Download - PCIA WGIPP 2011_Peace & Conflict Impact Assessment for Waterton Glacier International Peace Park

Megan GreeleyProgram Specialist

Todd WaltersExecutive Director

[email protected]@peaceparkexpeditions.org

Cory WilsonBrand Director

[email protected]

peaceparkexpeditions.org

Waterton-Glacier International Peace Park: Peace & Conflict Impact Assessment

Expedition

October 2010

PCIA Publication

October 2011

Documentary Release

January 2011

Edition 1 — 2011.10

http://peaceparkexpeditions.org

Contents

Executive Summary

Introduction

Context

Approach

Findings

Core Conflict Drivers

Mitigating Factors

Additional Opportunities

Challenges

Conclusion

Bibliography

Annex

Stakeholder Profile

Conflict Profile

Peace Profile

Documentary Profile

Resources

EIA Worksheet

PCIA Worksheet

Acknowledgements

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5Waterton-Glacier International Peace Park: Peace and Conflict Impact Assessment

Edition 1 | October 2011

Executive Summary1

In October 2010, International Peace Park Expeditions (IPPE)

conducted an Exploratory Expedition in Waterton-Glacier

International Peace Park (WGIPP), with funding from the

University of Vermont’s Institute for Environmental Diplomacy

& Security (IEDS). The purpose of the WGIPP Exploratory

Expedition was to examine the relationship between the

Blackfeet Confederacy and WGIPP in preparation for IPPE’s

experiential peacebuilding expedition with youth living in

communities surrounding WGIPP. The secondary purpose

was to create a documentary delineating the attitudes and

perspectives surrounding transboundary issues occurring

within WGIPP and the surrounding communities.

IPPE incorporated a Peace and Conflict Impact Assessment

(PCIA) into the WGIPP Exploratory Expedition to help evaluate

the potential peace-enhancing or peace-reducing value01 of an

Experiential Peacebuilding Expedition in WGIPP. Through the

process of uncovering conflict drivers (actions perpetuating

conflicts) and mitigating factors (actors mobilizing resiliencies)

that exist in and around WGIPP, IPPE designs programs that

help strengthen ongoing peacebuilding efforts and explore

new mitigating factors with stakeholders in and around

WGIPP. Moreover, organizations implementing programs and

researchers conducting studies in and around WGIPP, can use

the PCIA resources developed by IPPE to better understand

how programs impact or are impacted by the conflicts and

the environment in and around WGIPP.

01 Hammill, A. and Charles Besançon. 2007. “Measuring Peace Park Performance: Definitions and Experiences,” in

Saleem H. Ali, ed., Peace Parks: Conservation and Conflict Resolution, Cambridge: The MIT Press: 31.

J. Todd WaltersExecutive Director

International Peace Park Expeditions

Executive Summary1



Introduction2

For the purposes of this report, peace parks can be de-fined

as “transboundary protected areas that are formally dedicated

to the protection and maintenance of biological diversity,

the preservation of natural and cultural resources, and to the

protection of peace and cooperation.”02

WGIPP became the world’s first peace park in 1932 after Rotarian

members successfully lobbied the US and Canadian governments

to link Waterton Lakes National Park in Alberta, Canada with

Glacier National Park in Montana, USA. Located in the center

of the Crown of the Continent ecosystem, WGIPP is one of the

most unique ecosystems in North America. In 1995, UNESCO

designated WGIPP as a World Heritage site03 for having “more

than 1,200 species of vascular plants, 70 species of mammals,

including all of North America’s native carnivores, 270 species of

birds and 25 species of fish among an aquatic life richer than any

place in the Rockies between the Yukon and Mexico.”04 However,

the effects of global climate change – species extirpation, species

extinction, habitat fragmentation, lost business revenue and

livelihoods – are threatening to destroy this vital ecosystem, as

well as the cultural identity of the original human inhabitants of

the area.

In addition to the environmental conflict, this Park is also the

central focus of a one hundred year structural conflict over land

dispossession between the U.S./Canadian governments and the

four tribes of the Blackfeet Confederacy - the Piikani, Siksiska

and Blood/Kainai Nations in Alberta and the Blackfeet Nation in

Montana.05

02 Ali, Saleem H. 2007. “Introduction: A Natural Connection between Ecology and

Peace?” in Saleem H. Ali, ed., Peace Parks: Conservation and Conflict Resolution, Cam-

bridge: The MIT Press: 2.

03 United Nations Educational, Scientific, and Cultural Organization (UNESCO). 2005.

World Heritage. http://www. whc.unesco.org/.

04 P. R. Dingwall, K. Rao. 2009. “Waterton-Glacier International Peace Park: Report of

the Reactive Monitoring Mission,” UNESCO World Heritage Centre/International Union for

Conservation of Nature

05 National Geographic Society. 2008. Long the great warriors of the eastern slopes, the

Blackfoot Confederacy includes the Piikani, Siksiska and Blood/Kainai Nations in Alberta

and the Blackfeet Nation in Montana. On the west side are the mountain bands of the

Historically, the establishment of national parks in both countries

took away land rights and implemented harsh policies toward

original inhabitants.06 The land dispossession, enforcement of

the artificial U.S./Canadian border, and subsequent assimilation

techniques imposed by the U.S. and Canadian Governments

segmented the cultural identity of the Blackfeet Confederacy

while generating animosity between the Blackfeet Confederacy

and the U.S./Canadian Governments that would be passed down

through generations.

Although both the environmental and structural conflicts in and

around WGIPP are not overtly violent, the former exacerbates

the latter causing the latent cultural degradation of the Blackfeet

people’s identity, which is equally damaging. In the words

of a Blackfeet Chief, recounted by Lea Whitford, Blackfeet

Department Chair at the Blackfeet Community College, “To take

this land from me is like chopping off my head.”07

Ktunaxa Nation in British Columbia and the Ksanka/Kootenai in Montana. Farther south, the

Interior Salish people, including the Bitterroot Salish and Pend d’Oreille, are closely related

to other Salish-speaking nations in British Columbia, Washington, and Idaho. http://visitmt.

com/Images/cofc/CoCHistLowResFinal.pdf

06 Spence, M.D. 2000. Dispossessing the Wilderness: Indian Removal and the Making of

the National Parks. New York: Oxford University Press.

