Expert advisory panel on moving people sustainably in Banff National Park

Introduction

Moving people sustainably in Banff National Park is a key priority for Parks Canada to ensure a world class experience for visitors and that the nationally significant resources of the park are maintained, enhanced and become more accessible and inclusive to visitors and residents alike. The current approaches and systems for transporting visitors, workers and residents are not effective to meet the full needs of park visitors and achieve resource protection goals, especially during the busy summer months. Parking lots, urban roadways and access roads to trailheads and day-use areas are beyond capacity and negatively impacting the visitor experience.

A targeted and collaborative effort on moving people about the Bow Valley in a more sustainable fashion can and must contribute to maintaining or improving ecological integrity and greenhouse gas (GHG) emission reduction. If successfully managed, the experience for visitors to the park will be improved, and transportation-related GHG emissions will be reduced – all of which contributes to Banff National Park’s reputation as an international tourist attraction.

Visitation in the Bow Valley of Banff National Park has increased dramatically in the last decade. Demand for vehicular parking at key destinations exceeds supply, road systems are beyond capacity, traffic congestion has become common at popular nodes, and there is a lack of infrastructure and access for individuals living with disabilities. Parks Canada has taken steps to reduce car dependency as an access mode to key nodes by implementing public transit solutions for popular areas in Banff National Park, but these measures are proving insufficient to efficiently and effectively manage demand, while also ensuring resource protection and inclusive and quality visitor experiences. Parks Canada remains committed to public transit and is seeking expert advice to build on this work and explore innovative new solutions to achieve and maintain desired conditions. The final section of this report discusses the need to further define these desired conditions to guide ongoing and future management.

In May 2021, Parks Canada established an expert advisory panel to assist with the development of a sustainable people-moving system for Banff National Park. The panel was asked to make recommendations to Parks Canada on how to develop a sustainable people moving framework for the park. The scope of the work included the management and coordination of access, use and infrastructure at key park destinations in, and adjacent to, the Bow Valley in the park. The panel was asked based upon their expertise, and Indigenous, public, and stakeholder consultation to recommend possible innovative solutions for Parks Canada to consider in the development of a people- moving framework.

A Terms of Reference was established for the panel and was subject to Indigenous, public and stakeholder consultation. Collectively, comments from consultation were generally supportive and constructive and informed an improved version of the Terms of Reference. Comments focused on how to further clarify the panel’s role, intent of the project, clear link to the government’s 2050 net zero goal regarding GHG emissions and re-affirming the commitment to environmentally sustainable transportation solutions.

The panel met virtually and in-person between June 2021 and June 2022. This report is a result of its discussion and deliberations. It is intended to be a high-level overview and provide recommendations for a future system that is based on the collective experience of the panel.

The current approaches and systems for transporting visitors, workers and residents are not yet effective to meet the full needs of park visitors and achieve resource protection goals.

The scope of the work included the management and coordination of access, use and infrastructure at key park destinations in, and adjacent to, the Bow Valley in the park.

Who is the panel

The President & CEO of Parks Canada sought individuals to form the panel with knowledge or experience relevant to protected area management or expertise relevant to the challenges and opportunities facing Banff National Park including in the following areas of interest:

• Intelligent Transportation Systems: including traveller information, advanced traffic technologies, smart parking, emerging multi-modal transportation options, MaaS (mobility as a service), transportation wireless communication, and micro mobility;
• Transportation planning: including connecting modes of transportation with each other;
• Transit planning: including links to regional networks, funding mechanisms, scheduling, systems planning, first / last mile planning;
• Accessibility, active modes and inclusion;
• Green transit technology;
• Wayfinding and integration;
• Tourism, marketing and promotion;
• Visitor use management;
• Recreation Planning;
• Behavioral Economics (Specializing in travel behavior and mode choice in leisure context); and
• Communications.

