Management of National Park Service Programs

This volume of Management Policies focuses exclusively on management of the 

national park system. Beyond managing the national park system, the National 

Park Service administers a broad range of programs that serve the conservation and 

recreation needs of the nation and the world. Examples include the following:

National Register of Historic Places

National Historic Landmarks Program

National Natural Landmarks Program

Land and Water Conservation Fund Grants Program

Historic American Buildings Survey

Historic American Engineering Record

Historic American Landscapes Survey

American Battlefi eld Protection Program

National Maritime Heritage Grants Program

Rivers, Trails and Conservation Assistance Program

Tribal Heritage Preservation Grants Program

Preserve America Grants Program

National Heritage Areas Program

Although these programs operate mainly outside the national parks, they form a 

vital part of the National Park Service mission. Information about the policies and 

procedures that govern these programs may be obtained from the appropriate NPS 

program managers (who are generally located in Washington, D.C.), or by visiting 

the NPS web site at www.nps.gov.

U.S. Department of the Interior 

The Department of the Interior protects and manages the nation’s natural 

resources and cultural heritage; provides scientifi c and other information about 

those resources; and honors its special responsibilities to American Indians, Alaska 

Natives, and affi liated Island Communities.

National Park Service 

The National Park Service preserves unimpaired the natural and cultural 

resources and values of the national park system for the enjoyment, education, 

and inspiration of this and future generations. The National Park Service 

cooperates with partners to extend the benefi ts of natural and cultural resource 

conservation and outdoor recreation throughout this country and the world.
Management 

Policies

2006

U.S. Department of the Interior | National Park Service
U.S. GOVERNMENT OFFICIAL EDITION NOTICE

Use of ISBN Prefi x. This is the Offi cial U.S. Government edition of this publication 

and is herein identifi ed to certify its authenticity. Use of the 0-16-076874-8 ISBN is 

for U.S. Government Printing Offi ce Offi cial Editions only. The Superintendent of 

Documents of the U.S. Government Printing Offi ce requests that any reprinted edition 

clearly be labeled as a copy of the authentic work with a new ISBN. 

Legal Status and Use of Seals and Logos. The Arrowhead symbol of the National Park 

Service authenticates Management Policies 2006 as the National Park Service’s offi cial 

guide to managing national parks. The National Park Service symbol is protected under 

18 USC 701, 15 USC 1051 et seq, and regulations published in 36 CFR Part II. The use 

of the National Park Service Arrowhead symbol on any republication of this material 

without the express, written permission of the Director of the National Park Service is 

prohibited. Any person using the National Park Service symbol in a manner inconsistent 

with the provisions of 36 CFR Part II is subject to the penalties specifi ed in 18 USC 701.

For sale by the Superintendent of Documents, U.S. Government Printing Offi ce

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ISBN 0-16-076874-8
Table of Contents

Management Policies 1

The Guide to Managing the 

National Park System 1

Underlying Principles 2

Introduction 3

Law, Policy, and Other Guidance 3

Hierarchy of Authorities 4

Policy Development 4

Compliance, Accountability, 

and Enforceability 4

The Directives System 4

Other Sources of Guidance 5

NPS Program Policies 5

1 The Foundation 7

1.1 The National Park Idea 8

1.2 The National Park System 8

1.3 Criteria for Inclusion 8

1.3.1 National Signifi cance 8

1.3.2 Suitability 9

1.3.3 Feasibility 9

1.3.4 Direct NPS Management 9

1.4 Park Management 10

1.4.1 The Laws Generally Governing

 Park Management 10

1.4.2 “Impairment” and “Derogation”: 

