From vision to criteria: Planning sustainable tourism destinations Case Ylläs Lapland

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1 From vision to criteria: Planning sustainable tourism destinations Case Ylläs Lapland Tiina Merikoski Researcher Landscape Architect (M.Sc) Aalto University School of Science and Technology Department of Architecture Finland Summary Tourism destinations are struggling with simultaneous needs to protect natural environment and to meet the growing needs of tourism. Deprivating natural assets, growing numbers of visitors, and fast construction and development strain the carrying capacities of these communities. Nevertheless, planning for sustainability in tourism destinations remains vague: how to integrate the different demands for sustainability in planning resort communities? In MATKA research project six key features for a sustainable nordic tourism destination have been identified. Furthermore, a vision, key objectives and criteria for planning sustainable tourism destination have been developed. This paper describes the process of developing the vision and the key objectives. In particularly, this paper presents two examples of what kind of criteria for planning these objectives may include. Keywords: Land use planning, vision-based planning, shared vision, sustainability objectives, criteria for planning, sustainable resort communities, nordic tourism destination, ski resort 1. Introduction Many tourism destinations are struggling with simultaneous needs to protect natural environment and to meet the growing needs of tourism. Deprivating natural assets, growing numbers of visitors, and fast construction and development all strain the carrying capacities of these communities. Nevertheless, planning for sustainability in tourism destinations remains rather vague: how to describe a sustainable resort community, and how to integrate the different demands for sustainability in planning? MATKA Sustainable Tourism Destinations - Land Use, Architecture, and Energy is a multidisciplinary research project investigating sustainable solutions for tourism destinations in terms of land use planning, energy systems and architecture (website in Finnish: matka.tkk.fi). The case study site of MATKA research is in Ylläs, a ski resort in the Finnish Lapland. MATKA is a joint project between the Aalto University Departments of Architecture and Energy Technology, and Finnish Forest Research Institute (Metla). The research is done in cooperation with project partners, and local stakeholders in Ylläs. Project partners include Lapland Hotels Oy, Fortum Power & Heat, Lemminkäinen Talo Oy, Laatumaa and Kolari municipality. The project is part of Tekes (Finnish Funding Agency for Technology and Innovation) Sustainable Communities program. MATKA research project is looking to find the key features for a sustainable tourism destination.

2 These are necessary for envisioning a sustainable future for the community but also for developing planning tools and guidelines. As part of MATKA research a vision, key objectives and criteria for planning a sustainable tourism destination have been developed. The objectives and the criteria respond to the six different dimensions of sustainable resort community identified in this project: land use planning (built environment, planning methods), mobility and transport (accessibility, modes of transport, trail network), ecological sustainability (natural environment and landscape, energy and waste management), economic sustainability (operational environment and service structure, growth and measures), social sustainability (housing, well-being, partnerships, local culture), and living environment and architecture (quality and high standards, guidelines and building code). Key questions of MATKA research in terms of land use planning are what are the key features of a sustainable resort community (vision and objectives), and how can we integrate the different demands for sustainability in planning (criteria for planning a sustainable tourism destination). The key objectives and the corresponding criteria are tested as guidelines for an architectural competition launched in April Competition organisers (Laatumaa and Lapland Hotels Oy) have invited five multidisciplinary teams of professionals to investigate the features of a sustainable resort community, and to propose a master plan for a new development site in Ylläs. The results will be published later this year, and the proposed plans will be then analysed in terms of the objectives and criteria: how are the key objectives articulated in the proposals, how the different dimensions of sustainable community are emphasized, and how have the criteria been translated into planning solutions. This paper describes the process of developing a vision of a sustainable nordic resort community, and the key objectives to guide community development towards the vision. Particularly, this paper presents two examples of what kind of criteria for planning these objectives include, and how they begin to conceptualize. 