planning, management and operation while fostering cooperation among those who will use, enjoy and care for the site.

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4.0 The management plan

This plan consists of goals, objectives, directions and key actions of how Parks Canada and its partners will achieve the vision for York Factory NHSC. Goals express what is most important in the management of any national historic site administered by Parks Canada (refer to Parks Canada Guiding Principles and Operational Policies and Parks Canada Agency Corporate Plan 2005- 2010). Objectives are specific, measurable outcomes toward achieving the Agency’s goals and the site’s vision. The directions express how the objectives will be achieved. The key actions are important to plan implementation, and are a means to assess progress in the coming years towards achieving the site vision.

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4.1 Heritage conservation

This section outlines Parks Canada’s commitment to respect, maintain and conserve the cultural resources and heritage values of York Factory NHSC. It is a set of responses to the significant, interrelated risks and vulnerabilities threatening York Factory’s commemorative integrity. This plan sets out as its first priority the protection of cultural resources from environmental threats, beginning with research and monitoring of the threats, and feasibility studies of riverbank stabilization and other mitigation measures. Letting the site erode, and to record and salvage cultural resources as they disappear, is the last possible alternative being considered for the management of York Factory NHSC.

Goal for heritage conservation

Commemorative integrity is maintained or improved, i.e.:

• York Factory NHSC and the cultural resources of national historic importance (i.e., Level 1 cultural resources)4 are not impaired or under threat; and
• the heritage values (including those not related to the reasons for designation as a national historic site – i.e., Level 2 cultural resources)5 are respected in all decisions and actions affecting the site.

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4.1.1 Response to riverbank erosion

Riverbank erosion is an immediate threat to archaeological remains lined along the bank of the Hayes River. The remains of more than twenty-two Level 1 and Level 2 buildings and features were considered in poor condition in 2000 because of their highly threatened state. If unchecked, the Hayes River will consume the entire site, including the Depot building, within 100 to 150 years. While it is not likely possible to remove the erosion threat from York Factory, it may be possible to control and minimize the magnitude of loss for a period of time.

Key actions

• The first two phases of the riverbank stabilization feasibility study will be carried out within the first five years of management plan implementation with a decision to either proceed with stabilization or to proceed with development and implementation of an enhanced salvage and research-oriented archaeology program for the site.
• The established program for monitoring and reporting of cultural resources threatened by riverbank erosion will continue during the course of the feasibility study.

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4.1.2 Response to riverbank erosion

“…. altho the land is nearly twenty feet above the level of the River, the land round the Fort is in general covered water, drains have been tried to take away the water, but have proved ineffectual, on account of the ground being froze within three feet of the surface.”(Colin Robertson’s Diary, 9 September 1817, Hudson’s Bay Company Archives).

A system of open drainage ditches, as well as buried drains from cellars, leading to the Hayes River, were constructed beginning in the 1790s, and improved upon during the early 19th century, to drain the wet soil conditions of York Factory.

Nonetheless, drainage remained a problem throughout the site’s history and to this very day. The open drains have long ago filled in and the buried ones have collapsed, creating gullies across the site. Water in these gullies and collapsed drains is affecting permafrost and contributing to sporadic erosion on the site. In very cold regions the upset in the thermal balance in the ground may be self-corrected once measures are undertaken to eliminate the contributing factors. However, in a borderline permafrost area, such as at York Factory, it may be very difficult to reverse damage to the thermal regime. Drainage and its impact on permafrost, therefore, is a significant risk to address.

Key actions

• The natural hydrology of the site will be studied with regard to stability of cultural resources and permafrost. Plans for site drainage will be based on the study.
• The drainage system for the Depot will be maintained and monitored for its effective performance.

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4.1.3 Response to climate warming

York Factory lies in the zone of continuous permafrost, where permafrost is found almost everywhere. Permafrost, or frozen ground, is soil, rock, sediment or other earth material that remains below 0oC for two or more consecutive years. The active layer is a seasonally thawed layer overlying the permafrost. Climate change, including warmer air temperatures, will lead to the thawing of permafrost, reduce the area of permafrost terrain in the circumpolar north, and shift boundaries of permafrost zones. In terms of vulnerability, the Geological Survey of Canada has identified the area around York Factory as ‘high’ for the impact of permafrost thaw.

Key actions

• A monitoring system will be developed, implemented and maintained to detect changes in permafrost across the site. Results of monitoring will be used to evaluate threats and responses to cultural resources. Partnering opportunities for permafrost research and monitoring will be explored.
• The site’s fire management plan will be updated with respect to evident changes in the region’s fire regime.

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4.1.4 Response to vegetation encroachment

Willow growth has an impact on commemorative integrity. Root systems can damage and destroy archaeological features, and encroachment of willows obscures the cultural landscape of York Factory.

