Future Direction

Charting the Course

by Ted Chudleigh, M.P.P.

Parliamentary Assistant,

Ministry of Natural Resources, 1997-2001

2 0 0 1

Part of Ontario’s Living Legacy

THE Great Lakes Heritage Coast

Lake Superior, title page

Agawa Beach, right

Lake Superior and Agawa Beach photos:

Bill Howe, Superior Imaging

from the Honourable John C. Snobelen

T he Great Lakes Heritage Coast project, launched on January 27, 2000,aims to protect and promote one of the nine signature sites identified as partof Ontario’s Living Legacy. The Heritage Coast is a magnificent sweep of

shoreline stretching from Port Severn to Pigeon River.

To facilitate the project, I appointed Ted Chudleigh, my former ParliamentaryAssistant, as government lead. I asked Mr. Chudleigh to report back to me withsuggestions for reaching the goal of long-term protection of the Heritage Coast’ssignificant values and natural resources, while promoting the tourism and recreationbenefits of its scenic beauty and cultural heritage.

After a very ambitious series of community consultations, Mr. Chudleigh submitted this report to me with a number of recommendations. These recommendations include the preparation of a strategy for the Heritage Coast; continuing efforts to foster co-operation and partnerships; and the need to examine options for the longer-term implementation of the Heritage Coast. The government has accepted Mr. Chudleigh’s recommendations and is anxious to see them implemented.

This document outlines future directions for management of the Great Lakes HeritageCoast. I am pleased that we are moving forward, and I have asked Mr. Toby Barrett,my new Parliamentary Assistant, to guide this important initiative.

Hon. John C. SnobelenMinister of Natural Resources

Message from John Snobelen, Minister of Natural Resources

iii

MessageTo the people

of the

Great Lakes Heritage Coast

Morrison Creek Beach, Pukaskwa National Park Photo: Bill Howe, Superior Imaging

The Great Lakes Heritage Coast is

one of Ontario’s treasures. Last

year, we asked the people of the

coast to “Imagine the Possibilities.” They

have far exceeded our expectations.

In addition to imagining the possibilities, we

hosted meetings, gave presentations, held

workshops, participated in discussions, and

heard from people about their thoughts and

visions for the Heritage Coast. We also

experienced the coast. We drove, flew, paddled,

hiked and swam parts of the coast.

What we learned is that we have one of the

most unique natural landscapes that exists

anywhere in the world! We now have the

opportunity, as part of Ontario’s Living

Legacy, to enhance it, to share it, to enjoy it

and, above all, to protect it.

It has become clear to me that the success of the

Great Lakes Heritage Coast will depend upon

the continued involvement, commitment and

leadership of those who share the vision to

maintain and protect the quality and beauty

of the coast. There is much more work to be

done. To guide that work, I’ve recommended

the preparation of a Heritage Coast Strategy –

a strategy that will guide the actions of

government and partners in the future.

As work continues and decisions are taken

toward making this concept a reality, we all

need to remember and uphold the visions and

principles which received resounding support

from the people of the coast. The Great Lakes

Heritage Coast is a spectacular part of

Ontario; let’s work together to keep it that way.

On behalf of Premier Mike Harris, Minister

John Snobelen and the Great Lakes Heritage

Coast project team, I would like to thank all of

those people who shared their interest, support

and consideration of this initiative. I hope you

continue to imagine the possibilities and work

together to develop the Heritage Coast concept.

The experience of meeting and working with

people who are committed to protecting and

enhancing this part of Ontario’s Living

Legacy will remain a special part of my

experience at the Ministry of Natural

Resources. Thank you.

Ted Chudleigh, M.P.P.

Parliamentary Assistant,

Ministry of Natural Resources,

1997-2001

from Ted Chudleigh

v

The vision

The Great Lakes Heritage Coast is an area of outstanding scenic beauty,

with wild natural landscapes and cultural values that provide high quality

experiences. This outstanding natural resource must be protected to

ensure that it remains special and available to the people of Ontario.

The coast should be preserved in its wild and pristine state, and its ecological

diversity and scenic beauty protected and restored for the benefit of current and

future generations.

The outdoor recreation and tourism opportunities along the coast can contribute

to stronger, more diversified economies within coastal communities.

Through co-operation among different levels of government, communities,

Aboriginal peoples, resource industries and interest groups, the Great Lakes

Heritage Coast will remain an outstanding, high quality natural resource and

become one of the primary tourist destinations in the world.

The Vision for the Coast

Denison Falls

Photo: J.T. Cooper

vii

guiding principles

During community discussions on a collective vision for the Great Lakes HeritageCoast, six important principles emerged. These form the guiding principles forplanning and management of the Heritage Coast, with the overall principle being the

protection of its natural beauty and its ecosystems.

ProtectionThe long-term protection of the wilderness beauty of the Heritage Coast and protection andrestoration of its ecosystem is the number one priority. All future management actions should beconsidered within the framework and understanding of coastal ecosystems and their interactions.

BalanceTo ensure the long-term future of the Heritage Coast, its pristine beauty and “accessiblewilderness” must be maintained. Within this wilderness setting, efforts will be made to promotetourism use and strategically located tourism development that complements the collectivevision for the coast.

StewardshipStewardship initiatives that provide private land stakeholders with the tools they need to supportthe coastal ecosystem should be encouraged and supported. Stewardship should also encouragelocal initiatives and decision-making while providing effective grassroots guardianship.

