City of Revelstoke

Council Report

File No.: 4710-01

To: His Worship Mayor McKee and Members of City Council

From: Nicole Fricot, Director of Community Economic Development
Date: June 12th, 2018
Subject: Caribou Recovery Program

RECOMMENDATION:

THAT the Director of Community Economic Development be authorized to submit the

City of Revelstoke’s response, included in the report dated June 12, 2018, to the
Provincial Caribou Recovery Program of the Ministry of Forests, Lands, Natural
Resource Operations and Rural Development.

CAO Comments:

Reviewed for Council consideration. DL

Background:

On April 20, 2018, Virginia Thompson, the North Columbia Environmental Society, Lee Harding
RPBio and Yellowstone to Yukon Conservation Initiative submitted an application to the
Honourable Catherine McKenna, Minister of Environment and Climate Change for an
Emergency Order under section 80 of the Species at Risk Act (SARA) to protect critical habitat
of the Revelstoke Shuswap Local Planning Unit of Southern Mountain Caribou population
against timber harvesting and related road building within core critical habitat and matrix range
habitat on provincial crown land (Appendix I).

On May 4, 2018, Minister McKenna determined that, “BC mountain caribou are under imminent
threat and immediate intervention is required if BC’s herds are to be recovered”. The Ministry
specifically identified 10 local population units with estimated population sizes of close to or
below 100 animals for which long-term population trends are declining and threats are ongoing.
The Minister noted that while population management is having a positive short-term effect,
such measures are not currently complemented by the significant habitat protection or
restoration measures necessary to improve the likelihood of recovery in the long term. It has not
yet been determined or indicated by the federal government what actions will be taken to
respond to the determination that the Revelstoke Shuswap Local Planning Unit of Southern
Mountain Caribou are under imminent threat.

On May 24th, 2018, City staff held a meeting with representatives from industry stakeholders
and the Resource Stewardship Division of the Ministry of Forests, Lands, Natural Resource
Operations and Rural Development (FLNRORD). The intent of the meeting was to discuss the

Page |1
 City of Revelstoke
Council Report

potential impacts of the imminent threat order and the Provincial response to protecting and
preserving BC’s caribou populations. The Province indicated that if BC’s efforts to protect
Caribou fall short, the federal government could step in and further prohibit both commercial and
recreational activity in core and matrix caribou habitat.

FLNRORD is working closely with the Provincial Ministry of Environment and Climate Change
Strategy (ECCS) to come up with a Made in BC Approach to caribou recovery and has released
a Draft Provincial Caribou Recovery Program. The City has an opportunity to provide feedback
on the Draft Provincial Caribou Recovery. The deadline to provide feedback is June 15, 2018.

Discussion:

It is anticipated that there will be significant changes to the regulations, leadership, program
design, management and land accessibility of the Provincial Caribou Recovery Program.
Change to the approach taken to caribou recovery in our region, could potentially have
significant environment, social, and economic impacts. As such, staff believes it is imperative
that the City take a proactive approach to engaging the Provincial government on the issue of
caribou recovery. The City has an opportunity to provide feedback on the Draft Provincial
Caribou Recovery Program. Staff is requesting that Council authorize the Director of Community
Economic Development to submit the following response to the Province of BC as part of this
engagement process:

Proposed Submission:

Introduction

The proposed Provincial Caribou Recovery Program has been created to conserve and recover
caribou populations in the province and as indicated on the provincial website must also align
provincial goals with those of the federal government and address the interests of Indigenous
communities and stakeholders. The City of Revelstoke understands the importance of actions
developed as part of this program to address the conservation and recovery of southern
mountain caribou in British Columbia taking into consideration the Northern, Central and
Southern Groups, including the Revelstoke Shuswap Local Planning Unit.

However, the City of Revelstoke would also like to express concerns regarding the potential
impact to the community as a result of any major changes to caribou conservation effort on the
Revelstoke Shuswap Local Planning Unit. It is imperative that in considering potential changes
to the regulations, program design and land use accessibility of the Provincial Caribou Recovery
Program, the Province continue to take a collaborative science-based approach that
consideration both the impacts on caribou preservation and the socio-economic impacts of
these decisions.

Background: Evidence of a Long Term Collaborative Approach

The City of Revelstoke, Parks Canada, provincial government, forestry, tourism groups, local
scientists, community members and other stakeholders have over the years made extensive
efforts to develop a collaborative science-based approach to protecting the Southern Mountain

Page |2
 City of Revelstoke
Council Report

Caribou while at the same time supporting the commercial and recreational land uses that are a
vital part of the community and regions economic viability. Evidence of this approach are long
standing and have been underway since the nineties.

The Columbia Mountains Caribou Research Project was founded in 1992 to better understand
habitat needs of mountain caribou and forest extraction in the area. Research focused on
caribou ecology and understanding the causes of caribou decline.