Historically the entire York Factory was kept free of trees and bush, probably in part due to the constant demand for firewood, as a safety precaution against fire, as an environmental control (keeping the surface water drained and the mosquitoes at bay), and to keep an orderly appearance and operation. Reduced business at York Factory by the 1940s meant less manpower and little need to clear brush from the larger factory site since activities were limited largely to the Depot. Willows grew in. By 1957 only a small area of the original site remained clear of overgrowth. Since then Parks Canada staff have cut and mowed clearings to the front and south of the Depot, in the cemetery and along the boardwalks.

Key action

• A vegetation maintenance plan for the site will be developed and implemented. Appropriate places and methods of vegetation clearing and management will be evaluated for their effectiveness and environmental acceptance. The management plan direction for heritage protection and visitor experiences will be used to develop the guidelines. The impact of vegetation clearing and management on riverbank stabilization, permafrost and drainage are critical in developing the guidelines.

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4.1.5 Response to natural deterioration of certain cultural resources

The previous sections looked at responding to threats to cultural resources. This section looks at a number of cultural resources that are vulnerable to natural deterioration of their fabric.

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4.1.6 Ongoing inventory and evaluation of cultural resources

York Factory NHSC is a complex historic place. There is still much to be discovered and learned. Already the Commemorative Integrity Statement needs to be revisited in terms of what cultural resources are present and wherein lies their historic values.

Key action

• The Commemorative Integrity Statement will be updated to reflect growing knowledge of the site.
• The Game Branch House will be evaluated for historic value and managed accordingly.
• In situ large artifacts (e.g., boilers, anchors, winches) will be inventoried, evaluated and managed, like other cultural resources on site.
• Guidelines for the collection, inventory and care of artifacts found eroding out of the riverbank will be developed and implemented. Artifact collecting by visitors will not be permitted. This will be part of the conservation messages presented at York Factory.

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4.2 Meaningful visitor experiences

This section describes the intentions toward providing a safe, enjoyable and meaningful learning atmosphere for visitors of York Factory NHSC, whether they are on-site or experiencing it through means of outreach.

Goal for meaningful visitor experiences

All visitors* at York Factory NHSC are welcome, have safe visits and are satisfied with service quality.

* For many First Nations people of western Hudson Bay, their coming to York Factory is not necessarily thought of as a visit to a national historic site, but rather of “coming home”.

Key actions

• Pre-trip information and marketing will be designed and delivered to ensure that all visitors to York Factory are aware of what to expect and experience in getting to and being at York Factory NHSC. Most simportant is pre-trip information for tour operators and individuals that explain, for example, location, operating season, access, weather, tides, hazards, fees, contact information, on-site facilities, services and programs, clothing to wear, and accommodation. Pre-trip planning information will be made available on the Parks Canada website and by tour operators and outfitters marketing York Factory, the area, and the Hayes River.
• Arrival at the site will continue to be highlighted by the sighting of the Depot and the HBC flag. Welcoming signs, also designed to convey site and safety messages when site staff are not available, will be located at the north and south entrances to the site. The signs will identify York Factory as a national historic site, its reasons for commemoration, important information about the resources and their protection, and safety considerations while on-site. The sign will be in both official languages and in Cree.
• Staff, exhibits, reading material and other media, and the spirit of place, will all be key to making a stay enjoyable, worthwhile and relevant to the experience.
  • The personal services provided by Parks Canada staff are exemplary, an important part of the visitor experience, and will be continued.
  • Self-guiding media will be developed and introduced to inform visitors about the breadth of history and place that was York Factory, as well as measures to protect the site.
  • A “self-discovery” room in the Depot will be open to visitors during operating hours. It will have media informing the visitor on the history and protection of York Factory, and the people who lived there, and will have a library and place for the visitor to record their own thoughts of York Factory and their journey, as well as to read about others’ experiences.
• Parks Canada will help facilitate First Nations’ heritage gatherings at York Factory (such as those in 2005 and 2006).
• A range of accommodation opportunities (including possibly camping on or near the national historic site) will be explored with potential partners. Parks Canada will continue to direct visitors wanting overnight accommodation to the Silver Goose Lodge. In time, camping will be provided at or near York Factory NHSC.

• 

  Graffiti will not be permitted in the Depot. An alternative, suitable means for recording one’s name and presence at York Factory will be made available.
• Visitor surveys will be done periodically to evaluate visitor satisfaction with services, facilities and heritage programming. Graffiti
• Branding “YF” on canoeists’ paddles is a treasured memento and this service will continue. Parks Canada will provide a means of keeping interested visitors informed of York Factory conservation efforts after their visit.
• The public safety and polar bear management plans will be reviewed annually and revised as necessary.
• Parks Canada will provide and/or support others in offering an exemplary website on York Factory NHSC (see Section 4.3.2, Off-Site Heritage Presentation)

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4.3 Public appreciation and understanding

This section describes Parks Canada’s plans to improve heritage presentation both on- and off-site, so to facilitate public appreciation and understanding of York Factory’s national historic significance. A powerful aspect of York Factory’s spirit of place is its stories, including historical and contemporary views of the HBC empire’s influence on the people, the land and the country. These views can provide insight into Canada’s national identity, and why York Factory NHSC is such a meaningful and compelling place in Canada’s history. The stories of York Factory need to be shared and passed on to our children.