Education and Knowledge The coast presents a “living classroom” of global significance. It is important to accumulate newand existing information, use it effectively in decision-making and make it available foreducational use throughout the coast.

DevelopmentNew sustainable development that takes place should complement the coastal ecosystem and be consistent with a collective vision for the Heritage Coast. Quality tourism facilities andinfrastructure should be directed to existing communities. Crown shoreline and islanddevelopment should generally be limited to recreational infrastructure, such as campsitefacilities, trails, access points and docks.

Management Management of the Heritage Coast must be guided by these principles and the collective visionfor the coast, while recognizing and providing for regional differences. Co-ordination and co-operation among municipal, provincial and federal governments, First Nations andstakeholders are vital. Promotion of the coast will require significant efforts and resources toensure increased use does not negatively affect the natural values of the coast.

Guiding Principles

Pointe au BarilLighthouse

Pancake Bay

Pancake Bay Photo:

Bill Howe, Superior Imaging

ix

Club Moss, rightAgawa Canyon

Contents

Message from Minister John Snobelen. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . iii

Message from Ted Chudleigh, M.P.P. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . v

Vision for the Coast . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . vii

Guiding Principles. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . ix

Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2

Recommendations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3

1. Accept Vision and Guiding Principles . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3

2. Develop a Strategy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3

3. Co-operation and Partnerships . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4

4. Capital and Infrastructure . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5

5. Boundary Refinement . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6

6. Implement the Strategy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7

Conclusion: A Vision for the Future. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8

Appendix – Charting the Course: A Closer Look

Background

1.0 Overview . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11

2.0 Consultation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11

2.1 Mandate . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12

2.2 General Considerations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13

Resource Economy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13

First Nations Involvement . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14

Distinctive Areas . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15

Recommendations

3.0 Develop a Great Lakes Heritage Coast Strategy . . . . . . . . . . . . . . . . . . . . . . . . . . . 17

a) Ecosystem Protection. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18

b) Tourism Development and Infrastructure . . . . . . . . . . . . . . . . . . . . . 19

c) Tourism Promotion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 20

d) Information and Education . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 20

e) Private Land Stewardship . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 20

3.1 Promote Co-operation and Develop Partnerships . . . . . . . . . . . . . . . . . . . . . 22

Map . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . insert

4.0 Next Steps . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25

Table of Contents

1

IntroductionIntroduction

2

Photo: Bill Lindner Photography

The concept of the Great Lakes HeritageCoast was established through Ontario’sLiving Legacy. The wild and rugged coast

was recognized as a spectacular natural landscapewhich should be protected. At the same time, itstourism opportunities should be promoted. LivingLegacy identified that further discussion withstakeholders was necessary to determine how thiscould be accomplished.

The Great Lakes Heritage Coast initiative beganin January of 2000. The theme for the project –Imagine the Possibilities – was meant to encourageand challenge people along the coast to comeforward with ideas to attract more tourists, buildnew businesses, strengthen communities and makethe coast available to the world, while protecting itsmany and varied ecosystems.

Over the past year, extensive consultation wascarried out with communities along the coast; thisinitially involved obtaining ideas and later entailedobtaining public reaction to draft recommendations.A number of common themes emerged throughoutthis consultation. These themes were presented inthe Discussion Paper released in August of 2000and now form the basis of the recommendations tothe Minister.

The recommendations are outlined on pages threethrough seven. The appendix provides additionaldetail on these recommendations, the developmentof the Heritage Coast Strategy and its components, as well as more information onrecommendations for co-operation andpartnerships.

Lake Superior

Recommendations

The main recommendations are the following:

• Accept the Vision and Guiding Principles;• Develop a Great Lakes Heritage Coast

Strategy;• Promote co-operation and develop

partnerships; • Invest capital to improve infrastructure on the

Coast; • Refine the boundaries of the Heritage Coast;

and• Implement the Strategy.

1. Accept the Vision and Guiding Principles

The vision statement and guiding principles(identified at the beginning of this report), reflectsentiments expressed in the many communitymeetings and submissions received on the HeritageCoast initiative. There was significant publicsupport for the use of this direction as the basis ofdecision-making. This direction should guide allfuture actions related to the Heritage Coast. It ishoped that the vision and principles will alsoinfluence the use of private, municipal and federallands.

2. Develop Great Lakes Heritage Coast Strategy

Public discussion confirmed that a strategy shouldbe developed for the Great Lakes Heritage Coast.This strategy would identify the short, mediumand long-term actions to implement the vision forthe Heritage Coast and are in keeping with theguiding principles. The key purposes of thestrategy are to identify new economicopportunities in tourism and recreation that are

based upon the natural attributes of the coast, andto determine the actions necessary to maintain thecoast’s wilderness characteristics, beauty andecosystems.

The strategy will focus on the five areas identifiedin the Great Lakes Heritage Coast DiscussionPaper: ecosystem protection; tourism developmentand infrastructure; tourism promotion; informationand education; and private land stewardship (seepages 17-21 for more details). Specifically, thestrategy will:

• evaluate the tourism market to identifydemands that can be met on the coast;

• assess tourism opportunities within the coastassociated with its natural assets andcommunities, and identify associated potentialeconomic benefits;

• identify local opportunities for increasedtourism and recreation development, includingrequired infrastructure and facilities;

• develop strategies for marketing the coast;• identify ways to protect the coast and its

wilderness character;• develop a distinct Aboriginal tourism

component in co-operation with First Nations;and

• propose solutions to various coastal issuesrelated to natural resource management.

