What we heard: Management plan consultation report, 2022

Table of contents

• Introduction and background
• Consultation and engagement process
• Who we heard from
• Participation
• Demographics
• What we heard
• Vision
• Key strategy 1: Managing conservation and climate change adaptation within a broader fragmented ecosystem
• Key strategy 2: Enabling access and enhancing a diverse and enjoyable visitor experience
• Key strategy 3: Strengthening Indigenous relations: sharing heritage and culture
• Key strategy 4: Building national park awareness and community: the invaluable treasures of the park are known
• Other feedback
• What we changed
• Appendix 1: Online comment card

Introduction and background

Parks Canada manages Canada’s system of national parks, national historic sites, national marine conservation areas, and Canada’s first national urban park. The mandate of the Parks Canada Agency is:

On behalf of the people of Canada, we protect and present nationally significant examples of Canada's natural and cultural heritage, and foster public understanding, appreciation and enjoyment in ways that ensure the ecological and commemorative integrity of these places for present and future generations.

The Canada National Parks Act (2000) requires that Parks Canada prepare and review management plans for each heritage place in its care at least once every 10 years. Management plans are developed through consultation with Indigenous peoples, partners, stakeholders and the public, and are intended to serve as the key accountability document to Parliament and to Canadians for Parks Canada management and decision-making.

What is now known as Georgian Bay Islands National Park lies within homelands that are significant to Indigenous peoples of the Great Lakes region, including Anishinaabeg, Haudenosaunee, Huron-Wendat, and Métis peoples. The park protects an iconic landscape appreciated by all Canadians and a cultural landscape that reflects the connections that Anishinaabeg peoples of the southern Georgian Bay region have to these lands and waters. For millennia, Beausoleil Island has been at an intersection for people traveling along the sheltered islands of Georgian Bay, and those travelling from central Ontario on what is now the Trent-Severn Waterway. Beausoleil Island, recognized as a national historic site in 2011, is the largest and most culturally significant island within the park, and the location of the park’s visitor facilities, such as docks, camping, accommodations and trails. Management of the national park and national historic site benefits from the advice of a Cultural Advisory Circle and other partnerships that support conservation, education and tourism.

Established in 1929, Georgian Bay Islands National Park is Canada’s smallest national park, consisting of 50 islands and properties covering a total area of 14 square kilometres. The park is located approximately 160 kilometres north of Toronto, Ontario and is within a half-day’s drive for millions of Canadians. Park lands can only be accessed by boat, visitors arrive by private watercraft, commercial operators, or the park-operated DayTripper shuttle boat.

The island-based park is part of the world’s largest freshwater archipelago. This area is known as the 30,000 Islands and is a core protected area of the Georgian Bay Biosphere Reserve – a United Nations Educational, Scientific and Cultural Organisation (UNESCO) designation. The national park protects important habitat in Georgian Bay, providing a refuge for turtles, snakes, skinks and other plants and animals. The park is much loved for providing visitors with opportunities to enjoy nature.

Visitors connect with the rich natural and cultural heritage of Georgian Bay Islands National Park and Beausoleil Island National Historic Site through a wide range of activities, including: hiking, swimming, picnicking, canoeing, kayaking, docking opportunities, and overnight accommodation, as well as engaging interpretive presentations and special events. Parks Canada enjoys a strong partnership with two YMCA camps that operate on Beausoleil Island.

The management plan presents a 15-year vision for the park and national historic site and outlines strategies and objectives that will guide Parks Canada’s decisions.

Consultation and engagement process

During 2018 and 2019, the initial stages of the management planning process included completion of a scoping exercise and the State of the Park Assessment (2018) describing four themes needing to be addressed during the implementation of the new management plan and highlighting the current state of the park’s ecological integrity, cultural resources, external relations, Indigenous relations, visitor experience and built assets.

In order to facilitate meaningful opportunities to contribute to the development of the new management plan for Georgian Bay Islands National Park and Beausoleil Island National Historic Site, an engagement plan was developed utilizing in-person and online approaches to solicit input from Indigenous peoples, partners, stakeholders and the general public.

The engagement plan outlined two distinct phases:

Phase I: Consultation on vision elements and themes (Fall 2018-Winter 2019)

During this phase, initial letters soliciting participation were sent to Indigenous partners and surrounding communities including the Beausoleil First Nation, Chippewas of Rama First Nation, Chippewas of Georgina Island First Nation, the Georgian Bay Métis Council, Potawatomi of Moose Deer Point First Nation, Shawanaga First Nation, Wasauksing First Nation, Wahta Mohawks Council, and the Huron-Wendat Nation. The letters introduced the planning process and enquired about how the communities would like to be involved with development of the draft management plan.