 One Standard 10

1.4.3 The NPS Obligation to Conserve 

 and Provide for Enjoyment of 

 Park Resources and Values 10

1.4.3.1 Park Purposes and Legislatively 

 Authorized Uses 11

1.4.4 The Prohibition on Impairment 

 of Park Resources and Values 11

1.4.5 What Constitutes Impairment 

 of Park Resources and Values 11

1.4.6 What Constitutes Park 

 Resources and Values 11

1.4.7 Decision-making Requirements to

 Identify and Avoid Impairments 12

1.4.7.1 Unacceptable Impacts 12

1.4.7.2 Improving Resource Conditions 

 within the Parks 12

1.5 Appropriate Use of the Parks 13

1.6 Cooperative Conservation 

 Beyond Park Boundaries 13

1.7 Civic Engagement 14

1.8 Environmental Leadership 14

1.9 Management Excellence 14

1.9.1 Human Resources 15

1.9.1.1 Career Development, Training, 

 and Management 15

1.9.1.2 Succession Planning 15

1.9.1.3 Workforce Planning 15

1.9.1.4 Employee Safety and Health 15

1.9.1.5 Workforce Diversity 15

1.9.1.6 Volunteers in the Parks 15

1.9.2 Managing Information 16

1.9.2.1 Information Sharing 16

1.9.2.2 Proprietary Information 16

1.9.2.3 Information Confi dentiality 16

1.9.3 Accessibility for Persons with Disabilities 

17

1.9.4 Public Information and Media Relations 17

1.9.5 Management Accountability 17

1.9.5.1 Financial Sustainability 17

1.9.5.2 Facilities 18

1.9.5.3 Budget Performance and 

 Accountability Programs 18

1.10 Partnerships 18

1.11 Relationship with 

 American Indian Tribes 19

1.11.1 Government-to-Government 

 Relationship 19

1.11.2 Consultation 19

1.11.3 Trust Resources 19

1.12 Native Hawaiians, Pacifi c Islanders, 

 and Caribbean Islanders 20

1.13 An Enduring Message 20

2 Park System Planning 21

2.1 General Principles 22

2.1.1 Decision-making 22

2.1.2 Scientifi c, Technical, 

 and Scholarly Analysis 22

2.1.3 Public Participation 22

2.1.4 Goal Orientation 22

2.2 Major Elements of Park Planning

 and Decision-making 22

2.3 Levels of Park Planning 23

2.3.1 General Management Planning 23

2.3.1.1 Statutory Requirements 24

2.3.1.2 Management Zoning 24

2.3.1.3 Planning Team 24

2.3.1.4 Science and Scholarship 24

2.3.1.5 Public Involvement 24

2.3.1.6 Alternative Futures 25

2.3.1.7 Environmental Analysis 25

2.3.1.8 Cooperative Planning 25

2.3.1.9 Wild and Scenic Rivers 25

2.3.1.10 Wilderness 25

2.3.1.11 Alaska Park Units 26

2.3.1.12 Periodic Review of 

 General Management Plans 26

2.3.2 Program Management Planning 26

2.3.3 Strategic Planning 26

2.3.3.1 Relationship between the Strategic Plan 

 and the General Management Plan 27

2.3.4 Implementation Planning 27

2.3.4.1 Environmental Analysis 27

2.3.5 Park Annual Performance 27

 Planning and Reporting 27

3 Land Protection 29

3.1 General 30

3.2 Land Protection Methods 30

3.3 Land Protection Plans 30
MANAGEMENT POLICIES 2006

IV 3.4 Cooperative Conservation 31

3.5 Boundary Adjustments 31

3.6 Land Acquisition Authority 32

3.7 Land Acquisition Funding 32

3.8 Condemnation 33

4 Natural Resource Management 35

Introduction 36

4.1 General Management Concepts 36

4.1.1 Planning for Natural Resource 

 Management 37

4.1.2 Natural Resource Information 38

4.1.3 Evaluating Impacts on Natural Resources 

38

4.1.4 Partnerships 38

4.1.5 Restoration of Natural Systems 39

4.1.6 Compensation for Injuries to Natural 

Resources 39

4.2 Studies and Collections 39

4.2.1 NPS-conducted or -sponsored Inventory, 

Monitoring, and Research Studies 40

4.2.2 Independent Studies 40

4.2.3 Natural Resource Collections 41

4.2.4 Collection Associated with the

 Development of Commercial Products 41

4.3 Special Designations 41

4.3.1 Research Natural Areas 41

4.3.2 Experimental Research Areas 41

4.3.3 Wilderness Areas 41

4.3.4 National Wild and Scenic Rivers System 41

4.3.5 National Natural Landmarks 42

4.3.6 Biosphere Reserves 42

4.3.7 World Heritage List 42

4.4 Biological Resource Management 42

4.4.1 General Principles for Managing

 Biological Resources 42

4.4.1.1 Plant and Animal Population

 Management Principles 43

4.4.1.2 Genetic Resource 

 Management Principles 43

4.4.1.3 Defi nition of Native and Exotic Species 43

4.4.2 Management of Native Plants 

 and Animals 44

4.4.2.1 NPS Actions That Remove 

 Native Plants and Animals 44

4.4.2.2 Restoration of Native Plant 

 and Animal Species 45

4.4.2.3 Management of Threatened or 

 Endangered Plants and Animals 45

4.4.2.4 Management of Natural Landscapes 46

4.4.2.5 Maintenance of Altered 

 Plant Communities 46

4.4.3 Harvest of Plants and 

 Animals by the Public 46

4.4.4 Management of Exotic Species 47

4.4.4.1 Introduction or Maintenance 47

 of Exotic Species 47

4.4.4.2 Removal of Exotic Species 

 Already Present 48

4.4.5 Pest Management 48

4.4.5.1 Pests 48

4.4.5.2 Integrated Pest Management Program 48

4.4.5.3 Pesticide Use 49

4.4.5.4 Biological Control Agents and

 Bioengineered Products 49

4.4.5.5 Pesticide Purchase and Storage 49

4.5 Fire Management 49

4.6 Water Resource Management 50

4.6.1 Protection of Surface Waters 

 and Groundwaters 50

4.6.2 Water Rights 50

4.6.3 Water Quality 51

4.6.4 Floodplains 51

4.6.5 Wetlands 51

4.6.6 Watershed and Stream Processes 52

4.7 Air Resource Management 52

4.7.1 Air Quality 52

4.7.2 Weather and Climate 53

4.8 Geologic Resource Management 53

4.8.1 Protection of Geologic Processes 53

4.8.1.1 Shorelines and Barrier Islands 54

4.8.1.2 Karst 54

4.8.1.3 Geologic Hazards 54

4.8.2 Management of Geologic Features 54

4.8.2.1 Paleontological Resources 

 and Their Contexts 54

4.8.2.2 Caves 55

4.8.2.3 Geothermal and 

 Hydrothermal Resources 55

4.8.2.4 Soil Resource Management 56

4.9 Soundscape Management 56

4.10 Lightscape Management 57

4.11 Chemical Information and Odors 57

5 Cultural Resource Management 59

Introduction 60

5.1 Research 60

5.1.1 NPS Research 60

5.1.2 Independent Research 61

5.1.3 Identifi cation and Evaluation 

 of Resources 61

5.1.3.1 Inventories 61

5.1.3.2 Evaluation and Categorization 62

5.1.3.2.1 National Register Nomination 62

5.1.3.2.2 National Historic Landmark Designation 62

5.1.3.2.3 Nominations for World Heritage 

 List Designation 62

5.2 Planning 63

5.2.1 Consultation 63

5.2.2 Agreements 64

5.2.3 Confi dentiality 64

5.3 Stewardship 65

5.3.1 Protection and Preservation of 65

 Cultural Resources 65

5.3.1.1 Emergency Management 65

5.3.1.2 Fire Detection, Suppression, and 

 Post-fi re Rehabilitation and Protection 65

5.3.1.3 Compensation for Injuries to

 Cultural Resources 65

5.3.1.4 Environmental Monitoring and Control 66

5.3.1.5 Pest Management 66

5.3.1.6 Visitor Carrying Capacity 66

5.3.1.7 Cultural Soundscape Management 66

5.3.2 Physical Access for Persons 

 with Disabilities 66

5.3.3 Historic Property Leases and 

 Cooperative Agreements 66

5.3.4 Stewardship of Human Remains 

 and Burials 67

5.3.5 Treatment of Cultural Resources 67

5.3.5.1 Archeological Resources 68

5.3.5.1.1 Preservation 68

5.3.5.1.2 Stabilization 68

5.3.5.1.3 Rehabilitation, Restoration,

 and Reconstruction 68

5.3.5.1.4 Protection 68

5.3.5.1.5 Archeological Data Recovery 68

5.3.5.1.6 Earthworks 68

5.3.5.1.7 Submerged Cultural Resources 69

5.3.5.2 Cultural Landscapes 69

5.3.5.2.1 Preservation 69

5.3.5.2.2 Rehabilitation 69

5.3.5.2.3 Restoration 69

5.3.5.2.4 Reconstruction of 

 Obliterated Landscapes 69

5.3.5.2.5 Biotic Cultural Resources 69

5.3.5.2.6 Land Use and Ethnographic Value 70

5.3.5.2.7 New Construction 70

5.3.5.3 Ethnographic Resources 70

5.3.5.3.1 Resource Access and Use 71
5.3.5.3.2 Sacred Sites 71

5.3.5.3.3 Research 72

5.3.5.4 Historic and Prehistoric Structures 72

5.3.5.4.1 Preservation 72

5.3.5.4.2 Rehabilitation 72

5.3.5.4.3 Restoration 72

5.3.5.4.4 Reconstruction of Missing Structures 72

5.3.5.4.5 Movement of Historic Structures 72

5.3.5.4.6 New Construction 73

5.3.5.4.7 Use of Historic Structures 73

5.3.5.4.8 Park Structures Owned or

 Managed by Others 73

5.3.5.4.9 Damaged or Destroyed

 Historic Structures 73

5.3.5.4.10 Historic and Prehistoric Ruins 73

5.3.5.5 Museum Collections 74

5.3.5.5.1 Preservation 74

5.3.5.5.2 Restoration 74

5.3.5.5.3 Reproduction 74

5.3.5.5.4 Acquisition, Management, 

 Disposition, and Use 74

5.3.5.5.5 Historic Furnishings 75

5.3.5.5.6 Archives and Manuscripts 75

6 Wilderness Preservation 

 and Management 77

6.1 General Statement 78

6.2 Identifi cation and Designation 

 of the Wilderness Resource 78

6.2.1 Assessment of Wilderness Eligibility 

 or Ineligibility 78

6.2.1.1 Primary Eligibility Criteria 78

6.2.1.2 Additional Considerations in 

 Determining Eligibility 78

6.2.1.3 The Assessment Process 79

6.2.2 Wilderness Studies 79

6.2.2.1 Potential Wilderness 79

6.2.2.2 Proposed Wilderness 79

6.2.3 Recommended Wilderness 79

6.2.4 Designated Wilderness 80

6.3 Wilderness Resource Management 80

6.3.1 General Policy 80

6.3.2 Responsibility 80

6.3.3 Consistency 81

6.3.4 Wilderness-related Planning 

 and Environmental Compliance 81

6.3.4.1 Zoning for Wilderness 81

6.3.4.2 Wilderness Management Planning 81

6.3.4.3 Environmental Compliance 81

6.3.5 Minimum Requirement 81

6.3.6 Scientifi c Activities in Wilderness 82

6.3.6.1 General Policy 82

6.3.6.2 Monitoring Wilderness Resources 83

6.3.7 Natural Resources Management 83

6.3.8 Cultural Resources 83

6.3.9 Fire Management 84

6.3.10 Management Facilities 84

6.3.10.1 Administrative Facilities 84

6.3.10.2 Trails in Wilderness 84

6.3.10.3 Shelters and Campsites 85

6.3.10.4 Signs 85

6.3.11 Wilderness Boundaries 85

6.3.11.1 Legal Descriptions and Boundary Maps 85

6.3.11.2 Caves 85

6.3.11.3 Waters in Wilderness 85

6.3.12 American Indian Access 

 and Associated Sites 85

6.4 Wilderness Use Management 86

6.4.1 General Policy 86

6.4.2 Wilderness Interpretation 

 and Education 86

6.4.3 Recreational Use Management 

 in Wilderness 86

6.4.3.1 Recreation Use Evaluation 86

6.4.3.2 Outdoor Skills and Ethics 87

6.4.3.3 Use of Motorized Equipment 87

6.4.4 Commercial Services 87

6.4.5 Special Events 87

6.4.6 Existing Private Rights 87

6.4.7 Grazing and Livestock Driveways 87

6.4.8 Rights-of-Way 88

6.4.9 Mineral Development 88

6.4.10 Accessibility for Persons 

 with Disabilities 88

7 Interpretation and Education 89

Introduction 90

7.1 Interpretive and Educational Programs 

90

7.2 Interpretive Planning 91

7.3 Personal and Nonpersonal Services 91

7.3.1 Personal Services 91

7.3.1.1 Curriculum-based Education Programs 91

7.3.2 Nonpersonal Services 91

7.3.2.1 Park Brochures 92

7.3.3 Technology and Interpretation 92

7.3.4 Interpretive and Educational Services 

Beyond Park Boundaries 92

7.4 Interpretive Competencies and Skills 92

7.5 Requirements for All Interpretive 

