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Foreword

From coast to coast to coast, national historic sites, national parks and national marine conservation areas are a source of shared pride for Canadians. They reflect Canada’s natural and cultural heritage and tell stories of who we are, including the historic and contemporary contributions of Indigenous peoples.

These cherished places are a priority for the Government of Canada. We are committed to protecting natural and cultural heritage, expanding the system of protected places, and contributing to the recovery of species at risk.

At the same time, we continue to offer new and innovative visitor and outreach programs and activities to ensure that more Canadians can experience these iconic destinations and learn about history, culture and the environment.

In collaboration with Indigenous communities and key partners, Parks Canada conserves and protects national historic sites and national parks; enables people to discover and connect with history and nature; and helps sustain the economic value of these places for local and regional communities.

This new management plan for Yoho National Park of Canada supports this vision.

Management plans are developed by a dedicated team at Parks Canada through extensive consultation and input from Indigenous partners, other partners and stakeholders, local communities, as well as visitors past and present. I would like to thank everyone who contributed to this plan for their commitment and spirit of cooperation.

As the Minister responsible for Parks Canada, I applaud this collaborative effort and I am pleased to approve the Yoho National Park of Canada Management Plan.

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Recommendations

Recommended by:

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Executive summary

This management plan sets out the strategic direction for Yoho National Park for the next ten years. It replaces the 2010 management plan and provides updated direction for maintaining and restoring ecological integrity, protecting the park’s cultural resources, and providing memorable visitor experiences and education. The plan presents a vision of the park at its best, and outlines a set of key strategies that will be implemented to help achieve that vision. The management plan was developed with input from Indigenous peoples, stakeholders, park staff and the public.

Yoho National Park was established in 1886. The park protects 1,313 square kilometres of the western slopes of the Main Ranges, representing a portion of the Rocky Mountains Natural Region within Canada’s national park system. It is also a key component of the UNESCO Canadian Rocky Mountain Parks World Heritage Site.

Prior to European settlement and the park’s establishment, Indigenous peoples lived on and cared for this land for thousands of years. This management plan recognizes the important role that Indigenous peoples can play in the stewardship of this special place. Parks Canada will work together with the Ktunaxa and Secwépemc peoples to reconnect them to this part of their traditionally used lands and waters, and to weave their perspectives and knowledge into park management.

There are seven key strategies contained in the management plan. These strategies collectively articulate the approach that Parks Canada will take to maintain and restore ecological integrity, integrate Indigenous perspectives, provide memorable visitor experiences that connect Canadians to their natural and cultural heritage, and address the pivotal challenge of climate change. Each strategy includes objectives that describe the desired outcomes to be achieved. Objectives are followed by a short list of targets that detail some tangible steps that will contribute to meeting the outcomes. All of these strategies work together in an integrated fashion, and are intended to be applied on a park-wide basis, so they need to be considered as a whole.

The seven key strategies are:

• Conserving natural and cultural heritage for future generations;
• True-to-place experiences;
• Strengthening Indigenous relations;
• Connecting with Canadians within and beyond the park;
• Managing development and park communities;
• Regional connectivity and landscapes; and
• Climate change and adaptation.

The key strategies represent Parks Canada’s planned approach to park management for the next five to ten years. However, Parks Canada will use an adaptive management methodology, where strategies may be refined over time to improve management effectiveness.

The plan also includes specific direction for the upper Yoho and Little Yoho Valley management area, which has important natural and cultural features combined with high visitation and significant public interest. Objectives and targets reflect the application of key strategies to this backcountry area.

A description and map of the park zoning system is included in the plan. Park zoning describes the relative level of protection versus development and use for different areas of the park, and ranges from Zone I – Special Preservation to Zone V – Park Services.

During the development of the plan it became evident that in some cases, more research, data gathering, and planning is required to provide robust management direction. In these cases, the management plan calls for the development of a subsidiary plan, strategy, or program. These include:

• Aquatic Ecosystem Stewardship Plan;
• Human–Wildlife Safety and Coexistence Guidelines and Operating Protocols;
• Species at Risk Action Plan (update);
• Cultural Resource Values Statement;
• Asset Management Plan;
• Visitor Experience Strategy;
• Visitor Use Management Plan for High-use Areas;
• Accessibility and Inclusivity Action Plan;
• External Relations Strategy;
• Strategic Plan for Interpretation;
• Field Community Plan (update);
• Wilderness Management Plan; and
• Climate Change Action Plan and Transition Strategy for Greening Operations.

Where not specified within this plan, the timing, milestones and process for completing each of the above will be identified by park managers subsequent to approval and tabling in Parliament of this park management plan.

The management plan concludes with a summary of a strategic environmental assessment. This assessment included a thorough examination of the potential environmental effects of the direction in the management plan, with a focus on potential cumulative effects. The assessment determined that the strategies, objectives and actions of the plan, taken together, will have positive effects over the life of the plan. No important negative environmental effects are anticipated.

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1. Introduction

Parks Canada administers one of the finest and most extensive systems of protected natural and historic places in the world. The Agency’s mandate is to protect and present these places for the benefit and enjoyment of current and future generations. Future-oriented, strategic management of each national historic site, national park, national marine conservation area and heritage canal administered by Parks Canada supports the Agency’s vision:

Canada’s treasured natural and historic places will be a living legacy, connecting hearts and minds to a stronger, deeper understanding of the very essence of Canada.

The Canada National Parks Act and the Parks Canada Agency Act require Parks Canada to prepare a management plan for each national park. The Yoho National Park of Canada Management Plan, once approved by the Minister responsible for Parks Canada and tabled in Parliament, ensures Parks Canada’s accountability to Canadians, outlining how park management will achieve measurable results in support of the Agency’s mandate.

Indigenous peoples are important partners in the stewardship of heritage places, with connections to the lands and waters since time immemorial. Indigenous peoples, stakeholders, partners and the Canadian public were involved in the preparation of the management plan, helping to shape the future direction of the national park. The plan sets clear, strategic direction for the management and operation of Yoho National Park 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 and of itself. Parks Canada will maintain an open dialogue on the implementation of the management plan, to ensure that it remains relevant and meaningful. The plan will serve as the focus for ongoing engagement, and where appropriate, consultation on the management of Yoho National Park in years to come.

