British Columbia Ministry of Forests

RECREATION MANUAL

Chapter 8: Recreation Planning

8.1 Introduction
8.2 Overview of Recreation Planning
8.3 Requirements for Recreation Planning and Referrals
8.4 District Recreation Planning
8.5 Management Plans for TFLs
8.6 Overview of the Land Use Planning Framework
8.7 Land and Resource Management Planning
8.8 Resource Management zones
8.9 Landscape Units
8.10 Sensitive Areas
8.11 Interpretive Forest Sites, Recreation Sites and Trails
8.12 References

8.1 Introduction

Land use planning
recognizes recreation and other values.

Recreation planning (and recreation referrals) is one component of the Ministry of Forests' (MoF) approach to managing and protecting British Columbia's forest resources for the best short- and long-term economic, social and environmental benefit.

Recreation planning must fit within the framework of the provincial land use strategy, with an emphasis on economic, environmental and social sustainability, public participation, and respect for aboriginal rights.

It must also fit within the strategic and operational planning framework set out in the Forest Practices Code (the Code).

Under the Code, public forest lands must be managed and used in a way that is consistent with, amongst other purposes, recreation, scenery and wilderness.

This chapter provides a
practical guide to
recreation planning.

Content of the chapter

This chapter serves as a practical guide for recreation staff on the role of district recreation planning in order:

• participate effectively in strategic and higher level planning, including establishing sites, trails and objectives;
• review and provide input to operational plans for forest practices (e.g., recreation referrals of forest development plans);
• develop operational plans for recreation; and
• provide input to MoF business plans.

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8.2 Overview of Recreation Planning

Recreation planning is designed to provide input to strategic direction set out in strategic land use plans (SLUPs), including higher level plans under the Code, and operational plans for forest practices and recreation.

Recreation planning is important for:

• identifying important recreation resources and making them "known" under the Code;
  
  
• organizing recreation information and maps in a useful manner for input to other planning processes, including strategic land use plans, higher level plans and operational plans for other forest resources;
  
  
• taking strategic direction from approved strategic land use plans and developing consistent recreation actions and priorities to see that strategic objectives are implemented;
  
  
• involving the public in identifying recreation resources and user preferences;
  
  
• providing the district manager with recreation information needed to make informed decisions (e.g., Forest Practices Code Act, Sections 41, 102 and 105) (the district manager is the statutory decision maker designated by legislature to effect a balance between harvesting timber and the realization of other resource values, including recreation resources);
  
  
• reflecting government and ministry policy direction in recreation practices and developments "on-the-ground;" and
  
  
• ensuring that recreation structures are safe, sanitary, environmentally sound, and socially acceptable through recreation objectives for sites and trails.
  
  

The key component of recreation planning is the district recreation plan (see Section 8.4 for a complete overview).

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8.3 Requirements for Recreation Planning and Referrals

Planning Level

Provincial Policies

Regional Priorities

District Recreation Planning

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8.4 District Recreation Planning

The overall purpose of district recreation planning is to provide recreation managers with a set of tools that will help them in protecting recreation resources and managing recreation use proactively and effectively over both the short- and long-term.

Definitions

District Recreation Planning

• is a process of identifying current and potential recreation uses and values at the strategic planning level, and developing priorities and actions for managing recreation at the operational level.

District Recreation Plans

• provide input to, are consistent with, and help implement approved strategic land use plans (SLUPs);
• act as operational plans for recreation;
• provide input to operational plans for other forest resources;
• provide input to ministry business plans as well as non-ministry investment plans;
• provide input to corporate (inter-Ministry/NGO) recreation/tourism strategies; and
• communicate recreation priorities and encourage dialogue. 
   

Figure 1: District Recreation Planning Process: Overview*

* Refer to the District Recreation Planning Manual (1997)for a detailed description of the recreation planning process.

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8.5 Management Plans for TFLs

Management plans (MPs) for TFLs are prepared by the licensee and approved by the chief forester. However, the Crown portion of a TFL is public land, and full and final authority and accountability for recreation management on public land rests with the MoF, not with the licensee.

Although the licensee prepares the TFL management plan, the ministry is responsible for reviewing and approving (or rejecting) it.

