REVELSTOKE SNOWMOBILE STRATEGY
REVELSTOKE SNOWMOBILE STRATEGY
TABLE OF CONTENTS
1. Introduction/Scope of Study 1
1.1. Guiding Principles 2
1.2. Objectives of the Strategy 2
1.3. Scope and Deliverables 2
1.4. Methodology 3
1.5. Role of the Steering Committee 4
1.6. Timing 4
2. Analysis of Current Situation 4
2.1 Regulatory Framework 4
2.2 Stakeholders 4
2.3 Visitation 5
2.4 Economic Impacts 7
2.5 Trail System Management 7
2.6 Marketing 8
2.7 Carrying Capacity 8
2.8 Other Issues 9
3. Strengths, Weaknesses, Opportunities, Challenges 10
3.1 Strengths 10
3.2 Weaknesses 11
3.3 Opportunities 11
3.4 Challenges 12
4. Growth Projections 12
5. Environmental Issues 13
6. Strategic Directions 15
6.1 Trail maintenance and development 15
6.2 Marketing Plan 16
6.3 Infrastructure 17
6.4 Operational Business Plan 17
7. Recommendations 20
Appendices:
A Memorandum of Agreement for the Operation, Maintenance, and Management of the Boulder Mountain and Frisby Ridge Snowmobile Trails, 2000/2001
B 2000/01 Snowmobile Revelstoke Survey Results
C Caribou Research Findings
D Agreement Regarding Snowmobile Areas in the Revelstoke Area
E Reference Materials
ACKNOWLEDGEMENTS
Sincere appreciation is extended to the following Steering Committee Members for sharing their expertise and knowledge as well as being committed to the completion of this strategy.
Matt Singh, Chair City of Revelstoke
Larry Streeter Revelstoke Snowmobile Society
Ron LaRoy Revelstoke Snowmobile Club
Bob Brade Ministry of Environment
Jon Wilsgard Ministry of Forests
Rita Stacey Chamber of Commerce
Aaron Swaine / Todd Beernink Tourism Development Coordinator
Alex Szirmai Revelstoke Snowmobile Operators
Eric Scarcella Accommodations Provider
Penny Pasnak Local Business Representative
Corin Flood / April White/Pat Dunn Environmental Interests
Mike Loukopoulos Community at Large
Debra Wozniak/Alan Mason Economic Development Commission staff
1. Introduction/Scope of Study
Over the past 10-15 years, Revelstoke has become one of the premier snowmobile destinations in North America. Much of the infrastructure required for this activity to take place has been developed and maintained by the Revelstoke Snowmobile Club and the Snowmobile Revelstoke Society, both established as non-profit, volunteer organizations.
With the increased use of local snowmobile areas, it has become challenging for these volunteer organizations to sustain this infrastructure. The two societies have expressed concern that they no longer have the capacity nor resources to continue serving the needs of the local snowmobile industry based on volunteer efforts. It is important that the community provides support for this valuable commercial recreational activity which makes a considerable economic contribution to the local economy. It is also critical that any strategy designed to sustain and develop snowmobiling be developed in harmony with other back country users and social and environmental values.
The Revelstoke and Area Community Development Strategic Action Plan contains an objective of promoting and expanding existing tourism activities. A high priority was given to exploring opportunities and constraints related to snowmobile tourism. In April, 2001, the City of Revelstoke formed a Steering Committee to work with the Revelstoke Snowmobile Club and the Revelstoke Snowmobile Society to prepare a Revelstoke Snowmobile Tourism Management Strategy. The Steering Committee was given the task of developing an Action Plan and making recommendations regarding management of the Snowmobile Industry in our community.
The community wishes to develop this recreational activity strategically to ensure that the following issues are taken into consideration:
a) That the carrying capacity and ecological integrity of the land base is preserved.
b) That the ‘quality of experience’ of all backcountry recreational users and rural inhabitants is not compromised.
c) That sufficient parking with safe access is provided for in the event of expansion / relocation of the Trans Canada Highway.
d) That appropriate resources and infrastructure are developed to accommodate increasing demand for snowmobiling activity in our area.
e) That a communications plan is put in place to not only promote snowmobile tourism but to also inform snowmobilers of their responsibilities to other users and values.
f) That the Revelstoke Snowmobile Society has the capacity and resources required to continue providing snowmobile trail grooming, fee collection services and enforcement of rules and regulations pertaining to back country and trail use.
1 Guiding Principles
• The Strategy must have community ownership and must balance the needs of all stakeholders including the environment and will be based upon a consultative process.
• The Strategy will focus on management of the Snowmobile Tourism Industry and will interface with the needs of the Revelstoke Snowmobile Society, other recreational users and the environment.
• The Strategy will be prepared in close liaison with other community processes such as the MAC Land Use Plan and the Revelstoke and Area Community Development Strategic Action Plan.
• The strategy will be prepared based on generally accepted community economic development principles and it shall be flexible to respond to changing conditions and opportunities.
2 Objectives of the Strategy
b. Create a management plan that will allow the snowmobile tourism industry to grow within the constraints of the land base, environment, the needs of other recreational users and in harmony with the community’s ability to provide resources to service anticipated growth.
c. Develop a communications plan that will ensure the coexistence of this important economic activity with the environment and other recognized values and needs in our community.
d. Determine the need for infrastructure development including trail development, staging areas, parking lots and visitor amenities.
e. Assist the Revelstoke Snowmobile Society to plan for trail maintenance and grooming, and determine future requirements for capital acquisitions and operational resources.
3 Scope and Deliverables
The geographic area referenced for purposes of this strategy is the Columbia River watershed from Mica Creek south to Pingston and east to the Three Valley area. Mount Revelstoke and Glacier National Parks are excluded.
The committee will recommend to the City of Revelstoke a 5 year Management Plan for the Snowmobile Tourism Industry. The plan is to include:
a. A review of the current situation to provide baseline information regarding the impacts of the Snowmobile industry on our community, including but not limited to:
• Numbers of riders using the area distinguishing between local and visitor usage.
• Snowmobile visitor profile.
• Occupancy rates of local accommodations during at least the past two years that can be directly attributed to snowmobilers.
• Estimated revenues derived from local services for snowmobilers, ie: accommodation, food, beverage, repairs, service and sales, fuel, etc.
• Statistics on sales of trail passes
• Costs of maintaining existing trails
• Policing and search & rescue
• Impacts on the environment.
• Impacts on other recreational users.
b. Determination of carrying capacity constraints and environmental impacts with respect to further development of this recreational activity. This must be done in collaboration with appropriate Provincial Ministries / Agencies.
c. Projections as to the carrying capacity of the land base and anticipated rate of growth for the next five years.
d. Recommendations regarding development of infrastructure to accommodate the projected growth of snowmobiling in the area and possible expansion / relocation of the Trans Canada Highway.
e. Recommendations as to where and how the snowmobile tourism industry should be marketed over the next 5 years.
f. Identification of what resources the Snowmobile Society, City and service providers should have in place to continue supporting snowmobiling activities.
4 Methodology
A steering committee of up to 12 members will be established. The following organizations will be asked to appoint a representative:
• City of Revelstoke Councilor to chair the steering committee
• Snowmobile Revelstoke Society
• Revelstoke Snowmobile Club
• Government agencies (Forestry & Environment)
• Chamber of Commerce representative (one Director and the Tourism Development Coordinator)
Committee members will be appointed by the City of Revelstoke from each of the following stakeholder groups:
• Snowmobile operators
• Accommodation providers
• Local business
• Environmental interests
• Community at large
5 Role of the Steering Committee
The Steering Committee will contribute their expertise and knowledge to the process. Steering Committee members will be expected to attend monthly committee meetings (and special meetings as required) and assist with gathering of information where possible. The committee will provide advice and make recommendations on initiatives that will address the issues, take advantage of opportunities, and guide development of the snowmobile industry over the next 5 years.
6 Timing
The Steering Committee to be established by June 15, 2001, and the
Completed Strategic Plan to be delivered to the Economic Development Committee of Council by June 15, 2002 or earlier if possible.
2. Analysis of Current Situation
1 Regulatory Framework
Almost all snowmobiling activity in and around Revelstoke takes place on Crown land, which is under the jurisdiction of the provincial government. Since the commencement of this study, the regulatory framework has become less clear due to the changing policies of the Provincial Government.
At present (October, 2002), it is understood that the Memorandum of Agreement between the Ministry of Forests, representing the provincial government, and the Revelstoke Snowmobile Club and the Snowmobile Revelstoke Society for the operation of the Boulder Mountain and Frisby Ridge snowmobile trails (Appendix A) is still in effect. This Memorandum is for the period December 1, 2001 to November 30, 2002. A Memorandum renewal is currently being considered for a longer period of time to cover the period December 1, 2002 and beyond.
The Memorandum allows the Club and Society to operate recreational trails for snowmobile use on Boulder Mountain and Frisby Ridge and collect a user fee to help offset the costs incurred in operating the trails.
For commercial operators, the “Commercial Recreation Policy on Crown Land” outlines an application and approval (or denial) process to operate a commercial recreation (i.e. tourism) business on Crown Land. Since 1999, it has been mandatory for all tourism operators to have approved tenure (permit, license or lease) in order to legally transport tourists on Crown land.
2.2 Stakeholders
The following groups and organizations have been identified as stakeholders in this process:
• Revelstoke Snowmobile Club and the Snowmobile Revelstoke Society
• Local snowmobile operators
• Local accommodation providers
• Environmental groups
• City of Revelstoke
• Columbia-Shuswap Regional District
• Provincial government representatives (Ministry of Forests and Ministry of Sustainable Resource Management)
• Revelstoke Chamber of Commerce
• Other users of the recreational land base
• Other commercial users of the recreational land base
The Revelstoke Snowmobile Club is comprised of local snowmobilers, and of snowmobilers from outside the community who purchase club memberships, which permit them to enjoy lower trail fees. It should be noted that many out-of-town members are long-time members, and purchased club memberships before a trail user fee system was implemented. These snowmobilers are long-time supporters of the local snowmobile club.
The Snowmobile Revelstoke Society was established by the Revelstoke Snowmobile Club specifically to operate the snowmobile trails on Boulder Mountain and Frisby Ridge.
2.3 Visitation
For the purposes of this study, visitation is defined as a person-trip to Revelstoke which includes at least one overnight stay and where snowmobiling is the main reason for the trip. Two sets of data will be utilised to calculate visitation to Revelstoke for the purpose of snowmobiling. These are the voluntary trail registration information and the results of the Snowmobile Survey undertaken during 2001-02 as part of this project. In addition, informal surveys of local accommodation properties provide further information required to estimate total visitation.
Over the past decade, the Revelstoke Snowmobile Club has utilised a voluntary trail registration system to track the number of trail users on Boulder Mountain, the most popular snowmobile area adjacent to Revelstoke. The number of snowmobilers who registered as using these trails has increased from just over 2,000 in 1990-91 to just under 12,000 in 2001-02, an increase of almost 600% (see Figure 1). This number is not entirely accurate, as the methods used to count trail users have improved over the period. However, this should not overshadow the fact that trail use has greatly increased in the same period.
Figure 1
Snowmobiling Registrations at Boulder Mountain
1990/91 to 2001/02
[pic]
For the past two years, 2000-02, a trail registration system was also used on Frisby Ridge. Approximately 4,450 snowmobilers registered as users during 2000-01 and 4,100 in 2001-02. During the 2001-2002 season, therefore, there were a total of 15,890 trail use registrations on Boulder and Frisby.
It is estimated that approximately 90% of trail users self-register. It is also estimated that approximately 1,500 of the total registrations are local residents. These two estimates roughly balance each other out, so the number of registered trail users can be considered an accurate indication of how many visitations there are to Revelstoke for the purpose of snowmobiling at Boulder or Frisby.
In addition, a large number of snowmobilers who come to Revelstoke snowmobile at other areas e.g. the Keystone-Standard Basin. As these areas are not groomed, there is no registration system for these locations and no accurate count can be made. The number of visitations generated by snowmobilers in these other areas is estimated by members of the local snowmobile club and by local accommodation owners as being between 6-8,000. If we use the conservative number of 6,000, and add this to the approximately 16,000 number of registered trail users noted above, the cumulative total of visitations generated by snowmobiling during the 2001-02 season equalled 22,000.