 

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2. Significance of Yoho National Park

Yoho National Park is within the traditionally used lands and waters of the Ktunaxa and Secwépemc peoples. Prior to the arrival of Europeans, these Indigenous peoples used the area for hunting, fishing and gathering, and for travelling between other sectors of their territories.

Yoho National Park was created in 1886, one year after Canada’s first national park was established at Banff. Like many of Canada’s earliest national parks, Yoho was established in a time when, through government policy and law, Indigenous peoples were separated from their traditional lands and waters. Enforcement of hunting and gathering prohibitions, combined with other Government of Canada policies such as those restricting the ability of Indigenous people to leave reserves, resulted in their exclusion from the park.

Today the park protects 1,313 square kilometres representing the western slopes of the Main Ranges of the Rocky Mountains Natural Region. The park is bounded by the Continental Divide and Banff National Park to the east, Kootenay National Park to the south, and British Columbia provincial lands to the north and west (Map 1). The park is one of seven parks comprising the Canadian Rocky Mountain Parks World Heritage Site, which encompasses 23,069 square kilometres. Within the park, the Kicking Horse River—including its main headwater tributary, the Yoho River—is designated as a Canadian Heritage River. This is one of the main tributaries of the upper Columbia River watershed, so the park contributes significantly to the conservation of this important international river system.

Yoho National Park attracts visitors from around the world who come to experience its steep mountain peaks, cliffs, glaciers, turquoise lakes, waterfalls and rare fossils. There are more than 400 kilometres of trails that provide outstanding hiking and skiing opportunities. The Trans-Canada Highway and other park roads provide exceptional scenic mountain drives.

The park landscape includes alpine, subalpine and montane ecoregions. The climate is continental, with warm summers and cold winters. Precipitation is gradational, increasing from west to east due to the orographic uplift associated with the Continental Divide. This precipitation pattern produces a deep snowpack in the eastern part of the park. This results in significant avalanche activity, which is an important ecosystem disturbance process that contributes to the diversity of ecological communities.

Park ecosystems support populations of iconic wildlife, including mountain goat, grizzly bear, black bear, lynx, wolverine, wolf, bull trout, westslope cutthroat trout, moose, elk, and mule deer. Approximately 200 species of birds have been observed in the park. The park also includes important subalpine habitat for the endangered whitebark pine.

The Burgess Shale fossil sites are among the most important natural features of the park. They were inscribed as a UNESCO World Heritage Site in 1980. The site was expanded in 1984 and 1990 to include seven parks comprising the Canadian Rocky Mountain Parks World Heritage Site. Important Burgess Shale fossil sites also occur in Kootenay National Park. Burgess Shale fossils preserve in exquisite detail an abundant variety of soft-bodied marine organisms from the Middle Cambrian Period, 508 million years ago. This is one of the world’s premier fossil localities. Ongoing scientific research continues to provide crucial information about the nature of these fossil deposits and the early evolution of complex animal life.

In 1881, the Canadian Pacific Railway chose Kicking Horse Pass as their route through the Rockies. Construction commenced that year and was completed in 1886. Subsequent work to reduce the steep grades on the route was completed in 1909 with the opening of the Spiral Tunnels. The village of Field was established as a staging area for the construction of the railway through the pass. In 1886, Canadian Pacific built Mount Stephen House in Field, the first railway hotel in the Canadian Rockies, which helped to initiate the era of tourism and alpine recreation in the area. Kicking Horse Pass National Historic Site was designated in 1971 to commemorate the significance of this location in Canadian transportation history.

In 1908, the Canadian Pacific Railway constructed a log tea house at the foot of Twin Falls in the Yoho Valley as an overnight backcountry accommodation for railway tourists exploring the area. The Twin Falls Tea House was designated a National Historic Site in 1992 for its representation of the rustic design tradition and for its association with early outdoor recreation in the mountain national parks.

In 1922, Swiss guides working for the Canadian Pacific Railway constructed a stone hut on the Continental Divide at Abbot Pass to serve as a base for ascents of nearby peaks including Mount Victoria and Mount Lefroy. The Abbot Pass Refuge Cabin, situated on the border of Yoho and Banff national parks, was also designated a national historic site in 1992 for its representation of the rustic design tradition, and for its association with early outdoor recreation in the mountain national parks. This national historic site has been negatively impacted by the effects of climate change. Slope erosion and glacial recession have caused structural damage to the hut despite extensive stabilization efforts and interventions made to preserve the structure. Consequently, Parks Canada has made the difficult decision to dismantle and substantially remove the Abbot Pass Refuge Cabin from its current location.

The construction of the railway also led to the discovery of lead, zinc, and silver deposits in the area in 1884. Two underground mines were developed east of Field: the Kicking Horse Mine on Mount Field and the Monarch Mine on Mount Stephen. Production from these mines commenced in 1888 and continued until 1952. The mines were abandoned in 1954, and all salvageable material was removed by 1957. Vestiges of this mining history remain visible to park visitors today.

The park contains significant cultural resources. There are 177 known archaeological sites in the park, including 11 pre-contact Indigenous sites. More than 5,600 artefacts from these sites have been collected and catalogued. Eleven buildings have been recognized by the Federal Heritage Buildings Review Office for their cultural significance. The Canadian Pacific Railway station in Field is designated a federal Heritage Railway Station. Two national historic persons are commemorated in the park: Édouard-Gaston Deville, Surveyor General of Canada from 1885 to 1924 who developed the mapping technique known as photogrammetry, and Elizabeth Parker, who was instrumental in the creation of the Alpine Club of Canada.

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3. Planning context

Modern-day Yoho National Park lies within part of the traditionally used lands and waters of the Ktunaxa and Secwépemc peoples. The importance of strengthening relationships with Indigenous communities is one of the key issues identified in the State of the Park Assessment (Parks Canada 2018). This requirement is being addressed through collaborative efforts aimed at establishing working relationships between Parks Canada, the Ktunaxa Nation and five communities of the Secwépemc Nation, namely the Shuswap Band, Splatsin, Neskonlith Indian Band, Adams Lake Indian Band, and Little Shuswap Lake Band. The intent is to increase the inclusion of Indigenous perspectives in park management, and to work together on initiatives of mutual interest to support the Government of Canada’s commitment to reconciliation.