In 2019, Parks Canada met with representatives of the Chippewas of Rama First Nation, Chippewas of Georgina Islands First Nation, Beausoleil Island First Nation, and the Huron-Wendat First Nation in Wendake, Québec, to outline key issues and potential vision elements. Initial feedback informed a management plan discussion paper shared with all Indigenous partners and key stakeholders inviting comments on priority considerations, opportunities, and the proposed vision. Feedback was also received through a visioning exercise with the park’s Cultural Advisory Circle. The advisory circle includes representation from many of the surrounding Indigenous communities, and has provided guidance and many Indigenous perspectives to park management, cultural resources, languages, and programming for the past 20 years.

The Parks Canada planning team then gathered general feedback on vision elements and themes from visitors to the National Park and National Historic Site through a Visitor Information Program Survey conducted at the park in the summer of 2019.

Based on the results of the State of the Park Assessment (2018), initial feedback from partners and stakeholders, and a review of the 2010 Management Plan for Georgian Bay Islands National Park, a draft vision and four key considerations for the future of the national park and national historic site were identified and summarized in the draft management plan:

• Managing conservation and climate change adaptation within a broader fragmented ecosystem;
• Enabling access and enhancing a diverse and enjoyable visitor experience;
• Strengthening Formal Indigenous relations - Sharing heritage and culture; and
• Building awareness and community support - The invaluable treasures of the park are known.

Phase 2: Consultation on draft management plan (2022)

In March 2020, in consideration of the global COVID-19 pandemic, Parks Canada temporarily suspended consultations related to management planning. In early 2022, consultation resumed with Indigenous partners and other external stakeholders to the national park and national historic site.

In the second phase, the draft management plan was shared with Indigenous leadership and council of the nine First Nations expressing interest, inviting comment from their elected council, staff, and community members. Letters and phone calls were conducted to encourage participation and answer questions, various avenues to provide feedback were made available via virtual meetings, phone calls, online comment submission, through social media, or in writing.

Elected officials, community partners, and key stakeholders also received the draft management plan for comment, and all recipients were invited to a virtual meeting in March 2022.

Public consultation on the draft management plan was conducted with local, regional and national audiences between February 17 and April 19, 2022. During this time, the draft plan was accessible for review on the Georgian Bay Islands National Park website along with registration information for online consultation sessions. The website encouraged visitors to complete a comment card for ease of providing feedback on the direction proposed in the draft plan.

To ensure widespread feedback, public consultation was advertised in local newspapers, including the Midland Mirror, Barrie Advance, and Le Goût de Vivre, and a link to the online public consultation platform was posted on the Government of Canada’s Consulting with Canadians website. Consultation was also promoted on the park’s social media accounts, including paid Facebook advertisements targeted to local and regional communities and user groups, and relevant community pages.

Online consultation sessions were held with the Park’s Cultural Advisory Circle, partners and stakeholders, and the general public, including Indigenous community members, partners from environmental groups, YMCA camps, local marinas, cottage-owner associations, municipal and provincial government representatives, academia, students, many long-time visitors to the national park and national historic site, as well as a wide variety of other interested individuals. Three separate sessions were offered on separate days and different times so as to accommodate as many participants as possible.

The sessions included a presentation on management planning, followed by an opportunity for participants to interact with the park planning team, ask questions, and complete the online comment card. In the online comment card (Appendix 1), participants were asked to rank each proposed strategy and their respective objectives on a scale from 1 (not important at all) to 5 (very important). They were also given an opportunity to share feedback on the vision for the park, make suggestions for new visitor experiences, and submit suggestions for telling the stories of Beausoleil Island National Historic Site.

All input received through consultation was carefully analyzed and considered for the final management plan.

Who we heard from

Participation

A total of 35 individuals participated in the online consultation sessions. Parks Canada received a total of 183 comment cards as well as five written submissions. In addition to comment card responses and feedback received during the virtual consultation sessions, the planning team gathered feedback received during in-person sessions and through phone conversations. Parks Canada would like to thank all those who took the time to provide feedback.

Demographics

Postal code information submitted voluntarily through the comment cards indicated that Canadians from coast to coast to coast provided feedback on the draft management plan. The majority of the respondents identified as regional residents, followed by southern, northern and eastern Ontario, and the Greater Toronto Area.

People from all age categories took part in the consultation process with the majority of respondents (75%) identifying as being 45 years of age or older.

What we heard

Responses to the online comment card and feedback provided by phone, email, direct messages on social media, and through online consultation sessions, indicated that participants generally supported the proposed vision elements and four key strategies identified in the draft management plan.

Vision

Overall, responses were positive with over 79% of respondents supporting the proposed vision for Georgian Bay Islands National Park and Beausoleil Island National Historic Site. The remaining 21% of respondents mentioned the need for more specific actions, increased management of boats and docking, as well as a need for either increased or decreased access to Beausoleil Island. Many respondents mentioned the importance of protecting nature and biodiversity, along with respecting the history and heritage of Indigenous peoples. Overall, respondents wanted the plan to articulate conservation goals and objectives more clearly while balancing the visitor experiences enjoyed over generations.