5 Economic Impacts
The Snowmobile Survey (Appendix B) undertaken as part of developing this strategy specifically asked snowmobilers how much they estimated they expended per day during their visit to Revelstoke. The average expenditure per person per day equalled $223.62. This is consistent with data collected on snowmobile expenditures in other studies.
Based on the number of visitations calculated above, the total economic impact to Revelstoke, in terms of money from outside the community expended in the community during 2001-02 and which can be attributed to snowmobile visits, is estimated at $4.9 million (22,000 visitations X $223.62).
Additionally, it is estimated that that the value of snowmobile sales to visitors equalled approximately $400,000 during 2000-01, for total expenditures of $5.3 million.
6 Trail System Management
The Snowmobile Revelstoke Society and the Revelstoke Snowmobile Club are responsible for the management of the snowmobile trail systems on Boulder Mountain and Frisby Ridge. The Society maintains approximately 100 kilometres of trails and uses two trail grooming machines. The Society employs both paid and volunteer staff to operate the groomers. Typically, the trails are groomed five days per week. The Society hires staff to collect trail fees at the bottom of the trails, and the Club maintains two cabins, one on Boulder and one on Frisby Ridge. The Society and the Club have also been involved in developing and installing signage and in managing voluntarily closures of areas in which wildlife may be at risk.
As the numbers of snowmobilers has dramatically increased over the last decade, so the time required and the cost of grooming the trails have also gone up. In 1990-91, grooming costs totalled just over $3,000. By the 2001-02 season, these costs had increased to almost $74,000 (Figure 2).
Figure 2
Snowmobile Revelstoke Society Grooming Costs
1990/92 – 2001/02
[pic]
7 Marketing
Snowmobiling marketing activities are currently undertaken by the Snowmobile Revelstoke Society and the Revelstoke Chamber of Commerce. These activities include attendance at trade shows, advertisements in snowmobile journals and magazines, and promotion of snowmobiling on the Chamber of Commerce website. During 2001-02 the Society spent $4,442 on advertising, and the Chamber of Commerce directly expended $5,022, for a total of $9,464. The main thrust of the Snowmobile Club’s “marketing” efforts is to provide information on snowmobile areas around Revelstoke, particularly as it relates to trail closures.
The primary market for advertising is in Alberta, Saskatchewan and the Pacific northwest, particularly Washington State. The deep powder and steep terrain make the area appealing to snowmobilers seeking a mountain adventure experience.
8 Carrying Capacity
In this section of the study, the term carrying capacity refers to social carrying capacity, or the maximum number of people who could snowmobile in certain areas without impacting the quality of the experience.. The popularity of an activity can, in some cases, detrimentally affect the experience of participants in that activity. For example, hikers must now register with Parks Canada to hike the West Coast Trail on Vancouver Island. Parks Canada restricts the number of hikers so that the hiking trail is not too busy, and the experience remains a positive one for participants.
As indicated by the statistics generated by the trail user registration system, there has been a dramatic increase in the number of snowmobilers who visit Revelstoke to snowmobile, particularly on Boulder Mountain and Frisby Ridge.
Based on the response to the Revelstoke Snowmobile survey and to informal discussions with snowmobile tour operators and Snowmobile Club members, there does not appear to be a problem with social carrying capacity at this time. No respondents to the survey indicated that they thought the trails were too crowded, and local club members and tour operators suggested there was still capacity for another 50% of riders to use existing areas.
In terms of accommodation for snowmobilers in the community, there are still sufficient hotel and motel rooms available for additional visitors during the busiest times of the season.
9 Other Issues
The following issues related to snowmobiling were identified in the terms of reference and are addressed as part of the strategy.
Conflict with other recreational users
Conflict with snowmobilers has not been identified as an issue for other recreational users of the land base. Given the unregulated nature of crown land, there will always be incidents where snowmobilers come into contact with other users which may cause some concern. However, other recreational users interviewed as part of this study have stated that snowmobilers, particularly local residents, are generally very respectful of other users and take active measures to prevent potential conflicts. Local Snowmobile Club members also do a good job of informing visiting snowmobilers of areas where there is the potential for conflict.
Policing
The RCMP note no special policing considerations in dealing with snowmobilers. There have been incidents of snowmobiles and trucks being stolen or vandalized, but these incidents have been isolated, and may be occasionally expected in communities where snowmobiling is an important tourist activity. Theft and vandalism were not identified as a major concern by snowmobilers who completed the snowmobile survey. Some of the accommodation properties in the community hire security companies to provide some security coverage of their parking areas. While there may be some advantages to having a secure area specifically for snowmobiles, this would not seem to be a high priority at the present time.
Search and Rescue
In terms of search and rescue, volunteers involved with this program indicate that they are officially called out 2-3 times per month between November and March to bring snowmobilers off the mountains safely. There is an adequate number of volunteers to deal with this, and the search and rescue program is presently funded by the provincial government. Search and rescue could potentially become an issue if the provincial funding was discontinued, or if the number of people prepared to volunteer for the program declined. There is no indication that either of these events will occur.
3. Strengths, Weaknesses, Opportunities, Challenges
This analysis looks at the strengths (internal advantages), weaknesses (internal challenges), opportunities (external advantages), and challenges (external challenges) as they relate to the snowmobile sector in Revelstoke.
1 Strengths
Revelstoke has many strengths as a snowmobile destination. These include spectacular mountain topography and scenery, with an abundance of wonderful snow, and a long season stretching consistently from November to May; an active and well-organized group of local volunteers who comprise the Revelstoke Snowmobile Club and Snowmobile Revelstoke Society; an excellent trail infrastructure which has been developed and is maintained by the local clubs; a well established reputation as a “snowmobile friendly” community; a wide range of snowmobiling locations that are in close proximity to the community; there are other areas close to the community which could potentially be managed for snowmobiling, including Sale, Mount McRae, Mount Hall, and the Keystone-Standard Basin; a number of experienced and successful snowmobile tour operators; and a wide range of accommodation properties to cater to an assorted clientele. Independent surveys undertaken by the Snowriders West magazine have consistently rated Revelstoke as one of the top snowmobile destinations in North America. Both the Revelstoke Snowmobile Club and the local Chamber of Commerce do a good job of marketing Revelstoke as a snowmobiling destination; and the Club has taken responsibility for providing information to visiting snowmobilers about safety and environmental issues in the area.
One of the greatest strengths has been the excellent relationship the Revelstoke Snowmobile Club and the Snowmobile Revelstoke Society have forged with the provincial ministries responsible for the management of the recreational land base. The Final Report of the National Snowmobile Tourism Study recognizes the major impact that volunteers play across the country in maintaining and developing trails. The Revelstoke Snowmobile Club and the Snowmobile Revelstoke Society were two of the first volunteer agencies in British Columbia to enter into a formal agreement with the Ministry of Forests to operate, maintain and manage snowmobile trails.
2 Weaknesses
Given the dramatic increase in snowmobiling activity in Revelstoke over the past decade, the reliance on volunteers to continue to maintain, operate and manage the existing trail system can be considered a weakness. As with many volunteer agencies, a small minority of club members actually carries out the work. Volunteers can burn out or decide that the amount of the work no longer makes the volunteer experience enjoyable, and decide to spend their leisure time in other pursuits. As more snowmobilers start to use trails areas other than Frisby Ridge and Boulder Mountain, so the volunteer resources become more stretched. Maps and signage for additional areas are required, particularly to reduce potential safety and environmental concerns.
While a longer term agreement with the Ministry of Forests will be complete before advent of the 2002/2003 season, significant changes to provincial agency responsibilities will likely lead to a period of uncertainty in terms of provincial government relations.
Managing and operating snowmobiling in the Revelstoke area has become a complex business which requires considerable time and resources. While the volunteer agencies have done an admirable job up until now, the Revelstoke Snowmobile Club and the Snowmobile Revelstoke Society do not have the resources required to continue to manage and develop the activity without a longer term business plan.
3 Opportunities
There are several opportunities to improve and expand snowmobile operations in the Revelstoke area. The present trail system on Boulder and Frisby could be expanded. Snowmobile touring could also be promoted if connections were made to other trail systems e.g. in the Okanagan.
Snowmobiling continues to be an increasingly popular tourism activity. If more trail areas are developed, including trails on flat terrain, there is an opportunity to expand the market to families, the fastest growing segment of the snowmobile market. There is an opportunity for the Snowmobile Revelstoke Society or the private sector to develop a service facility on Westside Road adjacent to the main staging area. This could provide additional services to the snowmobile visitor and, potentially, additional revenue for the Society.
Snowmobile touring i.e. long distance riding on groomed trails, is the most popular snowmobiling activity in North America. The potential to develop this type of activity is as yet undeveloped in Revelstoke. This is an excellent opportunity to expand snowmobile tourism by expanding the snowmobile trail system.
The low Canadian dollar and the fact that many backcountry areas in the U.S. are being closed to motorized recreation due to capacity issues present opportunities to market local snowmobiling in the U.S.
4 Challenges
Across British Columbia unresolved conflicts over wildlife and recreational access are seen as a limiting factor to the snowmobile tourism industry. The challenge lies in not coming to long-term agreement with environmental concerns and other user groups. Specifically, in Revelstoke, both the real and perceived impact of snowmobiling on mountain caribou is a major issue.
More recently, access to the recreational land base has become a major threat. At the time of writing, it is still not clear what the position of the provincial government will be with respect to the management of crown land for both public and commercial recreational pursuits.. There are fears that recreational land under the jurisdiction of the province may be leased or sold to the highest bidders who may not be better stewards of the land. Potentially, the areas that are currently operated and maintained for snowmobiling by the local clubs could be turned over to another group or private operator, and the community would have very little influence over what might occur on what is now a public resource. It is imperative that this issue be resolved as soon as possible.
If the local Snowmobile Club and the Society continue their agreement with the province to manage and operate the snowmobile trails, the issue of liability could be a major challenge. At this time, the province is suggesting it will divest itself of this responsibility, and the cost of insurance to assume responsibility for liability may be prohibitive for small, non-profit organizations.
As other communities develop snowmobile infrastructure and increase their marketing efforts, competition from other snowmobile locations will become a threat.
4. Growth Projections
Between 1995 and 2000, the number of snowmobile trail passes sold in B.C. increased from 4,400 to 8,501, just under 200% (Source: Clayton Prince, 2002: Draft Snowmobile Market Development Study for Valemount)
Based on the data collected at Boulder Mountain over the past decade, there has been a dramatic increase in the number of visitors who come to Revelstoke to snowmobile. Trail registrations have grown by 600% in this time period. Moreover, in the last four seasons, 1998-99 to 2001-02, the number of registrations has almost doubled, from 6,000 to just under 12,000.
There is every reason to believe that growth will continue although probably at a lower level. Several studies note the growing interest of the “boomer” generation in adventure travel, and the increasing interest of an aging population in motorized recreation. While the snowmobile market is still male dominated, the demographics of snowmobilers is showing a trend toward more family trips. This means that growth could be expanded as larger family groups visit in addition to the regular “dedicated” snowmobile visitors.
During the course of discussions with the Steering Committee for this project, it was projected that over the next five years visitations will increase from 22,000 to 30,000.
5. Environmental Issues
This section of the study will deal with two environmental issues which relate to snowmobiling: machine emissions and the effect of snowmobiling on wildlife.
Machine Emissions
In terms of assessing overall fuel and sound emissions, it is worth noting that the majority of snowmobiles ridden in Canada are manufactured in the United States. Canadian policy reflects this and becomes a form of de-facto standard ultimately established in the U.S. The main agency responsible for establishing standards in terms of these emissions is the U.S. Environmental Protection Agency (EPA). It appears that the manufacturers, primarily through a national umbrella organization called the International Snowmobile Manufacturer Association (ISMA), are in regular correspondence with the agency to ensure compliance with these standards.
The burning of fossil fuels, particularly by two-cycle (or “two-stroke”) engine technology, appears to raise the most concern in terms of air and noise pollution. Almost all snowmobiles sold at present utilize two-cycle engine technology. There are varying views on the topic of two-cycle versus four-cycle engines, but it is generally conceded that the increasing use of four-cycle engine technology will serve to reduce the impact of air and sound emissions by snowmobiles on the environment. Some of the major snowmobile manufacturers now sell four-cycle snowmobiles and are meeting with positive demand in the marketplace. It is anticipated there will continue to be an increased presence of snowmobiles with four-cycle engines in future.