3

Consultation in Pointe au Baril

recommendations

A variety of approaches will be used to obtainpublic input on the strategy. A small Advisory Panelled by a government-appointed Chair should beestablished to assist in providing direction, andconsideration should be given to the use ofmechanisms such as workshops to obtain feedbackfrom representatives of major stakeholderorganizations. The specific program for obtainingpublic input will be developed with the advice ofthe Advisory Panel. The Ministry of NaturalResources will work with the Union of OntarioIndians to develop an approach for pursuingdiscussions with aboriginal communities.

It is also recommended that consultants be hired toassist in the development of the strategy. SeveralOntario government ministries in addition to theMinistry of Natural Resources will have prominentroles in developing the strategy, particularly theministries of Tourism, Culture and Recreation, andNorthern Development and Mines.

The strategy will be submitted to the Minister ofNatural Resources for approval.

3. Promote Co-operation and Develop Partnerships

The success of the Heritage Coast Strategy,including its development and eventualimplementation, requires the active involvement ofstakeholders, such as existing resource industries,the various provincial ministries and the federalgovernment. At the same time, there must berecognition of the considerable efforts undertakenby existing non-government organizations onactivities along the coast, and support for the effortsof these organizations to protect and promote theHeritage Coast.

There are opportunities for enhancing theinvolvement of First Nations in the future directionof this initiative. Specifically, the AnishinabekNation could participate in key phases of theproject, such as inventory and information

collection, strategy development andimplementation. There may also be opportunitiesfor Anishinabek youth to help in promotingtourism and stewardship along the coast. These andother subjects will be covered in future discussionsbetween the Ministry of Natural Resources and theUnion of Ontario Indians.

Existing resource industries provide the economicbackbone of many communities along the coast. Asthis initiative is intended to build upon existingeconomies, the involvement of resource industrieswill be important in achieving the objectives of theGreat Lakes Heritage Coast.

Opportunities for partnerships should also beexplored with educational institutions, existingcommunity and non-government organizations,industry, local communities and the provincial andfederal governments. The Ministry of NaturalResources should continue to provide leadership byworking with partners, as well as co-ordinating andfacilitating government management actions thatare consistent with the vision for the coast and itsguiding principles.

4

Ted Chudleigh, Parliamentary Assistant to the Minister of Natural Resources, and Vernon Roote,Grand Council Chief, Anishinabek Nation (Unionof Ontario Indians), in North Bay.

partnerships

4. Invest Capital to Improve Infrastructure

The government announced in November of2000 its intention to proceed with several of thecapital projects outlined in the Discussion Paper.This included a commitment of $1.5 million tobegin planning for four new visitor centresalong the Heritage Coast. These includeinterpretive centres for Killbear, Killarney andLake Superior provincial parks, as well as aVoyageur Centre for French River ProvincialPark. At the same time, the government releasednew promotional materials for the Great LakesHeritage Coast. These included a 66-page, full-colour profile of the coast, a 17-minute video,and a poster based on a painting by Ontario’srenowned landscape painter Cory Trépanier.

It is recommended that the government moveahead with other capital projects proposed in theDiscussion Paper. Such projects include newdirectional and interpretive signage along thelength of the coast, and other small-scaleinfrastructure improvements, such as trails,walkways, campsites, access points and docks. Inparticular, Parry Sound, Sault Ste. Marie and

Thunder Bay should be recognized as“Gateways to the Coast” and identified as suchwith the appropriate signage.

Future capital investment in the Heritage Coastshould be directed by the strategy in a mannerthat ensures infrastructure is developed in theappropriate location and is consistent with thevision and guiding principles of the HeritageCoast.

An increased level of program integration andcollaboration between the ministries ofEconomic Development and Trade,Environment, Natural Resources, NorthernDevelopment and Mines, Tourism, Culture andRecreation, and Transportation, as well asmunicipalities and First Nations, will berequired to establish priorities and develop theco-ordinated approach that is needed toshowcase the coast.

In addition, alternative sources of fundingshould be sought from sources such as theprivate sector, municipal and federalgovernments, and non-governmentorganizations.

5

Little Trout Bay Conservation Area Photo: Lakehead Region Conservation Authority

6

5. Refine the Boundaries of the Great LakesHeritage Coast

The boundaries for the Great Lakes Heritage Coastare meant to reflect a community of interest and arenot intended to be regulatory in nature. The goal isto establish the coast as a recognizable entity for thepurposes of promoting coastal values and features.The boundaries help provide a focus for initiativesrelated to the coast. The Crown land use designationsand permitted uses established within Ontario’sLiving Legacy are not changed by this initiative.

The Great Lakes Heritage Coast includes the waters,lakebed and islands of Lake Superior, St Marys River,the North Channel of Lake Huron and Georgian Baythat are within the administrative boundaries ofMinistry of Natural Resources districts located withinthe Heritage Coast.

It is recommended that the coast should also includeManitoulin, Cockburn and St. Joseph islands andsurrounding waters. With the inclusion of theseislands, the amount of shoreline on the coastincreases from 2,900 to 4,200 kilometres. As well, the total area of land increases from 1.1 million to 1.46 million hectares.