 and Educational Services 93

7.5.1 Interpretation and 

 21st Century Relevancy 93

7.5.2 Access to Interpretive and 93

 Educational Opportunities 93

7.5.3 Resource Issue Interpretation 

 and Education 93

7.5.4 Research and Scholarship 93

7.5.5 Evaluation of Interpretation 

 and Education Effectiveness 93

7.5.6 Consultation 94

7.5.7 Cultural Demonstrators 94

7.5.8 Historic Weapons 94

7.5.9 Reenactments 94

7.6 Interpretive and Educational 

Partnerships 95

7.6.1 Volunteers in Parks (VIPs) 95

7.6.2 Cooperating Associations 95

8 Use of the Parks 97

8.1 General 98

8.1.1 Appropriate Use 98

8.1.2 Process for Determining 

 Appropriate Uses 98

8.2 Visitor Use 99

8.2.1 Visitor Carrying Capacity 100

8.2.2 Recreational Activities 101

8.2.2.1 Management of Recreational Use 101

8.2.2.2 Commercial Visitor Services 102

8.2.2.3 River Use 102

8.2.2.4 Backcountry Use 102

8.2.2.5 Fishing 102

8.2.2.6 Hunting and Trapping 103

8.2.2.7 Parachuting 103

8.2.2.8 Recreational Pack and 

 Saddle Stock Use 103

8.2.3 Use of Motorized Equipment 103

8.2.3.1 Motorized Off-road 

 Vehicle Use 104

8.2.3.2 Snowmobiles 104

8.2.3.3 Personal Watercraft Use 104

8.2.4 Accessibility for Persons 

 with Disabilities 104

8.2.5 Visitor Safety and 

 Emergency Response 105

8.2.5.1 Visitor Safety 105

8.2.5.2 Emergency Preparedness and

 Emergency Operations 105

8.2.5.3 Search and Rescue 106

8.2.5.4 Dive Operations 106

8.2.5.5 Public Health Program 106

8.2.5.6 Emergency Medical Services 106

8.2.6 Recreation Fees and Reservations 106

TABLE OF CONTENTS 3-4 – 8.2.6.1 V
MANAGEMENT POLICIES 2006

VI 8.2.6.1 Recreation Fees 107

8.2.6.2 National Recreation 

 Reservation Service 107

8.2.7 Tourism 107

8.3 Law Enforcement Program 108

8.3.1 General 108

8.3.2 The Context for Law Enforcement 108

8.3.3 Shared Responsibilities 108

8.3.4 Enforcement Authority 108

8.3.5 Jurisdiction 109

8.3.6 Use of Force 109

8.3.7 Law Enforcement Public Information 

 and Media Relations 109

8.3.8 Homeland Security 109

8.4 Overfl ights and Aviation Uses 109

8.4.1 Alaska and Remote Areas 110

8.4.2 Education 110

8.4.3 General Aviation 110

8.4.4 Administrative Use 110

8.4.5 Military Aviation 110

8.4.6 Commercial Air Tour Management 110

8.4.7 Permitted Overfl ights 110

8.4.8 Airports and Landing Sites 110

8.5 Use by American Indians and Other 

Traditionally Associated Groups 111

8.6 Special Park Uses 112

8.6.1 General 112

8.6.1.1 Requests for Permits 112

8.6.1.2 Fees 112

8.6.2 Special Events 112

8.6.2.1 General 112

8.6.2.2 Helium-fi lled Balloons 113

8.6.2.3 Fireworks Displays 113

8.6.2.4 Sale of Food or Merchandise 113

8.6.3 First Amendment Activities 113

8.6.4 Rights-of-Way for Utilities and Roads 113

8.6.4.1 General 113

8.6.4.2 Utilities 114

8.6.4.3 Telecommunication Sites 114

8.6.4.4 Roads and Highways and 

 Petroleum-based Pipelines 115

8.6.5 Access to Private Property 115

8.6.6 Filming and Photography 115

8.6.6.1 General 115

8.6.6.2 Permits and Fees 115

8.6.6.3 NPS Participation 115

8.6.7 Agricultural Uses 116

8.6.8 Domestic and Feral Livestock 116

8.6.8.1 General 116

8.6.8.2 Managing Agricultural Grazing 116

8.6.8.2.1 Permitting Agricultural Grazing 117

8.6.8.2.2 Structures for Agricultural Grazing 117

8.6.8.3 Trespass and Feral Livestock 117

8.6.9 Military Operations 117

8.6.10 Cemeteries and Burials 117

8.6.10.1 National Cemeteries 117

8.6.10.2 Family Cemeteries 117

8.6.10.3 Other Burials and the 

 Scattering of Ashes 117

8.6.11 Other Special Park Uses 118

8.7 Mineral Exploration 

 and Development 118

8.7.1 Mining Claims 118

8.7.2 Federal Mineral Leases 118

8.7.3 Nonfederally Owned Minerals 119

8.8 Collecting Natural Products 119

8.9 Consumptive Uses 119

8.10 Natural and Cultural Studies, 

 Research, and Collection Activities 120

8.11 Social Science Studies 120

8.11.1 General 120

8.11.2 NPS-supported Studies 120

8.11.3 Independent and Commercial Studies 121

8.11.4 Management and Conduct of Studies 121

8.12 Leases 121

8.12.1 Additional Criteria 122

8.12.2 Prior Approval 122

8.12.3 Noncompetitive Awards 122

8.12.4 Historic Properties 122

9 Park Facilities 123

9.1 General 124

9.1.1 Facility Planning and Design 124

9.1.1.1 Life-cycle Costs 124

9.1.1.2 Integration of Facilities 125

 into the Park Environment 125

9.1.1.3 Protection of Cultural Values 125

9.1.1.4 Adaptive Use 125

9.1.1.5 Siting Facilities to Avoid 

 Natural Hazards 126

9.1.1.6 Sustainable Energy Design 126

9.1.2 Accessibility for Persons 

 with Disabilities 126

9.1.3 Construction 127

9.1.3.1 Construction Sites 127

9.1.3.2 Revegetation and Landscaping 127

9.1.3.3 Borrow Pits and Spoil Areas 127

9.1.4 Maintenance 128

9.1.4.1 General 128

9.1.4.2 Acquisition of Environmentally 

 Preferable and Energy-Effi cient 

 Products 128

9.1.5 Utilities 128

9.1.5.1 Water Supply Systems 129

9.1.5.2 Wastewater Treatment 

 Systems 129

9.1.5.3 Utility Lines 129

9.1.5.4 Historic Utilities 129

9.1.6 Waste Management 

 and Contaminant Issues 129

9.1.6.1 Waste Management 129

9.1.6.2 NPS Response to Contaminants 130

9.1.7 Energy Management 131

9.1.8 Structural Fire Protection 

 and Suppression 131

9.2 Transportation Systems and 

 Alternative Transportation 131

9.2.1 Road Systems 132

9.2.1.1 Park Roads 132

9.2.1.2 Non-NPS Roads 132

9.2.1.2.1 Existing Commercial and 

 Other Through-Traffi c 133

9.2.1.2.2 Construction and Expansion Proposals 133

9.2.2 Trails and Walks 133

9.2.2.1 Cooperative Trail Planning 133

9.2.2.2 Hiking Trails 134

9.2.2.3 Equestrian Trails 134

9.2.2.4 Bicycle Trails 134

9.2.2.5 Water Trails 134

9.2.2.6 Interpretive Trails 134

9.2.2.7 National Trails 134

9.2.2.8 Trailheads 134

9.2.2.9 Trail Bridges 134

9.2.3 Traffi c Signs and Markings 135

9.2.4 Parking Areas 135

9.2.5 Navigation Aids 135

9.3 Visitor Facilities 135

9.3.1 Informational and 

 Interpretive Facilities 135

9.3.1.1 Signs 135

9.3.1.2 Entrance Stations 135

9.3.1.3 Visitor Centers 136

9.3.1.4 Amphitheaters 136

9.3.1.5 Wayside Exhibits 136

9.3.1.6 Viewing Devices 136

9.3.1.7 Facilities for Arts and Culture 136

9.3.2 Overnight Accommodations 

 and Food Services 136

9.3.2.1 Campgrounds 136

9.3.2.2 Backcountry Campsites 137
9.3.2.3 Hostels and Shelters 137

9.3.3 Comfort Stations 137

9.3.4 Other Visitor Facilities 137

9.3.4.1 Picnic and Other Day Use Areas 137

9.3.4.2 Facilities for Water Recreation 138

9.3.4.3 Skiing Facilities 138

9.3.5 Advertising 138

9.4 Management Facilities 138

9.4.1 Administrative Offi ces 138

9.4.2 Museum Collections 

 Management Facilities 139

9.4.3 Employee Housing 139

9.4.3.1 Housing Management Plan 139

9.4.3.2 Eligible Residents 139

9.4.3.3 Historic Structures 139

9.4.3.4 Design and Construction 139

9.4.4 Maintenance Structures 139

9.4.5 Miscellaneous Management Facilities 139

9.5 Dams and Reservoirs 140

9.6 Commemorative Works 

 and Plaques 140

9.6.1 General 140

9.6.2 Interpretive Works That 

 Commemorate 140

9.6.3 Approval of Commemorative Works 141

9.6.4 Preexisting Commemorative Works 141

9.6.5 Donated Commemorative Works 141

9.6.6 Commemorative Works in 

 National Cemeteries 141

10 Commercial Visitor Services 143

10.1 General 144

10.1.1 Leasing 144

10.2 Concessions 144

10.2.1 Concession Policies 144

10.2.2 Commercial Visitor Services 

 Planning 144

10.2.3 Concession Contracting 144

10.2.3.1 Terms and Conditions of Contracts 144

10.2.3.2 Modifi cations/Amendments 144

10.2.3.3 Extension 144

10.2.3.4 Competition 144

10.2.3.5 Third-party Agreements 

 and Subconcessions 145

10.2.3.6 Multipark Contracts 145

10.2.3.7 Termination 145

10.2.4 Concession Operations 145

10.2.4.1 Operating Plans 145

10.2.4.2 Service Type and Quality 145

10.2.4.3 Evaluation of Concession Operations 145

10.2.4.4 Interpretation by Concessioners 145

10.2.4.5 Merchandise 145

10.2.4.6 Artifacts and Specimens 146

10.2.4.7 Rates 146

10.2.4.8 Risk Management Program 146

10.2.4.9 Natural and Cultural Resource 

Management Requirements 146

10.2.4.10 Environmental Program Requirements 146

10.2.4.11 Insurance 147

10.2.4.12 Food Service Sanitation Inspections 147

10.2.4.13 Smoking 147

10.2.4.14 Wireless Local Area Networks 147

10.2.5 Concessions Financial Management 147

10.2.5.1 Franchise Fees 147

10.2.5.2 Franchise Fee Special Account 147

10.2.5.3 Record-keeping System 147

10.2.5.4 Annual Financial Reports 147

10.2.5.5 Donations to the National Park Service 148

10.2.6 Concession Facilities 148

10.2.6.1 Design 148

10.2.6.2 Accessibility of Commercial Services 148

10.2.6.3 Maintenance 148

10.2.6.4 Utilities and Services 148

10.2.6.5 Closure of Commercial Operations 

 during Government Shutdown 148

10.2.7 Concessioner Employees and 

 Employment Conditions 149

10.2.7.1 Nondiscrimination 149

10.2.7.2 Substance Abuse 149

10.2.8 NPS Employees 149

10.2.8.1 Accepting Gifts and Reduced Rates 

 from Concessioners 149

10.2.8.2 Employment of NPS Personnel 

 or Family Members by Concessioners 149

10.2.8.3 NPS Employee Ownership or 

 Investment in Concession Businesses 149

10.2.8.4 Concession Management 149

 Personnel Qualifi cations 149

10.3 Commercial Use Authorizations 149

10.3.1 General 150

10.3.2 Requirements 150

10.3.3 Limitations 150

10.3.4 Construction Prohibition 150

10.3.5 Duration 150

10.3.6 Other Contracts 150

Appendix A 151

Laws Cited in Text 151

Appendix B 155

Executive Orders and 

Memoranda Cited in Text 155

Appendix C 157

Director’s Orders 157

Glossary 161

Index 167

TABLE OF CONTENTS 8.2.6.2 – INDEX 

VII

Management 

Policies

The Guide to Managing 

the National Park System

The national park system was created to conserve unimpaired many 

of the world’s most magnifi cent landscapes, places that enshrine 

our nation’s enduring principles, and places that remind us of the 

tremendous sacrifi ces Americans have made on behalf of those 

principles. They are the most remarkable collection of places in 

America for recreation and learning. Visitors can immerse themselves 

in places where events actually happened and enjoy some of the most 

signifi cant natural and historic places in America. These are places 

that off er renewal for the body, the spirit and the mind. As required 

by the 1916 Organic Act, these special places must be managed in a 

special way—a way that allows them to be enjoyed not just by those 

who are here today, but also by generations that follow. Enjoyment 

by present and future generations can be assured only if these special 

places are passed on to them in an unimpaired condition. And that is 

the challenge that faces all the employees of the National Park Service. 