Goal for public appreciation and understanding
Canadians, visitors, partners and stakeholders appreciate and understand the significance of York Factory NHSC and support its protection.

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4.3.1 On-site heritage presentation

Key actions

• A heritage presentation program, based on the above storylines, will be developed and delivered on-site, using media and approaches discussed in Meaningful Visitor Experiences (Section 4.2).
• First Nations communities will be invited to participate in the development of heritage presentation.
• Communications with the public will be made a vital component of research and conservation programs.

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4.3.2 Off-site heritage presentation (Outreach)

Key actions

• An outreach program, based on the goals and objectives for public appreciation and understanding will be developed and delivered, including an exemplary website on the Internet.
• Off-site presentation of York Factory’s main storylines will be done at the Parks Canada Visitor Centre in Churchill and at Lower Fort Garry NHSC.
• A local schools outreach program will be developed and regularly offered to northern Manitoba communities associated with York Factory.

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4.4 Partnerships and stakeholders’ involvement

Parks Canada will work with partners and stakeholders to improve the promotion of York Factory and area as a travel destination, and to enhance the heritage conservation and presentation of York Factory NHSC.

Goal for partnerships and stakeholder involvement
Commemorative integrity, public appreciation and understanding, and meaningful visitor experiences of York Factory NHSC are enhanced through partnerships and cooperation among stakeholders. The long relationship between Parks Canada and York Factory First Nation in the care and service offer at York Factory is a foundation to be built upon.

Key actions

• Parks Canada will invite local First Nations, Travel Manitoba, outfitters and tour operators to participate in a working group with the objective of enhancing the marketing and visitor opportunities of the area in and around York Factory NHSC.
• Parks Canada will make available its expertise and information gained from operating facilities and services at York Factory NHSC to assist a feasibility study for the Silver Goose Lodge.
• Parks Canada will endeavour to accommodate researchers who are doing research that supports the management of York Factory NHSC or Wapusk National Park of Canada. On-site facilities and infrastructure (water and waste management), however, will limit the number of staff and researchers who may be on site at any given time.
• Volunteering opportunities at York Factory NHSC will be explored.

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4.5 Environmental stewardship

This section outlines our approach to managing York Factory NHSC for its natural heritage values in harmony with its commemorative integrity objectives.

Goal for environmental stewardship
York Factory NHSC demonstrates exemplary awareness and practice of environmental management and shows leadership in demonstrating sound environmental practices.

Objective

• York Factory NHSC is managed to minimize impacts on the environment from site operations.

Key actions

• The Manitoba Field Unit Environmental Management Action Plan has been implemented at York Factory NHSC. Implementation of the plan will be audited periodically for its effectiveness and to determine if further remedial action is necessary.
• Proposed projects and activities at York Factory NHSC will be assessed as required by the Canadian Environmental Assessment Act and as directed by the strategic environmental assessment of this management plan.

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4.6 Strategic environmental assessment summary

The "York Factory National Historic Site of Canada Management Plan" was subjected to a strategic environmental assessment pursuant to The Cabinet Directive on the Environmental Assessment of Policy, Plan and Program Proposals, 2004. The evaluation of environmental effects included a consideration of natural, cultural and socio-economic effects.

The management plan will have many positive effects as a result of preserving and enhancing knowledge of cultural resources at the site, enhancing public appreciation and understanding, increasing knowledge of permafrost, and protecting natural resources.

Mitigations to reduce negative effects will include consultation with archaeologists prior to any digging or probing in the ground to ensure that cultural resources are not damaged. As well riverbank stabilization, camping activities, vegetation clearing and proposed modifications to any of the buildings on site could be subject to project-specific assessments conducted under the Canadian Environmental Assessment Act or Parks Canada policy as the project develops from conceptual stage to design and implementation. Environmental assessments should begin early in the planning process, particularly for the riverbank stabilization. It is important that the feasibility study on riverbank stabilization include elements of an environmental assessment to accurately predict the cost of mitigations.

The preparation of the York Factory NHSC management plan offered the opportunity for public input from key stakeholders and interested public. Public consultations with local communities and other stakeholders about the management plan occurred from the summer of 2005 until the fall of 2006. In general, the public are supportive of Parks Canada’s management plan for York Factory NHSC. Stakeholders and the public understand and respect the cultural and historic significance of the site and are interested in protecting it. The planning team reviewed the draft management plan in light of all public input received and used the input to refine the actions set out in the management plan.