Yoho National Park is bisected by the Trans-Canada Highway and the Canadian Pacific Railway, both of which follow the Kicking Horse River Valley for most of their route (Map 2). The highway provides easy access for visitors to the otherwise rugged topography of the park and is the main road link between British Columbia and the rest of Canada. Annual traffic volume is more than 2.7 million vehicles (59 percent passenger vehicles, 41 percent trucks/buses) ^{Footnote 1}, with average summer traffic volume of over 14,000 vehicles per day. The park provides opportunities for visitors to connect with the unique natural and cultural heritage of the Rocky Mountains on the west side of the Continental Divide. Visitation to Yoho increased by an average of 3.1 percent per year between 2011 and 2020, reaching a total of 700,900 in 2019–20. The majority of these visitors stop at one or more of the scenic destinations in the park such as Takakkaw Falls, Emerald Lake, and Wapta Falls. These features are all located at the terminus of secondary roads. Consequently, the potential for traffic congestion and visitor crowding is a concern. Managing increasing demand is one of the key issues identified in the State of the Park Assessment.

The village of Field is located along the Trans-Canada Highway in the centre of the park. The Yoho Visitor Reception Centre provides park orientation and trip planning information, and interpretive exhibits on the Burgess Shale and Kicking Horse Pass National Historic Site (Spiral Tunnels). It is a busy place during the summer months, and includes a small pond and playground adjacent to the highway.

Between 2016 and 2020, the Government of Canada invested $141.5 million to support infrastructure work in Yoho National Park as part of the largest federal infrastructure plan in the history of Parks Canada. This investment was used to upgrade Kicking Horse Campground, improve critical highway infrastructure and the Field vehicle bridge, and to develop new staff housing in Field.

The Trans-Canada Highway in the park is an undivided two-lane road, except for a six kilometre four-lane section at the eastern boundary. The Trans-Canada Highway east and west of the park consists of a four lane divided highway. A design plan and environmental impact assessment for the twinning of the remaining section of this highway through the park has been completed (Wood 2021). This proposed expansion presents both challenges and opportunities that may influence park management over the life of this management plan.

The Canadian Pacific Railway also bisects the park, with the route closely following the Kicking Horse River for much of its length. The majority of trains travelling through the park are transporting freight to and from the Port of Vancouver. Commodities regularly carried include hazardous goods and potential wildlife attractants such as grains and legumes. Specialized passenger sightseeing rail service is offered by the Rocky Mountaineer during snow-free months, although there is no opportunity for visitors to disembark in the park.

The presence of these two national transportation corridors through the principal river valley of the park presents challenges for park management. Wildlife mortality due to vehicle strikes on both the highway and railway is an important issue. The transportation of hazardous materials through this mountainous corridor heightens the risk of toxic spills and environmental contamination. Both corridors also act as vectors for the introduction of non-native vegetation.

Important conservation challenges identified in the State of the Park Assessment (Parks Canada 2018, 2019a) include the need to improve the ecological integrity of both forest and aquatic ecosystems. Fire suppression throughout most of the 20th century has created a forest that is less diverse than expected in both age and species composition. This older, more uniform forest is more vulnerable to catastrophic wildfire, insects and disease. Forest ecosystems may also be affected by climate change in various ways, including alteration of the fire regime, changes in species composition and distribution, and a shift toward more open forest types over time. Returning fire to the landscape is important to initiating the process of forest ecosystem restoration and adapting to climate change.

Aquatic ecosystems have also been affected negatively over a period of decades by the stocking of non-native fish, and the loss of aquatic connectivity due to historic road and rail construction practices that created barriers to fish passage on many streams. Restoring the ecological integrity of aquatic ecosystems will require improvements to aquatic ecosystem connectivity and the restoration of native fish species in key habitats.

Climate change will present a significant challenge to the park over the next decade. Surface air temperatures in the region have risen by 1^oC over the past 100 years (Walker and Pellatt 2008). Climate change models predict an increase in annual mean temperature for the park of 4^oC to 8^oC and an annual increase in precipitation of 200 to 300 millimetres by 2100 ^{Footnote 2}. Changes of this magnitude will require adaptive responses to address potential impacts on the natural and cultural resources of the park.

Regional landscape connectivity and ecosystem function is potentially affected by land use pressures both within and beyond park boundaries. The Town of Golden, located 20 kilometres west of the park, is dependent on resource industries and tourism. Forest harvesting, accompanied by extensive road development, is an important economic activity occurring near the western and northern park boundaries. Adventure tourism operations are expanding in the region, and include lodge-based and day trip heli-skiing, heli-hiking, heli-biking, snowmobiling, off-road vehicle tours, mountain biking, ski touring, and hiking. Two open-pit silica mines have been developed in the Columbia Valley west of the park boundary. Collaborative efforts will be required to protect biodiversity and maintain regional landscape connectivity.

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4. Development of the management plan

This plan was developed concurrently with the management plans for Kootenay, Banff, Jasper, Waterton Lakes, Mount Revelstoke and Glacier national parks, as these places share many of the same challenges, opportunities, stakeholders and visitors. This synchronized approach allowed for landscape-level coordination for protecting resources, managing visitor use and other key aspects of Parks Canada’s work. The plan was developed with input gathered during two phases of engagement from the Ktunaxa Nation, Secwépemc Nation (Shuswap Band, Splatsin, Neskonlith Indian Band, Adams Lake Indian Band, and Little Shuswap Lake Band), stakeholders and the general public. During the first phase of engagement in 2019, the Let’s Talk Mountain Parks online platform provided background information on the 2018 State of the Park Assessment and the management plan review process, and sought input on the park vision, issues and opportunities. Additional engagement activities specific to Yoho National Park included discussions with Indigenous groups, stakeholder workshops in Golden and Field, outreach events at Kicking Horse Mountain Resort and the Golden Farmers’ Market, and a webinar with Campus Club members at Vancouver Island University.

During the three-month engagement period, more than 400 people were actively engaged on the Yoho National Park pages of Let’s Talk Mountain Parks. Canadians shared a wide variety of ideas and perspectives on issues and opportunities, both in person and online, ranging from broad landscape-level conservation to specific operational input. All feedback was considered in the development of the draft management plan.