It is a challenge eagerly embraced, but employees must have the tools 

required to perform the job successfully. The policies contained in these 

pages represent one of the most important tools available. Through 

their judicious and consistent application, these policies will set a fi rm 

foundation for stewardship that will continue to earn the trust and 

confi dence of the American people.
MANAGEMENT POLICIES 2006

2

Underlying Principles

The National Park Service adhered to a number of principles in preparing this 2006 edition of 

Management Policies. The key principles were that the policies must: 

comply with current laws, regulations and executive orders;

prevent impairment of park resources and values;

ensure that conservation will be predominant when there is a confl ict between the protection 

 of resources and their use;

maintain NPS responsibility for making decisions and for exercising key authorities;

emphasize consultation and cooperation with local/state/tribal/federal entities;

support pursuit of the best contemporary business practices and sustainability;

encourage consistency across the system —“one national park system”;

refl ect NPS goals and a commitment to cooperative conservation and civic engagement;

employ a tone that leaves no room for misunderstanding the National Park Service’s 

commitment to the public’s appropriate use and enjoyment, including education and 

interpretation, of park resources, while preventing unacceptable impacts;

pass on to future generations natural, cultural, and physical resources that meet desired 

conditions better than they do today, along with improved opportunities for enjoyment. 
Introduction

Law, Policy, and Other Guidance

This volume is the basic Service-wide policy document of 

the National Park Service. Adherence to policy is mandatory 

unless specifi cally waived or modifi ed by the Secretary, 

the Assistant Secretary, or the Director.
MANAGEMENT POLICIES 2006

4 In carrying out their responsibilities under the 1916 

National Park Service1

 Organic Act and other pertinent 

statutes, all NPS offi cials and employees must be 

knowledgeable about the laws, regulations, and policies 

that pertain to their work. The property clause of the U.S. 

Constitution, which is the supreme law of the United States, 

gives Congress the authority to develop laws governing the 

management of the national park system. The property 

clause specifi cally directs that “The Congress will have 

the Power to dispose of and make all needful Rules and 

Regulations respecting the Territory or other Property 

belonging to the United States” (article IV, section 3). 

Once laws are enacted, authority for interpreting and 

implementing them is delegated to appropriate levels of 

government. In carrying out this function, the National 

Park Service, like other federal agencies, develops policy to 

interpret the ambiguities of the law and to fi ll in the details 

left unaddressed by Congress in the statutes. 

Hierarchy of Authorities 

The management of the national park system and NPS 

programs is guided by the Constitution, public laws, 

treaties, proclamations, executive orders, regulations, and 

directives of the Secretary of the Interior and the Assistant 

Secretary for Fish and Wildlife and Parks. NPS policy 

must be consistent with these higher authorities and with 

appropriate delegations of authority. Many of the public 

laws and other guidance aff ecting the various facets of NPS 

administration and management are cited for reference 

purposes throughout these Management Policies. Other 

laws, regulations, and policies related to the administration 

of federal programs, although not cited, may also apply. For 

example, many, but not all, of the legislative requirements 

of the Alaska National Interest Lands Conservation 

Act (ANILCA) are cited at diff erent places throughout 

these Management Policies. The additional legislative 

requirements of ANILCA, although not cited, must also 

be considered in the interpretation and application of 

these policies, as must all other applicable legislative 

requirements. It is especially important that superintendents 

and other park staff review their park’s enabling legislation 

to determine whether it contains explicit guidance that 

would prevail over Service-wide policy. 

Policy Development 

Policy sets the framework and provides direction for all 

management decisions. This direction may be general 

or specifi c; it may prescribe the process through which 

decisions are made, how an action is to be accomplished, or 

the results to be achieved. Policy initiatives may originate 

as a sudden, urgent response to an unanticipated problem 

or issue, or through a slow, evolutionary process as the Park 

Service gains increased experience or insight regarding 

a problem or issue. Sometimes the initiative does not 

originate within the Park Service, but rather with persons 

or organizations outside the Park Service who have a strong 

interest in how the Service manages the parks. However, 

NPS policy is usually developed through a concerted 

workgroup and consensus-building team eff ort involving 

extensive fi eld review, consultation with NPS senior 

managers, and review and comment by aff ected parties and 

the general public.

All policy must be articulated in writing and must be 

approved by an NPS offi cial who has been delegated 

authority to issue the policy. Policy must be published or 

otherwise made available to the public—particularly those 

whom it aff ects—and those who must implement it in the 

Washington offi ce, regional offi ces, and parks. Unwritten 

or informal “policy,” and various understandings of NPS 

traditional practices, will not be recognized as offi cial 

policy. 

Compliance, Accountability, and Enforceability 

Service-wide policy is articulated by the Director of the 

National Park Service. NPS employees must follow these 

policies unless specifi cally waived or modifi ed in writing 

by the Secretary, the Assistant Secretary, or the Director. 

Waivers and modifi cations will be considered on a case-bycase basis, and previous waivers or modifi cations will not 

necessarily be regarded as precedents for future waivers 

or modifi cations. A request for a waiver or modifi cation of 

policy must include a written justifi cation and be submitted 

to the Director through the Offi ce of Policy, which will 

coordinate with appropriate program offi ces. 

The policies contained within this document are intended 

only to improve the internal management of the National 

Park Service; they are not intended to, and do not, create 

any right or benefi t, substantive or procedural, enforceable 

at law or equity by a party against the United States, its 

departments, agencies, instrumentalities or entities, 

its offi cers or employees, or any other person. Park 

superintendents will be held accountable for their and their 

staff ’s, adherence to Service-wide policy.

The Directives System 

This volume of NPS Management Policies is the basic 

Service-wide policy document of the National Park Service, 

superseding the 2001 edition. It is the highest of three levels 

of guidance documents in the NPS Directives System. The 

Directives System is designed to provide NPS management 

and staff with clear and continuously updated information 

on NPS policy and required and/or recommended actions, 

as well as any other information that will help them manage 

parks and programs eff ectively. 

The Management Policies will be revised at appropriate 

intervals to consolidate Service-wide policy decisions, 

or to respond to new laws and technologies, new 

understandings of park resources and the factors that 

aff ect them, or changes in American society. Interim 

updates or amendments may be accomplished through 

director’s orders (the second level of the Directives System), 

which also serve as a vehicle to clarify or supplement the 

 1 The terms “National Park Service,” “Park Service,” “Service,” 

and “NPS” are used interchangeably in this document.
INTRODUCTION

Management Policies to meet the needs of NPS managers. 5

Any previously dated statement of policy not consistent with 

these Management Policies, or with a director’s order that 

updates, amends, or clarifi es policy, is to be disregarded.

Under the Directives System, the most detailed and 

comprehensive guidance on implementing Service-wide 

policy is found in “level 3” documents, which are usually 

in the form of handbooks or reference manuals issued by 

associate directors. These documents provide NPS fi eld 

employees with compilations of legal references, operating 

policies, standards, procedures, general information, 

recommendations, and examples to assist them in 

carrying out Management Policies and director’s orders. 

Level 3 documents may not impose any new Servicewide requirements unless the Director has specifi cally 

authorized them to do so, but they may reiterate or compile 

requirements (for example, laws, regulations, and policies) 

that have been imposed by higher authorities. 

This document is intended to be read in its entirety. While 

certain chapters or sections provide important guidance 

by themselves, that guidance must be supplemented by the 

overriding principles listed below, which provide insight 

into the reading of this document. In addition there is an 

interrelationship among the chapters that provides for 

clarity and continuity for the management of the national 

park system. Also, the glossary contains important terms 

that apply throughout the document and should be 

incorporated into the reading of the document.

Whenever Management Policies are revised in the future 

they should

comply with current laws, regulations, and executive 

orders;

prevent impairment of park resources and values;

ensure that conservation will be predominant when 

there is a confl ict between the protection of resources 

and their use;

maintain NPS responsibility for making decisions and 

for exercising key authorities;

emphasize consultation and cooperation with local/

state/tribal/federal entities;

support pursuit of the best contemporary business 

practices and sustainability;

encourage consistency across the system —

 “one national park system”;

refl ect NPS goals and a commitment to cooperative 

conservation and civic engagement;

employ a tone that leaves no room for misunderstanding 

the Park Service’s commitment to the public’s 

appropriate use and enjoyment, including education 

and interpretation, of park resources, while preventing 

unacceptable impacts;

pass on to future generations natural, cultural and 

physical resources that meet desired conditions better 

than they do today, along with improved opportunities 

for enjoyment.