Therefore, recreation staff are responsible for reviewing and making recommendations regarding the management plan and its preparation. More specifically, recreation staff are responsible for ensuring that all recreation planning responsibilities that have been delegated to the licensee (by virtue of Section 35 of the Forest Act) are carried out in harmony with MoF management objectives. These include objectives for the protection and conservation of both timber and non-timber values, including visual quality and recreation resources. Responsibilities should also be carried out in accordance with MoF procedures and standards as set out in this manual.

Management plans for TFLs are prepared based on a number of planning documents, three of which require specific recreation planning input. These three planning documents are:

• Statement of Management Objectives, Options and Procedures (SMOOP);
• Recreation Analysis Report; and
• Management Plan (draft and approved).

The procedures for recreation planning in TFL planning are described below:

Planning Step

Step 1 Preliminary Organization

Procedures (by planning step)

Coordination

• Ensure that there is communication between MoF, recreation, planning and timber harvesting staff, and licensees.

Recreation Inventory

• Ensure that licensees prepare features and ROS inventories to MoF standards prior to plan development.

Recreation Analysis

• Assist licensees in carrying out recreation analysis.

Recreation Plans

• Communicate to licensees all MoF recreation plans and their implications.

Visual Landscape Management

• Ensure that important visual landscape issues and major visually sensitive areas and corridors have been identified prior to initiation of a plan revision (see Chapter 11 for procedures and responsibilities in forest landscape management).

Backcountry/
Wilderness Management

• Ensure that any important backcountry/wilderness areas have been identified prior to initiating a plan revision (see Chapter 12 for procedures and responsibilities in backcountry/ wilderness management).

SMOOP

• Review and comment on recreation issues, and planning and analysis procedures.

Other Requirements

• Communicate to the licensee any requirements of the chief forester to meet special needs (e.g., preparation of REA maps) (see Step 5 below).

Step 2 Information Assembly

• Assist licensees in assembling information, as required.

Step 3 and 4 
Analysis and Evaluation of 
Options

• Review and comment on licensee's Recreation Analysis Report, which is prepared as a collation of information from Steps 1 through 3.
• Assist licensees in analysis and evaluation of options, as required.

Step 5 Selection of an Option

Review MP for its conformity to minimum content as set out in Sections 35 and 36 of the Forest Act:

• Confirm that recreation (including visual landscape) values and resources will managed so they are protected and conserved in the TFL.
• Ensure that a recreation inventory is completed to MoF standards.
• Ensure that required recreation use information is, completed to MoF standards.
• Identify the recreation sites and trails that will be developed and maintained on the licence area over the five-year term of the plan.
• Record other recreation information and activities as required by the chief forester to meet special needs.

Additional recommended content includes:

• Recreation management objectives by ROS class (current plus 20-year projection).

The responsibilities for recreation planning within TFL planning (i.e., for recreation input into or preparation of planning documents) are outlined below.

B = Branch recreation and landscape staff

R = Regional recreation and landscape staff

D = District RO responsible for recreation and landscape

L = TFL licensee

RM = Regional manager

CF = Chief forester

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8.6 Overview of the Land Use Planning Framework

Strategic Land Use Plans (SLUPs)

SLUPs provide strategic direction, primarily in the form of land use zoning that includes mapped zones with distinct names, and often includes objectives with strategies.

SLUPs include:

• Cabinet approved plans or agreements that outline the government's overall policy for using the lands and resources of an area. For example, a regional land use plan, such as the Vancouver Island Land Use Plan, is an approved strategic land use plan.
  
  
• Plans declared as higher level plans under the Code (see below). (SLUPs are not automatically considered higher level plans; they must be declared under the Code).
  
  

The Forest Practices Code

One of the primary vehicles for implementing land use planning and resource management in B.C. is the Forest Practices Code. The Code is comprised of four components:

• Forest Practices Code of British Columbia Act (the Act);
  
  
• Forest Practices Regulations;
  
  
• Forest Practices Standards; and
  
  
• Forest Practices Guidebooks.
  
  

The Code was designed to build on previously established planning processes, and introduced a number of new forest planning approaches.