During the consultation period for the Terms of Reference, members of the public were given the opportunity to volunteer to join the panel while identifying their areas of expertise. Several members of the panel were selected in this manner. Some areas of interest however were not represented. The panel secretariat conducted a search process to identify potential individuals to fill these roles. The President and CEO of Parks Canada appointed the following members to the panel:

The expert panel have worked to become oriented to the park and have met with officials from Roam Transit, Town of Banff and local park managers and Field Unit Superintendents to better understand their role and how their work supports the goals for the park. Ultimately the panel’s goal is to develop an exemplary case study for other parks in Canada and around the world to serve as a model of effective visitor use management in a busy national park.

Ultimately the panel’s goal is to develop an exemplary case study for other parks in Canada and around the world to serve as a model of effective visitor use management in a busy national park.

The following eight sections provide an overview of the main concepts that the panel discussed while considering the transportation situation in Banff. These are the big ideas that the panel feels can move forward a framework based on its expertise and experience from other jurisdictions. The panel feels this provides a roadmap to a more sustainable future while acknowledging much work remains to be done. The framework can be thought of in three broad categories with key strategies to support each.

Each strategy begins with an overview of the current situation and the issue the panel recommends addressing. This is followed by a discussion of how each strategy can contribute to a more sustainable future. The panel proposes a list of specific actions that Parks Canada and partners could consider to help achieve the overall goal. Finally, there is a brief discussion of feasibility and the relative cost, ease, and timing of implementation.

Much research, planning, consultation and development would be required to advance many of these strategies, especially major initiatives. Others can be advanced sooner or be pilots. Pilots provide an opportunity to introduce ideas to the public and test these initiatives, and then refine them before significant investment is made. Metrics that define success should be outlined in advance with supporting data collection and evaluation to measure their effectiveness of achieving stated goals.

Reducing private vehicle arrivals in the park will be a critical step to achieving a more sustainable system, along with considering the management of the overall system with regards to the pace and flow of visitation. Fewer vehicles entering the park will result in fewer downstream congestion issues and will also reduce GHG emissions. The actual mode of transportation needs to match the need it is trying to fill and the goals for resource management and inclusive visitor experiences. In this case, the mode would likely involve high-capacity mass transportation services. Today there are currently only two transportation options that can reduce private vehicle arrivals from Calgary, motor coaches/ buses and passenger rail. If these transport services are powered by electricity or hydrogen, additional reductions may be realized.

A high-volume transport system must be accessible, convenient and well-priced to encourage sustainable travel and make it a preferred alternative to personal vehicle usage. Offering frequent service at peak periods and spanning across the day is a must for any form of transport. A service must be convenient and accessible for all sorts of visitors and visit purposes. A well-priced service is cost-competitive with driving, a feature all the more essential in this time of high gas prices. Well-priced also means having fare schemes that are favourable to families and people of all abilities.

Further, shared transport providers must understand that their clients are not commuters but rather visitors en route to a national park. The amenities and facilities provided on a train or bus must be designed to accommodate outdoor gear (such as skis/ snowboards, large packs, picnic baskets, strollers, bikes, etc.). Even the design and layout of passenger seating should be considered. ‘First mile/last mile’ connectivity is also key to the success of the system. For day visitors to the park originating in Calgary, access to the mass transit services in the city must be convenient. When visitors arrive at a hub in Banff National Park they will need frequent, convenient and affordable connections to their final destination. This mode of transit will also be an asset to the local workforce if it is designed properly from a routing and service frequency perspective. It will broaden the range of housing opportunities that will be of great value to local businesses.

A scalable transit system could also present options for future expansion. A train from Edmonton to Calgary has long been discussed in Alberta and a passenger rail connection to Banff National Park could be an asset. Extending the rail system to Lake Louise could significantly reduce the volume of traffic within the park and provide a quick, easy connection to the most popular destination in the park. Extending transit services by bus to Kananaskis Country, Jasper, Yoho and Kootenay national parks and points further west are possible. Needless to say, planning and constructing a transit system would be complex and require a considerable investment. It would involve approval and permitting at all three levels of government including several municipalities. The environmental assessment and associated mitigations would need to address significant wildlife movement concerns and other ecological issues.