2. A vision of a sustainable tourism destination in the north 2.1 Sustainability in tourism destinations Global concern on the sustainability of our development began already in 1960's with better understanding of the environmental changes and the effects of these changes on our living environment. According to the Brundtland Commision report Our Common Future [1] "sustainable development is development that meets the needs of the present without compromising the ability of future generations to meet their own needs". Today sustainability is typically understood with three dimensions: ecologic, economic and social sustainability. Despite of being recognised and discussed already for decades sustainable development remains a vague concept and difficult to apply in practice. The aims for sustainability and the tools to achieve these aims are a challenge for everyday life as well as for policies, decision making and land use planning, Tourism destinations are communities with distinctive features. Many of them are located in extraordinary natural environment. Nature and landscape are their main assets, and the community itself forms the economic base for resort towns [2]. Therefore many resort communities are struggling with simultaneous needs to protect natural environment, to meet the growing needs of tourism and to assure the social and economic well-being of the community [9]. With development and new construction tourism destinations reach for increased economic benefits and better competitiveness. But deprivating natural assets, growing numbers of visitors, and fast

3 construction all strain the natural as well as the social carrying capacities of these communities. Global challenges for tourism destinations include changes in global economy and the effects of climate change on the recreational opportunities, values and current tourism practices. Competition among the resorts and the negative environmental effects (erosion as well as pollution and other substances that build up in nature) put pressure on tourism industry: how do we change the current practices and how can we effect on the life styles and values of tourists. In addition to growing environmental awareness the demographical changes, global socio-political insecurity and the growing income gaps need to be considered when envisioning future tourism destinations. [2] 2.2 Nordic conditions The focus of this paper as well as in the MATKA research is in nordic tourism destinations: destinations and resort communities located in nordic or alpine environment with skiing and other winter activities as their main tourism product. For this research a selection of Scandinavian, Central European Alpine and North American ski resort communities have been studied; most important of these being Resort Community of Whistler in Canada. The case study site of MATKA research is in the Finnish Lapland. In many nordic destinations tourism is based on exclusive natural environment. Nordic and mountaineous nature is sensitive to erosion, and slow to restore. Strong winds, heavy rains and weather conditions that can change quickly require climate responsive planning and architectural solutions. Climate change reflects on many levels in nordic tourism destinations. It may mean changes for winter activities and the possibilities to perform different winter sports. Therefore, climate change may effect even on the tourism seasons in nordic destinations. If winters become more moderate in the future, year-round visitors and activities will become more important for ski resort communities. [3] 2.3 Vision-based planning Natural environment, as well as communities, are in a constant change. There are many reasons for change, and not all is due to our actions nor under our control. In resort communities the change is also driven by customer demand, growing numbers of visitors, increasing traffic and fast construction which all have direct and indirect effects on the environment. Environment in change requires approaches to planning as well as tools and methods that enable planners to imagine and visualise future conditions. Traditionally planning begins with documentation and analysis of a development process that has lead to the current situation. Evaluation of future direction is then based on this analysis, and planning responds to guidelines set by it. But a future community planned this way may not be the one we envision for us. [4, 5] Future vision means to be in control of the development to come [2]. A shared vision is a tool to "create the future we [the community] choose" [6]. Vision integration is being adopted for strategic development and planning in many municipalities through various methods and with different results. In this research Whistler case (Whistler vision 2020 and the process) has been studied as a reference for vision-based planning aiming for a sustainable resort community A shared vision Tourism destinations are communities with a variety of stakeholders and therefore with many different and sometimes conflicting interests. In addition to residents, tourism industry and municipality, the stakeholders include visitors, seasonal workers, second home owners and the services and business outside of tourism sector. What these stakeholders need and what they value in their living environment set a local frame for the criteria for a sustainable community. Combined with the global aims for a sustainable community they form a framework for the vision

4 for a sustainable tourism destination (Fig. 1). Therefore, criteria for a sustainable community combine the local and the global features of ecological (natural environment and resources, biodiversity, carrying capacity), structural (land use and built environment, infrastructure, traffic and mobility), socio-economic (social and economic wellfare, community and culture, participation) and strategic (planning and development, leadership and partnerships) aims. A shared vision responding to these demands of sustainability is a tool to identify objectives, and to develop criteria for planning sustainable tourism destinations. Chapter 3 discusses the processes towards the future visions in Whistler and in MATKA research case study community, Ylläs. 