Course:CONS370/Projects/Convergences and divergences among developers and the Squamish First Nation: the story of Garibaldi Ski Resort in British Columbia, Canada

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The development of a ski resort in Squamish is a coined concept; half the distance from Vancouver, compared to driving to Whistler and would correlate its distance with cost-effective, resort-style ski tickets and accommodations. This concept is being kindled by Garibaldi at Squamish Inc. (GSI). The GSI resort will be slightly over 2700 Ha of land development and cost around $3.5 billion. It will encompass multiple ski lifts, accommodations, leisure assets (ie golf course, playgrounds, restaurants, etc.) and will promote economic successes like increasing provincial employment and establishing a new competitor within the ski resort sector. However, much of its execution was halted for a decade due to neglecting proper environmental assessments, collaboration with local First Nations and proactive management implementations to maintain a sustainable infrastructure. With persistence and addressing their key weaknesses, the GSI ski resort was approved for development in late 2016. Yet, there are still groups and businesses opposed to the development of the ski resort due to questions about land ownership, anthropogenic pollution and relations between local government and First Nations of the Squamish-Lillooet Regional District. All and all, the GSI ski resort is underway and on its way to completion, its current status of development will be assessed against the required environmental and social standards. These standards will have to be met with proactive management strategies to maintain and expand the GSIs plans for completion in 2025.

Description

View of Squamish-Lillooet

In the first quarter of 2006, the Garibaldi at Squamish Inc. (GSI) Ski Resort Project commenced its first phase of development towards a $3.5 billion ski resort located on Brohm Peak north of Squamish, British Columbia[1]. This 2775ha resort will encompass 23 ski lifts, 3500+ vacation homes, and two 18-hole golf courses[1]. With consistent feedback, the GSI principals have been able to successfully collaborate with the Government of British Columbia and the Squamish First Nations on the GSI ski resort while taking into account issues of economic, social and environmental stability[1]. However, this success was only possible due to addressing important and fundamental environmental management practices and constantly working with local government and the Squamish First Nations to ensure that proper ethical development of the resort occurs[1]. It took close to 10 years to be successfully approved[1]. This case study will encompass a critical analysis of the convergences and divergences among developers and the Squamish First Nation to see how transparent, ethical partnerships can help lead to the successful implementation of the GSI ski resort. Looking at documentation and variables of local/provincial governmental relations, policy framework executions, empirical environmental factors, Squamish First Nation meetings/negotiations and strategies in consumer retention will be accounted for and interpreted to foreshadow success or failure in development. The critical analysis will help gain perspective on whether the GSI ski resort is sustainable enough for the financial, social and environmental success of ecological recreation in an ecocentric and socially sensitive area. 


Tenure arrangements

Squamish First Nation Traditional Territory

The ownership behind the 2777ha plot of land that makes up the GSI ski resort falls under two main investment groups: the Aquilini Investment Group and the Gaglardi Family (Northland Properties), with the Aquilini Investment Group being the primary project owner[1]. However, due to neglect of vital environmental components, the District of Squamish Council declined further development of the ski resort and wanted to stop development until proper environmental certification was achieved[1]. Thus, the proposal was made to locate the resort's location just 15 km north of Squamish, particularly, Brohm Peak[1]. This has made the approval for the development of the GSI Ski Resort from the Environmental Assessment Office (EAO) easier to achieve[2]. This derives from a lower population density, sound geographical location and matches the requests of the Squamish Council respectively[2]. The current status in land ownership of the GSI ski resort still falls onto the Aquilini Investment Group, however, due to the relocation of the development, the land is still under the ownership of the Government of British Columbia until all environmental assessments are met, as well as a continual plan is established for consumer safety and salmon/water supply[2].


Administrative arrangements

Since its inception in the early 2000s, the GSI ski resort's primary limitation preventing full approval of development lies within its integral environmental assessments of environmentally sensitive land[1]. This is due to the Environmental Assessment Office (EAO) which is the main administrative body behind all of British Columbia's environmental regulations put in legislation from the Ministry of Environment[1]. Taking just over a decade, the EAO was finally approved and was granted certification for the GSI project[1]. The main issue behind the 10+ year delay for certification of the GSI project lay in its neglecting to address sensitive salmon spawning areas during initial stages of development[1]. Initial developments generally encompass clear-cutting and massive demolition to promote a solid foundation for development[1]. However, large wood debris removed from the site can promote habitat destabilization for salmon populations, ultimately promoting direct environmental harm and indirect economic and social harm towards local communities relying on consistent salmon stocks[3]. With properly addressing salmon and riparian management strategies, the EAO approved the development contingent on future developmental strategies towards addressing and mitigating anthropogenic pollution (ie. noise, traffic, light, etc.), as well as, establishing better relations with local government divisions/branches within the Squamish-Lillooet Regional District to promote better transparency and communication[2].