In the second phase of the engagement program, the draft management plan was offered to Indigenous communities, stakeholders and the general public for further review and comment. Valuable input was received from representatives of the Secwépemc Nation and the Ktunaxa Nation. This second phase public and stakeholder engagement program ran for a three-month period from April to July 2021 on the Let’s Talk Mountain Parks website and included a survey and other engagement tools. Parks Canada also hosted numerous online video conference sessions to present the draft plan and gather input. More than 500 comments and suggestions were received during this engagement. All input received from Indigenous communities, stakeholders and the public was analyzed and considered in the preparation of this final management plan.

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5. Vision

In the desired future of Yoho National Park, Ktunaxa and Secwépemc peoples—who have been connected to this place for thousands of years—continue to be part of the land, guided by their traditional laws and stewardship, and have a meaningful role in the management of this special area.

Forest ecosystems influenced by wildfire and other natural processes and cultural practices are of varied composition and age, making them more resilient to the effects of climate change. A diverse array of native wildlife has secure habitat and movement pathways connected to regional landscapes. Native fish and other organisms move freely through aquatic ecosystems that are not affected by pollution, unnatural barriers or non-native competitors.

Visitors to Yoho National Park discover a treasured mountain heritage area where they are able to engage in activities rooted in the park’s distinct wilderness landscapes, history and cultures. Yoho’s human history includes ancient Indigenous stewardship, intertwined with European exploration of the continent, settlement and the building of the railway. Visitors are able to learn of the enduring connections of Indigenous peoples to these ancestral lands, and recall the thunder of the railway locomotives as they follow in the footsteps of visitors before them. Visitors to the Spiral Tunnels, Twin Falls Tea House National Historic Site, Kicking Horse Pass National Historic Site, and the village of Field are able to experience tangible cultural resources that preserve a unique sense of place related to this important period in Canada’s history.

The Burgess Shale, one of the world’s most important palaeontological resources, is recognized as a model of stewardship that supports scientific research, visitor experience and educational outreach. Rigorous protection, controlled access, engaging exhibits and a virtual museum are used together to protect and present these exquisite treasures.

As a key link in the regional ecosystem, Yoho provides critical movement corridors for wildlife, connecting habitat in British Columbia and Alberta. Fire continues to shape the landscape, and visitors have opportunities to witness the process of forest regeneration and learn about the importance of fire in forest ecosystems and its role as an adaptive response to climate change. Collaboration with neighbouring parks and other land managers broadens the impact of individual efforts. The park is recognized for its evidence-based decisions grounded in scientific understanding and Indigenous knowledge, and is an active participant in the conservation and management of the regional ecosystem.

The community of Field thrives in its role as an eclectic and unique mountain town that respects the ecological and cultural importance of its national park setting. The community supports the well-being of residents, and provides accommodation facilities and services that support memorable experiences throughout the park.

Visitors come to experience outstanding nature and culture-based activities, including some of the best alpine hiking, climbing, and ski touring opportunities in North America. Intrepid visitors find opportunities for wilderness adventures requiring skill, experience and self-reliance, while new or more casual visitors are able to experience a taste of adventure supported by safe, accessible and inclusive park facilities. Increasing visitation to the most popular locations in the park is actively managed to provide high-quality experiences based on the park’s unique history and landscape, while protecting park ecosystems and maintaining secure habitat for wildlife.

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6. Key strategies

The following key strategies outline the broad approaches that will be used to manage Yoho National Park consistent with the mandate of Parks Canada and its inscription as part of the UNESCO Canadian Rocky Mountain Parks World Heritage Site. They describe how the main challenges and opportunities identified for the park will be addressed over the next five to ten years. To implement these key strategies, Parks Canada is committed to working collaboratively with Indigenous Nations who have traditionally used the lands and waters in the area of the park. This work is dependent on the capacity, interests and protocols of those Nations, and Parks Canada will work with them to identify how they want to participate in park management.

Each key strategy includes objectives that describe the desired outcomes. Targets identify tangible steps that demonstrate measurable progress toward achieving each objective. Targets have been prioritized with specific dates where feasible. Where no dates have been referenced, the target will be achievable over the period of the plan based on opportunities, and the priorities and capacity of the Agency. Parks Canada will report to Indigenous partners, stakeholders and Canadians annually on plan implementation. Barring the unexpected, the commitments in the plan are feasible within the park’s funding and human resources capacities. Implementation of these strategies in an integrated manner will move the park closer to achieving the vision for Yoho National Park.

The key strategies represent Parks Canada’s planned approach to park management for the next five to ten years. The park, however, is part of a dynamic landscape with natural variability and uncertainties. Consequently, Parks Canada will use an adaptive management approach, where new knowledge, monitoring results, and new technologies may contribute to refining or re-thinking strategies over time to improve management effectiveness.

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Key strategy 1: Conserving natural and cultural heritage for future generations

The protection of natural and cultural resources, park landscapes and ecological integrity is core to the reason for the park’s existence. Parks Canada’s approach to conserving these important aspects will be guided by an understanding of and respect for significance of place, ecological integrity and cultural values. Knowing that uncertainties exist, Parks Canada’s ecosystem management, conservation and restoration initiatives will be built on the best available science and Indigenous knowledge, in support of a precautionary, adaptive approach that provides for evolution of management policies and practices based on the monitoring of outcomes.

The maintenance or restoration of ecological integrity is the legislated first priority of park management. This priority has been at the forefront of many innovative initiatives to conserve and restore park ecosystems, from managing fire on the landscape to reconnecting terrestrial and aquatic habitats. This strategy builds on these conservation successes and establishes priorities for components of park ecosystems that require management attention.

In Yoho, restoring the role of fire as a key process in forest ecosystems will be a priority over the next ten years. Through intentional actions such as prescribed fire and managed wildfire, park managers will strive to increase the natural diversity of forests and grassland areas, with a long-term goal of restoring 50 percent of the historic fire cycle. Forests affected by frequent fire will be more diverse in age and composition, which will provide a greater range of wildlife habitat and increase ecosystem resilience to stresses such as insects, disease, and climate change.