Other Sources of Guidance 

Instructions, guidance, and directives of regional or 

otherwise-limited application supplementary to and in 

conformance with Service-wide policies may be issued 

by regional directors or associate directors within formal 

delegations of authority. Superintendents may issue, within 

formal delegations of authority, park-specifi c instructions, 

procedures, directives, and other supplementary guidance 

(such as hours of operation or dates for seasonal openings), 

provided that the guidance does not confl ict with Servicewide policy. 

NPS Program Policies 

This volume addresses only those policies applicable 

to management of the national park system. It does not 

address policies applicable to NPS-administered programs 

that serve the conservation and recreation needs of the 

nation, but are not directly related to the national park 

system. Examples include the National Register of Historic 

Places; the National Historic Landmarks Program; the 

National Natural Landmarks Program; the Land and Water 

Conservation Fund Grants Program; the Historic American 

Buildings Survey; the Historic American Engineering 

Record; the Historic American Landscapes Survey; the 

American Battlefi eld Protection Program; the National 

Maritime Heritage Grants Program; the Rivers, Trails and 

Conservation Assistance Program; the Tribal Heritage 

Preservation Grants Program; the Preserve America Grants 

Program; and the National Heritage Areas Program.

The Foundation

Beginning with Yellowstone, the idea of a national park was an 

American invention of historic consequences. The areas that now 

make up the national park system, and those that will be added in 

years to come, are cumulative expressions of a single national heritage. 

The National Park Service must manage park resources and values in 

such manner and by such means as will leave them unimpaired for the 

enjoyment of future generations. 

The idea of a national 

park was an American 

invention of historic

consequences, marking 

the beginning of a 

worldwide movement 

that has subsequently 

spread to more than 

one hundred countries.

1
MANAGEMENT POLICIES 2006

8 1.1 The National Park Idea 

The world’s fi rst national park—Yellowstone—was created 

in 1872, at which time Congress set aside more than one 

million acres as “a public park or pleasuring ground for 

the benefi t and enjoyment of the people.” The legislation 

assigned control of the new park to the Secretary of the 

Interior, who would be responsible for issuing regulations 

to provide for the “preservation, from injury or spoliation, 

of all timber, mineral deposits, natural curiosities, or 

wonders, within the park, and their retention in their 

natural condition.” Other park management functions were 

to include the development of visitor accommodations, 

the construction of roads and bridle trails, the removal of 

trespassers, and protection “against the wanton destruction 

of the fi sh and game found within the park” (16 United 

States Code 21-22). 

This idea of a national park was an American invention 

of historic consequences, marking the beginning of a 

worldwide movement that has subsequently spread to more 

than 100 countries. However, when Yellowstone National 

Park was created, no concept or plan existed upon which 

to build a system of such parks. The concept now described 

as the national park system, which embraces, nationwide, 

a wide variety of natural and cultural resources, evolved 

slowly over the years—often through the consolidation of 

federal land management responsibilities. 

As interest grew in preserving the great scenic wonders of 

the West, eff orts were also underway to protect the sites and 

structures associated with early Native American culture, 

particularly in the Southwest. The Antiquities Act of 1906 

authorized the President “to declare by public proclamation 

[as national monuments] historic landmarks, historic and 

prehistoric structures, and other objects of historic or 

scientifi c interest that are situated upon the lands owned or 

controlled” by the U.S. government (16 USC 431).

In 1916 Congress created the National Park Service in the 

Department of the Interior to promote and regulate the use 

of the federal areas known as national parks, monuments, 

and reservations (16 USC 1). (As noted in the Introduction, 

the terms “National Park Service,” “Park Service,” “Service,” 

and “NPS” are used interchangeably in this document.)

1.2 The National Park System 

The number and diversity of parks within the national park 

system grew as a result of a government reorganization 

in 1933, another following World War II, and yet another 

during the 1960s. Today there are nearly 400 units in the 

national park system. These units are variously designated 

as national parks, monuments, preserves, lakeshores, 

seashores, wild and scenic rivers, trails, historic sites, 

military parks, battlefi elds, historical parks, recreation 

areas, memorials, and parkways. Regardless of the many 

names and offi cial designations of the park units that make 

up the national park system, all represent some nationally 

signifi cant aspect of our natural or cultural heritage. They 

are the physical remnants of our past—great scenic and 

natural places that continue to evolve, repositories of 

outstanding recreational opportunities, classrooms of our 

heritage, and the legacy we leave to future generations—

and they warrant the highest standard of protection. 

It should be noted that, in accordance with provisions of the 

Wild and Scenic Rivers Act, any component of the National 

Wild and Scenic Rivers System that is administered by the 

Park Service is automatically a part of the national park 

system. Although there is no analogous provision in the 

National Trails System Act, several national trails managed 

by the Service have been included in the national park 

system. These national rivers and trails that are part of 

the national park system are subject to the policies 

contained herein, as well as to any other requirements 

specifi ed in the Wild and Scenic Rivers Act or the National 

Trails System Act.

1.3 Criteria for Inclusion 

Congress declared in the National Park System General 

Authorities Act of 1970 that areas comprising the national 

park system are cumulative expressions of a single 

national heritage. Potential additions to the national park 

system should therefore contribute in their own special 

way to a system that fully represents the broad spectrum 

of natural and cultural resources that characterize our 

nation. The National Park Service is responsible for 

conducting professional studies of potential additions to 

the national park system when specifi cally authorized by 

an act of Congress, and for making recommendations to 

the Secretary of the Interior, the President, and Congress. 

Several laws outline criteria for units of the national park 

system and for additions to the National Wild and Scenic 

Rivers System and the National Trails System.

To receive a favorable recommendation from the Service, 

a proposed addition to the national park system must 

(1) possess nationally signifi cant natural or cultural 

resources, (2) be a suitable addition to the system, (3) be a 

feasible addition to the system, and (4) require direct NPS 

management instead of protection by other public agencies 

or the private sector. These criteria are designed to ensure 

that the national park system includes only the most 

outstanding examples of the nation’s natural and cultural 

resources. These criteria also recognize that there are 

other management alternatives for preserving the nation’s 

outstanding resources. 

1.3.1 National Signifi cance 

NPS professionals, in consultation with subject-matter 

experts, scholars, and scientists, will determine whether a 

resource is nationally signifi cant. An area will be considered 

nationally signifi cant if it meets all of the following criteria:

It is an outstanding example of a particular type of 

resource. 

It possesses exceptional value or quality in illustrating 

or interpreting the natural or cultural themes of our 

nation’s heritage. 
It off ers superlative opportunities for public enjoyment 

or for scientifi c study. 

It retains a high degree of integrity as a true, accurate, 

and relatively unspoiled example of a resource.

National signifi cance for cultural resources will be 

evaluated by applying the National Historic Landmarks 

criteria contained in 36 CFR Part 65 (Code of Federal 

Regulations). 

1.3.2 Suitability 

An area is considered suitable for addition to the national 

park system if it represents a natural or cultural resource 

type that is not already adequately represented in the 

national park system, or is not comparably represented and 

protected for public enjoyment by other federal agencies; 

tribal, state, or local governments; or the private sector. 

Adequacy of representation is determined on a case-bycase basis by comparing the potential addition to other 

comparably managed areas representing the same resource 

type, while considering diff erences or similarities in the 

character, quality, quantity, or combination of resource 

values. The comparative analysis also addresses rarity 

of the resources, interpretive and educational potential, 

and similar resources already protected in the national 

park system or in other public or private ownership. The 

comparison results in a determination of whether the 

proposed new area would expand, enhance, or duplicate 

resource protection or visitor use opportunities found in 

other comparably managed areas.

1.3.3 Feasibility 

To be feasible as a new unit of the national park system, 

an area must be (1) of suffi cient size and appropriate 

confi guration to ensure sustainable resource protection and 

visitor enjoyment (taking into account current and potential 

impacts from sources beyond proposed park boundaries), 

and (2) capable of effi cient administration by the Service at a 

reasonable cost.

In evaluating feasibility, the Service considers a variety of 

factors for a study area, such as the following:

size

boundary confi gurations

current and potential uses of the study area and 

surrounding lands

landownership patterns

public enjoyment potential

costs associated with acquisition, development, 

restoration, and operation

access

current and potential threats to the resources

existing degradation of resources

staffi ng requirements

local planning and zoning

the level of local and general public support (including 

landowners)

the economic/socioeconomic impacts of designation as 

a unit of the national park system

The feasibility evaluation also considers the ability of the 

National Park Service to undertake new management 

responsibilities in light of current and projected availability 

of funding and personnel. 

An overall evaluation of feasibility will be made after taking 

into account all of the above factors. However, evaluations 

may sometimes identify concerns or conditions, rather than 

simply reach a yes or no conclusion. For example, some new 

areas may be feasible additions to the national park system 

only if landowners are willing to sell, or the boundary 

encompasses specifi c areas necessary for visitor access, 

or state or local governments will provide appropriate 

assurances that adjacent land uses will remain compatible 

with the study area’s resources and values. 

1.3.4 Direct NPS Management 

There are many excellent examples of the successful 

management of important natural and cultural resources by 

other public agencies, private conservation organizations, 

and individuals. The National Park Service applauds these 

accomplishments and actively encourages the expansion 

of conservation activities by state, local, and private 

entities and by other federal agencies. Unless direct NPS 

management of a studied area is identifi ed as the clearly 

superior alternative, the Service will recommend that one or 

more of these other entities assume a lead management role, 

and that the area not receive national park system status. 

Studies will evaluate an appropriate range of management 

alternatives and will identify which alternative or 

combination of alternatives would, in the professional 

judgment of the Director, be most eff ective and effi cient 

in protecting signifi cant resources and providing 

opportunities for appropriate public enjoyment. 