Considerable progress has been made to reduce sound emissions in both Canada and the U.S. The Society of Automotive Engineers (SAE) Standard J192 was created specifically for snowmobiles, and restricts sound levels to 78 db at 50 feet during a wide-open-throttle pass. According to the Canadian Council of Snowmobile Organizations, the relative effect of this standard has reduced sound levels such that 256 of today’s snowmobiles, en masse, would be required to equal the sound level from a 1970 era machine.[1]
Regarding fuel emissions, no standards existed in Canada until recently to which these emissions could be measured. According to the CCSO, the SAE Paper 982017 titled “Development and Validation of Snowmobile Engine Emission Test Procedures”, published in 1998, is now the internationally accepted standard for these tests.[2] Also until recently, two-cycle engines have been limited in their ability to lower emission levels, particularly with respect to hydrocarbon emissions. Recent experimentation with direct injection two-cycle systems is producing considerable reductions in hydrocarbon emissions. This, in addition to the proliferation of four-cycle technology, is anticipated to reduce the environmental impact of snowmobile emissions.
Wildlife Impacts
Opinions vary widely on the degree of impact which snowmobiling has on wildlife populations, and the extent of disruption and displacement resulting from the activity. On the one hand, there are claims that snowmobiling is a catalyst for predator-prey imbalance, unnatural wildlife distribution, unnatural survival and energy imbalance. On the other hand, allegations include minimal impact (less than humans on foot), and some positive effects including the provision of an expanded feeding range (using trails or snowmobile tracks) and environmental stewardship programs aimed at raising funds for continued research. This uncertainty demonstrates the need for ongoing data collection and continued study in this area that will contribute to more informed decision-making.
A critical issue in the Revelstoke area is the situation related to mountain caribou. Due to the low population size, fragmented distribution, low reproductive rate, declining population trend and potential for conflicts with people, mountain caribou have been “red-listed” and classified as a threatened ecotype by the B.C. Conservation Data Centre (2001), and Committee on the Status of Endangered Wildlife in Canada (2001) respectively. Recreational conflicts with mountain caribou occur mainly in high-elevation, late winter habitat. The open, subalpine fir parkland conditions that make ideal late winter caribou habitat have the same features that create “world class” snowmobiling and heli-skiing opportunities.
With improved access and equipment plus an increasing demand by the public and commercial enterprises, the potential for conflict between mountain caribou and winter recreationists has rapidly grown. The abandonment of some winter ranges by caribou while snowmobiling use dramatically increased has led to concern over compatibility. However, caribou range abandonment in the absence of snowmobiling and the continued use of some areas by caribou with snowmobiling suggests that there is a complex relationship between snowmobiling and mountain caribou. Recent studies on impacts of escorted ecotourist visits have found that woodland caribou spend more time standing and vigilant at the expense of time spent foraging and resting during disturbance periods. Research studies have indicated that, for elk, standing requires 25% more energy consumption than resting. Often this vigilant behaviour decreases as winter progresses. This decrease may reflect habituation or the fact that animals could not afford to maintain this response as their body condition deteriorated later in the winter.
Declines in the number of caribou in the Columbia Forest District (see Appendix C) along with alterations in the distribution of caribou over the last decade, suggest that some factor or combination of factors is having a negative effect on mountain caribou populations. Until more is known about the role of recreational disturbance in this trend, a cautious approach to any expansion of recreational use should be taken in late winter caribou habitat. In the interim, further recreational development should be focused outside the current identified range of mountain caribou.
To its credit, the local Snowmobile Club has taken an active role in recommending voluntarily closures of areas where there has been conflict with caribou, and the club has worked hard to develop signage, maps and information material to provide to visiting snowmobilers. The Society and the Club have also worked closely with provincial agencies to address the issue of impact unpon caribou (Appendix D). The Revelstoke snowmobile survey indicated a very high awareness of restricted areas among visiting snowmobilers. However, any future management of trails and areas for snowmobiling must take into account the impact on wildlife in the area. The development of trails at lower elevations, for example, may lead to conflict with other ungulates such as moose or deer.
6. Strategic Directions
1 Trail maintenance and development
In terms of maintaining existing trails i.e. on Boulder Mountain and Frisby Ridge, there are two primary issues. Firstly, the Snowmobile Revelstoke Society has reached the point where the maintenance of existing trails can no longer be carried out by volunteers and part time groomer operators. This issue will become more acute if trail expansion is undertaken. Secondly, there needs to be a long term plan for the replacement of the equipment needed to groom the trails.
The Snowmobile Revelstoke Society has identified the need to hire a paid staff member to manage the operations of the society. Through the development of this strategy, the need for a capital replacement budget line item of $30,000 annually has been estimated as a financial requirement. Both the salary for the manager and the capital replacement costs have been included in the new Operational Business Plan for the Snowmobile Revelstoke Society which is included below (item 6.4). If this plan is successfully implemented, the major trail maintenance issues will be resolved.
As far as trail development is concerned, there is an opportunity to expand into other target markets :
• The fastest growing segment of the snowmobile market is the family market, and the greatest potential for Revelstoke to increase the number of snowmobilers is probably by developing trail systems on less challenging terrain.
• There is also the potential to develop backcountry trail touring, a “hut to hut” experience on groomed trails.
Any trail expansion requires careful business analysis and the hiring of a manager to oversee these processes. Negotiating new trail use agreements, developing trails and parking areas, purchasing additional equipment, hiring additional staff, moving and storing grooming equipment, and developing additional infrastructure all involve additional expenses. There needs to be some guarantee for the Snowmobile Club, the Snowmobile Society or whichever party decides to develop new snowmobile trails that there will be a return on the investment required to develop and maintain additional facilities.
2 Marketing Plan
As was noted earlier in the study, snowmobile marketing is currently undertaken by the Snowmobile Revelstoke Society and the Revelstoke Chamber of Commerce using relatively limited resources. Generally, these joint marketing activities are carried out in a coordinated and cooperative manner.
The primary target markets for snowmobiling in Revelstoke are Alberta, Saskatchewan, Manitoba and the Pacific northwest. These will likely remain the major markets for Revelstoke over the next 5 years, and to maintain and build upon these existing markets, marketing efforts must remain consistent and focussed on these areas. The National Snowmobile Tourism Study notes that, ideally, a range of marketing activities need to be applied for a period of 5-10 years to be successful. The dramatic growth in snowmobile visitation over the past four winters can be partially attributed to the tourism marketing initiatives undertaken by the Chamber of Commerce and the Snowmobile Society.
If trail expansion takes place, and particularly if trails more suited to touring or less “adventurous” riding are developed, there is the possibility of expanding market share in these geographic areas by promoting a family or touring snowmobile experience. In terms of expanding marketing to other geographic areas, Manitoba and other “short haul” U.S. states such as Idaho, Minnesota, Montana, Oregon and Northern California may be potential areas for advertising. It is interesting to note that Florida and Texas are growing markets for Yellowstone’s snowmobiling industry.
There is also a growing market for novice snowmobilers, who require machines, guides and instructional services, and groomed trails on less challenging terrain. This type of snowmobile activity could possibly be packaged with other winter activities such as downhill and X-country skiing. Multi-experience winter activities are actively marketed in Whistler, for example.
In terms of expanded marketing activities, this will be dependant on additional resources becoming available. Existing marketing efforts could be improved by inviting more travel writers to visit Revelstoke and enjoy the wonderful snowmobiling experience that the community has to offer. Whenever possible, Revelstoke should take advantage of participating in regional (BC Rockies) and provincial marketing efforts to promote snowmobiling.
Additional marketing strategies would include participating in a greater number of snowmobile shows; expanding advertising in print media, including the use of “specialty” inserts; and encouraging more filming of snowmobile activities in the area, which would be used to promote snowmobiling in Revelstoke through TV broadcasts.
3 Infrastructure
Current infrastructure includes approximately 100 kilometres of groomed trails on Boulder Mountain and Frisby Ridge, two grooming machines, and two cabins, one each on Frisby and Boulder. Any development of new trails, building of additional facilities and purchases of new equipment needs to be considered on a business case basis.
In terms of strategic directions, the maintenance and replacement of the grooming machines have been incorporated into the Operational Business Plan included below. A similar amount for the maintenance and upkeep of the cabins needs to be included in the operational plan also.
A high priority infrastructure need identified through the strategy is the development of facilities at the staging area on Westside Road. Such a facility could provide maintenance and repair services for snowmobilers, a storage place for the grooming machines, secure parking for snowmobiles, and a meeting place for the Snowmobile Club. Such a facility could possibly generate revenues which could be put toward trail maintenance and expansion.
4 Operational Business Plan
The five year Operational Business Plan for the Snowmobile Revelstoke Society is attached in Figure III. The plan has been developed using several assumptions.
These include:
• A paid staff member will be hired by the Snowmobile Revelstoke Society to manage the operations of the Society
• An annual amount of $30,000 will be budgeted for capital replacement costs
• Revelstoke Snowmobile Club membership fees will be increased to help cover the increasing costs of maintaining the trails
• Trail user fees will be increased, for the same reason
• Club memberships and trail usage will continue to grow over the next five years
• The Snowmobile Revelstoke Society will be successful in soliciting additional funding through sponsorships and grants
If the Snowmobile Revelstoke Society wishes to hire a paid manager, allocate $30,000 per year toward a capital replacement fund, and operate in a self-sufficient manner, new sources of revenue need to be found. There are three possible sources of funding: membership, trail use fees, or snowmobile storage fees generated by the snowmobilers themselves; donations or contributions from businesses who benefit from the snowmobile activity (e.g. accommodation proprietors, tour operators, repair shops); and grants from funding agencies or government.
The Operational Business Plan assumes that increased revenues will be generated from all three sources. If this funding is not generated, then the Operational Plan will have to be revised accordingly. Staffing levels will have to be more modest, and the equipment required for grooming may have to be used longer than currently planned.