In 2006 the Province developing the Mountain Caribou Recovery Implementation Plan (MCRIP).
In the plan the management option chosen for the Revelstoke Shuswap Local Planning Unit
was “Assisted Long-term Sustaining”. Since the development of the Mountain Caribou
Recovery Implementation Plan significant management actions have occurred in the Revelstoke
Shuswap Local Planning Unit:

1. Habitat Protection

A total of 188,578 Ha of caribou habitat has been placed in Government Action Regulation
(GAR) protecting it from forest harvesting, 30% of which is in the timber harvest land base
(THLB) representing areas where trees are proactive and accessible to the forest industry. Of
the core caribou foraging habitat identified in the 1990s and 2007 land-use planning processes,
approximately 40% is protected by the GAR, while the remaining portion is available for harvest.
However, when these values are restricted to old growth core habit, approximate 60 to 65% of
the remaining old growth forest is protected by the GAR, while 40% of the remaining old growth
forest is available for harvest.

2. Management of Backcountry Recreation

Closures to mechanized recreation (mainly snowmobiles) occurs within the late-winter range of
the Columbia North subpopulation, while partial closures or snowmobiling under permit are
allowed in other late winter areas. In 2008 Parks Canada implemented a closure to ski touring in
an area of the National Park which is used by caribou to minimize disturbance and in 2013 a
moratorium on new commercial backcountry recreation tenures within high value late-winter
habitat was renewed for another 5 years.

3. Primary Prey Management

Moose and white tail deer are the primary prey of wolves. Beginning in 2003, moose
populations in the Revelstoke Shuswap Local Planning Unit have been intentionally reduced by
increasing hunting as an indirect way of reducing wolf numbers. The reduction in moose
means wolves have less to eat resulting in fewer wolves. When moose were reduced to a
density that approximated what would have existed prior to forest harvesting the density of
wolves were also reduced. As a result of moose reduction, and the resulting wolf reduction,
fewer caribou has fallen prey to wolves and the North Columbia subpopulation of caribou has
stabilized.

Page |3
 City of Revelstoke
Council Report

4. Predator Management

Data on wolf and cougar populations in the Planning unit is being documented on an ongoing
basis. Information will aid in developing a management plan to reduce predator populations in
the future.

5. Maternal Penning

The Revelstoke Caribou Rearing in the Wild (RCRW) project was launched in 2014 to conduct
maternal penning and is a collaborative, community-led, not for profit society. The program is
beginning its 5th season of a 5-year pilot, ending March 2019. Maternal penning involves
placing pregnant caribou in a 9.3-hectare predator-proof pen from late March until mid-July
allowing newborn calves to gain strength and agility. At this time of year, both adult and calf
mountain caribou are at higher risk of predation outside the pen. In July the animals are
released back into the wild.

As is evident from above, significant research and management actions have occurred and are
underway to support the conservation and recovery of Southern Mountain Caribou in the
Revelstoke Shuswap Local Planning Unit. The data gained from the management actions has
been collected and used to alter or reiterate specific management actions that have occurred.

Potential Socio-Economic Impacts

As previously mentioned, it is anticipated that significant changes to the Caribou Recovery Plan
in terms of regulation, program design and in particular land use accessibility would have
significant impacts on the socio-economic sustainability of Revelstoke. Some of the potential
impacts are summarized as follows:

Local Employment and Industry Viability

Forestry remains a significant economic driver for the City of Revelstoke directly employing over
255 individuals and contributing over $29 million in direct employment income (not including
contractors). As part of the current Caribou Recovery Program significant restrictions have
already been placed on the Critical Caribou habitat. If harvest restrictions were to be placed on
the Matrix habitat, it is anticipated that it would remove between 65% and 100% of our local
companies remaining Timber Harvesting Landbase. This impact on timber supply would likely
take the majority of our local forestry companies below operating efficiency thresholds and
would threaten the viability of the industry in our region.

Tourism has become a major economic driver for our community. Potential increased
restrictions on both recreational and commercial activities as part of the Caribou Recovery Plan
stand to directly impact heli-skiing, snowmobiling, mountain-biking and back-country activities all
of which contribute significantly to Revelstoke’s economy. Heli-skiing and snow cat companies
alone directly employ over 270 individuals within our community contributing over 8.9 million in
direct employment income (not including contractors). If heli-skiing were to be restricted in the

Page |4
 City of Revelstoke
Council Report

matrix area our local operators stand to lose between 40 and 80% of their tenure. Much of the
terrain that would be lost is key skiing terrain for bad weather and periods of high avalanche
hazard. Several of our local operators have estimated that restricting access to this area would
cut their skier volume in one half. Over the years Revelstoke has become a major destination
for snowmobile tourism attracting over 800 members yearly who collectively spend on average
$4.7 million dollars in our community a year. It is anticipated that increased restrictions on
snowmobiling in the matrix habitat would significantly damage the community’s ability to both
attract snowmobilers to our community and generate the associated tourism revenues from
snowmobiling activities.