Management attention will also focus on improving the ecological integrity of aquatic and terrestrial ecosystems, managing species at risk and non-native invasive species, and maintaining landscape connectivity, especially across the Trans-Canada Highway. Parks Canada will use active management techniques to restore ecosystems where they are degraded. Grizzly bear habitat security models will continue to be used as a tool for maintaining good quality wildlife habitat (see Appendix A). Where the long-term needs of grizzly bear populations are met, it is assumed that the needs of many other wildlife species will also be met.

The mountain parks are rich in human history and cultures. Indigenous stewardship and connection with this place has existed since time immemorial. An era of European exploration began in the 19th century, followed by nation-building, tourism development and the birth of a national conservation ethic in the 20th century. Cultural resources associated with this past and present human use may include built structures, landscapes, objects, stories, songs, art, practices, and other elements of intangible value. Their protection is important as they represent our collective experience and values, and they shape who we are today. Parks Canada will focus on identifying the park’s cultural resources and understanding their significance from both a western and an Indigenous perspective. These resources will be cared for responsibly, and presented in a culturally appropriate, accessible manner that gives them meaning in the contemporary world while respecting their historic character.

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Key strategy 2: True-to-place experiences

National parks provide exceptional opportunities for Canadians to develop a sense of connection to their natural and cultural heritage. The opportunity to be immersed in nature, history and diverse cultures while surrounded by wilderness and mountain landscapes is truly distinctive. Maintaining the authenticity and quality of this experience while ensuring that visitors understand its uniqueness is central to Parks Canada’s mandate. Visitor opportunities will be characterized by ecological sustainability and recognition of diverse visitor motivations and expectations. Activities and communications will be designed to advance understanding and stewardship of natural and cultural resources, encouraging all to share the responsibility of conserving these special places.

In Yoho National Park, visitor satisfaction remains high. However, steadily increasing visitation means that Parks Canada must actively attend to the challenges that come with demand for finite spaces to ensure that visitation levels are sustainable. This strategy focuses on maintaining the outstanding mountain experiences for which the park is known, supported by essential facilities and services that respect the park’s unique sense of place. Successful implementation of this strategy will require the collaboration and support of stakeholders and partners.

Parks Canada will adapt to changing demand and respond to the needs of visitors in ways that provide equitable access to the nature- and culture-based experiences in the park. Visitor use management approaches will be evidence-based and will contribute to achieving ecological integrity objectives and ensure that visitors have predictable access to safe and enjoyable experiences in a way that advances sound environmental stewardship of this special place. Communication throughout the trip cycle will allow visitors to plan their experiences, be prepared, and arrive with the right expectations.

Visitation will continue to be concentrated in several high-demand areas of the park such as Takakkaw Falls, Emerald Lake, and Field. Carefully controlled visitor access will continue to be managed in the Lake O’Hara area and at Burgess Shale sites to support protection of unique and sensitive resources. Other popular day-use hiking and sightseeing options will be maintained at Sherbrooke Lake, Wapta Falls, Natural Bridge, Mount Hunter and Hoodoos trails. Park maintenance and trail crew resources will be focused on supporting these experiences. The vast majority of the remainder of the park landscape will be protected in wilderness areas with low levels of human use. Visitation in high-use areas will be managed to reduce traffic congestion, prioritize public safety and provide quality experiences. Infrastructure investments will focus on improving accessibility and creating an inclusive environment for staff and visitors. Whether in busy roadside locations or in remote wilderness areas, visitor facilities will be planned, designed, located and maintained to facilitate quality experiences, support ecological integrity, and provide long-term asset sustainability.

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Key strategy 3: Strengthening Indigenous relations

The Government of Canada has committed to deepen and strengthen relationships with Indigenous peoples. Accordingly, many places administered by Parks Canada are managed through cooperative management bodies or advisory relationships with local Indigenous communities. These structures recognize the important and ongoing roles and responsibilities of Indigenous peoples as stewards of heritage places. With approaches founded on renewed relationships, respect and cooperation, the mountain national parks will continue to recognize Indigenous connections and work with Indigenous peoples to advance priorities of mutual interest.

Yoho was among the first national parks established in Canada, during a time when Indigenous peoples were often separated from their traditional lands and waters. Today, Parks Canada is working to reverse that legacy by recognizing Indigenous connections and building working relationships.

Reconciliation will be given meaning through collaborative approaches that address the interests and priorities of diverse Indigenous groups and cultures. This work will promote the reconnection of Indigenous peoples to their traditionally used lands and waters within the park, support Indigenous voices in sharing Indigenous cultures and histories, support initiatives to protect and care for park lands, and facilitate participation in the economic opportunities associated with this special place. Parks Canada’s work with Indigenous communities in Yoho National Park also supports broader Government of Canada initiatives, such as implementation of recommendations by the Truth and Reconciliation Commission, and efforts toward the implementation of the United Nations Declaration on the Rights of Indigenous Peoples.

The delivery of Parks Canada’s mandate will be enhanced by bringing Indigenous perspectives into park management and operations, and by working with Indigenous communities to identify and present Indigenous culture, history and stories. The objectives and targets below are intended for implementation throughout the life of this plan, as the capacity, priorities and interests of Indigenous partners allow.

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Key strategy 4: Connecting with canadians within and beyond the park

Yoho National Park is part of the heritage of all Canadians. Parks Canada strives to make this natural and cultural heritage better known through engaging programs and educational content that helps to build a sense of connection. As people come to understand this heritage, they will come to value and support national parks in the future, and be inspired to engage in conservation and stewardship activities wherever they may live. This strategy focuses on providing learning programs and services to park visitors while reaching out to Canadians where they live to connect them with this special place. Parks Canada will work to adapt to the changing ways Canadians interact with national parks by providing natural and cultural heritage interpretation in various formats to park visitors, and connecting with other Canadians through the technologies they use wherever they are.

Visitors to the park will have a range of opportunities to observe, learn and participate in interpretation programs that deepen their understanding and connection to this place. Canadians unable to visit will have increasing opportunities to learn about Yoho’s protected heritage and Parks Canada’s conservation programs. Efforts to reach beyond park boundaries will focus on using technology to reach Canadians in urban centres. By connecting with Canadians who may never visit Yoho National Park, Parks Canada will increase support for the protection of the natural and cultural heritage of these places.