Figure 3
Revelstoke Snowmobile Society
Financial Projections
|ASSUMPTIONS: |2002/2003 |2003/2004 |2004/2005 |2005/2006 |2006/2007 |
|1. Grooming operational costs are based on previous years' experience with 10% increases for inflation |
|2. Visitation is shown with moderate growth | 14,000 | 15,000 | 16,000 | 17,000 | 18,000 |
|(1,000 per year) | | | | | |
|2a. Day Trail Pass Fees |$10 |$12 |$12 |$15 |$15 |
|3. Groomers will require replacing one every 3 - 4 years with expected repayment of $25,000/yr in principal and $5,000/yr in interest |
|GROOMING PROGRAM: | | | | | |
|Hours of grooming | 1,000.00 | 1,100.00 | 1,200.00 | 1,300.00 | 1,400.00 |
|Per hour operational costs (3 yr avg): | | | | | |
| Fuel | 11.40 | 12.00 | 12.60 | 13.20 | 14.00 |
| Maintenance & repairs (+5%/yr) | 37.45 | 39.32 | 41.29 | 43.35 | 45.52 |
| Drivers $12 + benefits | 14.00 | 14.00 | 15.00 | 15.00 | 16.00 |
|Total operational costs | 62,850.00 | 71,852.00 | 82,668.00 | 93,015.00 | 105,728.00 |
|Groomer payments | 30,000.00 | 30,000.00 | 30,000.00 | 30,000.00 | 30,000.00 |
|Trail Fee Collection hours: | | | | | |
|Jan-Mar: 5 day/wk x 6 hrs/day x 3 collectors | 1,170.00 | 1,200.00 | 1,230.00 | 1,260.00 | 1,290.00 |
|Dec&Apr: 2 days/wk x 4 hrs/day x 3 collectors | 200.00 | 210.00 | 220.00 | 230.00 | 250.00 |
|Hourly pay $12-14 + benefits | 15.00 | 15.00 | 15.00 | 15.00 | 15.00 |
|Trail Fee Collection costs: | 20,550.00 | 21,150.00 | 21,750.00 | 22,350.00 | 23,100.00 |
|PROMOTION PROGRAM: | | | | | |
| Production of brochures | 5,000.00 | 5,500.00 | 6,000.00 | 6,500.00 | 7,000.00 |
| Signage - new & maintenance | 5,000.00 | 5,300.00 | 2,500.00 | 2,500.00 | 2,500.00 |
| Marketing - trade shows etc. | 5,000.00 | 5,500.00 | 6,000.00 | 6,500.00 | 7,000.00 |
|Total Promotion Costs: | 15,000.00 | 16,300.00 | 14,500.00 | 15,500.00 | 16,500.00 |
|MANAGEMENT PROGRAM: | | | | | |
| Office expenses | 10,000.00 | 10,000.00 | 10,000.00 | 10,000.00 | 10,000.00 |
| Manager costs | 40,000.00 | 42,000.00 | 43,000.00 | 44,000.00 | 45,000.00 |
|Total Administration costs: | 50,000.00 | 52,000.00 | 53,000.00 | 54,000.00 | 55,000.00 |
|TOTAL OPERATIONAL EXPENSES: | 178,400.00 | 191,302.00 | 201,918.00 | 214,865.00 | 230,328.00 |
|REVENUE: | | | | | |
|Trail Pass Fees: | | | | | |
| Membership $45@300 external mbrs and $25@200 | 18,500.00 | 19,000.00 | 19,500.00 | 20,000.00 | 20,500.00 |
|local members | | | | | |
| Day Pass Sales = # of visitors x fee @ 60% | 84,000.00 | 108,000.00 | 115,200.00 | 153,000.00 | 162,000.00 |
|(30% discounting for memberships + 10% rebate to| | | | | |
|club) | | | | | |
| Grants - CSRD | 8,500.00 | 8,500.00 | 8,500.00 | 8,500.00 | 8,500.00 |
| Grant - City / EOF | 20,000.00 | 20,000.00 | | | |
| Grants - CBT for manager support | 10,000.00 | 8,000.00 | 6,000.00 | | |
|Corporate Sponsorship | 40,000.00 | 40,000.00 | 45,000.00 | 45,000.00 | 50,000.00 |
|TOTAL REVENUE: | 181,000.00 | 203,500.00 | 194,200.00 | 226,500.00 | 241,000.00 |
|EXCESS OF REVENUE OVER EXPENSES |$2,600.00 |$12,198.00 |-$7,718.00 |$11,635.00 |$10,672.00 |
|CUMMULATIVE CONTINGINCY FUND RESERVES balance |$32,600.00 |$44,798.00 |$37,080.00 |$48,715.00 |$59,387.00 |
|$30,000 | | | | | |
|CAPITAL INVESTMENTS: | | | | | |
| Storage for groomers | | | | | |
| Clubhouse | | | | | |
| Second drag | | | | | |
| Acquisition/lease of Boulder | | | | | |
|Parking lot | | | | | |
| Bridge & trail development to connect | | | | | |
|Boulder/Frisby trailheads | | | | | |
| Additional groomers/loaders | | | | | |
| Secure Parking lot for visitors | | | | | |
7. Recommendations
Over the past decade, local volunteers from the Revelstoke Snowmobile Club and the Snowmobile Revelstoke Society have done an outstanding job of developing and maintaining a tourism product, snowmobiling, which provides a major economic benefit to the Revelstoke area. Maintaining the snowmobiling infrastructure in the community has taken on the scale of a small to medium-sized business. The recommendations that follow suggest that the management of the snowmobile infrastructure, therefore, has to be undertaken in a more business-like manner, with increased user fees and increased sponsorship from those local businesses that are the primary beneficiaries of the snowmobile activity.
1. It is unreasonable to expect the Snowmobile Revelstoke Society to develop a more business-oriented model of managing the snowmobile infrastructure overnight. It will take time and probably paid staff to generate increased revenues to allow the Society to implement the Operational Business Plan prepared as part of this study. It is therefore recommended that the City of Revelstoke and the Columbia-Shuswap Regional District provide some bridging funding to allow the Society to make the transition from non-profit society to small business. It is understood that this bridging funding is for a three year period, and that the funding will be made available only if the Society demonstrates that additional revenues are being generated from membership fees, trail users, local businesses and other sources.
2. Every effort should be made to encourage local businesses who benefit from
snowmobile visitations to increase their contributions and sponsorships of the
Snowmobile Revelstoke Society. Many hotels, motels, restaurants and other
enterprises benefit substantially from snowmobile tourism. It is not unreasonable to
expect that these businesses should increase their contribution to the provision of the
activity that causes the tourists to visit the community.
Large manufacturers of snowmobile product should also be targeted as possible sponsors of snowmobile activites in the community. These manufacturers do not necessarily have a presence in the community, but clearly benefit through increased sales and revenues because of the work done by the local Club and Society in developing and maintaining snowmobile infrastructure.
3. Another critical recommendation is that the issue of use of the recreational land base be resolved as soon as possible. The Snowmobile Revelstoke Society, the Revelstoke Snowmobile Club, the City of Revelstoke and the Columbia Shuswap Regional District need to put pressure on the provincial government to develop clear guidelines around the management and utilization of the recreational land base. The Society can also work with other recreational land users at the local and provincial level to resolve this concern. The Society needs to have some certainty that the current areas will be available for snowmobiling before they undertake any long term development. The Club and Society should continue the high levels of cooperation they have with the provincial government departments.
4. It is recommended that the Snowmobile Revelstoke Society, the Revelstoke Snowmobile Club and all regulatory bodies make every effort to ensure that all commercial activity on the areas groomed by the Society are consistent with existing provincial policies and regulations.
5. It is recommended that, due to the increased snowmobiling activity, additional RCMP resources be allocated to increase policing of the snowmobile areas. This would improve enforcement of regulatory and licensing issues, and contribute to improved safety.
6. A decline in the number of caribou in the Columbia Forest District along with alterations in the distribution of caribou over the last decade, suggest that some factor or combination of factors is having a negative effect on mountain caribou populations. Until more is known about the role of recreational disturbance in this trend, it is recommended that a cautious approach to any expansion of recreational use should be taken in late winter caribou habitat. In the interim, further recreational development should be focused outside the current identified range of mountain caribou. Again, the Snowmobile Revelstoke Society and the Revelstoke Snowmobile Club should continue to work closely with the provincial regulatory agencies in addressing this issue.
7. It is recommended that the City of Revelstoke, the Columbia-Shuswap Regional
District, and various interested community groups, including the Snowmobile Revelstoke Society, the Revelstoke Snowmobile Club and the North Columbia Environmental Society, put pressure on the provincial and federal governments to provide funding for additional research on the impacts of snowmobile activities on caribou.
8. It is acknowledged that determining the total carrying capacity of the land base with
respect to all potential users was beyond the scope of the steering committee. This work needs to be carried out by a wider group of stakeholders than were represented on the steering committee. The province is planning to undertake a planning process beginning in 2003 to examine recreational land use in the Revelstoke area. The committee recommends that the issue of carrying capacity be addressed as part of this process.
APPENDIX A
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THIS AGREEMENT dated for reference the 28th day of November, 2000,
BETWEEN:
HER MAJESTY THE QUEEN IN RIGHT OF THE PROVINCE OF BRITISH COLUMBIA, as represented by the Minister of Forests, c/o District Manager, Columbia Forest District, 1761 Big Eddy Road, Revelstoke, British Columbia, VOE 3KO
(the "Province")
AND:
THE REVELSTOKE SNOWMOBILE CLUB, a society registered under the Society Act (Incorporation No.S-8204 ), having its registered office at Box 1849, Revelstoke, British Columbia, VOE 2S0
("the Club")
AND:
THE SNOWMOBILE REVELSTOKE SOCIETY, a society registered under the Society Act (Incorporation No.S-36694 ), having its registered office at Box 459, Revelstoke, British Columbia, VOE 2S0
(“the Society”)
WHEREAS
A. The Club and Society wish to operate the Boulder Mountain and Frisby Ridge Snowmobile Trails on Crown land which have been designated recreational trails under the Forest Practices Code of British Columbia Act, and;
B. The Society wishes to collect a user-fee to assist in the recovery of costs incurred in operating the trails and associated facilities.
In consideration of the terms and conditions contained herein and for other valuable consideration the parties agree as follow:
1.00 DEFINITIONS
1.01 In this Agreement, unless the context otherwise requires:
"Boulder Mountain Snowmobile Trail" (the Snowmobile Trails") means the trail shown outlined and attached hereto as Schedule "A".
"Frisby Ridge Snowmobile Trail" (the Snowmobile Trails") means the trail shown outlined and attached hereto as Schedule "A".
"Snowmobile Season" means that portion of time during the year wherein there is sufficient snow on the ground to meet the standards for grooming as set out in the attached Schedule "B".
"Associated Facilities" means all structures and signs present within the Snowmobile Trails including day use shelters, pit toilets, and all signs specifically related to the act or management of public snowmobiling.
2.00 GRANT OF RIGHTS
2.01 The Province grants to the Society and the Club, its employees, contractors or agents a non-exclusive right to enter onto the Snowmobile Trails for the purposes of trail repair, maintenance, operation, and to undertake wildlife protection measures as per existing agreements with other government agencies.
3.00 TERM
3.01 Notwithstanding the date of execution of this Agreement it will commence on December 15\ 2000 and terminate on November 30, 2001 unless earlier cancelled or terminated in accordance with the terms of this Agreement.
4.00 TERMINATION
01. Notwithstanding any other provisions of the Agreement, the Province may, in its sole discretion, terminate this Agreement upon giving 90 days written notice of termination to the Society and the Club.
02. The Society and the Club acknowledge and agree that they will make no claim for compensation, in damages otherwise, as a result of the termination of this Agreement under this Article.
5.00 OPTION TO RENEW
5.01 Not later than November 15\ 20011 and annually thereafter, provided that the Society and the Club are not in default under this Agreement, the Province may, in its sole discretion, make a written offer to the Society and the Club setting out the terms and conditions upon which the Province may renew this Agreement.
5.02 The Society and the Club acknowledge and agree that the Province is under no obligation, express or implied, to make an offer to it to renew this Agreement.
6.00 COVENANTS OF THE PROVINCE
01. The Province will at its discretion, provide and maintain infrastructure and facilities associated with the Snowmobile Trails
7.00 COVENANTS OF THE CLUB
7.01 The Society and the Club will:
(a) operate and maintain the Snowmobile Trails to the standards attached hereto as Schedule “B";
(b) set fees and report annually to the Province consistent with the schedule attached hereto as Schedule "C";
(e) install and maintain directional and informational signs in locations approved by the Province;
(d) not construct or place any improvements on the Snowmobile Trails without the prior written consent of the Province and then only in a manner that complies with the terms and conditions set out in the written consent;
(e) not commit or suffer any wilful or voluntary waste, spoil or destruction to the Snowmobile Trails, or do or suffer to be done anything that may be or become a nuisance or annoyance to the owners or occupiers of adjoining land; and;
(f) comply with the provisions of the Forest Act, Forest Practice Code of British Columbia Act and regulations and provisions of the Workers Compensation Act and regulation and will upon request provide the Province with proof of such compliance.
8.00 INDEMNITY
8.01 The Society and the Club will indemnify and save harmless the Province, its employees, contractors and agents, from and against any and all losses, claims, damages, actions, causes of action, costs and expenses that the Province may sustain, incur, suffer or be put to at any time either before or after the expiration or termination of this Agreement, where the same or any of them are based upon, arise out of or occur, directly or indirectly, by reason of any act or omission of the Society and the Club or their agents, employees, officers, directors or contractors pursuant to this Agreement.
9.00 REPRESENTATIONS OF THE SOCIETY AND THE CLUB
9.01 The Society and the Club warrant and represent to the Province that:
(a) they are societies duly organized and existing under the laws of British Columbia and are in good standing with both the office of the registrar of companies of British Columbia, and the BC Snowmobile Federation;
(b) they have all the corporate power, capacity and authority to enter into the Agreement and to carry out their obligations contemplated in this Agreement;
9.02 The Society and the Club acknowledge that:
(a) they have inspected the Snowmobile Trails, and are satisfied that they are suitable for the purposes of snowmobiling
10.00 INSURANCE
01. The Society and the Club will, without limiting their obligations or liabilities herein and at their own expense, insure activities of their volunteers under a policy of Comprehensive/Commercial General Liability Insurance in an amount not less than $1,000,000 inclusive per occurrence against bodily injury, personal injury and property damage and including liability assumed under contract. The Province is to be an additional insured under this policy. Such insurance shall be primary and not require the sharing of any loss by any insurer of the Province.
10.02 The Society and the Club will annually provide the Province with evidence of all required insurance. Such evidence of insurance shall be in the form of completed Province of British Columbia Certificates of Insurance. The required insurance shall be endorsed to provide the Province with 30 days advance written notice of cancellation or material change.