3. Towards a vision 3.1 Case Whistler Fig. 1 Criteria for a sustainable community is a combination of local values and global aims for a sustainable community. The criteria are necessary for envisioning a sustainable future for the community. (Merikoski, 2009) Whistler is an internationally wellknown and succesful ski and resort town in British Columbia, Canada with over annual visitors [7]. Whistler has grown in just three decades from a small village (600 residents in 1976) into an almost inhabitant (2006) resort community [7,8]. In Whistler ambitious goals of sustainability have been set. Whistler community developed a shared vision of future as a sustainable resort community to guide and frame all decision-making, planning and actions of development. In Whistler, fast growth in 1970's and 80's meant investments in land use, tourism services and infrastructure but it also created competing and some parts conflicting interests among local stakeholders. Fast development for tourism was supported by the decision makers and politicians but the community began to look for more sustainable course of development. The growth could not continue without evaluating the social well-being and assessing the capacity of the environment. In the 1990's the politics of growth began to shift towards the management of the growth. [8] Today, Whistler has defined their four ultimate sustainability objectives according to The Natural Step [14] principles. These objectives are to reduce and eventually eliminate the resort community's contribution to: ongoing build up of substances taken from the earth's crust (for example, by transitioning to renewable energy resources) ongoing degradation of natural systems by physical means (for example, by using sustainably harvested wood) ongoing build up of substances produced by society (for example, by eliminating chemical fertilizers) undermining the ability of people to meet their needs (for example, by ensuring affordable housing and access to education) [6] Whistler vision and the actions for moving toward the vision are based on wide community participation, commitment, public and private sector partnerships and aims to development as a

5 successful and sustainable tourism destination. Next chapter describes the key features of Whistler 2020 policy paper Whistler 2020 Moving Toward a Sustainable Future Whistler 2020 Moving Toward a Sustainable Future [6] is a shared vision of the future, and a process toward a sustainable community in Whistler. Developing this strategic plan began by recognising the global and local trends resort communities are facing, and by understanding their potential impacts. Whistler 2020 and its development process have been used as background material and reference for developing a vision for the case study site of MATKA research. Table 1 Local values identified for Whistler 2020 [6] A sustainable community A strong and healthy community A well-planned community Natural environment A strong tourism economy A safe community Community members Visitors, tourists Partners Sustainable social and ecological systems, healthy economy Needs of residents, community life and individual well-being, social interaction, recreation, culture, health services, life-long learning Managed and controlled growth and development Respecting and protecting the natural systems Healthy and diversified tourism economy, sustainability through thoughtful, longrange planning, strategic marketing and business partnerships Safety and comfort of diverse residents and guests People who live, work and play in the community Desire to provide exceptional service Positive, cooperative relationships that recognize the values Whistler 2020 framework consists of values, sustainability objectives, vision, priorities and implementation strategies and actions (see Fig. 1). Local values (Table 1) of the community together with general sustainability objetives create the foundation for the vision. Priorities, strategies and finally actions aim to turn the vision and its objectives into practice. Priorities set the key focus areas, and 16 strategies according to these areas guide actions toward the vision. There is a community task force for each strategy to define what sustainability and success means in terms of their point of view. Finally, actions are initiatives, programs and projects taking the community towards its vision. [6] The vision guides all decisionmaking, strategic planning and actions. For land use planning it means that all plans are reflected on the vision and its goals: how does it apply the aims of the shared vision. 3.2 Case Ylläs Ylläs is s nordic ski resort located in Kolari municipality in the western parts of Finnish Lapland (Fig. 2). Ylläs fell is part of the third largest national park in Finland, Pallas-Ylläs National Park. It is the most southern fell of the park (718 m.s.l.). Fells create a unique mountaineous landscape in Scandinavia, and Ylläs is appreciated for it's far-reaching scenery and extraordinary nordic nature. MATKA research is framed by a new development site in connection to the existing Äkäslompolo village and the Ylläs-Ski ski center on the northern slopes of Ylläs fell. This roughly 1000 ha site consists of a more dense new village center connected to the existing ski center and an altogether 334 ha holiday housing and accomodation area. For hotel, tourism businesses and services the master plan allows for sqm / bed units of new construction, and for holiday housing approx sqm / bed units. [10] The whole development can be seen as the "fourth center" of Ylläs - the existing three being Äkäslompolo village, Ylläsjärvi village and Sport Resort Ylläs. Master plan and the Ylläs II Strategic plan [10] indicate the aims for development and growth. Other guidelines are set by the topographical, ecological and micro-climatic conditions of the site.