07 Lea Whitford Interview, October 13, 2010

Thirty thirty swath border cut at 49th Parallel U.S./Canadian border. Flags and Blackfeet art installation at U.S./Canadian Border

ContextA



Introduction2

OverviewOver the course of eight days in Montana and Alberta, in WGIPP and

the surrounding buffer communities, IPPE conducted thirteen interviews

with a variety of stakeholders exploring their relationship to WGIPP

and transboundary issues. IPPE staff volunteered their time and energy

before, during and after the Exploratory Expedition to complete the

research, writing and production of the complementary educational

tools: this PCIA report and the accompanying documentary video. The

budget covered only travel expenses. As such, we recognize its limitations

as a snapshot in time, and that we view this as a living document to

be continually updated over time to include additional stakeholder

perspectives, and evolving social, cultural, economic and political context.

The complementary PCIA report and documentary video allow our work

to reach a broad audience with multiple learning styles, harness the power

of social media, provide educational tools for the classrooms, provide

professional tools for the implementation and evaluation of projects within

WGIPP and the surrounding buffer communities. We look forward to the

opportunity to update this edition in the future with the help a growing

stakeholder community.

ApproachB

Transcending Boundaries: Perspectives from Waterton-Glacier International Peace Park

Montana, United States / Alberta, Canada

Documentary / 13:00

http://vimeo.com/ippe/transcendingboundaries-wgipp

Peace and Conflict Impact Assessment: Waterton-Glacier International Peace Park

Montana, United States / Alberta, Canada

13 Interviews / 8 Days

http://peaceparkexpeditions.org/public/ippe_pcia_wgipp_11ed01.pdf

�



Introduction2

Conflict Levels

Environment

Social

Political

Economic

Cultural Identity

Security

Blackfeet Confederacy

U.S. National Parks Service

Parks Canada

United States Federal Government

Canadian Federal Government

Blackfeet Community College

Crown of the Continent Research Inst.

Rotary International & Local Clubs

Conflict Drivers

Mitigating Factors

Time

Context Stakeholders Influencers

The WGIPP PCIA focuses on mapping the conflicts that exist in

and around WGIPP, while also identifying useful future program

opportunities that can help mitigate conflict drivers and negative

environmental impacts in and around the Park. IPPE developed

conflict, peace, and stakeholder profile tools to identify the

conflict drivers, mitigating factors, and the actors involved.

Conflict Drivers can be defined as actors or phenomena that are

actively perpetuating the conflict through perceived injustices or

unintended consequences.

Mitigating Factors can be defined as actors or phenomena that

mobilize resiliencies found in communities or institutions.

Conflicts of any kind become more manageable and less likely to

spark into violence if the mitigating factors outweigh the conflict

drivers. Peacebuilding programs, as well as other programs in

and around WGIPP, should be designed with an understanding of

the conflict drivers and mitigating factors that exist, in order to

strengthen current activities and encourage new opportunities

which mobilize resiliencies within communities and institutions. A

key part of that understanding is who are the stakeholders, where

are they active, and how are they related to each of the mitigating

factors and conflict drivers. To foster clarity, IPPE developed

an Environmental Impact Worksheet, as well as a Peace and

Conflict Impact Worksheet to help evaluate existing programs in

a new light, and design future programs that take into account

the impact of their activities on the environment and the conflict

context.

Conducting a PCIA is essential to designing a successful and

sustainable program, as it provides important information

concerning the social, cultural, political, and economic needs of

relevant stakeholders.08 After conducting desktop reviews of

previous WGIPP assessments, it became apparent that previous

WGIPP assessments focused uniformly on the environmental

aspect of the Park09 and buffer zone communities. This PCIA

provides a much greater context than previous on-the-

ground studies. It utilizes the Interagency Conflict Assessment

Framework10 and the Conflict Prevention and Post-Conflict

Reconstruction (CPR) Network’s Framework11, in order to create

an impact profile of the conflict by identifying who and what

is perpetuating the conflict (conflict drivers) and where the

communities’ and institutions’ resiliencies reside (mitigating

factors). (See Annex A: Stakeholder Profile, Annex B: Conflict Profile, and Annex C: Peace Profile)

08 Bush, Kenneth. 1998. “A Measure of Peace: Peace and Conflict Impact Assessment

(PCIA) of development projects in conflict zones. Working Paper 1. The Peacebuilding and

Reconstruction Programme Initiative and the Evaluation Unit, IDRC.

09 P. R. Dingwall, K. Rao. 2009. “Waterton-Glacier International Peace Park: Report of

the Reactive Monitoring Mission,” UNESCO World Heritage Centre/International Union for

Conservation of Nature

10 U.S. State Department, Office of the Coordinator for Stabilization and Reconstruc-

tion. 2010. Interagency Conflict Assessment Framework. http://www.state.gov/s/crs/

what/144930.htm

11 Peacebuilding Centre, Saferworld. 2009. PEACE and CONFLICT IMPACT ASSESS-

MENT (PCIA) HANDBOOK Version 3.2. http://peacebuildingcentre.com/pbc_documents/

PCIA_HandbookENv3.2-Nov2009.pdf

Adapted from Maire Dugan’s nested model in “A Nested Theory of Conflict.” Women in Leadership 1(1) (Summer 1996) 9-20.

Conflict Analysis: Nested Variables

ApproachB



Introduction2

The methodology used to gather information for this PCIA

includes:

• Desktop research of background materials provided by

the U.S. National Parks Service, Parks Canada, Blackfeet

Tribal Council, Montana State Legislature, and the

Blackfeet Community College.

• Email correspondence with key stakeholders who work

in and around WGIPP (Annex C: List of Stakeholders).

• Semi-structured in-person interviews with stakeholders

in and around WGIPP. Stakeholders answered open-

ended interview questions about their individual and/

or organization’s relationship to WGIPP. Interview

sessions were recorded with permission from subjects,

and were edited into a documentary format (Annex D: Transcending Boundaries).

Future IPPE programming will incorporate surveys to

further analyze the changes in conflict dynamics, as well as

IPPE programs’ impact on the conflict and generation of

new peacebuilding opportunities. Future assessments will

be conducted during program implementation and post-

programming in order to re-evaluate program design, and provide

an opportunity for necessary course corrections.