There is an opportunity for continuous learning and adaptive management. It is unlikely that a functioning mass transit system such as a train from Calgary to Banff could be designed and built immediately. Rather a staged approach that might involve first buses, dedicated bus lanes or other options could test the viability of the system while utilizing the existing transportation infrastructure. The system should be designed and adaptively managed to ensure the pace and flow of visitation to different areas of the park supports the achievement and maintenance of desired conditions for resources and visitor experiences. Bus service provides the needed flexibility for adaptive planning.

Any system that is designed must accommodate many different types of visitors – international, local, day vs. overnight, activities etc. Ultimately a well-designed system would either provide alternative (non-personal vehicle) transportation modes for a visitor’s entire trip, or allow a visitor to arrive in Banff and only park once if they choose to bring a vehicle. An appropriate set of incentives, such as a reduced park pass fee or discounts at other attractions, will need to be offered to convince visitors to take this option.

The panel strongly believes there is an opportunity for the broader community of interests in the Bow Valley to demonstrate leadership and make Banff a showcase for the world. Banff is one of the most popular tourist sites in the country. If we can’t do outstanding public transit in Banff, where can we do it?

A high-volume transport system must be accessible, convenient and well-priced to encourage sustainable travel and make it a preferred alternative to personal vehicle usage.

Rather a staged approach that might involve first buses, dedicated bus lanes or other options could test the viability of the system while utilizing the existing transportation infrastructure.

Feasibility

The proposed recommendations may be challenging for Parks Canada to implement but they are fundamental to reducing traffic congestion. Some elements of the proposals are long-term in nature and complex from a land-use and ecological conservation perspective. While some may consider these actions beyond the scope and mandate of Parks Canada, they are for the long term protection of the park and Canadians experience of the park. They cover multiple jurisdictions and pose significant environmental and policy challenges. However, Parks Canada is best positioned to create and lead a discussion with partners. Changing visitor expectations and behaviour will be challenging but this is achievable. With higher gas prices, younger generations with lower vehicle ownership rates, and with an excellent public transit system, we can be optimistic that people will make use of it. Parks Canada can be an active voice at the table and encourage a broader conversation around mass transit from Calgary and must participate fully.

Changing visitor expectations and behaviour will be challenging but this is achievable.

Banff National Park does not currently have well defined welcome hubs. Most visitors will pass through an entry gate but there are few services, limited information and no connections to other services at the entry gates. Hubs do exist at the Parks Canada information centres in Banff and Lake Louise. However, neither is particularly well located to welcome and provide multiple services, including intercept parking.

Hubs can be thought of as welcome centres; places for information, opportunities for education, to access a washroom, to find easy connections to your next or final destination.

A transportation hub is an efficient way to centrally locate services. Hubs can be thought of as welcome centres; places for information, opportunities for education, to access a washroom, to find easy connections to your next or final destination.

Many jurisdictions are trying to create effective transportation hubs. The new Union Station in New York City is an example where new infrastructure was constructed to support a variety of transportation modes. The facility connects incoming train users with a variety of transportation modes and an extensive network of walking connections. Areas of downtown Calgary can be thought of the same way where transit stations connect with buses, e-scooters, the plus 15 network, walking paths and others.

Banff already has what can be thought of as a distributed network of mini-hubs that would include places like hotels and campgrounds. These areas allow for parking of personal vehicles but then do require the need for first and last mile connection into the broader system.

Hubs would provide a variety of services, suited to destinations, that could include:

• Options for access to multi-modal forms of transit (buses, shuttles, on-demand vehicles, autonomous shuttles, etc.);
• High capacity parking options;
• Connectivity with active transportation options such as cycling and hiking;
• Be fully accessible in line with the Accessible Canada Act and be able to educate visitors on all the accessible options and opportunities around the whole park;
• Connectivity with private sightseeing and guiding companies;
• Educational and orientation information readily available from park staff, ambassadors and self- serve kiosks;
• Wifi hotspots;
• Appropriate shelter in all seasons;
• Become part of the user experience – hubs are pleasant places to be and set your trip up for success;
• A variety of amenities such as washrooms, playgrounds, commerce and potentially food services;
• Electric charging services for vehicles and e-bicycles;
• Gear hubs and rental services for activities such as biking, paddle boarding and even camping equipment. Food services, gear rentals, and other commercial amenities would have to respect any relevant commercial development caps.