The inland boundary generally follows Highways 69and 17 from Port Severn to Thunder Bay, andHighway 61 south to the Pigeon River. In theabsence of highways, it follows the inland boundariesof major parks, including the French River, Killarneyand Lake Superior provincial parks and PukaskwaNational Park. For more detailed information on theboundaries of the coast, please refer to the mapincluded at the back of this report.

Included within the coast are private lands andislands, as well as 25 First Nations. The coastinitiative does not suggest any further regulation orcontrol of these lands. Rather, they fall within thebroad community of interest of the coast.

McCoy Harbour

7

Slate Islands, below

Caribou and calf

6. Implement the Strategy

The vast scale of the coast, its distance frommarkets, the presence of many small communitiesand a dispersed population necessitate a specialeffort to provide co-ordination, encouragement ofpartnerships, advice and assistance in resourceprotection and tourism development andpromotion. There is a need to build linkagesamong communities, organizations and peoplethat are dedicated to the future of the coast and tofacilitate the focusing of government programs.

Community consultations confirmed the needto examine initiatives to help co-ordinateactivities on the Heritage Coast.

The strategy will identify tourism opportunitieson the coast; possible roles for government, theprivate sector and other stakeholders; and what isrequired to realize these opportunities. Decisionsand actions will be required on the part of allparties to achieve the potential of the coast.

The strategy will identify a range of actions thatwill contribute to the vision for the coast. Someactions can be undertaken immediately, whileothers would take place in the medium orlonger term. The latter may require furtherinformation, analyses, or discussions withstakeholders or other levels of government. The strategy will provide a framework for futuredecision-making by government, stakeholdersand the private sector, and provide the businesscase to support the ongoing investment ofresources in the Great Lakes Heritage Coastconcept.

As the Heritage Coast Strategy is developed, thefollowing should be identified:• special implementation needs;• common coastal opportunities;• appropriate delivery mechanisms.

The Advisory Panel will be asked to assist theChair in advising the Minister of NaturalResources on the need for any additional oralternative delivery mechanisms for the HeritageCoast.

Since being appointed government lead ofthe Great Lakes Heritage Coast in January2000, I have had the privilege of travelling

the length of the coast on many occasions. I havecome to appreciate the coast’s tremendouspotential and the great love for the coast expressedby the people who took the time to participate inthe consultation process.

When I released myDiscussion Paper in August of 2000, theresponse was overwhelming.That document outlined apossible vision for the coast which was soundlyendorsed during the fall of2000. The vision, which isfound at the beginning ofthis report, truly capturesthe way people feel aboutthis unique part of theworld.

With the help and ongoing participation of peopleacross the coast, the Great Lakes Heritage Coastcan become one of the world’s premier touristdestinations. While I am pleased with what wehave accomplished to date, there is much thatremains to be done in making the coast’spossibilities become realities. This report is justthe next step in achieving that goal.

I urge and invite interested individuals and groupsto work with Toby Barrett and the project team inthe preparation of a strategy to realize our vision.

My thanks to the many individuals who helped tomake my job easier by sharing freely of theirknowledge and expertise. Particularly gratifyingwas the willingness of prominent residents andformer residents of the coast to support the projectas champions. They are:

Pierre Berton Author and HistorianRoberta Bondar AstronautKen Danby ArtistPhil and Tony Esposito Professional Hockey

PlayersCharlie Farquharson Historian and RaconteurDomenic Filane Olympic BoxerDr. Fred Gilbert President of Lakehead

UniversityAl Hackner Champion CurlerCurt Harnett Olympic CyclistBob Izumi Sport FishermanGreg Lotysz NFL Football Player Gary & Joanie Outdoor Writers

McGuffinTed Nolan Professional Hockey CoachBobby Orr Professional Hockey PlayerGary Polonsky President of Durham

CollegePaul Shaffer Late Night BandleaderMorley Torgov Author

I am proud of what we have achieved and believethat future generations will reflect with gratitudeon the legacy we have left them – a legacy for the ages.

Ted Chudleigh, M.P.P.

8

Ted Chudleigh andDomenic Filane, Champion of the Coast

Georgian Bay

Conclusion: A Vision for the Future

9

Photo: Peter Burtch

A vision for the future

Theano Pointe, Lake Superior

10

The Basics

The Great Lakes Heritage Coastincludes:

• 4,200 kilometres of shoreline and 1.46 million hectares of land(with the inclusion of Manitoulin,Cockburn and St. Joseph islands)

• approximately 300,000 people inmore than 20 communities

• 25 First Nations

• 71 new and existing parks andprotected areas

Charting the

Background

1.0 Overview

Ontario’s Living Legacy was announcedby Premier Mike Harris in March1999, and includes the biggest

expansion of the province’s parks system inOntario’s history. The Great Lakes HeritageCoast project was launched on January 27,2000, and is the centrepiece of Ontario’s LivingLegacy. The Great Lakes Heritage Coast is oneof nine featured areas identified in LivingLegacy, and will allow all Ontarians toexperience the beauty, tranquility anduniqueness of natural Ontario.

Minister Snobelen named me, as hisParliamentary Assistant, to be the project lead.The theme for the project – Imagine thePossibilities – was meant to encourage andchallenge people along the coast to comeforward with ideas to attract more tourists,build new businesses, strengthen communitiesand make the coast available to the world,while protecting its many and variedecosystems.