In addition to IPPE’s internal use of the PCIA tools and baseline

information, other future program implementers, including any

organization or researcher who conducts a program/study in

and around WGIPP, can use this PCIA to understand how their

program/study impacts, or is impacted by, the conflicts in and

around WGIPP. Specifically, Annex E: Environmental Impact Worksheet and Annex F: Peace & Conflict Impact Worksheet give any program implementer from any field (peacebuilding,

conservation, eco-tourism, etc.) a framework to analyze their

program’s impact in the conflict context so that they can adjust

their activities to mitigate negative impacts, and further foster

positive impacts.

Using a short documentary video as an innovative PCIA analytical

and dissemination tool allowed the WGIPP Exploratory Expedition

team to distill interviews and secondary location footage to

augment and disseminate the PCIA findings to a wider audience

including policy makers, stakeholders, academia, and the

general public; as well as individuals involved in transboundary

collaboration efforts in different geographic regions throughout

the world. Using the PCIA framework as the foundation for

constructing a compelling, and as objective as possible narrative,

allows IPPE and its partners the unique ability to raise awareness

about the multitude of factors associated with conflict in and

around transboundary areas, as well as generating greater public

support for continued conflict resolution initiatives, both in the

WGIPP area, and other transboundary areas.

ApproachB

From top left to bottom right: John Davis, Bill Hayden, Dan Davis, Keith Tatsi, Len Broberg, Lea Whitford



Findings3

Environmental DegradationGlobal climate change has increasingly threatened WGIPP’s

ecosystem. In 2002, a National Parks Conservation Association

assessment indicated global climate change has and will continue

to cause increasingly negative environmental and ecological

impact on WGIPP.12 The deleterious effects of global climate

change can be seen in the dwindling number of glaciers in the

Glacier National Park side of the WGIPP. In the 1880s, scientists

reported there were 150 glaciers, whereas today (October 2010)

only 25 remain. If global climate change continues unabated,

scientists estimate that there will be no glaciers by 2030 and

predict that the effects will reach far beyond the borders of

the WGIPP, including impacting the livelihoods of landowners

and communities around the Parks. Scientists also predict “a

slightly higher average annual temperature will cause greater

fragmentation and homogenization of alpine vegetation,

expansion of cedar-hemlock forests at lower elevations, and

accumulation of forest fuels that could cause more large,

catastrophic fires. All of these changes could force plants and

animals to seek suitable habitat elsewhere, causing significant

alterations in species composition.”13

These secondary and tertiary effects of global climate change

are the practical threats to the environmental, economic and

social welfare of communities surrounding WGIPP. Moreover,

environmental degradation in WGIPP could come in other forms,

including: highway expansion effects; open-pit coal mining;

extraction of oil (including shale oil), gas, and timber; poorly

planned residential and commercial development; illegal wildlife

hunting and the proliferation of invasive species.14

12 National Parks Conservation Association. 2002. State of the Parks: A Resource Assess-

ment – Waterton-Glacier International Peace Park. http://www.npca.org/stateoftheparks/

glacier/glacier.pdf

13 Ibid.

14 Ibid.

Cultural Erosion of the Blackfeet Confederacy Identity The environmental threat posed by species extirpation, extinction,

and habitat fragmentation is not only harmful to the ecosystem,

but also to the cultural identity of the Blackfeet Confederacy.

For the purposes of this report, the PCIA looked at the potential

effects on the cultural identity of the Blackfeet Tribe located in

Browning, Montana.15

The Blackfeet Tribe believes that they are the caretakers of

the land given to them by ‘the creator’. Their origin stories are

often based on landmarks located within and around WGIPP.

These landmarks can be defined as traditional cultural property

“associat[ed] with cultural practices or beliefs of a living

community that (a) are rooted in that community’s history, and

(b) are important in maintaining the continuing cultural identity

of the community.”16 Unlike national identity formation that

is built upon an idea of a common political community17, the

Blackfeet Confederacy’s cultural identity is rooted in landmarks

and in the ecosystem – mountains, plants, animals, and minerals.

These are the basis for sacred ceremonial bundles that transmit

origin stories and power.18 If landmarks change or plants/animals

become extinct or scarce due to deleterious effects of global

climate change, their origin stories will necessarily change which

threatens to erode their cultural identity.

15 National Geographic Society. 2008. http://visitmt.com/Images/cofc/CoCHistLowRes-

Final.pdf

16 U.S. Department of Interior, National Park Service 1998. “Guidelines for Evaluating and

Documenting Traditional Cultural Properties,” National Register Bulletin No. 38. http://www.

nps.gov/history/nr/publications/bulletins/nrb38/nrb38.pdf.

17 Anderson, Benedict. Imagined Communities: Reflections on the Origin and Spread of

Nationalism. Revised Edition ed. London and New York: Verso, 1991, pp. 5-7



glacier/glacier.pdf

A Landslide at the foot of Chief Mountain, Blackfeet Reservation, Montana, U.S. Blackfeet sacred ceremonial land with offerings, in the shadow of Chief Mountain.

Core Conflict DriversA



Findings3

Another threat to the erosion of Blackfeet cultural identity is

the heightened security measures at the U.S./Canada border

which restrict free movement, particularly between the Blackfeet

Nation (U.S.) and Kainai Nation (Canada), of (1) sacred ceremonial

bundles and (2) the tribal members who have been ordained to

transport, open, and process the bundles. “The Blackfeet cultural

identity has been disrupted by the political border at the 49th

Parallel creating an artificial separation between the tribes in

the US and in Canada.”19 The events of September 11, 2001 led

to an increase in the amount and level of security at the 3 U.S./

Canada border crossings in and around WGIPP20. As a result, the

border crossings have become more difficult for Blackfeet Tribal

members to carry their sacred ceremonial bundles across the

border to perform rituals.21 Often times, Blackfeet members are

either turned away because of restrictions regarding perishable

items (plants/animal parts) or the bundles are desecrated due

to security officials opening of the bundles without observing

the proper religious process necessary to opening the bundle

appropriately. As a Blackfoot Tribal member stated, “bundle

transfers have been happening for millennia...agencies need to

understand the meaning of the bundles. It’s not just a suit-case.

They must follow process/protocol.”22 If the origin stories are not

19 Len Broberg, University of Montana Professor, Interview, October 15, 2010.

20 Randy Tanner, Wayne Freimund, Brace Hayden and Bill Dolan, 2007. “The Waterton–

Glacier International Peace Park Conservation amid Border Security,” in Saleem H. Ali, ed.,

Peace Parks: Conservation and Conflict Resolution, Cambridge: The MIT Press: 31

21 Lea Whitford, BCC Blackfeet Department Chair, Interview, October 13, 2010.

22 Ibid.

transmitted both physically and verbally from one generation to

the next, these cultural traditions will be lost.