Affected Stakeholders

Squamish First Nation

Squamish First Nation leaders in 1906

The Squamish First Nation has four reserves in North and West Vancouver and eighteen reserves in the Squamish Valley and Howe Sound[4]. Mount Garibaldi is within their traditional territory and is of cultural and sacred significance[4]. In Squamish Nation history, Mount Garibaldi is known as the harbour of the Nation during the great flood and is part of the origin of the modern Squamish Nation[4]. The Squamish Nation claims exclusive occupancy and ownership of the Mount Garibaldi area under its laws since time immemorial and they have used the Brohm Ridge area for at least four thousand years[4]. These claims were confirmed by the province of British Columbia who deemed the consultation priority of the area to be high[4].

In 2003, Squamish First Nation filed a lawsuit against the government of British Columbia because they had not been consulted on the decision to double the size of the proposed Garibaldi ski resort[5]. They argued that the Crown had breached its constitutional and fiduciary duties because Squamish Nation was not consulted prior to the decisions made to advance and expand the Garibaldi at Squamish project[4]. They won their court case, forcing both the government and the investors to acknowledge the need for proper consultation, especially at the early planning stages[4].

The Squamish Nation is now a full partner in the Garibaldi ski resort project[6]. The Nation sees the need for development but they would like to be fairly compensated for the use of their traditional lands[7]. Through becoming a partner in the project, significant economic and social benefits will go to the Nation as the resort begins construction and operations[6]. These benefits include training and employment opportunities, a share of long term profits, and a commitment to highlighting cultural and heritage values throughout the resort[6].

District of Squamish

District of Squamish

The District of Squamish is situated on the Sea to Sky Highway and has a population of approximately 19, 512 people[8]. It's well known for its wide range of recreational activities, trails, rock climbing parks, wildlife, and close proximity to the ocean[8]. Because of the district's location, outdoor recreational tourism is an important part of the economy[8].

The District has gone back and forth in their support of the Garibaldi at Squamish project. In 1998, the mayor of Squamish felt the proposal was coming at the right time because residents had been hit hard with job losses through a downturn in the forestry sector, the closing of the oil plant, and BC rail job cuts[7]. But there were still concerns about traffic issues on Highway 99, governance issues, questions about how to deal with the sewage, and the impacts of increased access to the backcountry[7].

The current mayor is not as confident as the one from 1998. She's concerned about the social and economic effects the project could have on Squamish[9]. She's also concerned about the project's potential impact on the local water supply, real estate, and affordable housing[9]. The project needs to have further consultation for the District to consider extending its jurisdictional boundaries[10]. The current mayor stated that a discussion about extending boundaries would be premature until Garibaldi at Squamish can provide answers for the District's concerns[11]. In 2016, the District passed a motion to oppose the resort because it didn't meet the smart growth and sustainable land-use plans[12]. Despite the motion, there were still citizens who thought the ski resort would bring needed jobs to the community and help Squamish become a bigger tourist destination[12]. Overall, the District doesn't want to decide for or against the project officially until the master planning questions are answered[11].

Objectives and Relative Power

The objectives of the District are to determine if this is the right project economically, environmentally, and socially. They need to ensure the benefits will outweigh any potential risks and get as much information as possible before they can announce their approval or opposition to the resort. The objectives of the Squamish First Nation are to ensure their traditional land is not ecologically harmed, their culture is honoured and that they benefit economically through profit from partnership and job opportunities for community members.

Both the Squamish Nation and the District of Squamish have a lot of power in deciding if this resort will happen and how quickly it will happen. The Squamish Nation holds power through their traditional land claims and the supreme court-mandated requirement that they will be consulted on all changes to the ski resort proposal. The District of Squamish has power in determining governance and if the project will be accepted by the residents and municipal council. The general consensus is that the ski resort's fate will be determined by the residents of Squamish and the Squamish Nation[13].

Interested Outside Stakeholders

Luigi Aquilini, Bob Gaglardi, and the Formation of Garibaldi at Squamish Inc.

Two of the most powerful interested stakeholders are the investors, Luigi Aquilini and Bob Gaglardi. They represent the money needed for the $3.5 billion resort proposal.[14] Both businessmen bring vast experience with tourism and hospitality and have the necessary capital to see this project through to completion[14].

Luigi Aquilini is an Italian immigrant who made his money as a residential developer, landlord, and large berry farm operator.[14] Bob Gaglardi also comes from a family of Italian immigrants[14]. He made his money by transforming the Sandman Inns into a chain of hotels and restaurants[14].