Planning under the Code is separated into two levels: higher level planning and operational planning. Higher level plans include those plans specified in Part 2 of the Act -- Strategic Planning, Objectives and Standards -- and plans produced under certain non-Code legislation or policy as specified in Section 1 (1) of the Act.

Through the concept of higher level plans, plans that are prepared outside of the Code under other legislation or policy (e.g., SLUPs) can serve to legally influence forest practices.

Table 1 illustrates all higher level plans referenced by the Code on the basis of the legal agent who declares, establishes or designates each plan. The links between higher level plans and operational plans are described below.

Higher Level Plans defined

Higher level plans establish the broader, strategic context for operational plans, providing objectives that determine the mix of forest resources to be managed in a given area. They fall into two categories:

1. Plans that are directly enabled through Part 2 of the Act. These include objectives for the following:

• resource management zones;
• landscape units;
• sensitive areas; and
• interpretive forest sites, recreation sites and trails.

2. Plans that are developed under non-Code legislation or policy. These include the following:

• plans or agreements declared to be higher level plans by the Lieutenant Governor in Council (also referred to as Cabinet) or the ministers;
• Plans formulated pursuant to Section 4(c) of the Ministry of Forests Act, which are designated as higher level plans by the district manager in accordance with direction from the chief forester; and
• Management plans, which may be designated as higher level plans by the chief forester for tree farm licences, and by the regional manager for other agreements under the Forest Act.

In a broader sense, higher level plans refer to plans, agreements or objectives as defined in the Code. They are a "higher level" relative to operational plans, and are the primary source of objectives that play an important role in determining the forest practices described in an operational plan.

A plan, such as the Kamloops Land and Resource Management Plan, may be approved as government policy. However, this approval does not make it a higher level plan. The plan, or a portion of it, must first be formally declared by the Lieutenant Governor in Council or the ministers as a higher level plan before the provisions of the Code concerning these plans can apply.

The same general concept (with different approving authorities) applies to other higher level plans.

Table 1: Higher Level Plans under the Code 

* The chief forester has delegated the authority to establish objectives for interpretive forest sites and recreation sites and trails to the district manager.

Corporate Provincial Policies

Beyond statutes and regulations, there are certain provincial policies that can profoundly affect the nature and wording of goals, objectives and strategies in resource management plans. Those with the greatest effect are "corporate" policies, reflecting Cabinet direction. Examples of corporate policies that directly influence land use planning in B.C. include the Protected Areas Strategy, the Grizzly Bear Conservation Strategy, and the provincial timber supply policy that limits the impact of the Forest Practices Code to six percent reduction in timber harvests over the short term.

Operational Plans Defined

The application of forest practices is regulated under Part 4 of the Act, as well as addressed in guidebooks.

Operational plans provide a description of forest resources and the location, timing and description of forest practices for the management, use and conservation of those resources.

The management and use of forest resources and the application of forest practices must be consistent with the purposes or objectives set out in Section 2 of the Act.

Generally, before agreement holders or, in some cases, government can engage in these forest practices, they are required under the Act to submit operational plans (see Sections 19(1), 21(1), 22(3), 24(2), 26(2), 27(1)).

The overall purpose and objectives for land use and resource management must be clearly determined before an operational plan is prepared for an area. The Code uses the concept of higher level plans as the main vehicle for this focusing or selection of objectives. Because operational plans must be consistent with higher level plans, the forest practices described in an operational plan must be consistent with the objectives provided in any higher level plan in effect in the area.

Under the Code, an operational-level plan is determined to be consistent with higher level plan objectives if the operational plan does not "materially conflict" with them.

In areas without Higher Level Plans

In all cases, whether a higher level plan is in effect or not, the district manager must be satisfied that an operational plan or amendment is in accordance with the Act and regulations, and will adequately manage and conserve forest resources.

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8.7 Land and Resource Management Planning

Land and resource management planning (LRMP) is the sub-regional integrated resource planning process for British Columbia. This planning process considers all resource values and requires public participation, interagency coordination, and consensus-based land and resource management decisions.

LRMP is the sub-regional integrated resource planning process.