The vision identified in Ontario’s Living Legacyfor the Great Lakes Heritage Coast was to:

• protect the coast’s scenic beauty and itsnatural ecosystems;

• promote the potential for recreation,tourism and other economic benefitsthrough a network of parks and protectedareas;

• ensure development is compatible with theoverall intent for the area; and

• foster co-operation, education, publicinformation and partnerships with otherlevels of government, Aboriginalcommunities and interest groups in theplanning and management of the coast.

Just over a year and a half from the launch ofthe project and after considerable publicconsultation, I am now releasing myrecommendations on the Great Lakes HeritageCoast. I have considered the comments andsuggestions received over the course of myconsultations and envision an exciting futurefor the Great Lakes Heritage Coast.

2.0 Consultation

The Great Lakes Heritage Coast project wasthe subject of extensive consultation.Immediately after the launch of the project in January of 2000, a series of meetings wereheld with key community leaders from variouscommunities along the coast. Meetings wereheld in Thunder Bay, Terrace Bay,Michipicoten, Spanish, Sault Ste. Marie,French River, Parry Sound and Port Severn.Representatives were also present from RedRock, Nipigon, Rossport, Schreiber, Marathon,White River, Blind River, Elliott Lake,Espanola, Killarney, Georgian Bay, the Archipelago, Muskoka and othermunicipalities.

From this process emerged a number ofthemes, such as the need for a common vision,ecosystem protection, tourism opportunities,Crown land management, parks, boundaries ofthe coast and a consideration of longer termneeds.

11AppendixCharting the Course – A Closer Look

courseGeorgian Bay

A second round of meetings was held in March andApril. These sessions were held in Thunder Bay,Terrace Bay, Sault Ste. Marie, Wawa, Parry Sound,Spanish and Manitoulin Island. The project teamalso established 12 drop-in centres to provideinformation about the project. The centres werelocated at the municipal offices in Marathon andPort Severn, as well as MNR offices in ThunderBay, Nipigon, Terrace Bay, Wawa, Sault Ste. Marie,Blind River, Espanola, Sudbury, Killarney and ParrySound.

Consultations also took place with other provincialministries, and discussions were held with the Union of Ontario Indians to ensure Aboriginalinvolvement.

This initial round of discussions led to thepreparation and release of the Discussion Paper inAugust 2000.

Following the release of the Discussion Paper, Irevisited the coast with the project team for furtherdiscussions. Meetings were held in 22 communities,and almost 500 people who live, work and use thecoast attended. During this stage of the project, 82 formal presentations were made.

Consultation on these ideas in the early fallindicated broad support for the proposed visionstatement and guiding principles as well as for thepreparation of a coastal strategy, and the need to

examine possible long-term co-ordination. Concernswere expressed pointing to the need to clarify themandate of the initiative, better link this initiative tothe existing resource-based economy, commit tocontinued public consultation, clarify the hierarchyof principles ensuring that the promotion of tourismdoes not come at the expense of the environment,and clarify boundaries, permitted land uses and theintent of the “Area of Influence.” Overall, theproject team and I received strong support for therecommendations in the paper.

Based on the comments received, this “Charting theCourse” report was prepared for submission to theMinister. As is indicated in the report, there willcontinue to be opportunities for consultation as theproject moves forward and a strategy is prepared.

2.1 Mandate

The framework for the planning and management ofCrown lands is provided by Ontario’s Living LegacyLand Use Strategy. It establishes the Great LakesHeritage Coast as a premier Signature Site that has arange of highly significant values that warrant specialstrategies. In addition, the strategy indicates that thecoast contains extremely significant tourism andrecreation potential that merits increased planningand promotion, and that further work is required todefine the scope of the Heritage Coast, theassociated policies, and implementation needs. Ontario’s Living Legacy Land Use Strategy

12

A closer look

Schreiber Beach

establishes ecosystem protection, tourismpromotion and partnerships as being the long-term goals for the coast. It also identifies thepermitted use for Crown lands and conditionsfor further development. As well, it establishesthe ground rules for the Heritage Coastinitiative.

The Ministry of Natural Resources iscommitted to undertaking further detailedplanning for each of the new provincial parks,conservation reserves, and enhancedmanagement areas within the area of theHeritage Coast. Planning for these areas willbe consistent with the overall directionprovided for the Heritage Coast in the LivingLegacy Land Use Strategy and with directionfrom the Great Lakes Heritage Coastinitiative.

It is important to note that the Great LakesHeritage Coast is not establishing new landuse policies. Land use activities on Crownlands within the Heritage Coast will beconsistent with Ontario’s Living Legacy LandUse Strategy.

2.2 Some General Considerations

Building on the Resource Economy

The communities along the Heritage Coastdeveloped and prospered based on the use ofthe region’s natural resources. Forestry,mining, and other resource industries havebeen the economic mainstay of manycommunities for most of this past century andremain the major employers in many centres.Industries related to water, such ashydroelectric generation, transportation andfishing, as well as rail transportation have alsobeen important.

The future of many coastal communities isclearly linked to the continuance of a strongresource-based economy. Governmentdecisions through Ontario’s Living Legacysupport the continuation of these criticalindustries to benefit both the local andprovincial economies, and particularly thepeople who live and work along the coast.

The history of resource development on theGreat Lakes Heritage Coast includes manystories of ingenuity and innovation that led tothe establishment of local communities. Thesecould be recognized as a tourism theme. Aswell, environmental practices undertaken bycoastal resource industries should behighlighted and encouraged.