Transportation hubs provide unique options for future management planning. There are many day-use parking areas that struggle with demand exceeding supply. Effective transportation hubs should have the ability to increase and decrease levels of service to accommodate surges in visitors interested in going to and returning from areas such as Johnson Lake, Johnston Canyon and Helen Lake. In fact, there are innovative options for strategically managing the pace and flow of visitation to certain trailheads and destinations that can be considered. Namely, some of these high use areas could be accessed only by public or private transit at busier times of year through reservations that deliver the appropriate volume of use to achieve desired conditions. Although not a perfect example, accessing Lake O’Hara in Yoho National Park requires some pre-trip planning and reservations for most users.

Over the last two years, the eastern section of the Bow Valley Parkway has seen seasonal closures to vehicle traffic as a response to visitor congestion and crowding at Johnston Canyon during the pandemic. The panel is aware that Parks Canada is conducting a two-year pilot to further explore options and gain a better understanding of how visitors responded to this change and how this strategy influenced visitor experiences to the area and the achievement of resource protection goals.

Banff already has what can be thought of as a distributed network of mini-hubs that would include places like hotels and campgrounds.

Namely, some of these high use areas could be accessed only by public or private transit at busier times of year through reservations that deliver the appropriate volume of use to achieve desired conditions.

Feasibility

Visioning and planning for hubs in a collaborative manner is a critical first step and this work should begin immediately. Within the Banff townsite a comprehensive review of potential locations along Banff Avenue or Mt Norquay Road will be required and can begin once some initial visioning is done. The Lake Louise area may be easier as the intercept lot moves to the ski area.

Once a vision and plan are established, medium term actions could include constructing infrastructure pieces to support the long-term plan. This could include not only the physical assets but also potentially piloting various modes of transport from each hub.

Feasibility

Much of the ground work has been laid for improving public transit. Roam transit has done excellent work in expanding local services and is well positioned to expand its role as a regional transit operator. The above mentioned actions are long-term planning actions that will likely require partnerships. Design and consultation portions could begin in the short-term.

The use of pathways to connect destinations within the Banff Bow Valley would open options to a diversity of users and audiences, and increase year-round connectivity across multiple destinations. The panel would like Parks Canada to consider the following concept: “if you can drive there, there should be an adjacent path there” (if resource conditions and safety considerations allow). For the purpose of this concept, pathways are paved routes, as opposed to hiking trails, and are accessible to a variety of personal mobility devices (ex. Scooters, wheel chairs, strollers, bicycles). They are safe and separated from vehicles and are guided by a minimum design standard.

Pathways should be considered as a complementary mode of movement alongside roads. The use of pathways can act as a link into the current system of hubs and existing paths, including those within the Town of Banff. When implemented correctly, users should be able to easily interchange their mode of transport from pathways to buses/gondolas and vice versa. This could be enhanced by the addition of pop-up amenities such as equipment rentals and drop-offs and food and beverage options. As previously mentioned, the Lake Minnewanka loop/area is an ideal location to pilot a new pathway system in Banff National Park and connect it to adjoining pathway systems such as Cascade Ponds, Vermilion Lakes, the Legacy Trail and the Town of Banff.

Parks Canada has already seen strong public reactions by introducing and now piloting active transport on the eastern section of the Bow Valley Parkway and restricting private vehicle access.

Pathways should be considered as a complementary mode of movement alongside roads.

As previously discussed, there are currently multiple options available for public ground transport within the Banff Bow Valley (i.e. Roam, Pursuit, Parks Canada). However, these are managed as separate entities and they are not interconnected in scheduling, cost, ticket purchase mechanisms or destinations. To cohesively manage the pace and flow of visitation, appeal to a variety of user groups, and dissuade use of private vehicles, there is a need for a singular system for transportation, booking, and associated user and visitor experiences. In doing so, this type of system would work towards a seamless experience for users, reducing the stress of deciphering multiple systems and how to connect them, and providing more incentive for use.