11.00 NOTICE
11.01 Any notice, document or communication required or permitted to be given under this Agreement must be in writing and will be deemed to have been given if delivered by hand, courier, or double-registered mail to the party to whom it is to be given as follows:
To the Province:
District Manager
Ministry of Forests
Columbia Forest District
1761 Big Eddy Road
Revelstoke, British Columbia VOE 3KO
To the Society:
President
Box 459
Revelstoke, British Columbia VOE 2S0
To the Club:
President
Box 1849
Revelstoke, British Columbia VOE 2S0
12.00 CHANGE OF ADDRESS
12.01 Any party may, from time to time, advise the others by notice in writing of any change of address of the party giving such notice and, from and after the giving of such notice, the address therein specified will, for purposes of the Agreement, be deemed to be the address of the party giving such notice.
13.00 MISCELLANEOUS
13.01 No term, condition, covenant or other provision of this Agreement will be considered to have been waived by the Province unless the waiver is expressed in writing by the Province. The waiver by the Province of any breach by the Society and the Club of any term, condition, covenant or other provision of this Agreement will not be construed as or constitute a waiver of any further or other breach of the same or any other term, condition, covenant or other provision of this Agreement and the consent or approval of the Province to any act by the Society and the Club requiring the consent or approval of the Province will not be considered to waive or render unnecessary the consent or approval of the Province to any subsequent same or similar act by the Society and the Club.
13.02 The terms and provisions of this Agreement will extend to, be binding upon and ensure to the benefit of the parties, their successors and permitted assigns.
13.03 Nothing in this Agreement constitutes the Society and the Club as the agents, joint venturers or partners of the Province or gives the Society and the Club any authority or power to bind the Province in any way.
04. Each of the parties will, upon the reasonable request of the other, make, do, execute or cause to be made, done or executed all further and other lawful acts, deeds, things, devices, documents, instruments and assurances whatever for the better or more perfect and absolute performance of the terms and conditions of this Agreement
13.05 All provisions of this Agreement in favour of the Province and all rights and remedies of the Province, either at law or in equity, will survive the expiration or sooner termination of this Agreement.
13.06 Time is of the essence of this Agreement,
14.00 INTERPRETATION
14.01 Wherever the singular or masculine form is used in this Agreement it will be construed as the plural or feminine or neuter form, as the case may be, and vice versa where the context or parties so require.
14.02 The captions and headings contained in this Agreement are for convenience only and do not define or in any way limit the scope or intent of this Agreement.
14.03 This Agreement will be interpreted according to the laws of the Province of British Columbia.
04. Where there is a reference to an enactment of the Province of British Columbia or of Canada in this Agreement, that reference will include a reference to every amendment to it, every regulation made under it and any subsequent enactment of like effect and, unless otherwise indicated, all enactments referred to in this Agreement are enactments of the Province of British Columbia.
14.05 If any section of this Agreement, or any part of a section, is found to be illegal or unenforceable, that section or part of a section as the case may be, will be considered separate and several and the remaining section or part of a section, as the case may be, will not be affected and will be enforceable to the fullest extent permitted by law
05. Each schedule attached to this Agreement is an integral part of this Agreement as if set out at length in the body of this Agreement.
14.07 This Agreement constitutes the entire agreement between the parties with respect to the subject matter of this Agreement and no understanding or agreement, oral or otherwise, exists between the parties with respect to the subject matter of this Agreement except as expressly set out in this Agreement and this Agreement may not be modified except by subsequent agreement in writing.
14.08 All grants, covenants, provisos, agreements, rights, powers, privileges and liabilities contained in this Agreement shall be read and held as made by and with, granted to and imposed upon, the respective parties hereto and their respective heirs, executors, administrators and successors and permitted assigns.
IN WITNESS WHEREOF the parties have executed this Agreement as of the day and year first above written.
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~ame
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SIGNED, SEALED AND DELIVERED by The' Revelstoke Society in the
of:
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)
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Matt Singh, President
SCHEDULE "B"
OPERATION AND MAINTENANCE OF THE BOULDER
MOUNTAIN AND FRISBY RIDGE SNOWMOBILE TRAILS
OPERATIONAL COVENANTS
1. The Society and the Club covenant and agree with the Province that, during the Snowmobile Season, they will:
(a) subject to snow and weather conditions and force majeure, operate and maintain the Snowmobile Trails and associated facilities to standards set within this Schedule;
(b) provide access to basic first aid equipment;
(c) encourage a volunteer snowmobile patrol in accordance with the BC Snowmobile Federation initiative to this end;
(d) inspect all groomed trails twice weekly for litter, fallen trees and other debris and remove at its own cost and expense;
(e) maintain associated facilities (toilets, signs, and day use shelters) on a
regular basis to ensure that they are in a safe, sanitary and clean condition (the Province may provide capital improvements to toilets, signs and kiosks as required, assist in the repair of any damages, and pump the toilets when required);
(f) immediately notify the public of any trail closures and ensure that such notice continues for the time during which the trail is closed;
(g) distribute snowmobile trail maps and other brochures to the public including avalanche awareness information, including contact numbers for the Canadian Avalanche Association;
(h) indicate through signing that persons snowmobiling off the groomed trails do so at their own risk.
2. The Province will provide to the Society and the Club all cleaning supplies and minor hardware required for the maintenance of toilet structures upon the Snowmobile Trails.
3. The Society and the Club covenant and agree with the Province that as a minimum, just before and just after the Snowmobile Season they will inspect all roads required and utilized during the Snowmobile Season to ensure that the structural integrity of the road surface is in good working order by:
(a) Removing identified windfalls and encroaching vegetation from the clearing width right-of way; and,
(b) ensuring the drainage systems of the road including ditches, culverts, and waterbars are functional.
4. Deficiencies that can be remedied using manual labour, and power hand tools will be done so in a timely manner, taking into account the risk to the road, its users, the environment, and any time lines otherwise set by the District Manager. The results of all inspections wherein the Society and Club undertook any remedial work will be reported to the District Manger as soon as possible.
5. The Club is responsible for damages incurred to the road system or any of the associated facilities as a result of Club activities. The Province is responsible for damages incurred to the road system or any of the associated facilities, by natural causes that cannot be remedied by standard maintenance practices outlined under Section Three
6. The Society and the Club are responsible for damages incurred to the road system or any of the associated facilities as a result of Society and Club activities. The Province is responsible for damages incurred to the road system by natural causes that cannot be remedied by standard maintenance practices outlined under Sections 3 and 4.
7. The Province covenants to the Society and the Club that it will undertake other responsibilities concerning the maintenance of the Snowmobile Trails outside of the Snowmobile Season, including:
(a) hazard tree identification and removal;
(b) additional road deactivation work; and,
(c) other capital infrastructure deployment projects concerning either industrial or recreational initiatives, not necessarily related to the Society and the Club's activities.
8. Prior to enabling this agreement, the Society and the Club will develop and provide to the Province, signed user agreements established with current Road Permit Holders, sanctioning their use of the roads held under such permits within the area of the Snowmobile T rails.
OPERATIONAL STANDARDS
1. SNOW PACKING
1. When snow depths have accumulated to a satisfactory depth, the entire trail width will be packed, to provide and maintain a solid base for grooming. A firm, level base for grooming across the entire trail width will be maintained throughout the Snowmobile Season.
2. SNOW GROOMING
2.1 After the first packing, trails will be groomed, using a suitable type of tracked snow vehicle with appropriate grooming equipment, a minimum of once per week, regardless of new fallen snow.
2.2 Preference will be given to ensure that the trails are freshly groomed for weekends and holidays.
2.3 Trails to be groomed are delineated on Schedule " A ". Snow will be groomed and conditioned to provide a relatively level trail surface that is firm enough to support snowmobiles.
2.4 The Society and the Club will assess snow and weather conditions prior to and during grooming so that optimum conditions are provided for . snowmobiling.
3. RECORD OF GROOMING
1. A record of grooming will be maintained and this information will be visibly posted to inform snowmobilers.
4. CLEARING OF PARKING LOT
4.1 The main parking areas will be cleared of snow as soon as possible after a snowfall when the depth of fresh snow inhibits 2WD access to the area (typically in excess of thirty (30) centimetres.
5. MAINTENANCE OF ASSOCIATED FACILITIES
5.1 Maintenance of warming shelters will be conducted once weekly, during which the Society and the Club will:
(a) thoroughly sweep all inside and outside floors;
(b) ensure all exterior and interior areas are litter free;
(c) inspect stove and chimneys for damage or wear; and,
(c) ensure pertinent information about the operation of the Snowmobile Trails; including fees are clearly posted for the public.
5.2 All toilet facilities will be serviced once weekly, during which the Society and the Club will:
(a) ensure shovelled, safe paths from more highly trammelled areas to the toilets are kept;
(b) carry out minor repairs such as replacement or installation of door hinges or latches, door adjustments, securement of loose component parts, and replacement of stems or seats;
(c) sweep or otherwise remove cobwebs, dust, dirt, etc., from all surfaces;
(d) thoroughly clean and sanitize seats and stems with a mixture of one (1) part cleaner to one hundred (100) parts water or as specified on product labels, and wipe both components dry to avoid spotting; and
(e) stock toilets with two (2) rolls of toilet paper.
5.3 All signs associated with the Snowmobile Trails will be maintained by ensuring they are straight and in generally good repair.
SCHEDULE "C"
STANDARDS AND REQUIREMENTS
FOR FEE COLLECTION AND REPORTING
1. DEFINITIONS
"User-fee" means the reasonable amount of money the Society and the Club are permitted to collect in order to recover the costs associated with operating and maintaining the Snowmobile Trails.
"Local Commercial Operator" means one of four (4) locally recognized business entities using the Snowmobile T rails for commercial purposes. The businesses are noted as Great Canadian Snowmobile Tours, Revelstoke Snowmobile Tours, the Base, and DNR. "Corporate Sponsor" means a non-operational business entity, which contributes, financially to the Club or the Society.
"Machine" means an oversnow off highway vehicle, recognized as a snowmobile.
2. RATES
2.1 In accordance with this agreement, the Society and the Club will be permitted to charge user-fees based on the following conditions, and considering that:
(a) The Society and the Club must be registered as non-profit societies in accordance with Revenue Canada regulations.
(b) The Province will be involved with and, ultimately, approve day use-fees to be charged. Any increases to the initial fee structures set will require approval by the Province/District Manager.
(c) Fee day rates for the 2000-2001 Snowmobile Season are set as follows:
|Machines with BCSF Registration Decal |Machines without BCSF Registration Decal |Local Commercial |
| | |Operator Machine |
|$5 |$10 |$5 |
(d) Rates do not account for seasonal (Club membership) rates, which are set by the Society and the Club. Day rates will not apply to seasonal pass holders.
(e) Seasonal pass rates, Local Commercial Operator initiation fees, and reduced rates offered to Corporate Sponsors must be conveyed for approval to the District Manager, and included in all fee recording and tracking documentation for submission to the Province.
(f) All funds raised through the collection of user-fees must be entirely applied to expenses incurred by the Society and the Club in operating and improving the Snowmobile Trails and associated facilities for the direct benefit of those paying the user-fee.
(g) Rates will not apply to persons entering the Snowmobile T rails area to undertake tenured or compliance related activities specific to the Wildlife Act, Forest and Forest Practices Code of British Columbia Acts, or any other non-recreation oriented activity authorized by existing legislation.
3. FEE COLLECTION RESPONSIBILITIES
3.1 The Society and the Club:
(a) will collect user fees from all people (excepting those authorized under 2(g) above) using the Snowmobile Trails during the Snowmobile Season, who are not members of the Society or the Club.
(b) will on weekends and holidays maintain a fee collection presence for a minimum of four (4) hours per day.
(c) will be courteous, have a thorough knowledge of fee policies and procedures, and be helpful when dealing with the public.
(d) will be responsible for all monies collected.
(e) will ensure that all members who are in regular contact with the public must speak fluent English.
(f) will complete and maintain all forms associated with revenue collection.
(g) will be responsible for the issuance of physical permits after fees have been collected, including a liability waiver clearly describing the risks of snowmobiling in a back country mountain environment.
(h) will comply with govern1I1ent policy and regulations on the collection and handling of funds.
(i) will use their best judgement in determining the number of "snowmobilers" to collect fees from, according to/based on the definition provided in this agreement (and common sense, situation, etc.), and may accordingly, make exemptions to policy.