6 Fig. 2 Ylläs (source:google maps) Table 2 Values of Ylläs identified by stakeholders LOCAL ENVIRONMENT: NATURE, LANDSCAPE, COMMUNITY Respecting and protecting the natural systems BUILT ENVIRONMENT A well-planned community Sustainable mobility, trails Architecture Sustainable energy solutions Managed and controlled growth and development Succesful operational environment for tourism Most visitors arrive to Lapland by air but Ylläs can be reached by train as well (Kolari station). In 2008 almost travelled by train to Lapland. [11] Rail connection can be seen as a future asset in terms of sustainable modes of transportation. A future rail connection from Kolari station to Ylläs has been part of Ylläs development plans as well as included in visions of all local stakeholders. Aim of MATKA research is to study how sustainability objectives are linked with land use planning and construction of this new development site in Ylläs. The research has been done by identifying the features of a sustainable nordic tourism destination, and creating a shared vision. From these, the key objectives and the criteria for planning have been developed. Whistler resort community and the Whistler 2020 process have been used as reference for this work Envisioning a sustainable future for Ylläs Developing a vision for Ylläs and more specifically for the new Äkäslompolo resort began in spring The first phase of the process aimed to identify the various stakeholders and to recognize their interests in relation to the new development. For this 11 key individuals were interviewed. The second phase COMMUNITY AND WELL-BEING Needs of residents, community life and wellbeing Partnerships and participation Identity and culture Methods of guidance (towards sustainability) Tourism as part of larger economic system Healthy and diversified tourism economy SUSTAINABLE COMMUNITY / QUALITY collected 3-5 stakeholder representatives together to discuss in groups on local values, sustainability objectives, and the future vision of the site. In all, five group discussions were organized the stakeholders being: municipality representatives, business and tourism industry representatives, residents, land use and infrastructure actors, and second home owners. Key question of these discussions were what is locally important on what features the future will be build on, and what kind of a resort village is envisioned. At the end of each session the group identified the biggest challenges and opportunities for the vision discussed. These discussions were held in October-November in 2009 in Ylläs. The results of the stakeholder discussions were analysed, and reflected to the Whistler case study material, and to other current research in the field. From this material local values were summarized (Table 2), and the dimensions of a vision (see Chapter 4.1) of a sustainable nordic resort were developed.

7 In January 2010 a stakeholder seminar was organized to further develop the material. The seminar gathered almost 30 local community members and other stakeholders. Two workshops during the day examined the different dimensions of the vision (see Chapter 4.1) in order to recognize the key objectives to frame the criteria for planning. 4. Planning sustainable nordic resort communities 4.1 Dimensions of sustainable resort communities Planning for sustainable community is a dynamic process which begins with a shared vision of a desired future. A vision of a sustainable tourism destination can be thought of as a combination of six dimensions identified in MATKA project: Land use planning: Built environment, planning methods Mobility and traffic: Accessibility, modes of transport, trail networks Ecological sustainability: Environment and landscape, energy and waste management Economic sustainability: Operational environment and service structure, growth and measures Social sustainability: Housing, well-being, partnerships, local culture Living environment and architecture: Quality and high standards, building code and information The dimensions are interconnected, and moving toward sustainable community in the long-term may mean tradeoffs in short-term. It means that taking a step forward in one area may mean lack of development on another area - or even negative impact in terms of sustainability. Whistler 2020 emphasize that these tradeoffs must be recognized, and they can be seen as stepping stones toward long-term sustainability. They "must be managed to ensure that critical aspects are not compromised". [6] 4.2 Key objectives The key objectives for sustainable nordic tourism destinations developed in MATKA research follow the frame of the six dimensions described above. The objectives are necessary for developing planning tools and guidelines, such as criteria for planning. Since the focus in this paper is on land use planning and physical environment, this chapter summarizes the key objectives for Land use planning, Mobility and traffic, and Ecologic sustainability. Many decisions made during early phases of land use planning have longrange impacts in terms of sustainability. Regional structure and built environment create the frame for future opportunities to adopt sustainable solutions. As we can clearly understand from the six dimensions above, planning sustainable tourism destinations requires a combination of different fields of expertise, such as land use and traffic planning; energy systems engineering; architectural design, landscape planning and ecology expertise; climate planning; tourism sector; and understanding in cultural and social environments. The key objectives for sustainable land use planning summarized in MATKA research are: A shared vision for sustainable future Balanced development: new development, existing conditions and carrying capacities Nordic conditions as the basis for planning LCA / Regional life cycle assessment Multidisciplinary expertise integrated in all planning Communicative planning and participative methods as a common practice Needs of mobility in tourism destinations are two-folded: accessibility of the destination and mobility within the community. Nordic resort communities are often rural and remote destinations. Fast and sustainable transport (such as rail connection) to the destination is a future asset