LRMPs cover sub-regional areas of approximately 15 000 to 25 000 square kilometres. The plans establish direction for land use and specify resource management objectives and strategies. They provide a comprehensive, broadly accepted and approved management framework to guide resource development and more detailed planning.

Some examples of LRMP land use categories that have been used in the past include:

1. Protected areas
2. Special management areas - habitat, recreation, scenery, tourism, community watersheds 
3. General resource management areas
4. Enhanced resource development areas
5. Settlement areas
6. Agriculture areas

How does LRMP link to other planning and resource management processes currently underway? 

LRMP guides lower level plans

• LRMP guides lower level plans (including district recreation plans) just as regional plans guide LRMP.
• LRMP can be used to refine the broad land allocation zones decided in regional plans, and it can provide specific management guidelines to implement the other types of strategic direction given in the regional plan (LRMP usually sets out the resource management zones or landscape units used as the basis for zoning in district recreation plans).
• LRMP can be used to develop protected area recommendations where there is no regional planning process.
• LRMP is recognized under the Code as a higher level plan that defines objectives that must be met in applying the operational rules of the Code.
• Management objectives are used to define the primary requirements for resource management.

Recreation role in LRMP

Use of ROS classes found important in LRMP

LRMP processes generally attempt to assess the relative diversity of recreation opportunities. Indicators that measure changes in ROS classes have been used in most LRMP processes to date and have been found to be important.

In addition to diversity of opportunity indicators, the visual quality measure has been used in previous LRMP to assess plan scenario impacts on lake shores and important visual corridors.

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8.8 Resource Management Zones

Section 3 of the Act allows for the creation of resource management zones (RMZs) and objectives under authority of the ministers (MOF, MELP, & MEM)

Resource management zones (RMZs) are the primary resource planning vehicle for implementing the province's social, economic and environmental objectives for land use by enabling broad zoning of forest lands based on objectives from regional plans, and land and resource management plans. One example of a possible RMZ objective is, "Maintain the visual quality of the regionally significant areas shown in map 4." 

Subsequent operational plans must be consistent with RMZs and any associated objectives.

Use of RMZs

The chief forester policy for using RMZs, as set out in Section 4.4.2 of Higher Level Plans: Policy and Procedures (1996), indicates that:

• RMZs may be used as divisions or zones of a planning area that are distinct from other zones with respect to biophysical characteristics, resource issues or resource management direction.

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8.9 Landscape Units

Section 4 of the Act provides the district manager with the authority to establish LUs.

Landscape units (LUs) are areas of land and water, usually covering a watershed or other physiographic area, established for coordinating the long-term planning and development of resources. Objectives for LUs may be established for all forest resources as defined in the Act, including:

• timber 
• recreation 
• water 
• visual resources 
• botanical forest products
• wildlife
• forage
• fisheries
• biological diversity

Establishing objectives

Prior to establishing, varying or canceling an objective for a LU where the objective deals with a forest resource other than a recreation resource, the district manager must obtain the approval of a designated environment official.

Facilitate management for a range of purposes

Chief forester policy for establishing LU objectives, as set out in Section 5.5.1 of Higher Level Plans: Policy and Procedures (1996), indicates that:

• LU objectives may be established to facilitate management of a range of values and resources, including recreation, scenery and wilderness purposes.

Strategic Planning Regulation

The Strategic Planning Regulation provides that a district manager may address certain matters when establishing LU objectives, including retention of old growth, landscape connectivity, and temporal and spatial distribution of cutblocks.

Two alternatives for LU objectives

The first alternative is especially appropriate where no higher level plans are declared

There are two alternatives for establishing LU objectives:

• The first alternative is to focus on a brief and concise set of objectives for biodiversity, moving rapidly to the legal establishment of both the unit and objectives. This is especially appropriate where no higher level plan (such as an LRMP) is declared. In these circumstances, it may be difficult to resolve contentious issues regarding forest resources at a landscape unit level.

The second alternative is more effective after higher level plans are declared

• The second focuses on a more comprehensive approach, developing more detailed objectives, frequently for a broader range of forest resources. This comprehensive approach is more effective after a LRMP or regional plan has been declared. This plan would create a clearer context for developing objectives for all forest resources.