When asked which vision elements resonated the most, many connected with the idea of the park being a welcoming place for all to gather for spiritual and physical connection with the natural world. Respondents mostly agreed with the emphasis on ecosystem conservation, protecting biodiversity, further integrating Indigenous Knowledge in decision-making, and involving Indigenous peoples, their cultures and heritage in the national park and national historic site.

Key strategy 1: Managing conservation and climate change adaptation within a broader fragmented ecosystem

The objectives under key strategy 1 received the strongest overall support; 90%-97% of respondents deemed them important.

Respondents expressed very strong support for maintaining or improving ecosystems and further protecting species at risk within the park. A desire to strengthen messages and language around ecological integrity, protection, and conservation, including awareness and control of invasive species, was expressed. Many participants acknowledged the importance of collaborating with regional conservation groups to achieve common conservation goals. Specifically, control of invasive phragmites was of particular concern, and working with partners on a regional mitigating approach was deemed essential. Strong support for further protection of critical habitats as refuge for biodiversity was noted, including concerns over further degradation and impacts related to over-use and over-development. The value of access to nature for visitors’ quiet enjoyment was made evident.

The majority of respondents agreed that impacts from climate change need to be better understood and mitigated, with climate change adaptation identified as one of the most important issues the park should focus on in the next ten years.

Recommended updates for the plan included a desire for clarified language around objectives and targets related to; protecting ecological integrity, elevating language regarding protections under the Species at Risk Act (SARA), including specified action plans, and increased collaboration with municipal, regional and academic partners, including the Ontario Invasive Plant Council.

Key strategy 2: Enabling access and enhancing a diverse and enjoyable visitor experience

The majority of respondents (80% to 89%) agreed with the objectives outlined in key strategy 2. While most participants generally agreed that Parks Canada should facilitate more inclusive visitor experiences, and improve access to the Park for each user group, there was some concern that increased accessibility would impede ecological integrity and create further degradation to the park’s unique landscape. Approximately 20% of respondents felt that development to welcome more visitors should not be allowed, with strong emphasis on biodiversity protections from increasing visitation. Others mentioned that increasing accessibility may equate to increasing risk for visitors who are not prepared for travel in more remote locations. Some mentioned that visitation should be available to a more diverse range of visitors without increasing overall visitor numbers. Overall, there was a desire for the park to develop strategies to facilitate meaningful experiences that emphasize park regulations, are respectful to the natural environment and fellow visitors, and that promote the quiet enjoyment of nature.

Many respondents shared frustrations related to boating including dock congestion and over-use, docking space monopolization by long-term stays, off-shore anchoring, noise problems and lack of enforcement. Some respondents wanted to see more reference to limits at Tobey Dock specifically. Issues with reservations, ease of payment, and options for online purchasing, were also identified. The issue of non-visitor boaters anchoring around the park, and the various ways boaters use Beausoleil Island and the surrounding waters, were identified by some respondents as “an elephant in the room” issue. Additionally, respondents offered suggestions around increasing access to the park for visitors without a boat, improving visitor facilities, and promoting access from Honey Harbour and other non-Parks Canada administered locations around Georgian Bay. During the online sessions, a need to improve outreach was identified, specifically toward boaters and cottagers, to stipulate more clearly the ecological significance of Georgian Bay Island National Park and Beausoleil Island National Historic Site.

Strong support for collaboration with partners to offer meaningful experiences at Georgian Bay Island National Park and Beausoleil Island National Historic Site was documented. Many mentioned the desire to see more interpretive programming, especially guided tours, visitor centre programs, interpretive signs on trails, and hands-on experiences. An interest in additional Indigenous programming was especially strong, and many respondents stressed the importance of including Indigenous peoples in their development and delivery; this is further elaborated in key strategy 3.

Key strategy 3: Strengthening Indigenous relations: sharing the heritage and culture

All objectives within key strategy 3 received strong support from respondents (77% to 90%), who expressed the importance of involving Indigenous peoples in Georgian Bay Island National Park and Beausoleil Island National Historic Site, including strengthened objectives and targets within this strategy. Parks Canada understands that the lands it administers are sacred and that facilitating Indigenous peoples’ connection to traditionally used lands and waters needs to be prioritized. Traditional use and sharing of traditional practices with future generations by Indigenous peoples was identified as being of utmost importance. Some respondents advocated for the “return of the land to Indigenous peoples”, increased use of Indigenous Guardian programs, and “Open Doors” access (free admission) for Indigenous partners. There was support for Indigenous-led programs, support for and sharing of traditional language and culture, and support for ongoing traditional ceremonies. Over 90% of respondents support increased use of Indigenous Knowledge into park operations and management. The majority of respondents also support increased employment opportunities for Indigenous peoples at Georgian Bay Island National Park and Beausoleil Island National Historic Site. Respondents mentioned as well that increased emphasis on Beausoleil Island National Historic Site should be made throughout the plan.