Alternatives for NPS management will not be developed for 

study areas that fail to meet any one of the four criteria for 

inclusion listed in section 1.3. 

In cases where a study area’s resources meet criteria for 

national signifi cance but do not meet other criteria for 

inclusion in the national park system, the Service may 

instead recommend an alternative status, such as “affi liated 

area.” To be eligible for affi liated area status, the area’s 

resources must (1) meet the same standards for signifi cance 

and suitability that apply to units of the national park 

system; (2) require some special recognition or technical 

assistance beyond what is available through existing NPS 

programs; (3) be managed in accordance with the policies 

and standards that apply to units of the national park 

system; and (4) be assured of sustained resource protection, 

as documented in a formal agreement between the Service 

and the nonfederal management entity. Designation as a 

“heritage area” is another option that may be recommended. 

Heritage areas have a nationally important, distinctive 

assemblage of resources that is best managed for 

FOUNDATION 1.1-1.3

9
MANAGEMENT POLICIES 2006

10 conservation, recreation, education, and continued use 

through partnerships among public and private entities at 

the local or regional level. Either of these two alternatives 

(and others as well) would recognize an area’s importance 

to the nation without requiring or implying management by 

the National Park Service. 

(See National Signifi cance 1.3.1; Suitability 1.3.2)

1.4 Park Management 

1.4.1 The Laws Generally Governing 

 Park Management 

The most important statutory directive for the National 

Park Service is provided by interrelated provisions of the 

NPS Organic Act of 1916 and the NPS General Authorities 

Act of 1970, including amendments to the latter law enacted 

in 1978. 

The key management-related provision of the Organic Act is 

as follows: 

 [The National Park Service] shall promote and regulate 

the use of the Federal areas known as national parks, 

monuments, and reservations hereinafter specifi ed...

 by such means and measures as conform to the 

fundamental purpose of the said parks, monuments, 

and reservations, which purpose is to conserve the 

scenery and the natural and historic objects and the 

wild life therein and to provide for the enjoyment of 

the same in such manner and by such means as will 

leave them unimpaired for the enjoyment of future 

generations. (16 USC 1) 

Congress supplemented and clarifi ed these provisions 

through enactment of the General Authorities Act in 1970, 

and again through enactment of a 1978 amendment to 

that act (the “Redwood amendment,” contained in a bill 

expanding Redwood National Park), which added the last 

two sentences in the following provision. The key part of 

that act, as amended, is as follows: 

 Congress declares that the national park system, which 

began with establishment of Yellowstone National 

Park in 1872, has since grown to include superlative 

natural, historic, and recreation areas in every major 

region of the United States, its territories and island 

possessions; that these areas, though distinct in 

character, are united through their inter-related 

purposes and resources into one national park system 

as cumulative expressions of a single national heritage; 

that, individually and collectively, these areas derive 

increased national dignity and recognition of their 

superlative environmental quality through their 

inclusion jointly with each other in one national park 

system preserved and managed for the benefi t and 

inspiration of all the people of the United States; and 

that it is the purpose of this Act to include all such areas 

in the System and to clarify the authorities applicable 

to the system. Congress further reaffi rms, declares, 

and directs that the promotion and regulation of the 

various areas of the National Park System, as defi ned 

in section 1c of this title, shall be consistent with and 

founded in the purpose established by section 1 of this 

title [the Organic Act provision quoted above], to the 

common benefi t of all the people of the United States. 

The authorization of activities shall be construed 

and the protection, management, and administration 

of these areas shall be conducted in light of the high 

public value and integrity of the National Park System 

and shall not be exercised in derogation of the values 

and purposes for which these various areas have been 

established, except as may have been or shall be directly 

and specifi cally provided by Congress. (16 USC 1a-1) 

This section 1.4 of Management Policies represents the 

agency’s interpretation of these key statutory provisions. 

1.4.2 “Impairment” and “Derogation”: 

 One Standard 

Congress intended the language of the Redwood 

amendment to the General Authorities Act to reiterate the 

provisions of the Organic Act, not create a substantively 

diff erent management standard. The House committee 

report described the Redwood amendment as a “declaration 

by Congress” that the promotion and regulation of the 

national park system is to be consistent with the Organic 

Act. The Senate committee report stated that under the 

Redwood amendment, “The Secretary has an absolute duty, 

which is not to be compromised, to fulfi ll the mandate of the 

1916 Act to take whatever actions and seek whatever relief 

as will safeguard the units of the national park system.” 

So, although the Organic Act and the General Authorities 

Act, as amended by the Redwood amendment, use diff erent 

wording (“unimpaired” and “derogation”) to describe what 

the National Park Service must avoid, they defi ne a single 

standard for the management of the national park system—

not two diff erent standards. For simplicity, Management 

Policies uses “impairment” (or a variation thereof), not both 

statutory phrases, to refer to that single standard. 

1.4.3 The NPS Obligation to Conserve and Provide 

for Enjoyment of Park Resources and Values 

The fundamental purpose of the national park system, 

established by the Organic Act and reaffi rmed by the 

General Authorities Act, as amended, begins with a mandate 

to conserve park resources and values. This mandate is 

independent of the separate prohibition on impairment and 

applies all the time with respect to all park resources and 

values, even when there is no risk that any park resources 

or values may be impaired. NPS managers must always 

seek ways to avoid, or to minimize to the greatest extent 

practicable, adverse impacts on park resources and values. 

However, the laws do give the Service the management 

discretion to allow impacts to park resources and values 

when necessary and appropriate to fulfi ll the purposes of a 

park, so long as the impact does not constitute impairment 

of the aff ected resources and values. 

The fundamental purpose of all parks also includes 

providing for the enjoyment of park resources and values 

by the people of the United States. The enjoyment that is 

contemplated by the statute is broad; it is the enjoyment of 

all the people of the United States and includes enjoyment 

both by people who visit parks and by those who appreciate 
them from afar. It also includes deriving benefi t (including 

scientifi c knowledge) and inspiration from parks, as well 

as other forms of enjoyment and inspiration. Congress, 

recognizing that the enjoyment by future generations 

of the national parks can be ensured only if the superb 

quality of park resources and values is left unimpaired, has 

provided that when there is a confl ict between conserving 

resources and values and providing for enjoyment of them, 

conservation is to be predominant. This is how courts have 

consistently interpreted the Organic Act. 

1.4.3.1 Park Purposes and Legislatively 

 Authorized Uses

Park purposes are found in the general laws pertaining to 

the national park system, as well as the enabling legislation 

or proclamation establishing each unit. In addition to 

park purposes, in many cases the enabling legislation or 

proclamation for a park unit may also identify uses that 

are either mandated or authorized. In the administration 

of mandated uses, park managers must allow the use; 

however, they do have the authority to and must manage 

and regulate the use to ensure, to the extent possible, that 

impacts on park resources from that use are acceptable. 

In the administration of authorized uses, park managers 

have the discretionary authority to allow and manage 

the use, provided that the use will not cause impairment 

or unacceptable impacts. In determining whether or 

how to allow the use, park managers must consider the 

congressional or presidential interest, as expressed in 

the enabling legislation or proclamation, that the use or 

uses continue. Where there is strong public interest in a 

particular use, opportunities for civic engagement and 

cooperative conservation should be factored into the 

decision-making process. 

(See Unacceptable Impacts 1.4.7.1; Civic Engagement 1.7; 

Major Elements of NPS Park Planning and Decision-making 

2.2; General 8.1) 

1.4.4 The Prohibition on Impairment of Park 

Resources and Values 

While Congress has given the Service the management 

discretion to allow impacts within parks, that discretion is 

limited by the statutory requirement (generally enforceable 

by the federal courts) that the Park Service must leave 

park resources and values unimpaired unless a particular 

law directly and specifi cally provides otherwise. This, the 

cornerstone of the Organic Act, establishes the primary 

responsibility of the National Park Service. It ensures 

that park resources and values will continue to exist in 

a condition that will allow the American people to have 

present and future opportunities for enjoyment of them. 

The impairment of park resources and values may not 

be allowed by the Service unless directly and specifi cally 

provided for by legislation or by the proclamation 

establishing the park. The relevant legislation or 

proclamation must provide explicitly (not by implication 

or inference) for the activity, in terms that keep the Service 

from having the authority to manage the activity so as to 

avoid the impairment. 

1.4.5 What Constitutes Impairment of 

 Park Resources and Values 

The impairment that is prohibited by the Organic Act 

and the General Authorities Act is an impact that, in the 

professional judgment of the responsible NPS manager, 

would harm the integrity of park resources or values, 

including the opportunities that otherwise would be present 

for the enjoyment of those resources or values. Whether 

an impact meets this defi nition depends on the particular 

resources and values that would be aff ected; the severity, 

duration, and timing of the impact; the direct and indirect 

eff ects of the impact; and the cumulative eff ects of the 

impact in question and other impacts. 

An impact to any park resource or value may, but does not 

necessarily, constitute an impairment. An impact would be 

more likely to constitute impairment to the extent that it 

aff ects a resource or value whose conservation is

necessary to fulfi ll specifi c purposes identifi ed in the 

establishing legislation or proclamation of the park, or

key to the natural or cultural integrity of the park or to 

opportunities for enjoyment of the park, or 

identifi ed in the park’s general management plan or 

other relevant NPS planning documents as being of 

signifi cance. 

An impact would be less likely to constitute an impairment if 

it is an unavoidable result of an action necessary to preserve 

or restore the integrity of park resources or values and it 

cannot be further mitigated. 