There is a need for a singular system for transportation, booking, and associated user and visitor experiences.

A unified transportation network would be a significant step forward in the Banff Bow Valley. An effective, coordinated and unified transit system would be very attractive to most visitors and increase its usage. It is an essential piece of the puzzle in removing vehicles from the system. Planners should think about the entire trip cycle and relate back to the vision at the beginning of this document. Regardless of how visitors arrive in Banff National Park, if they can connect into a seamless system that gets them to the places most want, it would be a huge leap forward.

In order to achieve a successfully unified system, it will require consideration of an overarching agency or joint collaboration among multiple private and public sector parties to manage all connected transportation options in Banff National Park and regionally. This would result in the need to consider a number of factors, including:

• Who would be required to be involved in such a collaboration, and how/who decides who is responsible for overseeing management?
• How are costs allocated and revenues shared?
• How do you make a singular system cost effective to promote equality among user groups, and make public transit attractive to users, encouraging less use of personal vehicles?

In addition to joint collaborations to manage transportation, it is essential to also create opportunities to create partnerships with private businesses to carry out the systems to support an overarching unified system. For example, gear sharing amenities at hubs and food and beverage opportunities. As a result, there is an additional requirement to identify how such contracts would be formulated and what needs could be met.

It will require consideration of an overarching agency or joint collaboration among multiple private and public sector parties to manage all connected transportation options in Banff National Park and regionally.

Feasibility

The creation of a single provider with coordinated services is a long term goal. This effort will take years to build and execute in a meaningful way. Work could commence in the short term to start building a vision and bringing partners together.

A common theme through this report, highlighted in different sections, is the missed opportunity of more coordination with stakeholders and Indigenous Peoples. There are services and opportunities that would be much better provided by private operators. Indigenous Peoples are also not significantly involved in moving people in Banff National Park and have much to contribute.

A common theme through this report ... is the missed opportunity of more coordination with stakeholders and Indigenous Peoples.

Contribution to a sustainable system

Partnerships will be key to an effective transportation system. Parks Canada cannot create a sustainable transportation system on its own. Genuine coordination among a range of providers will result in the best experience for visitors and residents of the Bow Valley. There are also unexplored opportunities for working with Indigenous Peoples. Indigenous Peoples have lived on these lands for millennia and offer a unique perspective on how to maintain them for generations.

Indigenous Peoples have lived on these lands for millennia and offer a unique perspective on how to maintain them for generations.

Feasibility

The panel is confident that Parks Canada will continue to see the value of its role in creating, and as importantly, maintaining long-lasting relationships with a variety of partners. The panel acknowledges that Parks Canada also has a regulator role. Nevertheless, the panel encourages Parks Canada to engage with potential partners and clearly state how it can play a participatory role but may also have to make decisions related to policy and regulations. Continuing and expanding this is very feasible. This work can begin immediately and is not costly. Pathways for conversation with Indigenous Peoples are already in place through mechanisms such as the Indigenous Advisory Circle.

Based on the panel’s research and expertise, one of the most powerful tools for addressing congestion is influencing visitor behavior, expectations, and supporting management tools. One approach to influencing a change in behavior is to examine the total financial cost of an individual or family visiting the park. The panel recommends a critical review of the Parks Canada entry pass. There are many technological innovations (license plate readers, location-based services (cellular) data, Strava data, traffic data via mobile phone GPS, unified payment systems, mobile applications and QR code readers) that could eliminate the hang tag park pass and potentially eliminate the need for entry kiosks where backups and delays occur. These systems could also provide alternate compliance approaches. This type of technology also affords an opportunity to collect social science information that can help build a better understanding of visitors and therefore the opportunity to build a better experience. The panel also realizes that there are public concerns about general access to data gathered from mobile phones, however providers routinely anonymize this data to address privacy concerns, and a multitude of industries are already using this type of technologies to improve service offerings.