Legacy of Land DispossessionThe legacy of American and Canadian dispossession of land

from the Blackfeet Confederacy Tribes is omnipresent. During

interviews with Blackfeet Tribal members, they commonly refer to

the land being ‘stolen’ by the US Government. Successive treaties

in the late 1880s between the U.S. Government and the Blackfeet

Nation considerably reduced the Blackfeet Nation’s land size and

rights until a final treaty in 1910 set the current boundaries and

land rights for the Blackfeet Nation that still exist today. The 1910

treaty negotiation can be viewed as the Blackfeet Nation’s chosen

trauma.23 The Blackfeet Nation thought they were signing a 99-

year lease, whereas the U.S. Government considered the treaty a

land sale.24 According to the treaty’s terms, the Blackfeet Nation

maintained the right to gather timber, hunt and fish on the land.25

Although the Congressional Act26 that created Glacier National

Park stated that all rights prior to the establishment of the Park

would be honored, the National Parks Service who managed the

Park did not historically honor those rights.

Water rights, among other natural resource rights (i.e. oil and

gas), have also been a contentious issue between the Blackfeet

Nation and the U.S. Government due to the legacy of land

dispossession. The Blackfeet Nation, the state of Montana and the

U.S. Federal Government have been negotiating water rights for

the last 20 years. The issue involves the Blackfeet Nation wanting

to receive more water rights to millions of acre-feet of water

and $591 million in federal funding (from 2011-2015) to develop

it under a water rights bill currently in Congress.27 Historically,

water which flows down from the glacial mountains through the

Blackfeet Reservation has been developed and used mostly by

the communities and companies located downstream.

23 Volkan, V., 1997. Blood Lines: From Ethnic Pride to Ethnic Terrorism, Colorado: West-

view Press.

24 Lea Whitford Interview, October 13, 2010.

25 Kappler, Charles J. 1904a. Agreement with the Indians of the Blackfeet Indian Res-

ervation Montana (1896). Indian Affairs: Laws and Treaties. (Vol. I; Sec 9). Compiled by the

Clerk to the Senate Committee on Indian Affairs. Government Printing Office. Washington,

D.C.

26 16 U.S.C. § 161 (2000)

27 S.3290 : Blackfeet Water Rights Settlement Act of 2010

Waste challenges on Blackfeet Reservation, Browning, MT, U.S.

Core Conflict DriversA



Findings3

Environmental Transboundary CollaborationThe effects of global climate change has continued to create

enormous challenges for Park Management. Luckily, both Park

Management staff in Waterton Lakes and Glacier National Park

have continually increased their cross-border collaboration over

the last 75 years to help manage the difficult challenges presented

by species extirpation, species extinction, invasive species and

habitat fragmentation. The park management staff in both the US

and Canada recognize that WGIPP is part of a single ecosystem

where the vegetation, fisheries, and wildlife roam free and do not

stop at the border. In order to understand the ecosystem, park

management staff and scientists study both sides of WGIPP and

the impact on and from the surrounding communities.28 In 2005,

the Crown of the Continent Research Learning Center (CCRLC) in

Glacier National Park initiated the Citizen Science Program where

volunteers assist in monitoring wildlife and vegetation to track

the distribution of species over periods of several years. Waterton

Lakes has begun to follow Glacier’s lead to assess the distribution

of species in their half of WGIPP.29

In addition to the Citizen Science Program, the CCRLC started

WGIPP Science and History Days, where researchers present their

work in the park to the public. This event is held every other year

in either Glacier or Waterton, and allows both Park Management

staff as well as researchers from each country to learn about

the other park’s activities and studies. Another example of

Transboundary collaboration in WGIPP was the creation of the

seamless vegetation map that documents all the plant and forest

areas within WGIPP. This has been invaluable for wildlife biologists

and other scientists who utilize the vegetation map to track

different forest types and their locations in order to create links to

wildlife species and their movement,30 as well as habitat migration

due to global climate change. Also, in conjunction with a Canadian

Anthropologist, the National Park Service published a 2002

baseline ethnographic study entitled, Ethnographic Overview

and Assessment for Glacier National Park, that uses information

gathered from Blackfeet Elders who live on the Blackfeet

Reservation in Montana and the Kootenai tribe in Alberta. The

National Park Service also identified areas of historical and

cultural importance within both Glacier and Waterton Lakes

National Parks.31

Civil Society Peacebuilding Activities For the past 78 years, the Rotary Clubs in Alberta and Montana

continue to meet at the U.S./Canadian border in WGIPP and

shake hands to symbolize the enduring friendship between

these two countries. The September 2010 hand shake ceremony

also celebrated the 100th Anniversary of the creation of Glacier

National Park. Participants included U.S. and Canadian students,

Rotary International Exchange students, and Rotary Club

members. Leading up to the September 2010 hand-shaking event,

current Glacier National Park Superintendent Chas Cartwright

said, “While not open to the public at large, these annual festivities

provide a significant symbol of enduring friendship between

citizens of the United States and Canada and a manifestation of

28 Tara Carolyn Interview, October 14, 2010

29 Ibid.

30 Ibid.



glacier/glacier.pdf

the fruitful longstanding fellowship of Rotary Clubs in Montana

and Alberta. The Waterton-Glacier International Peace Park

serves as a venerable, successful model of cooperation across

international boundaries worthy of emulation around the world.”32

Political Institutional & Law Enforcement PeacebuildingThere has been a long-standing Montana State-Tribal Relations

Committee in the Montana State Legislature which acts as a

liaison with the Blackfeet Nation and encourages state/tribal and

local government/tribal cooperation.33 This Committee meets on

a quarterly basis to discuss activities or existing laws, propose

new laws, or make other recommendations to the legislature.

Rep. Frosty Calf Boss Ribs (D-MT 15th District), the first Blackfeet

Indian woman to sit in the Montana Legislature, serves on this

committee.

In 2010, The Blackfeet Community College (BCC) and the

Montana Sheriffs and Peace Officers Association (MSPOA)

began cultural sensitivity trainings for law enforcement officials

at the local level with plans to expand the trainings to include

state, federal, and border control authorities.34 BCC Blackfeet

Department Chair, Lea Whitford, taught the cultural training in

collaboration with MSPOA Executive Director, Jim Smith, who

lectured on the Tribal Law and Order Act of 200935 that clarifies

the responsibilities of federal, state, tribal, and local governments

with respect to crimes, communication, and empowerment of

public safety officials in tribal communities.