Williams Mine

13

The Great Lakes Heritage Coast initiative isintended to build upon the resource-basedeconomy of Northern Ontario. Tourism has the potential to provide diversity to localeconomies and jobs and economic benefits to many small coastal communities.

First Nations Involvement

The Great Lakes Heritage Coast includes thetraditional lands and reserves of 25 FirstNations. These First Nations are largelyaffiliated with the Union of Ontario Indiansthrough the Robinson-Superior and Robinson-Huron treaties.

First Nations have raised the matters ofAboriginal rights, treaty rights and land claims,as well as the potential effects of the HeritageCoast initiative on traditional values and uses.The Anishinabek Nation and other individualFirst Nations have also expressed interest in thepotential opportunities provided by the HeritageCoast concept. Information was provided by theUnion of Ontario Indians on its Turtle Islandinitiative in Germany, and similar tourism-related ventures may be possible on the coast.Many First Nations are working on economicdevelopment projects related to tourism andaboriginal cultures that are complementary tothe key objectives of the Great Lakes HeritageCoast.

The Great Lakes Heritage Coast project teamhas arranged with the Union of Ontario Indiansto disseminate information about this initiativeto member First Nations and to provide theopportunity for the identification of commonissues and opportunities for discussion with theMinistry of Natural Resources. One result ofthese efforts was the receipt of a writtensubmission from the Union of Ontario Indiansin response to the Discussion Paper. In a recent meeting with Grand Council Chief

Vernon Roote, this submission was discussed, aswere potential opportunities for enhancing theinvolvement of First Nations in the futuredirection of this initiative. Specifically identifiedwas the possibility of the Anishinabek Nationparticipating in key phases of the project, suchas inventory and information collection, strategydevelopment and implementation. There mayalso be opportunities for Anishinabek youth tohelp in promoting tourism and stewardshipalong the coast. These and other subjects will becovered in future discussions between MNR andthe Union of Ontario Indians.

It is important to note that nothing within theGreat Lakes Heritage Coast initiative isintended to affect Native land claims andAboriginal or treaty rights.

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involvement

Distinctive Areas

Three distinctive areas have been identified alongthe coast. They are: Lake Superior; the St. MarysRiver and North Channel of Lake Huron/Manitoulin Island; and Eastern Georgian Bay.

• The Lake Superior area is characterized bylarge areas of wilderness shoreline, sparsedevelopment, spectacular landscapes andscenery and abundant wildlife populations. It is bounded by the cities of Thunder Bayand Sault Ste. Marie, with a number ofsmaller communities and First Nations spreadalong the coast. There are a number of largeexisting federal and provincial parks, andrecreation tends to be land-based because ofissues associated with safety on Lake Superior,a large and cold lake. While there is littletourism infrastructure in the area and it isdistant from southern Ontario populationcentres, a number of communities are anxious to diversify their economies. From amanagement perspective, there are manypossibilities to promote tourism opportunitiesassociated with Aboriginal culture, scenicviewing, trails, fishing and hunting and, to a lesser extent, boating. Infrastructuredevelopment should also be a priority.

• The St. Marys River/North Channel andManitoulin Island area enjoys a significantFirst Nation presence, which contributes to itscultural richness. The area has a large stretchof sheltered water which has made it atraditional boating area with a number ofexcellent marinas and boating facilities fromLittle Current, Spanish, Blind River,Thessalon, Hilton Beach, Richards Landing,to Sault Ste. Marie. As a result, recreationtends to be water-oriented. The St. MarysRiver has recently been designated as aHeritage River and is one of the mostbiologically diverse areas on the Great Lakes.Manitoulin Island, largely made up of privateland, is heavily accessed in summer, and itsmajor link with southern Ontario is throughthe ferry at Tobermory. Much of the northshore and islands in the North Channel areidentified as new parks or conservationreserves. This area would benefit fromincreased marine-related infrastructure, suchas access points, boat-in campsites, dockingfacilities and site maintenance. As well,promotion of Aboriginal culture and off-season activities, such as touring,snowmobiling and hiking, would be beneficial.

Killarney Provincial Park

Kama Bay Lookout, Lake Superior

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• The Eastern Georgian Bay area hosts anumber of Aboriginal communities and isheavily used for recreational purposes.Historically, it served as the gateway forthe voyageurs as they travelled north. Thesouthern half of the bay has manycottages, and residents have formed alarge, well-organized and active cottageassociation that is concerned with theenvironment. The association is involvedin initiatives related to a biospherereserve, marine patrols and water qualitymonitoring. Various forms of boating arepopular in the south. There are a numberof communities along the Highway 69corridor, including Parry Sound, wherethere is significant potential for newtourism-related business opportunities.The northern portion is less developed. Alarge part of the area has been designatedas new parks or conservation reserves. Inaddition to heavy use pressures, there areconcerns about environmentaldegradation, such as noise pollution,water quality issues, and a decline inquality of fishing and air pollution. Froma management perspective, there is a needto address environmental and use issues inconjunction with the cottage associationand municipalities. As well, currentmarine-related infrastructure should be

maintained and improved. Carefulmanagement and development of the new protected areas on Eastern Georgian Bay will enhance tourismpossibilities.