A revamped park pass could also be used as a tool with multiple benefits. Some tourist destinations are employing a pass that has multiple benefits. Your park pass not only allows entry to the destination but can be the key for your hotel room, entry on to a transit system or admission to an attraction. The pass could even assist with timed ticket entry and help manage the pace and flow of visitation in particularly highly congested areas. For example, you could use your pass to book a time slot to hike a popular trail such as Helen Lake. Information kiosks can also be used to download educational information to passes, allowing visitors to “bring home” a piece of the park and extend their visitor experience long after their visit. This can enhance their appreciation of the park, share it with others and incentivize them to return again in the future. Similar kiosks are being used at some of the Smithsonian museums in downtown Washington D.C.

The panel recommends that Parks Canada look at the pricing scheme to see where pricing can better incentivize and de-incentivize certain behaviors. Pricing should make public transit more attractive and personal vehicle use less so. It is a key motivator that drives behavioral change. Proper pricing is key to the success of the system overall.

Pricing should make public transit more attractive and personal vehicle use less so.

Feasibility

Parks Canada has the enabling powers in the Parks Canada Agency Act to develop the most appropriate pricing mechanisms. To enable these powers, regulatory changes to remove Parks Canada from the Service Fees Act are required. This should not be perceived as a reason not to seriously and aggressively explore and implement pricing solutions. Legislation and regulations are not immutable, they are a reflection of conditions and context when they are created. If the context changes, governments have a responsibility to update to ensure efficient and responsible operations and service provision.

While the social science program in Parks Canada was robust in the past it now focuses mainly on broad market research and understanding visitors on a park wide scale. There are no dedicated resources within Banf f National Park to collect social science information. Attendance factors are well out of date having not been updated since 2003. There is often insufficient information to understand visitor patterns of use, motivations and behaviours.

There is a lack of current data and user information to draw upon in working to identify user preferences. The lack of current social science data is cause for an examination of the existing Parks Canada/Government of Canada policies regarding collection of social science data, and a need to utilize resources such as mobility apps to collect data and provide information that will feed into park user information to inform the recommendations being made.

There are no dedicated resources within Banff National Park to collect social science information.

Current, accurate information is critical to understanding current and potential visitors, and their preferences, needs, and expectations that will result in better designed systems and adaptive management needs. In addition to utilizing sources of data and user information, exercises—such as a cost comparison of transportation options and associated group dynamics—should be completed to determine what is most economical for the user. There will also be a need to develop metrics to help evaluate and guide the implementation of the plan to ensure that goals are being achieved. Good social science information is critical for monitoring, testing pilot programs, and adaptive management.

In addition to utilizing sources of data and user information, exercises— such as a cost comparison of transportation options and associated group dynamics—should be completed to determine what is most economical for the user.

The United States National Park Service is actively integrating the Visitor Use Management Framework into its planning and management efforts. In addition, the NPS has also identified many unique management strategies to deal specifically with congestion needs in national park units and implemented numerous congestion assessments to identify the appropriate strategy for different locations and issues.^{Footnote 1}

The panel believes there should be a shift to focus from managing to accommodate demand to managing to enhance the quality and inclusiveness of the visitor experience when planning a people-moving framework. Collaboratively setting desired conditions for resources and visitor experiences, and using those to guide evaluation and implementation of management strategies will provide a shared vision and roadmap for a successful outcome. This applies to both visitor experience and ecological integrity.

The panel believes there should be a shift to focus from managing to accommodate demand to managing to enhance the quality and inclusiveness of the visitor experience when planning a people- moving framework.

The panel recognizes that the visitor experience to Banff National Park is world class and should begin even before the arrival to the park. From planning through to execution, providing high-quality and inclusive experiences, it is essential to understand what contributes to a ‘high quality visit’ for a diversity of people. One of the biggest challenges here is that a high quality visit may not look the same to every user, leaving a need to fulfill a variety of desired experiences and modes of travelling to desired destinations within the park. The panel is aware of the need for better and more detailed information collected through public consultation processes, observational studies, and visitor surveys and the need to continue to build upon these to better understand what the current and potential user wants and how best to provide a welcoming and inclusive environment for all, regardless of physical ability, financial means, or cultural tradition.