According to the law, tribal police cannot arrest non-Native

Americans outside the reservation. There is a significant lack

of law enforcement on the Blackfeet Reservation due to lack of

empowered and trained officers. At certain times, there are only

two law enforcement officers patrolling about 1.5 million acres of

the reservation.36 Future cultural sensitivity trainings are planned

for prosecutors, judges, and other law enforcement staff, in

addition to the police officers.

Academic PeacebuildingEach Summer, the BCC Natural Resource Department hosts a

six week program with the United States Forest Service bringing

together elementary and secondary school students from three

Blackfeet communities in Montana, South Dakota, and Wyoming,

in order to teach them about indigenous science from the Native

American perspective. During the culminating field trip to Chief

Mountain at the border of WGIPP and the Blackfeet Reservation,

Blackfeet Confederacy Elders from the Canada come down to

speak to the students and give them another perspective about

the medicinal value of vegetation in and around WGIPP. The

cultural program teaches the Blackfeet students about their

cultural identity and connects them to their relatives in Canada

who they normally do not have many opportunities to interact

with due to the heightened border security.

32 National Park Service. 2010. “Commemorating Waterton-Glacier International Peace

Park” http://www.nps.gov/glac/parknews/news10-81.htm

33 Montana State-Tribal Relations Committee 2009-2010. http://leg.mt.gov/css/Commit-

tees/interim/2009_2010/State_Tribal_Relations/default.asp

34 Lea Whitford Interview, October 14, 2010 and Montana Sheriffs and Peace Officers

Association Executive Director Jim Smith Conversation, September 2010

35 Montana State-Tribal Relations Committee 2009-2010. http://leg.mt.gov/css/Commit-

tees/interim/2009_2010/State_Tribal_Relations/default.asp

36 Ibid

Mitigating FactorsB



Findings3

Cross-Cultural Transboundary Dialogues During the course of WGIPP Exploratory Expedition, multiple

stakeholders including the WGIPP Park Management from

Glacier National Park and Waterton Lakes as well as the

Blackfeet Community College suggested that there need to

be more dialogues between the Elders who represent the

Blackfeet Confederacy and the staff of both Parks. According to

discussions with Blackfeet Community College staff, there is a

wide disconnect between the Elders and the Park Management

in terms of their perception of the other. To help both groups

better understand each other, more facilitated dialogues could

occur in the WGIPP by utilizing the experiential peacebuilding37

potential of this unique ecosystem area that both groups prioritize

protecting for different reasons.

Environmental Transboundary Peacebuilding with Blackfeet Confederacy InvolvementIn meeting with representatives of CCRLC in Glacier National Park

and the Environmental Departments of the Blackfeet Community

College, there were mirrored discussions regarding wanting to

have more Blackfeet Confederacy involvement in the research

studies and the Citizens Science Program to monitor wildlife and

vegetation and to assess the number of species over the years.38

Activities or programs that enable researchers and students from

the U.S., Canada, and the Blackfeet Confederacy to conduct

research together would help all sides to understand different

monitoring and assessment methodologies as well as migration

patterns and species from a ecosystem perspective; all while

building cross group relationships.

Moreover, further efforts need to be taken to ensure the Park

Management in both Glacier National Park and Waterton Lakes

include more Blackfeet Confederacy staff members in technical

areas of park management. Representatives from Glacier National

Park highlighted that Blackfeet Native Americans worked in the

37 Walters, J. Todd. “Experiential Peacebuilding,” Oxford Encyclopedia of International

Peace. 2009.

38 Lea Whitford Interview, October 14, 2010 and Montana Sheriffs and Peace Officers

Association Executive Director Jim Smith Conversation, September 2010.

National Parks system as guides and waste management staff.39

Having National Park internships with Blackfeet Community

College students could help build the capacity of Blackfeet youth

so they are technically able to perform roles and responsibilities

that require greater technical understanding (i.e. Park

Management, etc.).

Youth Peacebuilding Youth living around WGIPP are influential stakeholders who could

be prioritized for their conflict mitigation potential. The BCC

Native Science Field Center and Rotary Clubs have already shown

the conflict mitigation capabilities of youth. Future activities could

also include the Boys & Girls Club and AmeriCorps, who both have

chapters in the Blackfeet Reservation. Programs that highlight

environmental conservation, civic responsibility, and positive

cross-cultural understanding between the Blackfeet Confederacy

and the U.S./Canadian youth living around WGIPP would help

build the relationships between these groups who will be the

stewards of WGIPP in the decades to come. These programs

can further conflict mitigation activities through discussions

on diversity and cross-cultural learning and interpersonal

conflict resolution skill training. Youth will attempt to overcome

stereotypes and assumptions about their neighboring societies

and develop Environmental Steward Action Plans that they can

implement in their home communities.

39 Tara Carolyn Interview, October 14, 2010

ConflictLevels

- Environmental Transboundary Collaboration- Civil Society Peacebuilding- Political, Institutional and

Law Enforcement Peacebuilding- Academic Peacebuilding

Mitigating Factors Recommended Mitigating Factors

- Cross-Cultural Transboundary Dialogues- Environmental Transboundary Peacebuliding

w/ Blackfeet Confederacy Involvement- Youth Peacebuilding

Current Conflict Drivers

- Environmental Degradation- Cultural Erosion of

Blackfeet Confederacy Identity- Legacy of Land Dispossession

Current Conflict Analysis

Additional Opportunities for Mitigating FactorsC



Challenges4 Conclusion5

The WGIPP Exploratory Expedition team

encountered a few challenges in undertaking

this PCIA. Due to funding constraints and the

limited time available (eight days) on the ground

to conduct interviews, the team was not able to

interview all stakeholders included in Annex C.

Future assessments will allow IPPE staff to meet

with additional pertinent stakeholders during

assessments of program activities, both during

and after program completion. The limited

timeframe specifically did not allow the team

to meet and interview representatives from the

Canadian side of WGIPP. Therefore, the majority

of the PCIA uses information from the U.S. and

Blackfeet Native American perspective. First

Nation representatives and Waterton Lakes

community representatives were unfortunately

not able to be included in this PCIA, although

the team was able to travel into Waterton Lakes

National Park, and visit the 49th parallel to see

the ten meter wide border swath which is cut

every ten years from the Great Lakes to the

Pacific Ocean. Future assessments will include

perspectives from these important stakeholders

with adequate time to meet and interview them.