An impact that may, but would not necessarily, lead to 

impairment may result from visitor activities; NPS 

administrative activities; or activities undertaken by 

concessioners, contractors, and others operating in the 

park. Impairment may also result from sources or activities 

outside the park. This will be addressed consistent with 

sections 1.6 and 1.7 on Cooperative Conservation and Civic 

Engagement.

(See Unacceptable Impacts 1.4.7.1)

1.4.6 What Constitutes Park Resources and Values 

The “park resources and values” that are subject to the 

no-impairment standard include

the park’s scenery, natural and historic objects, and 

wildlife, and the processes and conditions that sustain 

them, including, to the extent present in the park: the 

ecological, biological, and physical processes that 

created the park and continue to act upon it; scenic 

features; natural visibility, both in daytime and at night; 

natural landscapes; natural soundscapes and smells; 

water and air resources; soils; geological resources; 

paleontological resources; archeological resources; 

cultural landscapes; ethnographic resources; historic 

and prehistoric sites, structures, and objects; museum 

collections; and native plants and animals;

appropriate opportunities to experience enjoyment 

of the above resources, to the extent that can be done 

without impairing them; 

FOUNDATION 1.3-1.4

11
MANAGEMENT POLICIES 2006

12 the park’s role in contributing to the national dignity, 

the high public value and integrity, and the superlative 

environmental quality of the national park system, and 

the benefi t and inspiration provided to the American 

people by the national park system; and 

any additional attributes encompassed by the specifi c 

values and purposes for which the park was established. 

(See introduction to chapter 4)

1.4.7 Decision-making Requirements to 

 Identify and Avoid Impairments

Before approving a proposed action that could lead to an 

impairment of park resources and values, an NPS decisionmaker must consider the impacts of the proposed action and 

determine, in writing, that the activity will not lead to an 

impairment of park resources and values. If there would be 

an impairment, the action must not be approved. 

In making a determination of whether there would be 

an impairment, an NPS decision-maker must use his or 

her professional judgment. This means that the decisionmaker must consider any environmental assessments or 

environmental impact statements required by the National 

Environmental Policy Act of 1969 (NEPA); consultations 

required under section 106 of the National Historic 

Preservation Act (NHPA), relevant scientifi c and scholarly 

studies; advice or insights off ered by subject matter experts 

and others who have relevant knowledge or experience; 

and the results of civic engagement and public involvement 

activities relating to the decision. The same application of 

professional judgment applies when reaching conclusions 

about “unacceptable impacts.” 

When an NPS decision-maker becomes aware that an 

ongoing activity might have led or might be leading to 

an impairment of park resources or values, he or she 

must investigate and determine if there is or will be an 

impairment. This investigation and determination may be 

made independent of, or as part of, a park planning process 

undertaken for other purposes. If it is determined that 

there is, or will be, an impairment, the decision-maker must 

take appropriate action, to the extent possible within the 

Service’s authorities and available resources, to eliminate 

the impairment. The action must eliminate the impairment 

as soon as reasonably possible, taking into consideration 

the nature, duration, magnitude, and other characteristics 

of the impacts on park resources and values, as well as the 

requirements of the National Environmental Policy Act, 

National Historic Preservation Act, the Administrative 

Procedure Act, and other applicable laws.

(See Levels of Park Planning 2.3; Evaluating Impacts on 

Natural Resources 4.1.3; Planning 5.2; General 8.1; Visitor Use 

8.2; General 9.1; Glossary defi nition of Professional Judgment. 

Also see Director’s Order #12: Conservation Planning, 

Environmental Impact Analysis, and Decision-making) 

1.4.7.1 Unacceptable Impacts

The impact threshold at which impairment occurs is not 

always readily apparent. Therefore, the Service will apply a 

standard that off ers greater assurance that impairment will 

not occur. The Service will do this by avoiding impacts that 

it determines to be unacceptable. These are impacts that 

fall short of impairment, but are still not acceptable within 

a particular park’s environment. Park managers must not 

allow uses that would cause unacceptable impacts; they 

must evaluate existing or proposed uses and determine 

whether the associated impacts on park resources and 

values are acceptable.

Virtually every form of human activity that takes place 

within a park has some degree of eff ect on park resources or 

values, but that does not mean the impact is unacceptable 

or that a particular use must be disallowed. Therefore, for 

the purposes of these policies, unacceptable impacts are 

impacts that, individually or cumulatively, would 

be inconsistent with a park’s purposes or values, or

impede the attainment of a park’s desired future 

conditions for natural and cultural resources as 

identifi ed through the park’s planning process, or

create an unsafe or unhealthful environment for visitors 

or employees, or

diminish opportunities for current or future 

generations to enjoy, learn about, or be inspired by park 

resources or values, or

unreasonably interfere with 

 park programs or activities, or

 an appropriate use, or

 the atmosphere of peace and tranquility, or the 

natural soundscape maintained in wilderness and 

natural, historic, or commemorative locations 

within the park.

 NPS concessioner or contractor operations or 

services.

The following graphic illustrates the relationship between 

appropriate use, unacceptable impacts and impairment.

Opportunity to provide 

appropriate use

Unacceptable Impacts

Managing for Resource Conservation

Too

Much

Impact

No

Impact

Per

Organic

Act

IMPAIRMENT

(See Appropriate Use of the Parks 1.5; General 8.1) 

1.4.7.2 Improving Resource Conditions 

 within the Parks

The Service will also strive to ensure that park resources 

and values are passed on to future generations in a condition 

that is as good as, or better than, the conditions that exist 

today. In particular, the Service will strive to restore the 

integrity of park resources that have been damaged or 
compromised in the past. Restoration activities will be 

guided by the natural and cultural resource-specifi c policies 

identifi ed in chapters 4 and 5 of these Management Policies.

(See Planning for Natural Resource Management 4.1.1; 

Restoration of Natural Systems 4.1.5; Compensation for 

Injuries to Natural Resources 4.1.6; Restoration of Native 

Plant and Animal Species 4.4.2.2; Restoration (of Cultural 

Landscapes) 5.3.5.2.3; Restoration (of Historic and Prehistoric 

Structures) 5.3.5.4.3; Restoration (of Museum Collections) 

5.3.5.5.2. Also see Director’s Order #12 and Handbook.)

1.5 Appropriate Use of the Parks

The National Park Service embraces appropriate use of the 

parks because these uses are key to the enjoyment of the 

parks and the appreciation and inspiration derived from the 

resources. Park resources have profound eff ects on those 

who experience them through appropriate park uses. An 

“appropriate use” is a use that is suitable, proper, or fi tting 

for a particular park, or to a particular location within a 

park. Not all uses are appropriate or allowable in units of the 

national park system, and what is appropriate may vary from 

one park to another and from one location to another within 

a park. 

In its role as steward of park resources, the National 

Park Service must ensure that park uses that are allowed 

would not cause impairment of, or unacceptable impacts 

on, park resources and values. When proposed park uses 

and the protection of park resources and values come 

into confl ict, the protection of resources and values must 

be predominant. A new form of park use may be allowed 

within a park only after a determination has been made 

in the professional judgment of the superintendent that it 

will not result in unacceptable impacts. The National Park 

Service will always consider allowing activities that are 

appropriate to the parks, although conditions may preclude 

certain activities or require that limitations be placed on 

them. Park superintendents must continually monitor 

all park uses to prevent unanticipated and unacceptable 

impacts. If unanticipated and unacceptable impacts 

emerge, the superintendent must engage in a thoughtful, 

deliberate process to further manage or constrain the use, or 

discontinue it.

Appropriate visitor enjoyment is often associated with the 

inspirational qualities of the parks. As a general matter, 

preferred forms of enjoyment are those that are uniquely 

suited to the superlative natural and cultural resources 

found in the parks and that (1) foster an understanding 

of and appreciation for park resources and values, or (2) 

promote enjoyment through a direct association with, 

interaction with, or relation to park resources. 

These preferred forms of use contribute to the personal 

growth and well-being of visitors by taking advantage of 

the inherent educational value of parks. Equally important, 

many appropriate uses also contribute to the health and 

personal fi tness of park visitors. These are the types of uses 

that the Service will actively promote, in accordance with 

the Organic Act. Other forms of park uses may be allowed 

within a park in accordance with the policies found in 

chapter 8. 

(See Park Purposes and Legislatively Authorized Uses 1.4.3.1; 

Chapter 2, Park System Planning; Process for Determining 

New Appropriate Uses 8.1.2. Also see Director’s Order #17: 

National Park Service Tourism; 36 CFR 1.5)

1.6 Cooperative Conservation 

 Beyond Park Boundaries 

Cooperative conservation beyond park boundaries is 

necessary as the National Park Service strives to fulfi ll its 

mandate to preserve the natural and cultural resources 

of parks unimpaired for future generations. Ecological 

processes cross park boundaries, and park boundaries may 

not incorporate all of the natural resources, cultural sites, 

and scenic vistas that relate to park resources or the quality 

of the visitor experience. Therefore, activities proposed 

for adjacent lands may signifi cantly aff ect park programs, 

resources, and values. Conversely, NPS activities may have 

impacts outside park boundaries. Recognizing that parks 

are integral parts of larger regional environments, and to 

support its primary concern of protecting park resources 

and values, the Service will work cooperatively with 

others to

anticipate, avoid, and resolve potential confl icts;

protect park resources and values;

provide for visitor enjoyment; and

address mutual interests in the quality of life of 

community residents, including matters such as 

compatible economic development and resource and 

environmental protection.

Such local and regional cooperation may involve other 

federal agencies; tribal, state, and local governments; 

neighboring landowners; nongovernmental and private 

sector organizations; and all other concerned parties. 

The Service will do these things because cooperative 

conservation activities are a vital element in establishing 

relationships that will benefi t the parks and in fostering 

decisions that are sustainable.