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Misery Bay,Manitoulin Island

Parry Sound Harbour

Cottage on Georgian Bay

3.0 Develop Great Lakes Heritage Coast Strategy

Throughout public discussions, there was a greatdeal of support for the preparation of a strategy forthe coast. It was clearly recognized that furtherthought and consideration would be necessary todetermine how best to protect the naturalattributes of the coast and to promote itsopportunities.

It was often stated that protection of the coastalecosystem was essential. The environment is thebuilding block on which all else stands.Management of the coast requires improvedknowledge based upon good resource inventoriesand resource science. Public education and trainingwould be a key part of this effort. Co-operationamong government agencies would be necessary, as would the involvement of coastal residents.Assistance and support from municipalities, FirstNations and non-government organizations couldalso help.

The prospect of developing and promotingtourism opportunities was generally well received,particularly by municipalities and the businesscommunity. Many local initiatives and projectswere identified which would be consistent withtourism promotion of the coast.

Providing access to the coast’s resources throughinfrastructure improvements was also a focus ofdiscussion. The need to improve infrastructure wasoften noted, particularly with regard to marineareas, such as channels, safe harbours and marinas,access points, docks and campsites; highway-related structures, such as picnic sites, viewpoints,signs and interpretive centres; and lodging andrestaurants.

Many people expressed concern that developmentbe carried out responsibly and in such a way that itwould not jeopardize ecological values and thewilderness character of the coast. Most agreed thatdevelopment should be focused in existingcommunities.

The strategy will include a short, medium andlong-term action plan, and provide direction onthe best approaches to realize the vision for thecoast based upon the guiding principles. It willaddress ecosystem protection; tourism andrecreation development and promotion;partnerships; and implementation. It will defineroles and opportunities for government, the privatesector, municipalities, and tourist associations. Itwill build a business case in support of the tourismpotential of the coast and identify opportunities forpartnerships.

To develop a strategy that works for allstakeholders, and to carefully assess the many ideasand opportunities that have been identified, thegovernment will seek the advice of externaltourism experts and draw upon coastal experiencesthroughout the world.

Initial priority will be given to identifying tourismopportunities and steps the government and privatesector must make to realize these opportunitieswithin the scope of the ecological protection goalfor the coast. The strategy will also address thefollowing:

• ecosystem protection;• tourism development and infrastructure; • support of tourism promotion;• information and education; and• private land stewardship.

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The Recommendations

recommendations

a) Ecosystem Protection

The message that was heard mostconsistently during the consultations on theproject was the need to protect andrehabilitate the coast. A healthy coastalenvironment is the foundation on whichsustainable tourism depends.

A number of initiatives have been undertakenover the years to identify environmental andresource needs on the Great Lakes. As well,ongoing government programs haveresponsibility for ensuring ecosystemprotection. One of the challenges will be tofacilitate the implementation of existingstrategies and co-ordinate programs.

With the co-operation of partners, the strategy should:

• establish an integrated andcomprehensive natural resourceinformation system for the coast;

• highlight and promote existing resourceprograms to ensure the restoration andmaintenance of natural ecosystems, andthe minimization of environmentalimpact and user conflict associated withtourism development;

• improve co-ordination of resourcemanagement activities to ensureprotection of coastal values;

• ensure local resource managementplanning recognizes the protection ofcoastal values;

• define the role of specific Crown landsand protected areas in providing newtourism and recreational opportunities;and

• address specific issues regarding the useof tourism-related natural resources.

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Cross Country Skiing at Gros Cap

b) Tourism Development and Infrastructure

The Great Lakes Heritage Coast hastremendous tourism potential. While manytourist sites along the coast are active inseeking visitors and regularly upgrade facilities,there is still much that could be done topromote a unified approach to bringingfacilities up to world-class standards. Efforts topromote the Great Lakes Heritage Coast bothdomestically and internationally will not besuccessful in the long run if the appropriateinfrastructure is not in place.

The strategy should:

• identify or provide for the identification ofnecessary tourism facilities andinfrastructure, including:

• Great Lakes Heritage Coastinterpretive signage;

• water-based infrastructureimprovements, such as docks, marinas,access points and mooring areas;

• Crown-land-related improvements,such as trails and backcountrycampsites;

• highway-related facilities andimprovements, such as special signage,rest stops, lookouts and interpretiveplaques;

• opportunities for new private sectordevelopment, including community-focused opportunities as well as thosewhich may be associated with Crownland (lodges, remote camps);

• potential major public capital projectsassociated with communities;

• community projects creating linkagesto the Heritage Coast; and

• facilities within Ontario Parks such astrails, interpretive centres, andcampgrounds.

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Children at camp

Trail at Pukaskwa National Park, above

Photos: Bill Howe, Superior Imaging

• identify mechanisms the government,communities and organizations can use tomaintain and continue to reinvest infacilities in the future.

c) Tourism Promotion

The Heritage Coast has all the attributes of aworld travel destination and should be suitablymarketed provincially, nationally andinternationally. The provincial government has asupportive role to play in helping the coast gainworld profile.