The conflict dynamics highlighted above will shape the

world’s first International Peace Park over the coming

decades. With the effects of global climate change

continuing at an accelerated rate, all stakeholders will

need to prioritize mitigating environmental impacts for

any upcoming programs while trying to create more

opportunities for collaborative management and cultural

understanding so all stakeholders can enjoy one of the

world’s most vital ecosystems.

IPPE hopes that the snapshot provided by this PCIA and

the accompanying documentary video will disseminate

this knowledge amongst stakeholders and community

members that live around WGIPP, and serve as an

example for people involved in transboundary issues in

other geographic regions around the world. The PCIA

can be utilized by policy makers, project directors,

academia and others. The documentary video provides

a visual tool for understanding and sharing this story,

raising awareness, and encouraging individuals to read

the PCIA and to utilize the tools included in the Annexes

to enhance mitigating factors and to understand and

avoid exacerbating conflict drivers as they grapple

with the complex relationship among people, cultures,

borders, sovereignty and the ecosystem upon which

they all depend. The ability to do this effectively will

determine the resiliency of this crucial region including

the world’s first International Peace Park.



Ali, Saleem H. 2007. “Introduction: A Natural Connection between Ecology

and Peace?” in Saleem H. Ali, ed., Peace Parks: Conservation and Conflict

Resolution, Cambridge: The MIT Press: 2.

Anderson, Benedict. Imagined Communities: Reflections on the Origin and

Spread of Nationalism. Revised Edition ed. London and New York: Verso,

1991, pp. 5-7.

Broberg, Len. University of Montana Professor, Interview, October 15, 2010.

Bush, Kenneth. 1998. “A Measure of Peace: Peace and Conflict Impact

Assessment (PCIA) of Development Projects in Conflict Zones.” Working

Paper 1. The Peacebuilding and Reconstruction Programme Initiative and the

Evaluation Unit, IDRC.

Carolyn, Tara. Interview, October 14, 2010.

Hammill, A. and Charles Besançon. 2007. “Measuring Peace Park

Performance: Definitions and Experiences,” in Saleem H. Ali, ed., Peace

Parks: Conservation and Conflict Resolution, Cambridge: The MIT Press: 31.

Kappler, Charles J. 1904a. Agreement with the Indians of the Blackfeet

Indian Reservation Montana (1896). Indian Affairs: Laws and Treaties. (Vol. I;

Sec 9). Compiled by the Clerk to the Senate Committee on Indian

Affairs. Government Printing Office. Washington, D.C.

Montana State-Tribal Relations Committee 2009-2010. http://leg.mt.gov/

css/Committees/interim/2009_2010/State_Tribal_Relations/default.asp

National Geographic Society. 2008. Long the great warriors of the eastern

slopes, the Blackfoot Confederacy includes the Piikani, Siksiska and Blood/

Kainai Nations in Alberta and the Blackfeet Nation in Montana. On the west

side are the mountain bands of the Ktunaxa Nation in British Columbia and

the Ksanka/Kootenai in Montana. Farther south, the Interior Salish people,

including the Bitterroot Salish and Pend d’Oreille, are closely related to other

Salish-speaking nations in British Columbia, Washington, and Idaho. http://

visitmt.com/Images/cofc/CoCHistLowResFinal.pdf

National Geographic Society. 2008. http://visitmt.com/Images/cofc/

CoCHistLowResFinal.pdf

National Parks Conservation Association. 2002. State of the Parks: A

Resource Assessment – Waterton-Glacier International Peace Park. http://

www.npca.org/stateoftheparks/glacier/glacier.pdf

National Park Service. 2010. “Commemorating Waterton-Glacier

International Peace Park” http://www.nps.gov/glac/parknews/news10-81.

htm

Dingwall, P.R. and K. Rao. 2009. “Waterton-Glacier International Peace

Park: Report of the Reactive Monitoring Mission,” UNESCO World Heritage

Centre/International Union for Conservation of Nature.

Peacebuilding Centre, Saferworld. 2009. PEACE and CONFLICT IMPACT

ASSESSMENT (PCIA) HANDBOOK Version 3.2. http://peacebuildingcentre.

com/pbc_documents/PCIA_HandbookENv3.2-Nov2009.pdf

Tanner, Randy, Wayne Freimund, Brace Hayden and Bill Dolan. 2007. “The

Waterton–Glacier International Peace Park Conservation amid Border

Security,” in Saleem H. Ali, ed., Peace Parks: Conservation and Conflict

Resolution, Cambridge: The MIT Press: 31.

S.3290 : Blackfeet Water Rights Settlement Act of 2010.

Spence, M.D. 2000. Dispossessing the Wilderness: Indian Removal and the

Making of the National Parks. New York: Oxford University Press.

United Nationas Educational, Scientific, and Cultural Organization

(UNESCO). 2005. World Heritage. http://www. whc.unesco.org/ .

U.S. Department of Interior, National Park Service. 1998. “Guidelines for

Evaluating and Documenting Traditional Cultural Properties,” National

Register Bulletin No. 38. http://www.nps.gov/history/nr/publications/

bulletins/nrb38/nrb38.pdf .

U.S. State Department, Office of the Coordinator for Stabilization and

Reconstruction. 2010. Interagency Conflict Assessment Framework. http://

www.state.gov/s/crs/what/144930.htm

Volkan, V. 1997. Blood Lines: From Ethnic Pride to Ethnic Terrorism,

Colorado: Westview Press.

Walters, J. Todd. “Experiential Peacebuilding,” Oxford Encyclopedia of

International Peace. 2009.

Whitford, Lea. Interview, October 13, 2010.

Whitford, Lea. Interview, October 14, 2010 and Montana Sheriffs and Peace

Officers Association Executive Director Jim Smith. Conversation, September

2010.