Connecting with park visitors and Canadians who are not in the park will also help to develop ecological and cultural literacy, build support for management actions aimed at preserving natural and cultural heritage, and raise awareness of the need to promote stewardship, strengthen Indigenous relations and adapt to the effects of climate change.

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Key strategy 5: Managing development and park communities

Ecological integrity will be the first priority in park management, including managing development or redevelopment. Parks Canada’s approach will be transparent and consistent, and will continue to respect limits, zoning and declared wilderness designations. Any development considered must demonstrably support the vision and objectives of each park as described in its park management plan. Development will facilitate greater awareness and connection to natural and cultural spaces and aim to protect for future generations the qualities that make these places distinctive.

Parks Canada has a well-established framework of limits to growth in the mountain national parks, consisting of legislation, regulations and policy dating back to the 2001 amendments to the Canada National Parks Act. This framework is a central element of Parks Canada’s approach to maintaining or restoring ecological integrity and providing exceptional visitor experiences. The framework includes growth limits for the overall footprint and maximum allowable commercial floor space within townsites (Field); development limits for outlying commercial accommodations (OCA) which prescribe the opportunities, constraints and maximum build-out for each hotel and hostel in the park (OCA Guidelines); the National Parks of Canada Wilderness Area Declaration Regulations that apply to 97 percent of Yoho National Park and prohibit commercial development or activities that would impair the wilderness character of the area; and the park zoning system that also restricts development and activities in wilderness and special preservation zones (see section 8.1). In this regard, Parks Canada is developing new regulations and guidelines to implement a modernized planning permit process to ensure transparent and consistent decision-making when reviewing proposed projects.

As centres for visitor services, townsites in the mountain national parks play an essential role in delivering Parks Canada’s mandate. There will be continued respect for established spatial and development limits, and national park communities will provide services and facilities that directly support broader park objectives and are characterized by environmentally sustainable practices.

Developed infrastructure in Yoho National Park includes the village of Field, several outlying commercial accommodations, four huts operated by the Alpine Club of Canada, a hostel, the Trans-Canada Highway, the Canadian Pacific Railway, utility corridors, gravel pits, park campgrounds, day-use areas, trails and backcountry patrol cabins. Many of these facilities provide important staging areas for visitors exploring the park. The majority of these facilities are also located within montane and valley bottom habitat, which is also the most biologically productive. Respect for established growth limits and careful management of activities within these areas are essential to ensuring that these habitats remain ecologically functional.

Wilderness areas will be managed to maintain wilderness character. Wilderness experiences will range from places supported by well-maintained, rudimentary infrastructure such as trails and backcountry campsites, to more remote opportunities requiring a high degree of self-reliance and wilderness travel skills, where there is little or no built infrastructure. Asset investment will focus on supporting key backcountry opportunities in popular areas. Maintaining ecological integrity, wildlife habitat security and movement corridors will be paramount considerations in wilderness areas with little or no infrastructure.

The goal of this strategy is to ensure that the park’s distinctive landscape and wilderness areas are protected intact for future generations, while allowing for appropriate development that considers the needs of visitors. Yoho National Park will rigorously apply land use and development regulations and policies to ensure the protection of natural and cultural heritage. Parks Canada will also manage existing and proposed commercial guiding services to ensure permitted activities and patterns of use are consistent with ecological and visitor experience objectives.

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Key strategy 6: Regional connectivity and landscapes

The mountain national parks will strive to contribute to landscape-scale conservation in Canada by being ecologically and socially connected across boundaries. Many aspects of park management such as ecological restoration, emergency preparedness, climate change mitigation and adaptation, wildlife corridors, and tourism function over a broad region within and beyond park borders. Parks Canada will aim to maintain and expand regional collaboration to better monitor, understand and address these and other landscape-level issues.

The Government of Canada has established biodiversity goals that include doubling the amount of nature protected in Canada’s lands and oceans, and a commitment to work with others to restore habitats for species at risk and to improve Canada’s natural environment. To support these goals, the Government of Canada invested an historic $1.35 billion in 2018 to support work with governments, Indigenous groups, non-profit organizations and others.

Parks Canada will support this effort by working collaboratively with others in the region to promote landscape-scale conservation, and to help ensure protection and presentation of the Canadian Rocky Mountain Parks World Heritage Site. This work will focus on preserving ecological integrity in the Rocky Mountain region through initiatives such as the restoration of fire as an ecosystem driver, protection of regional habitat and wildlife corridors for wide-ranging species like grizzly bear and wolverine, recovery of species at risk such as whitebark pine and little brown myotis, restoration of native fish, and control of aquatic invasive species. Working with others beyond park boundaries will foster the next generation of park stewards so they can continue to advance landscape-scale conservation in the region.

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Key strategy 7: Climate change and adaptation

The mountain national parks were established to protect and represent specific features of Canada’s natural heritage. They include some of Canada’s most significant landscapes and natural and cultural resources, which are already affected by climate change. As such, these parks offer excellent opportunities to contribute to an understanding of climate change and its impacts over time. Parks Canada is committed to protecting park ecosystems for future generations by demonstrating leadership in sustainable operations and adaptive management in response to climate change impacts. The mountain national parks will continue to collaborate with others on climate change research, monitoring and education.

Climate change is evident in the dramatic recession of glaciers in the mountain parks, but may also be observed in other changes to the landscape and park ecosystems, and degradation of cultural resources. As the climate warms, changes in hydrological flow patterns may occur that can affect various aspects of aquatic ecosystems. Changes in the amount and patterns of winter snow accumulation may alter patterns of avalanche activity, leading to changes in local vegetation patterns. A warmer climate may result in hotter, drier summers with a corresponding increase in the frequency and severity of wildfires and the length of the wildfire season. The area of montane, subalpine and alpine ecosystems may fluctuate. The duration of the summer season may increase, resulting in changes to wildlife movement, habitat use and visitor use patterns. Intense weather events may affect patterns of erosion and deposition, putting park infrastructure and cultural resources at risk, and straining the park’s capacity to maintain safe and enjoyable opportunities for visitors.

The four contiguous mountain parks protect a vast mountain landscape with considerable variation in both latitude and elevation ^{Footnote 3}. The resulting landscape diversity may provide important refugia for biodiversity as the climate warms and habitats shift.