The strategy should:

• assess tourism market demand and tourismopportunities on the coast;

• identify the tourism product and marketniche and identify common themes andpartnerships;

• identify strategies for the development andmarketing of four-season tourism andrecreation opportunities;

• incorporate currently planned economicdevelopment proposals;

• encourage the private sector to establishstandards and guidelines for coastal services,such as hotels, motels and restaurants;

• identify actions that businesses can take topromote the coast, to upgrade facilities andprovide for reinvestment;

• identify how marketing for the coast couldbe integrated with broader provincial andfederal marketing campaigns; and

• develop a Heritage Coast identity.

d) Information and Education

Considerable information about the coast isavailable, but has not been consolidated for easeof access and reference. In order to promote thecoast as a unified and identifiable entity to bothresidents and visitors, there is a need to gather

existing data, add to it and make it easilyaccessible. Related to this endeavour is thepossibility of using the same information ineducational efforts that will raise awareness ofthe coast and promote widespread support forits goals.

The strategy should:

• identify an approach to informationmanagement which provides for theinclusion of coastal information fromvarious sources, including the federal,provincial and municipal governments,research bodies and non-governmentorganizations, and which provides for themaintenance, sharing and distribution ofthat information;

• explore research needs related to the GreatLakes Heritage Coast and identify how theproject could promote and support world-class research; and

• explore ways of effectively transferringGreat Lakes information to the publicthrough the education system and otherpartners.

e) Private Land Stewardship

While the majority of the Heritage Coast isCrown land, large areas of the shoreline areprivately owned. Private shorelands areconcentrated around Thunder Bay, Sault Ste.Marie and southern Georgian Bay.

The inclusion of private land in the Great LakesHeritage Coast is a key part of achieving thevision for the coast. In some cases, significantnatural heritage or ecological values are foundon private lands and on the lakebed in front ofthese lands. In other cases, private lands may bedeveloped as part of the tourism infrastructurewith facilities such as motels, marinas,restaurants, or retail centres.

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Photo: Peter BurtchFlowerpot Cove, Pancake Bay

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Within organized areas, and areas subject toplanning boards, municipalities will continue to be responsible for the planning andregulation of private lands through theMunicipal Act and the Planning Act. Inunorganized areas not covered by planningboards, landowners will be encouraged to usetheir lands in accordance with the vision andguiding principles of the Heritage Coast.

The role of the Heritage Coast with respect toprivate lands will be to support and encouragemunicipalities and landowners to manage theirlands consistent with the vision of the HeritageCoast through the provision of information,advice and expertise.

The strategy should:

• encourage municipal planning that willensure the protection of coastal values;

• examine implementation of a Great LakesHeritage Coast advisory service for privatelandowners and local municipalities; and

• examine existing incentive programs, such asthe Conservation Land Tax and ManagedForest Tax Incentive programs, todetermine how they might be applied to thecoast.

3.1 Promote Co-operation and Develop Partnerships

Many agencies are involved with differentaspects of the Great Lakes coastal ecosystem andits communities, including federal governmentdepartments; the International JointCommission; provincial agencies such as theministries of Economic Development and Trade,Environment, Natural Resources, NorthernDevelopment and Mines, Tourism, Culture andRecreation and Transportation, and the OntarioNative Affairs Secretariat; First Nations;

North shore of Lake Superior, Ontario Parks

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municipalities and conservation authorities.These agencies and organizations havedifferent mandates related to the managementof natural resources and many have ongoingprograms directed to natural resources such aslands and waters, minerals, fish, wildlife, andforests. As well, many individuals and non-government organizations have a deepcommitment to the coast.

The success of the Heritage Coast initiativerequires the active involvement of stakeholdersand the various provincial ministries, as well asthe close co-operation of federal agencies.

In the preparation and implementation of thestrategy, the Heritage Coast initiative should:

• explore opportunities for partnerships witheducational institutions, existingcommunity and non-governmentorganizations, industry, local communitiesand the provincial and federal governments,and identify how to encourage the creationof partnerships as a way of doing business.Identify necessary support mechanisms anddevelop a possible “Charter” involvingpartners and government;

• seek a common understanding andworking relationship with all governmentorganizations that are working on themanagement of coastal resources,including those at the bilateral,international and federal levels;

• recognize the considerable effortsundertaken by existing non-governmentorganizations on activities along the Coastand support efforts of these organizationsto protect and promote the HeritageCoast;

• recognize the ongoing efforts ofmunicipalities and economic developmentorganizations, and work with theseorganizations;

• work to resolve jurisdictional issuesbetween the federal and provincialgovernments related to boat mooring andnavigation so that the ecosystem isprotected while providing for boater safety;

• help co-ordinate trail development andlocation to ensure coastal values areprotected, and work with partners andother government ministries to resolvetrail issues;

• encourage the co-ordination of tourismprograms and tourism-relatedinfrastructure between communities,particularly facilities such as trails, accesspoints, safe harbours, and information/service/adventure centres; and

• examine partnership opportunities for thedevelopment of education programs, suchas best practices for recreational andindustrial users and/or shoreline propertyowners, and training courses that developquality customer service.

Jamieson Island Photo: Brian Ratcliff

co-operation

Floating Heart Bay

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4.0 Next Steps

Next steps

The recommendations in this report havebeen approved by the Minister of NaturalResources. The Ministry will begin to

implement these recommendations by taking thefollowing actions:

• Establish the Advisory Panel;

• Commence the preparation of the Heritage Coast strategy, which includes compiling existing natural resource, recreation and tourism information, and hiring consultants to assist in the development of the strategy;

• Begin communication and consultation efforts on the next stage of the project;

• Continue to contribute toward and promoteimprovements to the tourism and recreationalinfrastructure along the coast; and

• Make special efforts to increase public awarenessand raise the profile of this initiative.