Securing the bid for the Garibaldi at Squamish proposal has been a tumultuous journey. The idea started in 1986 when Aquilini was approached as an investor. In 1991, they lost the bid when the NDP government came into power and decided to open up the application to competition[14]. They won it back by 1996 but policies had changed and they had to pass a three-part review under the Environmental Assessment Act[14]. In 2001, Aquilini brought Gaglardi in as a business partner and by 2002, they had formed the new Garibaldi at Squamish Inc[14]. In 2016, 40 conditions were laid out by the province of British Columbia when they were granted their environmental assessment certificate[15]. The certificate was a key step in resort development considering the opposition the group had faced from environmental agencies and Whistler business interests[16]. As of 2020, the group is applying for an extension on its environmental assessment certificate[15]. If the extension is granted, they will have until 2026 to meet all of the environmental conditions[15].

Objectives and Relevant Power

As investors, one of the objectives of both Aquilini and Gaglardi is to profit from their investments. There is money to be made in selling real estate and the mountain experience as a package[14] but they want to accomplish more than that. Garibaldi at Squamish Inc.'s goal is to create an all-season resort that will be affordable and accessible[17]. They are also aiming to be the most environmentally friendly resort in North America[15]. They have promised to listen to local input in order to build a resort that Squamish residents will be proud of[14]. They are also working with the Squamish First Nation to create a name for the resort that will honour the land it's built upon[15]. This project has a long time frame attached to it and Garibaldi at Squamish Inc. is willing to wait out that process because of the expected population growth in the Lower Mainland, closer location for tourist access, and the prospect of a large financial return[14]. Although Garibaldi at Squamish holds financial power, they still have to comply with the affected stakeholders (District of Squamish and Squamish First Nation) and the province's environmental regulations.

Discussion

Mount Garibaldi

The Garibaldi at Squamish Inc. (GSI) ski resort has been a very important development in building relationships between all stakeholders involved in the project: the Squamish First Nation, the District of Squamish, Aquilini Investment Group, the Gaglardi family, and the Government of British Columbia. Through building all of these important relationships, the current form of the GSI ski resort project has become a model for development that other projects should try to emulate. However, the initial proposals for the resort project had many major conflicts and were nothing like what we see today.

The project has taken much longer to get approved than originally intended in part due to a lack of consultation with the Squamish First Nation during early proposals. Building a proper relationship with the Squamish First Nation should have been a key part of early project development, but it was neglected in favour of completing the project sooner. This conflict has been resolved in the years since, and the Squamish First Nation is now one of the major development partners of the GSI [18]. By working closely with the GSI, the Squamish First Nation can ensure that the GSI is meeting all requirements around proper consultation, as well as make their own contributions to the development project [18].

In addition to the lack of First Nations consultation, the initial development plan did not meet the requirements surrounding the protection of sensitive habitat (mainly an important salmon-bearing stream) within the development area. The Environmental Assessment Office (EAO) continued to decline project proposals until the proper changes were made, resulting in a delay of over 10 years. With GSI’s aim to be the most environmentally friendly resort in North America [15], they should be making sure that meeting all environmental conditions take priority in the development. Protecting sensitive habitat is not only important from an ecological standpoint, but it is also key in drawing tourist interest to the area. The public is much more likely to visit an area that they know makes serious efforts to protect the environment, and the increase in tourism will lead to increased profits for all of the project's stakeholders. The GSI resort project should aim to not only meet the requirements of protecting this sensitive habitat but also should be working to showcase it. The development of interpretive and educational programs about the importance of salmon and riparian areas could increase the number of visitors to the resort while also adding to the environmental credibility of the project.

Assessment and Recommendations

The stakeholders with the most decision making power in the development of the Garibaldi at Squamish Inc. (GSI) ski resort are the Government of British Columbia, the Squamish First Nation, and the District of Squamish. The Government of BC has been able to ensure that the project meets all environmental conditions through the Environmental Assessment Office (EAO), while the Squamish First Nation must be consulted and worked with on all developments as the Squamish area falls within their traditional territory [14]. The District of Squamish plays a major role by representing the residents of the area and their concerns with the development project. Although the GSI has control over the project financially, it must comply with all of the other stakeholders for their project to be approved [14].

There are 2 main categories of recommendations to look at; environmental and socioeconomic. In the case of environmental recommendations, the GSI should look to fulfill all of the conditions outlined by the most recent EAO report. Beyond meeting these requirements, they should allocate resources to the development of interpretive and educational environmental programs within the resort area. For socioeconomic recommendations, the GSI should ensure that they are doing everything they can to enhance the economy of the District of Squamish and the Squamish First Nation. This can be done by ensuring that the opening of the ski resort increases the number of tourists into the town of Squamish in addition to just the resort. They should help to develop new facilities in the town to support the increased number of visitors and provide career opportunities for people who live there. If these recommendations are seriously considered, then the Garibaldi at Squamish Inc. ski resort will be set up to succeed.