Bibliography6

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Stakeholders Actions Motivations Opportunities

Environmental

Cultural Identity

Political

Economic

Social

Security

U.S. National Parks Service, Parks Canada, Crown of the Continent Research Institute, Blackfeet Community College Natural Resource Summer Institute, University of Montana, University of Calgary, (other Universities), National Parks Conservation Association, Ranchers

Research projects, conservation initiatives, guided tours of cultural and environmental sites of significance inside the Park, and in the buffer zone surrounding the Park

Environmental Conservation, Protect the Park, Encourage Transboundary Coordination, Scientific Study, Education

Network already established with commitment to protect the park

Blackfeet Community College, Red Crow Community College

Imparting cultural heritage to the next generation, ensuring transboundary ritual celebrations, and preserving locations of cultural and historical significance

Looking for more ways to hold cross-cultural programs, encouraging more connections to the Park within the Blackfeet Confederacy

The Blackfeet Confederacy have all the historical records at their disposal, and eager and capable leaders who can impart cultural information to the next generation

Blackfeet Tribal Council, County governments, state governments, Department of Interior

Tribal Council holds all powers on the reservation, government bodies are able to repeal/initiate policies

Tribal Council does not want anyone gaining more power than it. Government bodies want established laws respected

Tribal Council has supreme power on the reservation (for better or worse). Uncertain of the needs of the county, state, and Department of Interior.

Sun Tours, Red Buses (Dial Corp), Hotels, Small Businesses, National Geographic GeoTourism

Guided tours through the park, tourism in general, geotourism

Make money, promote culture and park

Cultural awareness is low on the list of tourism concerns. Competing tourism companies, GeoTourism Map provides a loose network that could be harnessed more effectively

Rotary International, Rotary Clubs of Whitefish, Kalispell, Pincher Creek, etc, Browning Boys & Girls Club, AmeriCorps,

Transboundary relationship building and celebration, civic education, youth programs

Nurture transboundary celebration, encourage positive citizenship, foster the growth of educated youth leaders

Need more involvement from Boys and Girls Club, Rotary Club members, and AmeriCorp.

Montana Sheriffs and Peace Officers Association, U.S. Border Patrol, Homeland Security, Blackfeet Peace Officers

Cross-cultural programs, Abide by the rule of law in the U.S. and Canada and respect the culture of Blackfeet Confederacy Tribes

Need more buy-in from all security bodies involved. Need more community involvement.

Stakeholder P

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Historical Root Causes Structural/Institutional Perpetuating Causes Current Manifestations

Environmental

Cultural Identity

Political

Economic

Social

Security

Global climate change, invasive species and human involvement in the degradation of the ecosystem, including the park and surrounding buffer zone

Lack of mainstream transboundary cooperation programs and collaborations, limited connections between private businesses and park management

Only 25 of 150 glaciers remain today, invasive weed infiltration, poaching wildlife, timber, natural gas, oil shale extraction up river affecting the eco-system, general degradation of the WGIPP

Artificial border constraining the Blackfeet Confederacy tribal connections. Changes in use of land, changes the cultural identity of the Blackfeet Confederacy. Legacy of the development of U.S. Canada national border, state and province borders and reservation borders.

Assimilation procedures adopted by the U.S. Government vis-à-vis Blackfeet people after the Blackfeet "leased/sold" their land to U.S. Government; stricter regulations since September 11, 2001 on border crossing items

Disconnect between Blackfeet Confederacy in Canada and in U.S. Disconnect between the Blackfeet on Reservation and in other areas around their traditional territory. Risk of changing/losing identity as the degradation of the Park continues

The Blackfeet Treaty with the U.S. is superseded by the federal laws adhered to by the Park Management. The Legacy of border creation and enforcement at the 49th Parallel between U.S. and Canada.

Tribal Government of Blackfeet and Kainai are organized as both a political and economic business corporation. Strained relationship between Tribal Councils and Park Management.

Blackfeet Confederacy and their livestock can't enter the park without permission. Blackfeet can't hunt or extract timber or medicinal roots/berries. Park Management have strained relations with Tribal Council and some tribe members.

Tribal Council does not want to give up monopoly on business decisions on the reservation. Legacy of tourism concessions within the Park. Railroad passing through Blackfeet land without any economic benefit to the Tribe.

Poverty, autocratic business decisions by Tribal Council, lack of a free and open market for small to medium business ventures to thrive. Competition from other tourism in towns closer to the park

Blackfeet Reservation is in economic decline. 2) Only 1 Blackfeet owned tourism company and it took a 20+ year legal battle to receive the concession, 4 other commercial companies can operate in the Park. Illegal Natural Resource extraction occurring in the Park (poaching, coal, timber)

Legacy of the development of Reservations in the U.S. and Canada, and the cultural assimilation of the boarding school system

Weak educational system, lack of readily available jobs, culture of drug dependencies, lack of integration of communities, feeling of isolation

High levels of drug use and domestic violence on Blackfeet Reservation

Different codes of law apply in the Blackfeet Reservation, Montana and Alberta counties, and within WGIPP.

Lack of cultural awareness between law enforcement agencies; Jurisdiction problems between the Blackfeet Confederacy Nations and U.S./Canada

Blackfeet Confederacy members have a difficult time crossing borders with items in sacred bundles to perform cultural and religious rituals, Peace Officers vs. Montana Sheriffs Jurisdiction disconnect

Conflict Driver Synergies

1) Environmental Degradation of the park threatens to erode the cultural identity of the Blackfeet Confederacy and destroy the heart of the Crown of the Continent eco-system.

2) Legacy of U.S. government and Native Americans conflict. Land Dispossession through treaties.

3) U.S.- Canada border caused a strain on the cultural ties between the Blackfeet Confederacy tribes that were separated by the artificial border, specifically the Blackfeet Nation (U.S.) and Kainai Nation (Canada).

4) Different codes of law and understanding of land ownership: The Blackfeet Confederacy believes no one can own land - humans are only caretakers of the land. The U.S. and Canadian governments believe land can be bought and sold.