(j) will at the time of collection, keep records of the total number of snowmobiles entering the Snowmobile T rails, and further account for the numbers of public and commercial operator clients as a part of that total.
3.2 The fee collection procedure will be left to the discretion of the Society and the Club (i.e., gatehouse, hand collection, self-registration).
3.3 In some cases (i.e., users refuse to pay, excessive drunkenness, rowdiness) users may be asked to leave by the Society and the Club. However, only a Forest Service official or member of the RCMP has the authority to evict a member of the public from Crown land.
4. FEE REPORUNG AND TRACKING
4.1 The Society and the Club:
(a) will within fifteen (15) days after the end of each month, deliver to the Province a financial statement for the immediate preceding month of the Snowmobile Season, which includes a statement of the Gross Revenue for that month.
(b) will maintain books of account and will enter in them all transactions relating to the operation of the Snowmobile Trails.
(c) will within 60 days after the end of the Society and Club's fiscal year, deliver to the Province a financial statement, signed by the Society and Club presidents and a minimum of two additional directors, that has been reconciled with the monthly statements provided in accordance with section 3. 1 (a) and includes:
i.) a statement of Gross Revenue for that Snowmobile Season;
ii.) all information, reports and data that the Province may require concerning the operation of the Snowmobile Trails under this agreement, including the number of users to the Snowmobile T rails and a statement of the amounts paid by such users;
iii.) a preliminary listing of both administrative and operational goals to be accomplished during the upcoming fiscal year (a ('Business 'Plan"), detailing where funds are to be spent.
(d) will ensure revenue collections are carried out in a standard manner to ensure compliance and maintain consistency in revenue collection.
(e) are responsible for the procedure or method of transacting any refunds and must account for such transactions in the accounts being kept.
(f) will immediately report lost or stolen permits or money to the proper authorities (ie RCMP) and notify the District office or Ministry contact named in this Agreement.
SNOWMOBILE REVELSTOKE (2002) SURVEY RESULTS
A total of 258 surveys were collected and collated during the period January to April 2002.
December – January 166
February 28
March 64
Total surveys 258
Question 1. How many persons in your group?
| |Adult Male |Adult Female |Children |
|Surveys reports |255 |73 |26 |
|% of surveys reporting |99% |28% |10% |
|Average number in group |4.3 |1.7 |2.6 |
|Group of 1 |46 |47 |8 |
|Group of 2 – 4 |118 |24 |17 |
|Group of 5 – 9 |75 |1 |0 |
|Group of 10 or more |16 |1 |1 |
|Maximum in group |18 |12 |11 |
|Total number of gender reported |1084 |124 |67 |
Question 2. How many nights dfo you spend in Revelstoke per visit?
Average number of nights per visit is 3.5. Nights of visitation are shown below.
|Nights of Stay |# of survey respondents |% of survey respondents |
|1 |4 |2% |
|1 to 3 |131 |51% |
|3 to 6 |110 |43% |
|7 or more |8 |3% |
Question 3. Which days of the week do you prefer to snowmobile in Revelstoke?
|Monday |Tuesday |Wednesday |Thursday |Friday |Saturday |Sunday |
|98 |108 |114 |154 |185 |149 |122 |
Question 4. How many trips to Revelstoke per season to snowmobile?
Average trips per season is 4.03. Responses are shown below.
The most trips per season was 47 !
|Trips per season |# of survey respondents |% of survey respondents |
|1 |62 |24% |
|1 to 3 |82 |32% |
|3 to 5 |51 |20% |
|5 to 9 |31 |12% |
|10 or more |24 |9% |
Question 5. How many seasons have you snowmobiled in the Revelstoke Area?
|# of seasons |# of survey respondents |% of survey respondents |
|0 (First time) |19 |7% |
|1 |41 |16% |
|2 to 4 |87 |34% |
|5 to 9 |65 |25% |
|10 or more |40 |16% |
Question 6. Do you plan to snowmobile in Revelstoke in the futures? 99% responded positively.
Question 7. What areas do you prefer to snowmobile while in the Revelstoke area?
|Snowmobile Area |# of responses |
|Boulder |214 |
|Frisby |125 |
|Keystone |64 |
|Sale |32 |
|All areas |19 |
|McCrae |5 |
|Turtle |5 |
|Sicamous |4 |
|Hall |4 |
|Trout Lake |3 |
|Downie, Eagle Pass, Empress, Mt. Gebgie, Blue Lake, Griffin, Highway and Paint Lake were also mentioned. |
Question 8. 9. and 10.: Snowmobiling restrictions and Caribou Habitat
|Question |Yes Response |% |
|Are you aware of motorized restrictions in some Revelstoke areas used for snowmobiling |224 |87% |
|Are you aware of where the restricted snowmobiling areas are in the Revelstoke area? |217 |84% |
|Are you aware that while in the Revelstoke area you may be snowmobiling in Caribou habitat? |234 |91% |
|Are you aware that the Mountain Caribou are a threatened species? |208 |81% |
Question 11 and 12: Wildlife encounters:
76 survey respondents indicated that they have encountered wildlife while snowmobiling in the Revelstoke Area. Species identified were: 35 Caribou, 46 Moose, 13 Deer, 12 Elk as well as bears, coyote, weasel, fox, rabbit and several birds.
Question 13. Expenses
| |# of Responses |Average per person/per |Minimum Reported |Maximum Reported |
| | |day | | |
|Accommodation |223 |$49.00 |$14.00 |$250.00 |
|Meals |220 |$38.39 |$12.00 |$200.00 |
|Snowmobile Costs |218 |$52.83 |$10.00 |$250.00 |
|Entertainment |168 |$50.27 |$2.00 |$200.00 |
|Miscellaneous |119 |$33.13 |$5.00 |$200.00 |
Question 14. What do you like most about snowmobiling in the Revelstoke Area?
|Theme of response |# of respondents |
|The Snow |149 |
|The Powder |31 |
|Areas (variety, riding) the hills |50 |
|Conditions/temperature/weather |15 |
|Groomed trails |24 |
|Accommodations/services/hospitality |23 |
|Friendly / people / town |24 |
|Scenery / the mountains |27 |
|Access |3 |
|Challenge |5 |
|Cabins |4 |
|Other: access to helicopter, everything, fun, tour guide, good for all levels of sledders |
Question 15. What could Revelstoke do to make your visit here more enjoyable?
|Theme of response |# of respondents |
|Already doing a good job |32 |
|More areas/ grooming |22 |
|Keep grooming / keep up good work |8 |
|Security / stop theft |6 |
|Better weather / snow conditions |12 |
|Better prices / No PST / discounts / package deals |12 |
|Better / more parking |5 |
|Better highway to Revelstoke |7 |
|More signage / maps |14 |
|More night life / taxis |8 |
|More snowmobile repair services / dealers |9 |
|More hotels / fast food / restaurants |6 |
|Other: Do not charge at hill, disappointment with hotel management, sale of consumable items on hill (mini store), plow streets |
|better, souvenir shop for us tourists, build a mall, jumbo carwash, chapters bookstore, less trees, make sure trails are groomed |
|if paying trail pass fee, more shopping venues, customer service (smile), trail to Boulder narrow in some spots |
Question 16. Where are you from?
|Alberta |Other Canada |Northwest USA |BC Interior |Other USA |Other BC |Revelstoke |
|171 |37 |25 |8 |5 |4 |2 |
APPENDIX C
Implications of Snowmobiling on Mountain Caribou
Annual Report: Year One
Prepared by:
Janis Hooge, Carla Davidson and Bruce McLellan
December 2001
|Funding provided by: |Columbia Basin Trust |
| |Friends of Mt. Revelstoke and Glacier National Parks |
| |Habitat Conservation Trust Fund |
| | |
|1 |Janis Hooge |2 |Bruce McLellan |
| |Box 2495 | |B.C. Ministry of Forests |
| |Revelstoke, B.C. V0E 2S0 | |RPO #3 Box 9158 |
| |janishooge@ | |Revelstoke, B.C. V0E 2S0 |
| | | |bruce.mclellan@.bc.ca |
Introduction
Woodland caribou that live in wet ecosystems with deep snowpacks have been identified as mountain caribou (Heard and Vagt 1998). These caribou are closely associated with old forests that are relatively common in these wet regions. In these forests, arboreal lichen (Bryoria spp. and Alectoria sarmentosa), the primary winter food of caribou, is abundant (Stevenson et al. 1994) while predators are rare (Seip and Cichowski 1996). Due to their low population size, fragmented distribution, low reproductive rate, declining population trend and potential for conflicts with people, mountain caribou have been “red-listed” or classified as a threatened ecotype (B.C. Conservation Data Centre 2001, COSEWIC 2001).
The potential conflict between mountain caribou habitat requirements and forest practices has led to mountain caribou studies over most of their distribution in south-eastern British Columbia. The focus of these studies has usually been related to forest management. Habitat selection by mountain caribou has been well documented (Simpson et al. 1987, Rominger and Oldemeyer 1989, Seip 1992, Terry et al. 2000, Apps et al. 2000), as have methods of partial cutting forest stands to maintain habitat attributes that are important to caribou (Stevenson et al. 2001) and caribou population characteristics (Seip 1990, Heard and Vagt 1998, Flaa and McLellan 1999).
During the extensive land-use planning processes that were completed in British Columbia during the 1990s, integrating habitat needs of caribou with forest management was a primary issue addressed wherever these animals are found and relied heavily on information from the various caribou studies. Since the initiation of these planning processes, however, backcountry winter recreation has increased to where it is also a prominent issue facing land managers. Due to improved access and equipment, plus an increasing demand by the public and commercial enterprises, the potential for conflict between mountain caribou and winter recreationists has rapidly grown.
While most caribou-related issues facing the forest industry are in the more productive, lower-elevation forests used by caribou in the early winter, recreational issues occur mainly in the high-elevation, late winter habitat. The open, subalpine fir (Abies lasiocarpa) parkland conditions that make ideal late winter caribou habitat have the same features that create ideal snowmobiling, heli-skiing, and ski-touring terrain. Although the effects of winter recreational activities on caribou have not been the primary focus of research, anecdotal observations by many biologists have indicated that some caribou have been displaced at least temporarily by snowmobiling (H. Armleder, J. Hooge, B.N. McLellan, G. Watts, J. Young, pers. comm.). In addition, the concurrent abandonment of winter ranges by caribou such as Boulder Mountain, Big Timothy Mountain and Yanks Peak while snowmobiling use dramatically increased has led to concern over compatibility. However, caribou range abandonment in the absence of snowmobiling and continued use by some caribou in areas with snowmobiling indicates that the relationship between snowmobiling and caribou is complex.
Both mountain caribou and mountain snowmobiling are largely unique to British Columbia and therefore British Columbia cannot rely on research done in other jurisdictions for direction on this specific issue. Existing literature on the effects of various types of disturbance on caribou comes mostly from industrial and military sources of disturbance (Bradshaw 1994, Bradshaw et al 1997, Bradshaw et al 1998, Nelleman and Cameron 1996, Harrington and Veitch 1991). Disturbance from petroleum exploration in northern Alberta (Bradshaw 1994) caused displacement of caribou and he suggested that the displacement may have been sufficient to reduce reproductive rates (Bradshaw et al 1998). In Québec, Duchesne et al (2000) found caribou increased vigilance at the expense of foraging when ecotourists were present.
The effects of snowmobiling on other cervids has largely been limited to travel along roads and trails and studies have had varied results. In areas of Yellowstone National Park, where animals are highly habituated to large numbers of tourists, elk (Cervus elaphus) showed little overt response to snowmobiling (Schultz and Bailey 1978). However, a recent study in Yellowstone showed a direct relationship between snowmobiling intensity and levels of stress hormones in elk (Creel et al 2001). Other studies have found whitetail deer (Odocoileus virginianus) to be temporarily displaced from areas near snowmobile trails (Dorrance et al 1975).
In January 2000, the Columbia Basin Trust (CBT) provided funding to investigate the effects of recreational snowmobiling on caribou habitat use in the Revelstoke area. Research activities for the remainder of that winter included monitoring trail use by snowmobiles in the Frisby Ridge and Keystone-Standard Basin areas, obtaining historic snowmobile use data, and radiocollaring study animals in the Keystone-Standard Basin, Frisby Ridge, and Sale Mountain areas. Later that spring, the Habitat Conservation Trust Fund (HCTF) provided funding to extend this research project into other areas of the province.