The park will continue to monitor key ecological parameters, seek and support Indigenous knowledge and scientific research to identify and understand the scope of local climate changes, and identify potential challenges and opportunities for park management. This will provide the basis for developing and implementing adaptation strategies that will increase the park’s resilience to the effects of climate change. The park will also demonstrate leadership in combatting climate change by working with others to reduce carbon emissions generated within the park, and by investing in energy efficiency and renewable energy systems.

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7. Management areas

Upper Yoho and Little Yoho Valley

The upper Yoho and Little Yoho Valley area consists of the Takakkaw Falls day-use area and campground, and the upstream wilderness area encompassing the watersheds of the upper Yoho and Little Yoho rivers. The Takakkaw Falls day-use area is one of the most popular destinations in the park. It includes picnic sites, washroom facilities, and a trail accessible for all abilities leading to the base of the falls. Roofed accommodation is available at the nearby Whiskey Jack Hostel. The Takakkaw Falls Campground is a walk-in campsite 400 metres from the parking area, providing easy access to overnight accommodation on the edge of a wilderness valley.

The wilderness area upstream of Takakkaw Falls extends eastward to the Banff National Park boundary. The area includes the entire Yoho portion of the Wapta and Waputik Icefields and is bounded on the west by the height of land between the Yoho River and Amiskwi River watersheds. Its boundary to the southwest extends to Yoho Pass and includes the Iceline Trail and the Yoho Lake/Yoho Pass trail (Map 3).

This wilderness area encompasses approximately 17,300 hectares, or roughly 13 percent of Yoho National Park. There are currently more than 6,000 hectares of year-round snow and ice within the area. These icefields, which provide significant input to the Yoho and Kicking Horse River watershed, are receding (Marshall et al. 2011, Demuth et al. 2008).

There are approximately 46 kilometres of designated hiking trails, including popular routes in the forested valleys of the Yoho and Little Yoho rivers, and the Iceline, Kiwetinok Pass and Yoho Glacier trails that climb above the treeline into glaciated alpine terrain. This wilderness area includes four backcountry campgrounds: Laughing Falls, Twin Falls, Little Yoho Valley, and Yoho Lake. The Little Yoho Campground is located within a riparian zone subject to occasional flooding and erosion. Camping facilities at Twin Falls and Laughing Falls are deteriorating and require maintenance.

Roofed accommodation is available at four huts operated by the Alpine Club of Canada (ACC). Year-round accommodation is available at the Stanley Mitchell Hut in the Little Yoho Valley. During the summer months, Twin Falls Teahouse National Historic Site has traditionally offered limited overnight accommodations. A new licence of occupation for this facility has been issued to the ACC for operation as an overnight mountain hut with limited food service. The Louise and Richard Guy Hut and the Scott Duncan Hut both provide accommodation in winter only. Together with the Bow Hut and Balfour Hut in Banff National Park, these huts support two of the most popular backcountry ski traverses in western Canada—the Wapta Traverse, and the Yoho Traverse. All of these facilities are serviced by helicopters that fly in fuel and fly out human waste. There is also a Parks Canada backcountry cabin near the Stanley Mitchell Hut. Wildfire risk reduction work has been carried out around several of these facilities in recent years.

The area is accessed via the Yoho Valley Road which is open from approximately late June to early October depending on snow conditions. This 13-kilometre narrow, winding mountain road provides a dramatic scenic drive, but the popularity of the area means that traffic congestion can be a problem during the short summer season. The road is closed in the winter and becomes a ski route for visitors touring into or out of the valley.

The upper Yoho Valley is within the Yoho/Emerald Landscape Management Unit which currently has an estimated habitat security value of 55 percent, below the management target of 68 percent. Without significant changes to human use this target will not be attained. This is the most popular area in the park for day-use visitation and backcountry camping. Parks Canada will strive to maintain current habitat security by restricting further trail development and maintaining existing low to moderate levels of overnight visitation.

Wilderness character

Wilderness character is defined by ecological, experiential, and wilderness management objectives, and the associated types of facilities, services and recreational uses that are permitted within a given area. The Yoho and Little Yoho valleys provide easily accessible opportunities for visitors to experience the natural landscape of Yoho National Park. It includes the park’s most popular backcountry camping areas and is also one of the busiest locations for day hiking. The area protects a natural landscape without roads, where ecological processes function with minimal human management, but within a matrix of moderate to high human use during the summer. Links with neighbouring landscapes preserve ecological connectivity. Parks Canada will manage this area to maintain natural characteristics where the sights, sounds, and smells of wild nature predominate.

The Yoho–Little Yoho Wilderness Area will be managed to maintain the following characteristics:

• a large wilderness landscape maintained in a natural state with minimal intrusion of infrastructure or technology;
• a moderate degree of self-reliance required of visitors during the summer;
• a high degree of self-reliance required of visitors during the winter;
• a well-maintained trail network with designated, hardened campsites and human food and waste management facilities;
• bridges over all major watercourses;
• high human use around Takakkaw Falls, and moderate human presence in the core area in summer, where visitors can expect to encounter other people frequently most days;
• light human presence in the summer on the fringes such as the Yoho Glacier and Kiwetinok Pass trails, where visitors can expect to encounter other people infrequently and opportunities for solitude and feelings of remoteness are possible; and
• light human use during the winter, where solitude is the norm except in the vicinity of the overnight huts, meaning a high degree of self-reliance is required.

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8. Zoning and declared wilderness area

Zoning

Parks Canada’s national park zoning system is an integrated approach to the classification of land and water areas in national parks and designates where particular activities can occur on land or water, based on the ability to support those uses. The zoning system has five categories:

• Zone I – Special Preservation;
• Zone II – Wilderness;
• Zone III – Natural Environment;
• Zone IV – Outdoor Recreation; and
• Zone V – Park Services.

The zoning plan for Yoho National Park is described below and is illustrated in Map 4. The current zoning plan is unchanged from the version presented in the 2010 park management plan, with the exception of the following housekeeping amendments:

• The Zone III area at the north end of Emerald Lake was refined to correct a mapping inaccuracy.
• The Zone III corridor along the Great Divide Trail (old 1-A Highway) was adjusted to correct an inaccuracy in the buffer width and make it consistent with the adjacent zoning in Banff National Park.