Conflict P

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Ongoing Peace Efforts Existing Structures & Processes Peacebuilding Gaps

Environmental

Cultural Identity

Political

Economic

Social

Security

Transboundary Cooperation between Scientists, Researchers, and Park Management on specific issues; Natural Resource Summer Institute for youth established by the Blackfeet Community College's center for Natural Resource Management

Crown of the Continent Conference in August bringing researchers/scientists together; Park Management has designated a Ranger/Warden who is responsible for transboundary cooperation; Academic programs bring university students together for transboundary environmental conservation; Summer Institute brings together Blackfeet youth living in Browning, MT and two other Blackfeet communities in S.D and WY

Creation of a Map where researchers/scientists/park management/cultural heritage/tourism companies can see the various projects occurring in the park; More transboundary cooperation between youth who will be stewards of the park over the next generation

1) Crown of the Continent National Geographic map detailing the cultural sites in and around the park; 2) Blackfeet Elders hold ritual ceremonies around the park

Network between Conservation, Cultural Heritage, and Transboundary Cooperation exists; Connection between the Cultural Studies professors between Red Crow Community College and the Blackfeet Community College

More programs to connect the Blackfeet Confederacy across the 49th parallel; Need to further engage the Park Management to work with Blackfeet Tribal Elders to have ritual ceremonies in the park

No violent reactions; non-violent protests during the 1990s when the only Blackfeet owned tourism business tried to receive a tourism concession from the Park; 1st International Peace Park and UN designated the Park a world heritage site

Blackfeet Tribal Council are open to discussions with Park Management

More dialogues between Park Management and Tribal Councils

Transboundary tours through the WGIPP There is one Blackfeet-owned company that provides guided tours

More opportunities that connect the Blackfeet community (specifically youth) with the Park

Rotary International Annual Event in September brings together Canadian, US and international groups together to celebrate the peaceful relationship between the US and Canada; “Handshake across the Border”

Rotary Club Connections; Boys and Girl Clubs established on Blackfeet Reservation and in surrounding communities

More Rotary Club and Boys and Girls Club interactions between students on Blackfeet reservation and communities around the Park

Cross-cultural understanding programs between Law enforcement agencies in Montana and Blackfeet Community College

Montana Sheriffs and Peace Officers Association and Blackfeet Community College representatives are interested in doing more program incorporating the Park and the surrounding communities

Using experiential learning techniques for cross-cultural programs that incorporate environmental stewardship and community involvement

Peacebuilding & Conflict Mitigation Synergies

1) Networks are already established that can carryout peacebuilding programs.

2) Positive reception from WGIPP park management to engage in additional transboundary activities.

3) Commitment on the part of Blackfeet Community representatives to engage in youth-focused and environmental conservation programs.

4) Support from the Blackfeet Community for dialogues between the Tribal Elders and WGIPP Park Management.

5) Cultural Heritage is a main focal point of Park Management-led tours; tours conducted by Blackfeet owned tourism companies; and National Geographic GeoTourism maps.

6) Support for AmeriCorps projects concerning environmental conservation, civic responsibility and cross-cultural engagement

Peace P

rofileC



Annexes7

�� "��

Title

Description

Run Time

Primary Source Links

Technical Specifications

Crew

Transcending Boundaries: Perspectives from Waterton-Glacier International Peace Park

Transcending Boundaries is the first in a series of documentaries exploring transboundary issues in and around International Peace Parks through various stakeholder perspectives. This episode takes us to Waterton-Glacier International Peace Park on the border of Montana, United States and Alberta, Canada where we explore a variety of geographic, cultural, and ecological issues with people engaged in conserving this critical ecosystem

13m 12s

http://vimeo.com/ippe/transcendingboundaries-wgipphttp://vimeo.com/thecollaborative/transcendingboundaries-wgipp-collabhttp://www.youtube.com/ippexpeditions#p/u/0/M0GATeltMIs

1080p (1920x1080); 24fps, QuickTime ProRes 422; 44.1kz; 16-bit

Director/Producer - Cory Wilson; Co-Producers - Todd Walters, Megan Greeley, Saleem Ali

Documentary ProfileD



Resources8

mailto:[email protected]



Resources8��

Program Title

Location / Date

Program Author(s)

Standards Used (SPHERE, IUCN/UNEP)

Evaluation of Environmental Impact (describe of program

activities)

��!��RiskRiskRisk

Low Moderate HighPotential Environmental Impact Mitigation Actions

1

2

3

...

Definitions

Low Risk - not likely to have adverse impacts at all, or the impacts would be negligible (i.e. workshops, trainings, etc.)

Moderate Risk - location specific in nature and do not significantly affect human populations or alter environmentally important areas, including wetlands, native forests, grasslands, and other major natural habitats.

High Risk - likely to have significant adverse environmental impacts that are sensitive, diverse, or unprecedented within the ecosystem; or affect an area broader than the sites or facilities subject to physical work.

*If Moderate or High Risk, complete the Potential Environmental Impact and Mitigating Actions columns providing as much detail as possible, and citing existing IEA’s for precedent where available.

��!��

Evaluator

Evaluation

Environmental Impact Analysis WorksheetA



Resources8��

Program Title

Program Date

Program Location

Program Author(s)

Program Activity & Timeline

��RiskRiskRisk

Low Moderate HighPotential Environmental Impact Mitigation Actions

1

2

3

...

��"��

Linkages to Stakeholder Programs/Activities

Stakeholder Involvement

Long-term Sustainability Plan(s)

��!��

Evaluator

Evaluation

Peace and Conflict Impact Analysis WorksheetB



Acknowledgements9

Todd WaltersProgram Director / Lead Editor

Executive Director


[email protected]

Megan GreeleyProgram Specialist / Lead Writer

Fundraising Director


[email protected]

Cory WilsonDocumentary Producer / Editor / Photographer

Brand Director


[email protected]

Director of Collaboration

The Collaborative

[email protected]

Saleem AliDocumentary Co-Producer / Editor

Professor

University of Vermont

Rubenstein School of Natural Resource Management

[email protected]

Director

Institute for Environmental Diplomacy and Security

International Peace Park Expeditions / peaceparkexpeditions.org

The Collaborative / thecollaborative.net

The Institute for Environmental Diplomacy and Security / uvm.edu/iedsand International Peace Park Expeditions

© The Collaborative / Cory Wilson

Published by

Produced by

Funded by

Photography

Blackfeet Community CollegeUnited States National Park Service at Glacier National ParkParks Canada at Waterton Lakes National ParkRotary Club of Whitefish, MontanaCrown of the Continent Research Learning Center

Special Thanks

��

Megan GreeleyProgram Specialist

Todd WaltersExecutive Director

[email protected]@peaceparkexpeditions.org

Cory WilsonBrand Director

[email protected]

peaceparkexpeditions.org

�Transcending Boundaries: Perspectives from

Waterton-Glacier International Peace Park

http://vimeo.com/ippe/transcendingboundaries-wgipp

Waterton-Glacier International Peace Park:

Peace and Conflict Impact Assessment

Edition 1

http://peaceparkexpeditions.org/public/ippe_pcia_wgipp_11ed01.pdf

http://peaceparkexpeditions.org