References

  1. ↑ 1.00 1.01 1.02 1.03 1.04 1.05 1.06 1.07 1.08 1.09 1.10 1.11 1.12 GSI - Garibaldi at Squamish Ski Resort - British Columbia - Project Profile. London: GlobalData plc, 2018. ProQuest. Web. 19 Mar. 2020.
  2. ↑ 2.0 2.1 2.2 2.3 Polak, Mary, Steve Thompson, Garibaldi at Squamish Inc., and British Columbia Government EBook Collection. In the Matter of the Environmental Assessment Act S.B.C. 2002, C. 43 (Act) and in the Matter of an Application for an Environmental Assessment Certificate (application) by Garibaldi at Squamish Inc. (proponent) for the Garibaldi at Squamish Resort Project (project) : Reasons for Ministers' Decision. Victoria, BC: British Columbia Environmental Assessment Office, 2015. Print.
  3. ↑ Gill, Alison M., and Peter W. Williams. "Rethinking Resort Growth: Understanding Evolving Governance Strategies in Whistler, British Columbia." Journal of Sustainable Tourism 19.4-5 (2011): 629-48. Print.
  4. ↑ 4.0 4.1 4.2 4.3 4.4 4.5 4.6 Supreme Court of British Columbia (September 27, 2004). "The Squamish Nation et al v. The Minister of Sustainable Resource Management et al" (PDF). BCCourts.ca. Retrieved April 9, 2020.
  5. ↑ Seyd, Jane (October 22, 2004). "Judge sinks ski resort for not consulting Squamish". North Shore News. Retrieved April 9, 2020.
  6. ↑ 6.0 6.1 6.2 Garibaldi at Squamish, Inc. (February 2018). "Garibaldi Master Plan Update" (PDF). squarespace.com. Retrieved April 9, 2020.
  7. ↑ 7.0 7.1 7.2 Berry, Steve (April 12, 1998). "Squamish's Last Resort: Ski hill boosters say proposed Garibaldi resort will give hard-hit Squamish economy a lift". The Province. Retrieved April 9, 2020.
  8. ↑ 8.0 8.1 8.2 "About Squamish". Squamish.ca. Retrieved April 9, 2020.
  9. ↑ 9.0 9.1 Korstrom, Glen (January 28, 2020). "Jumbo failure highlights northern B.C. ski resort developers' uphill fight". Prince George Matters. Retrieved April 9, 2020.
  10. ↑ Chan, Kenneth (February 12, 2019). "Massive $3.5-billion Squamish ski resort aiming for 2025 opening". The Daily Hive. Retrieved April 9, 2020.
  11. ↑ 11.0 11.1 Thuncher, Jennifer (October 9, 2019). "What is happening with Garibaldi at Squamish?". The Squamish Chief. Retrieved April 9, 2020.
  12. ↑ 12.0 12.1 Sinoski, Kelly (February 1, 2016). "Squamish residents divided on proposed Brohm Ridge resort". The National Post. Retrieved April 9, 2020.
  13. ↑ Morton, Brian (October 19, 2015). "Whistler pushes for rejection of proposed mountain resort; New Squamish-area ski development would be 35 minutes closer to Vancouver than Whister-Blackcomb". The Vancouver Sun. Retrieved April 9, 2020.
  14. ↑ 14.00 14.01 14.02 14.03 14.04 14.05 14.06 14.07 14.08 14.09 14.10 14.11 14.12 McCullough, Michael (2016). "The Last Resort". Canadian Business. Retrieved April 9, 2020.
  15. ↑ 15.0 15.1 15.2 15.3 15.4 15.5 Luymes, Glenda (February 3, 2020). "Ski resort proposed for Squamish to ask for environmental extension". The Vancouver Sun. Retrieved April 9, 2020.
  16. ↑ Revelstoke Mountaineer Staff (Jan 29, 2016). "Proposed Garibaldi ski resort at Squamish gets key environmental assessment certificate". Revelstoke Mountaineer. Retrieved April 9, 2020.
  17. ↑ Findlay, Andrew (Jan 29, 2016). "B.C. approves a multi-billion dollar ski resort that the industry doesn't want". BC Business. Retrieved April 9, 2020.
  18. ↑ 18.0 18.1 Hainsworth, Douglas. “Growth Management Options for Tourism-Led Community Development in Squamish: the Case of Brohm Ridge Ski Resort.” University of British Columbia, University of British Columbia, 1996.


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