In considering how to deliver high quality and inclusive visitor experiences while moving people around Banff National Park, it is essential that it be done so in a way that continues to protect and enhance the park’s natural and cultural resources.

From planning through to execution, providing high-quality and inclusive experiences, it is essential to understand what contributes to a ‘high quality visit’ for a diversity of people.

The panel recognizes that ecological integrity and protecting the character and nature of Banff National Park must remain Parks Canada’s top priority.

Keeping this in mind, the recommendations from the panel are taking into consideration the limited capacity that the park has to withstand use, and that the cumulative effects of human use and facilities should not be a strain on that capacity. Further research will be required into the impacts of a new framework on wildlife movement, aquatics, vehicle/animal collisions, hazardous spills, and noise among other variables.

Further research will be required into the impacts of a new framework on wildlife movement, aquatics, vehicle/animal collisions, hazardous spills, and noise among other variables.

Today’s mobility options cause issues like traffic congestion. Efforts to address this challenge have had limited success in Banff National Park. Visitors come to the park for many reasons – sightseeing, hiking, skiing, camping or enjoying a picnic with family and friends. Their ideal experience does not include being caught in traffic jams and long searches for parking. Simply expanding parking lots may provide relief for a few years but it is not sustainable, prudent over the long term, nor practical in some locations. Further, in a national park loved by millions of visitors, and cherished by Canadians, is it appropriate to have future generations lament “they paved paradise and put up a parking lot” (lyrics from Big Yellow Taxi, Joni Mitchell)?

The expert advisory panel has spent the last 12 months examining the challenges, both on-site and by reviewing public input and listening to comments and suggestions from local Indigenous Peoples, stakeholders and Parks Canada officials. The collective expertise and dedication of the panel members and secretariat have culminated in a final report to Parks Canada as per the panel’s Terms of Reference. The observations, analysis and recommendations are wide ranging, bold in some cases and they should be subject to public consultation and an appropriate level of environmental assessment. The panel will leave those processes to Parks Canada to consider and ultimately execute.

Although the panel focused its work on how to move people sustainably in the Banf f Bow Valley, many of the recommendations have application at other busy protected areas in Canada and possibly elsewhere around the globe. The panel benefitted from access to the soon to be approved Banff National Park management plan. That plan underwent significant public consultation and review. Concurrent with the panel’s work, a new Tourism Master Plan for Banff National Park is being developed. Some panel members have been involved in its early stages. Both of these planning processes have helped inform the drafting of the Moving People Sustainably report.

The greatest challenge in implementing many of the recommendations in this report involves changing the behaviour of visitors, stakeholders, residents and staf f of Parks Canada itself. While the current infrastructure and services for moving people about in the Banff Bow Valley are effective in off-season periods, those periods are becoming shorter every year. Moving people sustainably requires innovative solutions and those solutions will only be successful if they are implemented in a collaborative and collective effort year-round - learning, adapting and responding to the feedback and monitoring from ecological and social indicators. It may take 5-10 years to implement a few of the panel’s recommendations but the panel is confident that other work can and must begin immediately (e.g. more focused social science data collection and analysis). Changing behaviour at an individual, corporate and society level will also take time and will be uneven. There are numerous behaviour change models to explore and the panel urges Parks Canada to examine appropriate models and consider the potential interventions in policy, pricing, communications, incentives, etc. that have been recommended in this report. Although Parks Canada needs to take the lead in advancing some of the recommendations, it must also be prepared to be a willing and active partner. Indigenous Peoples, stakeholders, visitors and residents all have much to offer in building a more sustainable “people moving” system in the Banf f Bow Valley and beyond. Multi-party funding arrangements and governance structures will need to be negotiated and/or existing ones expanded. There are numerous references to transit services in this report, but the panel does not believe that Parks Canada needs to operate any of those services.

The greatest challenge in implementing many of the recommendations in this report involves changing the behaviour of visitors, stakeholders, residents and staff of Parks Canada itself.