Halifax Defence Complex Management Plan 2020

Map 6: Fort McNab National Historic Site of Canada

2.0 Significance of the Halifax Defence Complex

In 1965, the Historic Sites and Monuments Board of Canada recognized the importance of Halifax as one of four principal overseas naval stations of the British Empire during the 18th and 19th centuries and that the Halifax Defence System or Complex includes a complete conspectus of shore defences of the 18th century to the Second World War. The Historic Sites and Monuments Board of Canada further recommended the commemoration of representative examples of a complete range of shore defences as national historic sites, specifically naming Georges Island and Fort McNab, along with the previously designated York Redoubt (1962), Prince of Wales Tower (1943) and the Halifax Citadel (1935). All five sites of the Halifax Defence Complex were transferred from the Department of National Defence to Parks Canada upon their decommissioning as sites of military importance, between 1936 and 1964.

3.0 Planning context

The sites of the Halifax Defence Complex are located in Halifax Regional Municipality, Nova Scotia, on or near the shores of Halifax Harbour. Most of the sites of the Halifax Defence Complex are in or near downtown Halifax, and therefore are of strong interest to residents and stakeholders. Halifax has a growing downtown and suburban residential population, and all of the sites of the Complex form an integral part of the urban landscape. Georges Island NHS continues to present an untapped potential, and the Halifax Citadel NHS and York Redoubt NHS are well-visited not only as national historic sites, but also as places for recreation and relaxation. Of the five sites, only the Halifax Citadel NHS is fully operational, providing a full-service visitor experience.

The Halifax Citadel NHS, with its iconic Town Clock, is a significant attraction in the local and regional tourism offer. The site sees an average of 200 000 largely first-time visitors^Footnote1 each year within the fortification walls (and on the order of 600 000 people use the grassy hill, or glacis, surrounding the fortifications annually). Tourism visitation to the province, particularly cruise visitation, is increasing, and many of these visitors come to the Halifax Citadel NHS (e.g. approximately 9% of all cruise visitors to Halifax in 2018 visited the Halifax Citadel NHS). Serving as the flagship site for the Halifax Defence Complex, the Halifax Citadel NHS offers rich visitor experiences including a living history program, multi-media programs, exhibits and guided tours. Recent investments have addressed deferred maintenance at the site; cultural resources and built assets are in “Good” to “Fair” condition^Footnote2. Front-line visitor experience service, as well as retail and facility rental programs, are delivered by the Halifax Citadel Society. This non-profit partner society has a mandate to support Parks Canada at the Halifax Citadel NHS, and celebrated its 25th year of operation in 2018. The non-profit Army Museum Halifax Citadel (Army Museum), operating since 1953 and co-located on site, presents Atlantic Canada’s military history to site visitors. In recent years, about $24 million has been invested to improve the condition of heritage and non-heritage assets at the site. These investments include rehabilitation of the Town Clock ($1.8 million), replacement of the Cavalier Building roof ($1 million), work on the south and north front masonry walls ($17 million), the signal mast installation ($1 million), road resurfacing and fencing ($2.4 million), and Garrison Grounds drainage ($480 000). In the near term, anticipated investments at the Halifax Citadel will include a significant new anchor exhibit, Fortress Halifax: A City Shaped by Conflict.

The rest of the Complex sites (the “outlying sites”) offer a self-guided service offer, and investment in cultural resource protection (ranging from “Good” to “Poor” condition) has been strategic. York Redoubt NHS receives on the order of 25 000 visitors during the summer, and an estimated additional 50 000 the rest of the year. The other three sites do not have an active visitor experience offer. The grounds of Prince of Wales Tower NHS (located within the municipal Point Pleasant Park) and Fort McNab NHS (an enclave within the as yet undeveloped McNabs and Lawlor Islands Provincial Park) are available for self-directed exploration. Georges Island NHS has been open for special events in recent years, and public interest in the site is very strong. Since 2015, strategic investments to protect priority cultural resources at these sites include Prince of Wales Tower roof replacement ($210 000) and York Shore Battery ($415 000). In the near term, investments are anticipated to include $1.6 million over two years to develop Georges Island.