In addition to direct affects on tourism operators the impact of increased habitat restrictions
would likely be significantly felt by many of our accommodations, retail, arts and entertainment
organizations the majority of which have become heavily dependent on tourism revenues. The
viability of many of our local businesses who have become heavily dependent on tourism
revenues is likely to reduce.

Social Impacts

In addition to the direct effects on employment and industry viability there is likely to be
significant social repercussions for our community if many of our tourism and forestry operations
are reduced or eliminated. In addition to the negative impacts of job losses, many of our social
organizations and programs such as Revelstoke Community Futures, Community Connections,
the Community Foundation, Outward Bound to mention a few would also suffer from
significantly reduced support.

Avalanche Safety and Awareness

Avalanches are the deadliest natural hazard in Canada killing more people annually than all
other natural hazards combined. Canada’s national public avalanche safely organization is
based in Revelstoke, BC. Its public avalanche warning service covers close to 250,000 square
kilometers of mountainous terrain and relies on many points of data. Many of these data points
are provided by helicopter and snowcat skiing operators. If these operations are restricted, all
regions including Revelstoke would see a decrease in the amount and quality of avalanche
forecasting data significantly increasing the potential risk to recreational backcountry users.

The potential impacts identified above are only a selection of those anticipated to affect our
community. If significantly increased restrictions were placed on commercial and recreational
land use as part of the Provincial Caribou Recovery Program, the negative impact on the
economic sustainability of our community could be substantial.

Recommendations

The City of Revelstoke recognizes the development of a new Provincial Caribou Recovery
Program is intended to develop guidance and management actions to advance the conservation
and recovery of caribou in the Revelstoke Shuswap Local Planning unit. The City of Revelstoke
would recommend to the proposed British Columbia Caribou Recovery Program to ensure the
following:

Page |5
 City of Revelstoke
Council Report

A Science-based collaborative approach – Considerable research and monitoring has

indicated that it requires multiple management actions or levers applied at the same time for
caribou recovery to be effective in the Revelstoke Shuswap Planning unit.1 Over the last several
decades, the Revelstoke community worked collaboratively to ensure that both the public and
industry stakeholders are active participants in both developing and managing the Caribou
Recovery Program. The City of Revelstoke would like to encourage the Province of BC to
continue to work with our local stakeholders to develop and execute a program that considers
multiple levers and management actions, and prioritizes actions that both protect and preserve
Caribou and take into account socio-economic impacts.

Build on the previous work – There have been many learnings from the current Provincial
Caribou Recovery Program. Assessing the key knowledge and learnings identified including
both the successes and the challenges of previous and current activities implemented as part of
this plan will be essential to developing a new Provincial Caribou Recovery Program. The City
of Revelstoke would like to encourage the Province to review all activities that have taken place
to date and ensure that future activities are built upon the learnings from previous project
successes.

Exchange of data – As part of the current Caribou Recovery Program data is being captured
on current counts, herd locations, herd movements and mortalities. If shared publicly this data
could significantly impact stakeholder’s ability to understand caribou behaviour and movements
and allow them to participate more fully in recovery efforts.

Financial / Risk Implications:

Significant changes to the Provincial Caribou Recovery Program that significantly changes
commercial and recreational access to land could have detrimental economic impact on
numerous companies operating within Revelstoke.

Strategic Plan Reference:

1. Quality of Life - The City of Revelstoke will emphasize quality of life issues including
social, active living, cultural experience and recreation opportunities.
2. Planning for the Future – The City of Revelstoke will ensure that City services encourage
and support community vision towards development for the future.
3. Economic Development and Business Support - The City of Revelstoke will take
initiatives to attract, promote and support economic development

1
Serrouya, R., McLellan, B., Next steps for Southern Mountain Caribou recovery in planning Unit 3A, The
Revelstoke Shuswap Region, 2016 https://cmu.abmi.ca/wp-content/uploads/2017/09/Revelstoke-Recovery-plan-
2016Oct12.pdf

Page |6
 City of Revelstoke
Council Report

Others Consulted:

Downie Timber Ltd.

BCTS Okanagan Columbia
HeliCat Canada
British Columbia Snowmobile Federation
Revelstoke Community Forestry Corporation
Stella Jones
Eagle Pass Heliski
Revelstoke Mountain Resort
Selkirk Tangiers Heli-Skiing
Revelstoke Snowmobile Club
The Revelstoke Chamber of Commerce
See Revelstoke
The Social Development Coordinator
The Environmental Coordinator

Attachments:

Appendix 1 Provincial Caribou Recovery Program

Respectfully submitted,

Nicole Fricot
Director of Community Economic Development

Page |7