8 because of the significant environmental effects of air and car traffic. Sustainable mobility in a resort community has to respond to the needs of the residents and workers as well - in addition to visitors. Many alpine destinations are traditionally more compact than scandinavian destinations (such as Ylläs), and therefore offer a better platform for car free tourism and pedestrian environment (e.g. Zermatt, Switzerland). The key objectives for mobility and traffic summarized in MATKA research are: Sustainable access to resort Balanced transport and route planning: carrying capacity, future demand, flexibility Ensuring routes and trails for all users Physical and visual accessibility of nature Encouraging sustainable mobility and car free tourism Accessibility and pedestrian environment With planning we shape and determine the size, use and location of natural environment in relation to the built environment. Land use planning affects also how natural resources are employed and what kinds of activities are encouraged. Protecting natural environment and sustaining biodiversity is an essential part of planning nordic tourism destinations. Although planning and development need to respond to the growing needs of tourism, well-being of natural environment is the very foundation of a sustainable community. Pollution, waste and other substances spread and stored in water, ground and air have a direct effect on the attractivity of the destination [6]. Ecological sustainability also includes sustainable use of natural resources such as renewable energy sources. The key objectives for ecological sustainability summarized in MATKA research are: Protecting natural environment and biodiversity Planning from local conditions: ecology, climate, topography and landscape Energy and material efficiency in planning and construction Local and sustainable waste management Landscape-based planning Next chapters examine through two examples what kind of criteria for planning these objectives include, and more importantly, how they begin to conceptualize. 4.3 Objective: Protecting natural environment and biodiversity Protecting natural environment is a global concern but for nature-based resort communities it also means ensuring their own success as tourism destinations. Fig. 3 Ylläs case study site lies next the Pallas-Ylläs National Park which is well-protected by the law. In the Ylläs II Master plan unique natural features have been recognised, and several levels of protection give guidelines for planning. Nevertheless, only a few are obligatory, and e.g. wetlands are only partly appreciated by the master plan. Meanwhile, wetland and water body conservation is a required feature indicated in LEED 2009 for Neighborhood Development [12]. In

9 addition LEED credits are given for site design for and restoration of wetland and water body conservation as well as for longterm coservation management of wetlands and water bodies. Also, Siipola [13] emphasized existing water and wetland conditions as local resources for sustainable communities in her research. The case study site in Ylläs includes many valuable and sensitive natural features as well as at least 70 ha of wetlands. Although master plan indicates some restrictions and requirements for construction according to the level of protection, it does allow development on wetlands and protected areas (Fig. 3). In comparison, Fig. 4 shows how large of an area for development is available on site even if all wetlands and protected areas are left out. Planning means compromises and trade-offs, and it is case-related what kind of emphasis is put to the criteria for planning - and to the key objectives. Nevertheless, planning sustainable nordic tourism destinations begins with criteria that aim for protecting natural environment and biodiversity. 4.4 Objective: Accessibility Fig. 4 Fig. 5 Built environment and regional structure also define the needs for mobility, and determines how traffic can be arranged. It sets the frame for different modes of transport: what kind of mobility is possible, and how sustainable and soft modes of transport can be adopted. In all stakeholder interviews in Ylläs accessibility, traffic planning and modes of transport were identified as one the focus areas for future sustainability. The trail networks (crosscountry skiing, hiking, motor sleds, dog sleighs, etc.) are considered as one of the core attractions of Ylläs. But, how to ensure easy access to sustainable modes of transport and to different trailheads. In addition, the key objectives of accessibility include physical and visual access to nature, and pedestrian environment (allowing access to tourism services and encourages car free tourism). Fig. 5 shows the combination of the site development frame from Fig. 4, and the limits of 600m distance measured from the planned road. This combination allows same amount of development (sqm and bed units) with the same average density as the current master plan. At the same time public transport is never more than 600m away, and access to nature and trailheads is at walking distance.