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Wilderness area declaration

The intent of legally designating a portion of a national park as wilderness is to maintain its wilderness character in perpetuity. Only activities that are unlikely to impair the wilderness character of the area may be authorized within the declared wilderness area of Yoho National Park. Public motorized access is not permitted. Infrastructure within declared wilderness is restricted to rudimentary facilities such as trails and campsites intended to support wilderness experiences.

In Yoho National Park, the majority of Zone I and Zone II areas have been legally declared as wilderness areas by the National Parks of Canada Wilderness Area Declaration Regulations (SOR/2000 – 387). This area encompasses 1,256 square kilometres, or 97 percent of Yoho National Park.

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9. Summary of strategic environmental assessment

All national park management plans are subject to a strategic environmental assessment to understand the potential for cumulative effects. This understanding contributes to evidence-based decision-making that supports the maintenance and restoration of ecological integrity over the life of the plan. The strategic environmental assessment of the management plan for Yoho National Park considered the potential impacts of climate change, local and regional activities around the park, expected increases in visitation and proposals within the management plan. The strategic environmental assessment assessed the potential impacts on different aspects of the ecosystem, including hydrology, aquatic communities, forest vegetation, alpine habitat, whitebark pine, carnivores, and mountain goats.

The management plan will result in many positive impacts on the environment, including the maintenance and improvement of ecological integrity within the park, collaborative initiatives to preserve habitat security and connectivity across the regional landscape, and strategies to lessen the impacts of visitors on the ecology of the park.

Ongoing monitoring, active management and restoration programs within the park will be used to mitigate potential cumulative effects on aquatic communities, whitebark pine ecosystems, hydrological function, and others. For example, the presence of a major transportation corridor through the park has had negative impacts on hydrological function and increases the risk of aquatic invasive species establishment. Future restoration activities planned to increase connectivity concurrent to highway upgrades, and communication strategies to reduce the likelihood of aquatic invasive species establishment will be effective in restoring this ecological parameter, while reducing the impacts of future cumulative effects.

Forest vegetation, carnivores and mountain goats are particularly vulnerable to cumulative effects. Years of fire suppression have had an impact on forest communities, effects which may be further exacerbated by climate change. Yoho will prioritize restoring fire as a key process in forests through wildfire management and implementing prescribed burns. Monitoring has shown large mammal presence on the landscape is at desired levels, and grizzly bear habitat is generally secure in Yoho. Cumulative effects of a major transportation corridor, a townsite, and increased visitation will pose challenges to carnivores over the next ten years. The management plan identifies several objectives under Key Strategies 1 (Conserving Natural and Cultural Heritage for Future Generations), 2 (True-to-Place Experiences) and 5 (Managing Development and Park Communities) to maintain and improve habitat security and connectivity, such as working with partners to reduce mortalities and improve regional connectivity, and managing the intensity of human use in priority areas. There is uncertainty on the status of mountain goats in Yoho, and both visitation and climate change have the potential to impact this species. Continued monitoring and establishment of regional partnerships to support landscape-level conservation will increase their resiliency to climate change stressors.

Yoho National Park is part of the Canadian Rocky Mountain Parks World Heritage Site. The world heritage values for which it was designated were evaluated to ensure the management plan adequately protects them.

Indigenous partners, stakeholders and the public were consulted on the draft management plan and a summary of the draft strategic environmental assessment. Feedback was considered and incorporated into the strategic environmental assessment and management plan as appropriate.

The strategic environmental assessment was conducted in accordance with the Cabinet Directive on the Environmental Assessment of Policy, Plan and Program Proposals (2010) and facilitated an evaluation of how the management plan contributed to the Federal Sustainable Development Strategy. Individual projects undertaken to implement management plan objectives at the site will be evaluated to determine if an impact assessment is required under the Impact Assessment Act (2019), or successor legislation. The management plan supports a number of Federal Sustainable Development Strategy goals, namely:

• Greening government;
• Sustainably managed lands and forests;
• Healthy wildlife populations;
• Connecting Canadians with nature; and
• Safe and healthy communities.

Many positive environmental effects are expected, and there are no important negative environmental effects anticipated from implementation of the Yoho National Park management plan.

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10. References

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Appendix A – Habitat Security Model, Yoho National Park

Grizzly bears are widely accepted as an indicator of ecological integrity in mountain ecosystems. Parks Canada’s goal is to maintain a stable to increasing population of grizzly bears and to provide bears with safe access to available habitat. Grizzly bear habitat is secure when bears have a low probability of encountering humans and can forage with little human-caused disturbance, maintaining their wary behaviour, a trait considered desirable.

Secure habitat areas are defined as areas that are below 2,500-metre elevation, vegetated, greater than 500 metres from high human activity, and have continuous (non-fragmented) habitat equal to or greater than the 9 square kilometre average daily feeding area for a female grizzly bear.

Habitat security is reported by the Landscape Management Unit (LMU) in Yoho National Park (Figure 1). Each LMU approximates the size of an adult female grizzly bear’s home range and is delineated on the basis of current knowledge of grizzly bear distribution and typically encompass watersheds. These landscape units primarily identify contiguous habitat that meets the yearly foraging needs of grizzly bears and helps prioritize areas for management attention.

The habitat security model was updated in 2018 using the most recent available data. Table 1 illustrates the results by LMU, and Figure 2 illustrates the results for the whole park. Approximately 13 percent of the land base is considered unsuitable habitat for grizzly bears primarily because it is rock and ice (above 2,500 metre elevation). The 2018 results identify an average of 80 percent of available land across six LMUs as secure habitat. Five LMUs exceeded the minimum management target of 68 percent secure area. The lowest percentage of secure habitat occurred in the Yoho/Emerald management unit (55 percent). The Amiskwi unit had the largest proportion of secure habitat (100 percent).

An average of 19 percent of the land base across all LMUs was not secure because of high human activity. The largest percentage of land base in the zone of human influence occurred in the Yoho/Emerald (39 percent) and Kicking Horse (29 percent) management units. The percentage of land base not secure due to small patch size averaged 2 percent across all LMUs.