The Mi’kmaq of Nova Scotia have a strong interest in the national parks and national historic sites in Nova Scotia, given that they are within Mi’kma’ki, the traditional homeland of the Mi’kmaq people. These places help protect and present Mi’kmaw culture and heritage. The “Made-in-Nova Scotia” Rights Reconciliation Agreement process is ongoing; this process contemplates an increased role for Mi’kmaq in the management of these and other heritage places in Nova Scotia. Under an Interim Arrangement, the Parks Canada-Mi’kmaq Mainland Nova Scotia Advisory Committee provides guidance for the management of the Halifax Defence Complex and other parks and sites in Mainland Nova Scotia.

Climate change, with anticipated increased storm events, rising sea level and coastal erosion, has the potential to significantly impact the heritage fabric of national historic sites, as well as facilities and assets that support visitor experience and operations. Fortunately, the robust masonry construction of the Halifax Defence Complex allows these resources to withstand many of these impacts, although sites at the water’s edge, particularly Georges Island NHS, and to some extent Fort McNab and York Redoubt NHSs, are susceptible to coastal erosion and sea-level rise.

4.0 Development of this management plan

A broad range of Canadians, including site partners the Halifax Citadel Society and the Army Museum, the Mi’kmaq of Nova Scotia, the Fédération acadienne de la Nouvelle-Écosse, and stakeholders from the tourism industry, municipal and provincial departments and heritage organizations, were involved in the preparation of the management plan, helping to shape the future direction of the Halifax Defence Complex. An online platform was the principal engagement approach. The website “Let’s Talk Parks Canada Halifax!” was visited by nearly 3000 people and over 300 shared their thoughts on the future of the Halifax Defence Complex during Phase 1 consultation. Also during this phase, a multi-stakeholder workshop, site staff and youth engagement sessions, and bilateral meetings with specific stakeholders, were held in Halifax. Phase 2 consultation on the draft plan further informed its development, including more than 40 people sharing their thoughts about the draft plan on the website and bilateral meetings with key stakeholders. The Mi’kmaq of Nova Scotia were engaged at all stages of the preparation of this management plan, and formal consultation on the plan was coordinated through Kwilmu’kw Maw-klusuaqn Negotiation Office on behalf of the Assembly of Nova Scotia Mi’kmaq Chiefs to ensure that the plan reflects the interests of Mi’kmaq in relation to these sites.

5.0 Vision

The following outlines a 15- to 20-year vision for the Halifax Defence Complex that pertains to all five national historic sites, unless otherwise indicated:

The Halifax Citadel is the flagship site for exploration and discovery of the stories of the Halifax Defence Complex. It is an iconic tourism attraction for the Province of Nova Scotia and Halifax Regional Municipality, known for bringing history to life through innovative programming and considered a “must-do” experience. It continues to contribute to the economic growth and vitality of the community.

Priority cultural resources, which are tangible evidence of the sites’ national historic significance and serve as the foundation for visitors to connect with and experience the past, are protected and in good condition.

Georges Island is an integral part of a vibrant Halifax waterfront experience; the island is accessible to the public and provides opportunities to experience its cultural heritage, including discovering the significant role that the site played in the Deportation of Acadians, as well as its military importance to the end of the Second World War.

Parks Canada is committed to reconciliation with Indigenous peoples and is working collaboratively with the Mi’kmaq of Nova Scotia on the implementation of their rights at these and other sites. These sites are welcoming places and provide opportunities for the Mi’kmaq to tell their stories and share their culture, heritage and traditions to reflect the Mi’kmaw world view.

The stories told at the Halifax Defence Complex continue to reflect the sites’ military past, while including diverse perspectives on their history and how that diversity shaped modern day Halifax, encouraging visitors to better relate to the sites. Stories and experience opportunities reflect the peoples who were affected by these places, including the Mi’kmaq, African Nova Scotians, Acadians, European immigrants, women, and other groups.