This strategic environmental assessment has determined the actions in the management plan, if they include the option to stabilize the riverbank, and surrounding cumulative activities, are not expected to be significant. However, if the riverbank stabilization does not go ahead there will eventually be a significant effect, as the entire site and many cultural resources will eventually be lost. Loss of the site would have negative impacts on cultural resources and socio-economics in the region. Commemorative integrity would be completely lost as the site and many cultural resources would, within 100-150 years, be totally destroyed by the eroding riverbank. Loss of the site would mean a loss of a piece of Canadian history, First Nations homeland, jobs and a sector of the tourism industry that York Factory NHSC provides the area.

The Strategic environmental assessment of the York Factory National Historic Site of Canada management plan (Parks Canada 2006) must be referred to in implementing this management plan.

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5.0 Management plan implementation and evaluation

The management plan provides long-term strategic direction for Parks Canada managers of York Factory NHSC. It is a framework for more detailed planning and decision-making, and a strategic reference for capital expenditure forecasts and future management and operations.

Implementation of the management plan is the responsibility of the Manitoba Field Unit Superintendent. Implementation will be done through the Manitoba Field Unit business plan. The business plan identifies which actions of the management plan will be realized within a five-year period. Any changes to the five-year forecast are captured by the annual review and updating of the business plan. Implementation of the strategies and actions may be reconsidered in response to new circumstances or information, or changing national priorities and decisions.

Progress on management plan implementation will be communicated through annual reporting and the Parks Canada State of the Protected Heritage Areas report. The management plan will also be subject to periodic review (at least every 5 years), and can be amended to reflect changing circumstances. The public will be consulted about major changes.

Of the key actions cited in the management plan, the following are the priority activities to be achieved in the coming years.

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Appendix A. Summary of the planning and consultation process

Management planning for York Factory NHSC began in the spring of 2005. Parks Canada staff identified objectives, needs and opportunities to be addressed by planning, including needs for public consultation. Over the course of the summer and fall of 2005, a number of approaches were used to inform and involve stakeholders and interested public about the planning program and to obtain input for consideration in planning (see Chapter 2 which includes a summary of public comments). Several site studies and reviews were also done that summer and fall to assist planning. Over the winter of 2005-06, Parks Canada staff drafted a proposed management plan using results from the consultations and reviews. From July to September 2006 the proposed plan was made available for public review and a number of consultation meetings were held. From this consultation, comments were considered in completing the management plan. Parks Canada is committed to continuing consultation and dialogue with First Nations, stakeholders and interested public on York Factory NHSC for the life of the management plan, its implementation and review, and beyond. A summary of main planning and consultation activities during the development of the plan follows:

First stage

• First Nations discussion group in Thompson, Manitoba, hosted by Parks Canada, in July 2005. Participants came from York Landing, Fox Lake, Shamattawa, Churchill and Thompson, at the suggestion of Chiefs of the York Factory, Shamattawa and Fox Lake First Nations. The meeting focused on participants’ connections to the site, the site’s importance to them, and specific issues of importance to them with respect to current and future care and use of the site. The discussion group results were used in developing the proposed vision and directions for site management.
• Telephone interviews with site visitors from 2004 concerning their experience.
• Notifying the interested public by way of information provided in Manitoba History and The Beaver magazines, at the Honekw Regional Gathering in Thompson, at the site and Churchill Visitor Centre, on the Parks Canada and International Polar Heritage Committee websites, and at International Committee on Monuments and Sites meetings in Toronto and Xi’an, China.
• A newsletter introducing the planning program and the opportunity to be involved mailed out to more than 140 individuals and government and non-government organizations. Another 200 newsletters were made available at band offices and/or stores in Gillam, Bird, York Landing, Shamattawa and at the town office and Visitor Centre in Churchill.
• Telephone interviews of tour operators and outfitters offering a service to York Factory, and meetings with Silver Goose Lodge (owned by York Factory First Nation).
• Reviews and recommendations concerning riverbank erosion, permafrost management, condition of cultural resources, and structural integrity of the Depot.
• Participation of several geotechnical engineers and scientists who volunteered their services and contributed their ideas to planning.

Second stage

• Notice of consultation opportunity on York Factory NHSC website, notice in Manitoba History newsletter, Parks Canada staff newsletter.
• Mail-out of proposed management plan and questionnaire to more than 150 individuals and organizations on York Factory NHSC mailing list in July 2006. Nearly 15% replied with written comments.
• Meetings with more than 40 people at presentations at York Factory, York Landing, Gillam, Churchill and Winnipeg during late August and September.