Section 5.13.3 of Higher Level Plans: Policy and Procedures (1996), sets out detailed procedures for both alternatives.

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8.10 Sensitive Areas

Sensitive areas (SAs) are small areas of land and water that have unique or locally significant forest resources that are frequently sensitive to resource development activities.

Section 5 of the Act provides the district manager with the authority to establish sensitive areas.

Sensitive areas and objectives may be established to manage or conserve small areas of unique or locally significant forest resources. Examples of SAs could include, but are not limited to, a rare plant community, a hot spring and surrounding forest, or a concentration of forest resources or resource features that, in combination, enhance site sensitivity. 

While development, such as access or timber harvesting, may be restricted, sensitive areas are not generally intended to preclude harvesting and other activities that are compatible with the values for which the sensitive area has been established.

Developing objectives

Chief forester policy, as set out in Section 6.9.2, Higher Level Plans: Policy and Procedures (1996), states that:

Designated environment official to be consulted, except for objectives that apply to recreation resources.

• The district manager will consult with the designated environment official when developing objectives to guide the management or conservation of forest resources in the sensitive area, except for objectives that apply to recreation resources. Other resource agencies should be consulted where the proposed objectives are applicable to their mandates.
   

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8.11 Interpretive Forest Sites, Recreation Sites and Trails

Section 6 of the Act provides the Chief Forester with the authority to establish recreation sites and trails

The purpose of establishing recreation sites and trails is to protect recreation resources and facilitate public recreation use of Crown forest lands. In addition, interpretive forest sites are established to facilitate forest education.

The management goal of each site and trail should be to provide an overall condition of safety, sanitation, social acceptability and environmental soundness that complements the facilities and recreation programs of other agencies and the private sector.

Authority to establish site and trail objectives is delegated by the chief forester to the district manager

Procedures and responsibilities for establishing a recreation map notation (for Crown land within a provincial forest) or Land Act reserve (for Crown land outside a provincial forest) are set out in Appendix 10 of the Higher Level Plans: Policy and Procedures (1996) document.

Chief forester procedures, set out in Section 7.6.3 of the Higher Level Plans: Policy and Procedures (1996), request the district manager to ensure that:

Generally, requests to establish sites and trails will be collated by the branch and submitted to the chief forester in batches

•  a map notation or map reserve is established prior to establishing a site or trail to ensure that standard mapping, clearance and status procedures have been followed; and
• consent from an agreement holder is obtained during the map notation/reserve referral process if the establishment of the site or trail adversely affects the rights of the agreement.

Objectives

Objectives must be established within six months of establishing interpretive forest sites, recreation sites or recreation trails

In order to ensure that the objectives for sites and trails are expressed in a consistent and standard manner, and that the objectives are measurable to enable monitoring and evaluation, objectives may be expressed in the following terms:

• Recreation experience objectives: to provide opportunities for [enter ROS class] recreation experiences. See the Recreation Opportunities Spectrum Inventory, Standards and Procedures Manual for a complete description of ROS classes.
  
• Recreation feature objective: to [enter level of protection (e.g., maintain, retain, protect)] the [enter recreation feature code]. See the Recreation Features Inventory, Standards and Procedures Manual for a complete list of recreation feature codes.
  
• Recreation activity objective: to provide opportunities for [enter recreation activity code]. See the Recreation Features Inventory, Standards and Procedures Manual for a complete list of recreation activity codes.
  
  
• Public recreation access objective: to maintain [enter level/type of public access] access within the site or trail.
  
  
• Forest interpretation objective: to provide [enter message/theme] forest interpretation and education opportunities. See the draft Forest Interpretation Policy for information on forest interpretation messages, audience and media.
  
  

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8.12 References

Forest Practices Code of British Columbia Act, Province of B.C.

Forest Practices Code of BC Act Regulations, Province of B.C.

Forest Recreation Regulation
Operational Planning Regulation
Strategic Planning Regulation

Higher Level Plans: Policy and Procedures (1996), Ministry of Forests

Draft Forest District Recreation Planning Manual (1997), Ministry of Forests

Forest Act, Province of B.C.

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