Residents of Halifax and newcomers, including youth and cultural communities, feel a connection to and pride in these sites. These national historic sites enhance the character of Halifax and are valued as an essential part of the urban fabric both as heritage places and recreational green spaces.

Key partnerships provide essential support to Parks Canada in fulfilling its mandate to protect and present the Halifax Defence Complex sites, so that they are embraced and appreciated as sites integral to the community.

6.0 Key strategies

Three key strategies frame the management direction for the Halifax Defence Complex for the next 10 years. The strategies, and corresponding objectives and targets, focus on achieving the vision through an integrated approach to management of the national historic sites. Targets outline a timeframe for achieving an objective; where no date has been referenced, the objective will be achieved within the period of the plan based on opportunities, annual priorities and capacity of Parks Canada. Progress made in achieving these strategies and objectives will be reported annually to the Mi’kmaq of Nova Scotia, partners including the Halifax Citadel Society and the Army Museum, the Fédération acadienne de la Nouvelle-Écosse, other stakeholders, and the general public.

7.0 Management areas

Management direction in this section outlines specific objectives for each of the five sites of the Halifax Defence Complex.

8.0 Summary of the strategic environmental assessment

Parks Canada is responsible for assessing and mitigating the impacts of management actions on ecosystems and on cultural resources. The Cabinet Directive on the Environmental Assessment of Policy, Plan and Program Proposals (2010) prepared by the Impact Assessment Agency of Canada, requires a strategic environmental assessment of all plans and policies submitted to the federal Cabinet or to a Minister for approval and deemed to have important positive or negative environmental effects.

A strategic environmental assessment was undertaken on this management plan, and the management direction found within has been adjusted to respond to findings. The following is a summary of the environmental assessment:

The purpose of the strategic environmental assessment is to incorporate environmental considerations into the development of public policies, plans, and program proposals to support environmentally-sound decision making. Individual projects undertaken to implement management statement objectives at the site will be evaluated separately to determine if an impact assessment is required under the Impact Assessment Act.

The scope of the assessment included the area within the boundary of the Halifax Defence Complex, which consists of five national historic sites on the shores of Halifax Harbour in Nova Scotia: Halifax Citadel, Georges Island, Fort McNab, Prince of Wales Tower, and York Redoubt. The timeframe considered was ten years from the date of the plan, at which time the plan will be reviewed. In addition to cultural resources, and visitor experience, environmental components of note at this site include migratory birds and species at risk.

Many positive residual effects will occur as a result of the implementation of the plan, for example: building upon relationships with the Mi’kmaq of Nova Scotia; protecting priority cultural resources; and improving engagement, awareness and appreciation for the site among residents and tourists. Increased visitation to areas such as Georges Island also provides an opportunity to educate visitors about species at risk thereby expanding the visitor experience and supporting the Parks Canada mandate.

Actions identified in the management plan that could potentially result in negative environmental effects are related to increased visitation and expansion of the visitor offer to Georges Island. Increased visitation could impact the integrity of cultural resources over time at all sites and increased impacts to migratory birds and species at risk could result from vandalism, increased maintenance requirements and/or addition of infrastructure to facilitate new visitor experiences. However, these effects can be minimized by following existing guidelines, including the Standards and Guidelines for the Conservation of Historic Places in Canada; conducting project-level impact assessments and applying species at risk mitigations as appropriate; continuing species at risk monitoring programs, including adding Barn Swallows at Georges Island to the existing monitoring program; including species at risk education and outreach into visitor programming and signage; and complying with the requirements of the Species at Risk Act, Migratory Birds Convention Act and Parks Canada policy and guidance.

Public and Indigenous engagement was conducted on the plan in January-March 2019. Public concerns raised were incorporated into the plan as appropriate.

The plan supports the Federal Sustainable Development Strategy of Connecting Canadians with Nature. There are no important negative environmental effects anticipated from implementation of the management plan.