Key strategy 4: Building national park awareness and community: the invaluable treasures of the park are known

Respondents strongly agreed (91%-96%) that Canadians should be made aware of Georgian Bay Islands National Park, including Beausoleil Island National Historic Site, and their associated experiences and respective histories. They also acknowledged the importance of increasing community support and engagement as a result of stewardship projects with partners, stakeholders and visitors.

Feedback relating to key strategy 4 mostly echoed the comments around accessibility and potential over-use by visitors received in key strategy 2. While most participants generally agreed that Parks Canada should increase public awareness of the national park and national historic site, there was some concern that increased awareness would lead to increased visitation, which could damage ecological integrity.

Partners were especially looking for stronger language to reinforce the importance of collaboration in achieving specific targets, noting repetition of objectives between key strategies 1 (Conservation), 3 (Indigenous relations), and 4 (Outreach). Further clarification was requested to reduce confusion and sharpen focus on specific projects and initiatives.

Other feedback

Additional feedback was sought to allow for participants to expand on their responses, tell us more about issues that may not have been covered in the comment card, and to help inform visitor experience planning at the park.

Respondents contributed meaningful feedback when asked what Parks Canada can do to share the stories of Beausoleil Island National Historic Site. It was clear that many of those who participated in the consultation activities have strong personal connections to Beausoleil Island and wanted to ensure that visitors could learn about the significance of, and ultimately help protect, the national park and national historic site. Many respondents mentioned the need to improve Indigenous relations overall, working with Indigenous people, including elders, to share their traditions and culture. There was strong support for increasing interpretive programming, signs, and guided experiences, as well as working with partners to deliver tours.

When asked what they were most looking for in a visitor experience at Georgian Bay Islands National Park, including Beausoleil Island National Historic Site, most respondents indicated that they are looking for a quiet, peaceful setting (83.3%). Other popular responses included trails and hiking activities (77.3%), along with wildlife and nature viewing (68%). It is worthwhile to note that 60% of respondents chose boating/docking, with a large number of comments referencing this activity. Activities with lowest scores were cycling activities, snowmobiling, and virtual experiences.

Questions were also asked to gauge support for increasing access to the park for visitors who do not own a boat, implementation of a reservation system for mooring at park docks, and modernizing payment at park docks. The results were as follows:

When asked if they had ideas that would enable more people to access the park and its experiences, the majority of respondents mentioned changes were needed to boat access and docking at Beausoleil Island. Ideas included time limits for overnight docking, size limits on vessels, enforcement of regulations, reservable and non-reservable dock space, less dock space, eliminating season passes for boaters, and ensuring equal access for all visitors. Many respondents also suggested changes to park shuttle services currently offered and partnering with regional tourism partners to expand access for visitors without boats. Comments received have been included in the feedback under key strategy 2.

What we changed

Following the consultation period, the planning team analysed all input received during both phases of consultation and discussed key issues with the park management team.

Language around objectives and targets has been updated in the Plan to reflect the feedback and support submitted by many Canadians. Key changes include:

• Adjusted numerous targets to be more clear, targeted, meaningful.
• Increased priority of ecological integrity and peaceful enjoyment.
• Reduced repetitive wording, added plain language, added context on how management plans are used, and improved focus on priority initiatives.
• Stipulated collaborative partners, including environmental organizations such as the Ontario Invasive Plant Council, and other partners like YMCA camps, municipalities and academics;
• Increased clarity on operations and authorities (e.g. Honey Harbour as non-park, anchored boats not technically being visitors, and linkages to government-wide policies);
• Raised Indigenous significance of the land and waters to be at the beginning of executive summary;
• Added language to support Indigenous peoples’ connection to traditionally used lands, including “Open Doors” access, Indigenous-led interpretation, and support of language and culture;
• Increased emphasis on Beausoleil Island National Historic Site throughout;
• Added target for continued outreach with boaters and cottagers;
• Added language to emphasize that the national park/national historic site is a place for everyone.
• New text to describe zoning changes.

Some suggestions, particularly those related to boating and docking, were outside the scope of the management plan, and better addressed through the park’s Visitor Use Management Strategy and Visitor Experience Strategy. All comments received during consultation have been forwarded to the park operation team for their consideration.

The new shared vision will guide park management for the next 10 years as we work together to implement the key strategies, continue to maintain and/or improve ecological integrity, visitor experience, our relationships with Indigenous and local communities, and strengthen awareness of the national park and national historic site.

The management 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 Georgian Bay Islands National Park and Beausoleil Island National Historic Site in years to come.

Appendix 1

Online comment card