Due to the exceptionally low snowpack during the 2000-2001 winter, many caribou did not move into their normal high-elevation winter ranges because there was an insufficient snowpack to lift them to where lichen is abundant in the tree canopy. In addition, the radiocollared caribou that did move to typical high-elevation winter ranges did not use areas with snowmobiling. These conditions precluded work on both the field activities and the late-winter censuses that had been planned for this season. In the spring of 2001, a retrospective analysis of existing caribou data was conducted. Using data collected during the course of past habitat studies, we attempted to detect whether there has been a long-term change in the amount of caribou use of specific snowmobiling destinations.
Study Areas
Mountain caribou exist in the interior wet-belt of south-eastern and east-central British Columbia. The specific areas used in this study include:
1. Columbia Forest District
Recreational snowmobiling, both by local residents and tourists, has a long history in the Columbia Forest District. Areas such as Frisby Ridge have had snowmobile use since the 1970s. Recent improvements have enabled snowmachines to operate in deeper snow and steeper terrain and these areas now receive more intensive use for a longer portion of the winter than in the past. The Revelstoke Snowmobile Club (RSC) operates a snowcat to groom access roads to the subalpine on Frisby Ridge, and there are commercial guiding and rental businesses operating in this area as well. A portion of the Frisby Ridge area is closed to snowmobile use to provide a secure area for caribou and the RSC has installed signs that provide guidelines on appropriate behaviour when caribou are encountered. Simpson (1987) estimated 400 snowmobile-use days on Frisby Ridge between January and April 1985, and reported that most use occurred in March and April when snow conditions permitted more efficient travel. It is now common for Frisby Ridge to have >100 snowmobilers/day during peak season.
Other areas in the Columbia Forest District used by both snowmobiles and caribou include Keystone/Standard Basin and Sale Mountain. Until the mid-1990s, Keystone/Standard Basin received occasional, late-season use, largely from local snowmobilers. However, in the last three years use has increased to >80 snowmobiles/day during busy weekends. There were no areas closed to snowmobiling in the Keystone/Standard Basin area. A pilot project by the RSC to groom the access road to Keystone/Standard Basin was tested in 1999/2000 but has been discontinued.
Snowmobiling and caribou share the same terrain on Sale Mountain, however, animals radiocollared near this area and late winter censuses have shown so little caribou use of this area over the past decade that it will not be discussed in this report.
2. Silvercup Ridge
Silvercup Ridge is located approximately 130 km north of Nelson. This ridge rises immediately above the northeast side of Trout Lake, separating the lake from the headwaters of the Lardeau River. The nearest population center to this snowmobiling area is Nakusp which is approximately a one hour drive away. There is year-round accommodation and a gas station in the nearby town of Trout Lake, and these facilities are interested in developing this area as a snowmobiling destination.
Topographically, Silvercup Ridge is similar to Frisby Ridge, consisting of a long alpine ridge with gentle basins on one side and more rugged terrain on the other. Most snowmobilers access the alpine area via American Creek or Rue de Beau roads on the south half of the ridge. Old mining roads, as well as newer logging roads, provide access to the alpine. There is also heli-skiing on Silvercup Ridge. Until the early 1990s, there was virtually no snowmobile use of this area, but up to 15 snowmobilers/day use it now (D. Seaton, pers. comm.). There are no access restrictions in this area.
3.Cariboo Forest Region
There are several caribou wintering areas within the Williams Lake region that are used by snowmobilers. Snowmobile use predates the collection of telemetry data in some of these areas. Some terrain in this area is less rugged than the Columbia Forest District or the Central Selkirks and caribou winter on subalpine plateaus and broad mountaintops which provide more continuous habitat. Several areas of concern exist in the Cariboo Region including Groundhog Lake, Yanks Peak, Cameron Ridge, Bill Miner Creek, and Mica Mountain. There is one commercial snowmobile operator working out of the Wells area.
Methods
The data used in this analysis were collected during previous caribou habitat studies. For each study, caribou were captured in late winter by netgunning from a helicopter. They were collared with mortality-sensitive radiocollars and their location recorded at least biweekly during the winter from a fixed-wing aircraft.
Caribou were censused when most were in alpine and subalpine habitats during March. Shortly after a new snowfall, 3 observers would fly in a helicopter along a contour close to treeline (1,800 – 2,130 m). Tracks observed would be followed until the animals were observed and counted. The censuses conducted since 1994 in the Columbia Forest District are thought to be more thorough than those conducted earlier.
Snowmobiling areas in Columbia Forest District, Silver Cup Ridge, and Cariboo Forest Region were identified by combining the input of local snowmobilers with the knowledge of pilots and caribou biologists familiar with the area. These areas were delineated on 1:50000 topographic maps or 1:20000 orthophotos then digitised into the GIS PAMAP on 1:20000 maps. Census observations and late winter (January – April) caribou telemetry locations were overlaid on the snowmobiling polygons to determine the proportion of caribou use in snowmobiling and in non-snowmobiling areas for each year.
In the Mica Mountain area, snowmobiling activity is centered near the peak and surrounding basins. In this area distances of caribou radio locations from Mica Mountain peak were compared between years to test the hypothesis that as snowmobiling increased, caribou shifted their use away from the center of activity and onto adjacent ridges.
Results
Columbia Forest District
Censuses were conducted in the Columbia Forest District each winter between 1988 and 1991, and in 1993,1994, 1996 and 1997. In Standard Basin, caribou were frequently seen in the snowmobiling area in most years (Figure 1). On Frisby Ridge, no caribou have been seen in the snowmobiling area during a census since 1988. Based on census data, the total number of animals on Frisby Ridge (snowmobile and non-snowmobile areas) has declined since 1994. (Figure 2).
In the Williams Lake area, caribou have been censused each winter since 1993. There does not appear to be a change in the proportion of caribou seen in snowmobiling areas (Figure 3). Censuses were conducted in the Silvercup Ridge area annually from 1996 to 1999. No caribou were observed in the snowmobiling area during these censuses but they were found in the basins on the northeast side of the ridge.
In the Standard Basin area, two caribou were radiocollared in 1992 and two others in 1993. Between 1993 and 1999, these animals were located in the snowmobiling area 8 to 26 % of the time during the late winter period. In 2000 and 2001, they were not found in this area but used high-elevation ridges to the southeast of Standard Basin (Figure 1).
On Frisby Ridge, four caribou were radio collared in 1981 and 1982 and were located until 1984 by Keith Simpson. In 1993, four more were collared. In the 1980s and between 1994 and 1996, 14 to 36% of the radiolocations were in the snowmobiling area. Collared animals were not located in the snowmobiling area since 1996 (Figure 2).
Silvercup Ridge
On Silvercup Ridge five caribou were radiocollared between 1995 and 1998. These animals were relocated 25 and 36% of the time in the snowmobiling area in 1996 and 1997 respectively. In 1997 and 1998, they were located 9 and 8% of the time in the snowmobiling area respectively (Figure 4).
Cariboo Forest Region
Between 1994 and 2000, 8 to 20% of the late winter caribou radio locations in the Williams Lake Region were in snowmobiling areas. In 1993, the first year animals were monitored, 38% of the locations were in snowmobiling areas (Figure 3).
Caribou locations collected in the 1980s when snowmobiling was relatively uncommon were an average of 7.9 km (n= 60, SD = 4.4) from Mica Peak and significantly less (t = 3.45, df = 136) than the 10.5 km average (n = 78, SD = 4.3) during the 1990s. Furthermore, caribou relocations from 1993 – 1997 were an average of 8.5 km (n = 35, SD = 3.7) from Mica Mountain and significantly less (t = 3.98, df = 76) than the 12.1 km average (n = 43, SD = 4.0) from 1998 -2000 during which time access to the alpine was improved through implementation of a trail grooming program. With the exception of the above specific data since 1994, there has been no obvious trend in caribou movements in or out of the snowmobile areas within the Cariboo Region. The telemetry and census data suggest a decrease in caribou use of snowmobiling areas between 1993 and 1994. Other areas, such as Bill Miner Creek, have recently had a reduction in caribou use (Jim Young pers. comm.). The Bill Miner drainage was at one time consistently used by caribou in the winter, but in the last five years has received only minimal caribou use.
Discussion
Results of retrospective studies are often equivocal. The level of control necessary to disentangle the multitude of factors influencing the behaviour or population process of a species is rarely obtained without carefully planned experimental design. Our study is not an exception. There is a trend suggesting a shift of caribou use away from snowmobiling areas over the years, however, this result is inconclusive. The original intent of the telemetry studies was not to specifically collect data from snowmobiling areas, but to ensure an even representation of collared animals over their entire distribution. This design resulted in fewer collared animals in or near snowmobiling areas than would have been optimal.
Of all the areas with snowmobiling and caribou-use data, Keystone/Standard Basin appears to have the most appropriate information. There, caribou were collared and monitored when there was very little snowmobile activity but snowmobiling rapidly increased while collared caribou were monitored. In Keystone/Standard Basin, caribou have shifted the areas that they use over the past five winters. They now spend nearly all of the winter in areas inaccessible to snowmobiles. During regular telemetry flights over the Keystone/Standard Basin area in the winters of 1999-2000 and 2000-01, only a few sets of caribou tracks were observed in the areas used by snowmobiles. The absence of caribou from this winter range over the past two winters may be a reflection of the unpredictability of caribou movements. If caribou continue to avoid this area, however, it may indicate the start of long-term range abandonment similar to that on Boulder Mountain, Big Timothy Mountain and Yanks Peak.
The results of census and telemetry data from Frisby Ridge show a similar pattern as Keystone/Standard Basin with no animals being seen in the snowmobiling area during censuses for many years. On Frisby Ridge, however, a few caribou are still observed by snowmobilers and the animals show little or no immediate reaction to the machines (Tom Dickson and Ron LaRoy, RSC). It appears that a small group of animals may have gradually become habituated to the gradual increase in snowmobile use in this area over the past 20 years. The relatively narrow and long ridge with areas closed to snowmobiling may have enhanced the habituation process. When in areas closed to snowmobiling or some steep side basins, caribou can be close enough to hear snowmobiles but infrequently encounter them at close range. Steeper ridges, such as Frisby Ridge or Silvercup Ridge where portions are not snowmobiled due to closures or difficult terrain, likely provide animals with greater security than more open plateaus such as Keystone/Standard Basin or portions of the Cariboo Forest Region (i.e. Quesnel Highland) and thus more intensive snowmobiling could be tolerated. Understanding the process of caribou habituation to predictable and innocuous activities, and the many factors involved in this process, will be an important step towards integrating caribou and snowmobiling.
Animal movement may be one of the easier response variables to measure in a disturbance study, but other aspects of an animal’s behaviour are also important. Knight and Cole (1995) suggested that responses to disturbance may be both short and long term. Temporary movements away from a disturbance, an alteration in activity patterns, or a physiological response such as an increase in heart rate would be examples of short-term reactions. These factors, however, may be additive and translate to more serious long-term effects. For example, a decrease in time spent foraging plus the increased energy expenditures associated with displacement from a preferred feeding or resting area may reach a threshold where an individual’s fitness could be affected and thus have consequences at the population level. Stress hormones are produced as a short-term response to environmental stress, but if chronically elevated they may have detrimental physiological effects such as immune system suppression and decreased reproduction (Creel et al 2001). Deer and elk exposed to all-terrain vehicle (ATV) disturbance showed decreased reproductive success (Yarmoloy 1988, Phillips 1998).
Although animals may alter their temporal use of an area to avoid recreationists, shifts in behaviour have costs usually in the form of inefficient foraging or increased movements. Elk that were experimentally disturbed by an ATV made greater daily movements than undisturbed animals (Vieira et al 2000) and elk responded more strongly to situations where human activity was unpredictable and inconsistent (Schultz and Bailey 1978). During experimental closures on Frisby Ridge during the mid-1980s, Simpson (1987) found increased caribou use of the central portion of the ridge when it was closed to snowmobiles. Animals used the portion of the ridge that was left open to snowmobiling less frequently when the adjacent section was closed.
Even seemingly low-impact recreational activities may have an effect on caribou. In Québec, Duchesne et al (2000) studied the responses of woodland caribou to regular, escorted ecotourist visits. They found that during the disturbance period, caribou spent more time standing and in vigilant behaviours at the expense of time spent foraging and resting compared to periods when groups of people were not present. For elk, standing requires 25% more energy consumption than resting (Parker et al 1984) so even this seemingly inconsequential response may have affect an individual’s body condition if subjected to this disturbance on a regular basis. Duchesne et al (2000) also reported that these effects decreased as the winter progressed. This decrease may reflect habituation of the animals to the ecotourists or it may be that the animals could not afford to maintain this response as their body condition dropped later in the season.