10 5. Final discussion Decisions made during early phases of land use planning have longrange impacts in terms of sustainability. Regional structure and built environment effect on future opportunities to adopt sustainable solutions. Therefore, vision-based planning is a viable approache to planning for sustainable communities. In Whistler Canada traditional means of land use planning were seen inadequate to respond to global and local challenges proactively. The Resort Municipality of Whistler developed Whistler 2020 vision and a policy paper in order to guide their development towards a sustainable community and to respond to the social, economic and environmental challenges in a holistic and integrative way. [6] Future vision, sustainability objectives and criteria for planning are means to connect sustainable development with land use planning. MATKA research has produced a set of criteria derived from the vision and the key objectives identified for a sustainable nordic resort community in Ylläs. The key objectives and the corresponding criteria are tested as guidelines for an architectural competition launched in April Competition organisers (Laatumaa and Lapland Hotels Oy) have invited five multidisciplinary teams of professionals to investigate the features of a sustainable resort community, and to propose a master plan for a new development site in Ylläs. The results will be published later this year, and the proposed plans will be then analysed in terms of the objectives and criteria: how are the key objectives articulated in the proposals; how the different dimensions of sustainable community are emphasized; and how have the criteria been translated into planning solutions. 5.1 References [1] UN World Commision on Environment and Development, Our Common Future, Published as Annex to General Assembly document A/42/427, Development and International Cooperation: Environment, [2] RMOW, "Characteristics of Successful Destination Resort Communities, Background report", [3] LUTHE T, "SkiSustain - Vulnerability to global change and sustainable adaptation of ski tourism", Institute of outdoor sports and environmental science, German Sports University Cologne, [4] STAFFANS A, KYTTÄ M, MERIKOSKI T, (eds.) "Sustainable urban structure", A background report for Tekes Sustainable Communities program, Helsinki University of Technology, Department of Architecture and the Centre for Urban and Regional Studies (YTK), Helsinki, [5] MERIKOSKI T, "Visio kestävästä matkailualueesta suunnittelutyökaluna", unpublished paper for Arkkitehtuurintutkimuspäivät [6] RMOW, "Whistler 2020 Moving Toward a Sustainable Future", [7] RMOW, Resort Municipality of Whistler, Site last visited [8] GILL, A, "From growth machine to growth management: the dynamics of resort development in Whistler, British Columbia", Environment and Planning A, volume 32(6) pages , [9] SHAWN G, WILLIAMS A, "Tourism and Tourism Spaces", Sage Publications, Inc., [10] Ylläs II Kehittämissuunnitelma / Ylläs II Strategic plan, [11] Lapin liitto, "Tourism facts in Lapland Statistical review 2008" [12] USGBC, "LEED 2009 for Neighborhood Development Project Checklist", Available online: [13] SIIPOLA P, "Kestävän kehityksen mukainen pientaloryhmä - kolmen suomalaisen ekokylähankkeen toteutus." Julkaisu A29. Oulu University, Department of Architecture, 2000 [14] The Natural Step, Site last visited