Results of disturbance studies conducted in other areas are unlikely to be directly applicable to the mountains of British Columbia because both mountain snowmobiling and mountain caribou and their habitat are different from situations in other areas. In most other studies, snowmobiles were restricted to roadways or trails in relatively flat terrain (Dorrance 1975, Eckstein 1979, Freddy 1986, Creel et al 2001). Displacement in these areas may have less impact on animals than in more mountainous terrain where wintering areas consist of discrete units of subalpine habitat that are separated by steeply-sided valleys. Animals travelling from one winter range to another may risk exposure to hazards such as avalanches in steep terrain or predators that are more abundant at low elevations.
Conclusions
In summary, the existing data do not provide conclusive information on the long-term effects of snowmobiling on mountain caribou. Results from other studies, however, indicate that recreational disturbance, including snowmobiling, has behavioural and physiological effects in other ungulates. Although some caribou continue to inhabit a few areas used by snowmobilers, the reduction in use or abandonment of high-quality winter ranges may indicate that the current level of snowmobile use interferes with caribou use of these areas.
Recreational disturbance is only one of several factors that may influence the number and distribution of mountain caribou. However, declines in the number of caribou is some areas, along with alterations in the distribution of caribou over the last decade, suggest that some factor or combination of factors is having a negative effect on mountain caribou populations. Until more is known about the role of recreational disturbance in this trend, a cautious approach to any expansion of recreational use should be taken in late winter caribou habitat. In the interim, further recreational development should be focused in areas that are outside the current range of mountain caribou. The effectiveness of management plans in areas such as Frisby Ridge should be monitored to evaluate recreationists’ adherence to current guidelines and the level of caribou use of these areas.
Funding is currently in place to continue with the research program initiated in 2000. Recent developments such as fecal stress hormone analysis provide a noninvasive method to observe physiological stress in both control animals (caribou that are not exposed to recreational disturbance) and experimental groups living in areas with varying levels of disturbance. As well, monitoring the continued caribou use of areas that receive, or are projected to receive, increasing levels of use will provide baseline data to evaluate the impacts of recreational development.
Figure 1: Caribou Locations in the Standard Basin area.
Figure 2: Caribou Locations in the Frisby Ridge area.
Figure 3. Caribou locations in the Williams Lake area.
Figure 4. Caribou locations on Silvercup Ridge
References
B. Apps, C.D. B.N. McLellan, T.A. Kinley and J.P. Flaa. 2000. Scale-dependent habitat selection by mountain caribou, Columbia Mountains, British Columbia. Journal of Wildlife Management 65(1): 65-77.
C. Conservation Data Centre B.C. Red-List 2001. Ministry of Sustainable Resources. Victoria, B.C.
Bradshaw, C.J.A. 1994. An assessment of petroleum exploration on woodland caribou (Rangifer tarandus caribou) in northeastern Alberta. M.Sc. thesis, University of Alberta, Edmonton.
Bradshaw, C.J.A., S.Boutin, and D.M. Hebert. 1997. Effects of petroleum exploration on woodland caribou in northeastern Alberta. Journal of Wildilfe Management. 61: 1127-1133.
Bradshaw, C.J.A., S. Boutin and D.M. Hebert. 1998. Energetic implications of disturbance caused by petroleum exploration to woodland caribou. Canadian Journal of Zoology 76:1319-1324.
Cassirer, E.F., D.J. Freddy, and E.D. Ables. 1992. Elk responses to disturbance by cross-country skiers in Yellowstone National Park. Wildlife Society Bulletin 20:375-381
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Creel, S., J.E. Fox, A. Hardy, J. Sands, B. Garrott and R.O. Peterson. 2001. Snowmobile Activity and Glucocorticoid Stress Responses in Wolves and Elk. Conservation Biology (In Press).
Dorrance, M. J., P. J. Savage, and D. E. Huff. 1975. Effects of snowmobiles on white-tailed deer. Journal of Wildlife Management 39(3):563-569.
Duchesne, M. S.D. Côté and C. Barrette. 2000. Responses of woodland caribou to winter ecotourism in the Charlevoix Biosphere Reserve, Canada. Biological Conservation 96(2000): 311-317.
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Acknowledgments. We thank the many people who supplied data and information for this report. This includes Dennis Hamilton, Doug Seaton and Graham Smith for data and information on the Silvercup Ridge area and Jim Young and John Youds of the Ministry of Water, Air and Land Protection (Cariboo Region) for data from the Williams Lake area. We also thank John Flaa of Parks Canada for helping to initiate this project and for ongoing help in the field. Tom Dickson and Ron LaRoy of the Revelstoke Snowmobile Club provided information on snowmobiling use for the Revelstoke area. Funding was provided by the Habitat Conservation Trust Fund through Ian Hatter and James Quayle of the provincial Wildlife Branch, the Columbia Basin Trust through its Affected Communities Initiative, and the Friends of Mt. Revelstoke and Glacier National Parks.
APPENDIX D
Agreement between
the Ministry of Water, Land and Air Protection, Wildlife Branch,
Ministry of Forests, and
the Revelstoke Snowmobile Club,
Regarding Snowmobile Areas in the Revelstoke Area
Preamble
Snowmobiling is a highly popular recreational activity in the mountains north of Revelstoke. Mountain caribou occupy high elevation late winter ranges in the area north of Revelstoke in both the Monashee and Selkirk mountains. The overlap between snowmobiling and wintering caribou from December through April initiated this agreement on the shared use of key areas. Five areas have site specific agreements and two larger areas have a general agreement on the timing and areas of use by snowmobilers.
Parties to the Agreement
There are three parties to this agreement:
Revelstoke Snowmobile Club (RSC), Revelstoke British Columbia
Ministry of Water, Land and Air Protection (MWLAP), Wildlife Branch, Nelson, British Columbia.
Ministry of Forests, Columbia Forest District, Revelstoke, BC.
Site Specific Agreements
Frisby Ridge
The ridge has been mapped into three areas (Map 1). In area 1, the northern area (shown outlined in red), a trail will stay open in to the cliff lookout, and be understood as a trail only. A safety / self rescue trail will also be marked from the ridge top to the Westside road. The remainder of Area 1 will be closed to the use of snowmobiles from December 15 to April 15 above 1300 meters elevation. RSC agrees that they will better define the east boundary of Area 1 with signs to eliminate incursions into caribou habitat, and work to improve both educational and signing initiatives.
Area 2 will remain open to use of snowmobiles. Caribou utilize this area and snowmobilers will avoid disturbing caribou when they are observed by moving away from the caribou use location.
Area 3 is not subject to any changes. Area 3 will be open to snowmobiling as mapped, with use narrowing to a trail along the height of land in the northern section between Areas 2 and 3 and staying out of the closed areas (Map 1).
Areas not shown as open to the use of snowmobiles on Map 1 are closed to their use from December 15 to April 15 annually.
The details of agreed upon in this section reflect the tenants of the original Frisby agreement. Operational enforcement will be increase through additional efforts by the RSC and through enforcement efforts by MWLAP .
Sale Mountain
The access road to the microwave tower from valley bottom to the tower remains open at all times of the year .
Area 1 (Map 2) remains open, including access route into entire geographic unit.
Area 2 (Map 2) is closed to snowmobile access December 15 to Apri1 15.
Keystone and Standard Peak
The RSC assures that the Keystone / Standard Peak access road would remain un- groomed and not promoted.
The current access trail and Keystone Basin (Area 1 and 3) will remain available for unrestricted access. Boundaries and trail routes are identified on Map 3. A small closure area at the south end of the first ridge will be signed to prevent snowmobile use south of the open area (area 2).
Standard Basin
Area 4 (Map 3) will remain open during entire winter season. Areas 5 and 6 will remain closed during the December 15 to April 15 caribou use period. As an additional condition, if MWLAP determines that there continues to be unacceptable levels of snowmobile use within Areas 5 and 6, this component of the agreement will be renegotiated between MWLAP and the RSC.
Caribou Basin
Access to Caribou Basin will be along a designated trail to the designated snowmobile area of the Basin ( Area 1, Map 4) .Snowmobiling on the trail and open area will occur only on weekends and statutory holidays, during the December 15th to April15th caribou use season. Restriction lifted after this date. Areas outside the designated trail and open area will not be used for snowmobiling during the December 15 to April 15 period annually.
Carnes Ridge
A decision on snowmobile use on Carnes Ridge (Map 5) has been defe1Ted until autumn of 2002. The RSC will detel11line feasibility of Carnes Ridge for use, and renew discussions in autumn of 2002, pending those findings.
Broad Areas of Agreement
Monashee Mountains North of Frisby Ridge (Columbia watershed side)
Existing closure will be modified to move south boundary to the south end of Area 1 on Frisby Ridge (Map 1 ). The area north of the line will remain closed to the use of snowmobiles between the elevations of 1300 meters and 2100 meters during the December 15 to April 15 winter caribou use period. The exceptions will be the trails to the north end of Frisby Ridge (Map 1 ), Bourne Glacier (British Columbia Reg. 196/99) .
Selkirk Mountains North of the Goldstream River (west of the Columbia Divide)
Existing closure will remain between the elevations of 1300 meters and 2100 meters during the December 15 to April 15 winter caribou use period. The exception will be the trail to Fred Laing Ridge (British Columbia Reg. 196/99).
Ministry of Sustainable Resource Management will investigate the capability of this area to support commercial snowmobiling activity , given its remoteness and relative negligible use by public snowmobiling.
The RSC will also informally investigate this area to establish any specific points of interest, including Groundhog Basin, for future discussion. MWLAP acknowledges that there may be additional high elevation areas that could sustain snowmobiling without jeopardy to mountain caribou. Trails to these areas will be considered if the RSC initiates discussions on them. Investigation of use of these areas will require a. permit administered by MWLAP .
Regulatory Framework.
The existing regulation (B.C Reg. 196/99 Motor Vehicle Prohibition Regulation, Snowmobile closed areas 7.1 and Schedule 7 Revelstoke (2). ) will be modified as described in the Frisby Ridge section noted above.
The new closure areas described for Sale Mountain, Standard Peak and Caribou basin will be created as regulations under the Wildlife Act (B .C Reg. 196/99 Motor Vehicle Prohibition Regulation, Snowmobile closed areas) for the 2002/3 period.
Monitoring
Increased snowmobile and caribou use monitoring will be undertaken by MWLAP and the RSC to determine the success of this Frisby Ridge agreement. Results of investigations, strategies developed and result reports from monitoring efforts will be developed jointly.
Funding
MWLAP will assist the RSC in obtaining funds for signage and operational assistance through funding agencies such as the Habitat Conservation Trust Fund and the Columbia Basin Fish and Wildlife Compensation Program. MWLAP and RSC will work with MSRM to obtain funds for publicizing access management.
Agreement
The Ministry of Water , Land and Air Protection representatives and the Revelstoke Snowmobile Club representatives agree that this management plan will be implemented during the 2002 year and into the future. This agreement may be opened at any time by either party with a letter of request.
Signed
Guy Woods,
Fish and Wildlife Science and Allocation,
Ministry of Water Land and Air Protection.
F. Grant Dowdy
President
Revelstoke Snowmobile Club
Dave Raven,
District Manager,
Ministry of Forests, Columbia District.
APPENDIX E
References:
Canadian Council for Snowmobile Organizations, A Response to the Species at Risk Act. Brief presented to the Standing Committee on Environment and Sustainable Development. April 2001.
Hooge, J., Davidson C., and McLellan B. Implications of Snowmobiling on Mountain Caribou. Annual Report: Year One, B.C. Ministry of Forests unpublished report. 2001
Pannell Kerr Forester Consulting Inc. in association with Research Resolutions, Canadian Tourism Research Institute, Drew North Consulting, and Lumley Marketing and Leisure Events Ltd. National Snowmobile Tourism Study. Final Report, 2001
Prince, C., Draft Snowmobile Market Development Study for Valemount. 2002.
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[1] A Response The The Species at Risk Act, Brief Presented to the Standing Committee on Environment and Sustainable Development, Canadian Council for Snowmobile Organizations, April 2001
[2] Ibid.
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