The Service will use all available tools to protect park 

resources and values from unacceptable impacts. The 

Service will also seek to advance opportunities for 

conservation partnerships. Superintendents will monitor 

land use proposals, changes to adjacent lands, and external 

activities for their potential impacts on park resources 

and values. It is appropriate for superintendents to engage 

constructively with the broader community in the same 

way that any good neighbor would. Superintendents will 

encourage compatible adjacent land uses and seek to avoid 

and mitigate potential adverse impacts on park resources 

and values by actively participating in the planning and 

regulatory processes of other federal agencies and tribal, 

state, and local governments having jurisdiction over 

property aff ecting, or aff ected by, the park. If a decision is 

FOUNDATION 1.4-1.6

13
MANAGEMENT POLICIES 2006

14 made or is imminent that will result in unacceptable impacts 

on park resources, superintendents must take appropriate 

action, to the extent possible within the Service’s authorities 

and available resources, to manage or constrain the use 

to minimize impacts. When engaged in these activities, 

superintendents should fully apply the principles of 

civic engagement to promote better understanding and 

communication by (1) documenting the park’s concerns and 

sharing them with all who are interested, and (2) listening to 

the concerns of those who are aff ected by the park’s actions. 

The Service will also cooperate with federal, state, local, and 

tribal governments, as well as individuals and organizations, 

to advance the goal of creating seamless networks of parks. 

These partnership activities are intended to establish 

corridors that link together, both physically and with a 

common sense of purpose, open spaces such as those found 

in parks, other protected areas, and compatibly managed 

private lands. The Service’s goals in participating in a park 

network will be to increase protection and enhancement of 

biodiversity and to create a greater array of educational and 

appropriate recreational opportunities. When participating 

in a park network, the Service will not relinquish any of its 

authority to manage areas under its jurisdiction, nor will it 

expect other partners to relinquish theirs. 

(See Civic Engagement 1.7; Cooperative Planning 2.3.1.8; 

Cooperative Conservation 3.4; Chapter 4, Natural Resource 

Management. Also see Director’s Order #17: National Park 

Service Tourism; Director’s Order #75A: Civic Engagement 

and Public Involvement)

1.7 Civic Engagement

The Service will embrace civic engagement as a fundamental 

discipline and practice. The Service’s commitment to 

civic engagement is founded on the central principle that 

preservation of the nation’s heritage resources relies on 

continued collaborative relationships between the Service 

and American society. Civic engagement will be viewed as a 

commitment to building and sustaining relationships with 

neighbors and other communities of interest—both near 

and far. This will require that the Service communicate 

by both talking and listening. Through its practice of civic 

engagement, the Service will actively encourage a two-way, 

continuous, and dynamic conversation with the public. 

Civic engagement will take place on many levels to 

strengthen understanding of the full meaning and 

contemporary relevance of park resources and values. The 

goal of civic engagement will be to reinforce the Service’s 

and the public’s commitment to the preservation and 

stewardship of cultural and natural heritage resources.

The Service will welcome people to enjoy their parks in 

appropriate, sustainable ways. This practice will promote 

civic responsibility by building long-term, collaborative 

relationships with a broad range of communities, which 

in turn will foster a widespread investment in stewardship 

of the nation’s resources. Park and program managers 

will seek opportunities to work in partnership with 

all interested parties to jointly sponsor, develop, and 

promote public involvement activities and thereby improve 

mutual understanding, decisions, and work products. 

Through these eff orts the Service will also learn from the 

communities it serves, including gateway communities.

A better understanding of the changing demographics 

of our nation is critical to the future of the National Park 

Service. The Park Service must actively seek to understand 

the values and connections our changing population has 

or does not have for natural and cultural heritage if it is to 

remain responsive and relevant to public needs and desires. 

This includes understanding why people do or do not visit—

or care—about national parks. It is vital that the Service 

help those who do not visit to understand and support their 

national park system.

(See Relationship with American Indian Tribes 1.11. Also 

see Director’s Order #75A: Civic Engagement and Public 

Involvement)

1.8 Environmental Leadership 

Given the scope of its responsibility for the resources and 

values entrusted to its care, the Service has an obligation to 

demonstrate and work with others to promote leadership in 

environmental stewardship. The Park Service must set an 

example not only for visitors, other governmental agencies, 

the private sector, and the public at large, but also for a 

worldwide audience. Touching so many lives, the Service’s 

management of the parks presents a unique opportunity to 

awaken the potential of each individual to play a proactive 

role in protecting the environment. 

Environmental leadership will be demonstrated in all 

aspects of NPS activities, including policy development; 

park planning; all aspects of park operations; land 

protection; natural and cultural resource management; 

wilderness management; interpretation and education; 

facilities design, construction, and management; 

and commercial visitor services. In demonstrating 

environmental leadership, the Service will (1) fully comply 

with the letter and the spirit of the National Environmental 

Policy Act and the National Historic Preservation Act, and 

(2) continually assess the impact its operations have on 

natural and cultural resources so that it may identify areas 

for improvement. The Service will institute a Service-wide 

environmental auditing program that will evaluate a broad 

array of NPS activities to ensure that they meet the highest 

standards for environmental protection and compliance. 

The program will also screen for opportunities to 

implement sustainable practices and tangibly demonstrate 

the highest levels of environmental ethic. 

(See Facility Planning and Design 9.1.1) 

1.9 Management Excellence

Successful and sustained accomplishment of the Service’s 

mission requires sound professional judgment and attentive 

employment of the most eff ective and effi cient business 
principles and practices. Opportunities to protect resources 

and provide opportunities for public enjoyment will be 

severely limited unless park managers can demonstrate 

their responsibility to and accountability for concepts 

ranging from competent management of information 

technology and fi nances to the successful management and 

development of human resources.

(See Introduction—Compliance, Accountability and 

Enforceability)

1.9.1 Human Resources 

The Service will pursue a human resources program that 

is comprehensive, that is based on competency, and that 

encompasses the entire workforce, including employees, 

volunteers, contractors, concession employees, interns, and 

partners. 

1.9.1.1 Career Development, Training, and 

Management

Employee development helps organizations achieve 

greater success. The goals of the Park Service’s employee 

development activities are to help employees strengthen 

their skills, knowledge, and experiences, as well as to 

promote broader employee engagement in the NPS mission. 

Employee development planning and strategies will be 

directly linked to core competencies and ensure the highest 

return on investment for the organization. Employees will 

also have opportunities to broaden their experiences and 

to progress in their careers through continuing education, 

undergraduate and graduate level courses, seminars, 

training, teaching, attendance at professional workshops 

and conferences, and other programs sponsored by 

scholarly institutions. In accordance with section 102 of 

the National Parks Omnibus Management Act of 1998 (16 

USC 5912), the Park Service will implement a comprehensive 

training program for employees in all professional careers 

and a goal of ensuring that the workforce has the best, 

up-to-date knowledge, skills, and abilities with which to 

manage, interpret, and protect the resources of the national 

park system.

1.9.1.2 Succession Planning

The Service will develop the capacity to supply future 

leadership through a strategic and conscious eff ort to 

develop a diverse workforce with the potential to take 

on leadership positions. This process will include a 

collaborative eff ort among all possible interests (including 

pre-employment/educational institutions) to prepare 

employees to meet the needs for leadership talent over time. 

The Service will cultivate talent for the short term and the 

long term to ensure the availability of a suffi cient number of 

people who refl ect the diversity of America.

In accordance with section 103 of the National Parks 

Omnibus Management Act of 1998 (16 USC 5913), the 

Service will implement a management training and 

development plan whereby career, professional NPS 

employees from any appropriate academic fi eld may 

obtain suffi cient training, experience, and advancement 

opportunity to enable those qualifi ed to move into park 

management positions, including the position of park 

superintendent. Similar eff orts will be made for central 

offi ce positions.

1.9.1.3 Workforce Planning

The Service will implement a process to

evaluate the workforce; 

identify the competencies needed by the workforce in 

each of the career fi elds;

evaluate present and future trends;

develop strategies to address competency gaps;

benchmark best practices; and

develop a plan that will allow the Service to meet 

mission and strategic goals.

In concert with employee development and succession 

planning, workforce planning will ensure that all elements 

of the workforce are provided the orientation and training 

necessary to support the NPS mission.

1.9.1.4 Employee Safety and Health

The safety and health of employees, contractors, volunteers, 

and the public are core Service values. In making decisions 

on matters concerning employee safety and health, NPS 

managers must exercise good judgment and discretion and, 

above all, keep in mind that the safeguarding of human life 

must not be compromised. The Service must ensure that all 

employees are trained and informed on how to do their jobs 

safely, and that they have the necessary clothing, materials, 

and equipment to perform their duties with minimal 

personal risk. 

(See Visitor Safety and Emergency Response 8.2.5)

1.9.1.5 Workforce Diversity

The Park Service will continue to seek ways to achieve 

its workforce diversity goals and to recognize workforce 

diversity as a sound business practice. Success in achieving 

workforce diversity will also enhance the Service’s ability 

to more successfully connect with park visitors who 

represent America’s diverse population. Continuing eff orts 

will be made to increase public awareness of employment 

opportunities and to develop partnerships with diverse 

populations and organizations for the purpose of improving 

workforce diversity.

1.9.1.6 Volunteers in the Parks

Increasingly, American citizens who are not employed by 

the Service make important contributions by supplementing 

the eff orts of the NPS workforce. The Service welcomes 

their eff orts and will continue to use its authority under the 

Volunteers in the Parks Act of 1969 to 

protect park resources and values; 

improve its service to the public; 

foster stronger ties with the pubic; and 

provide opportunities for the public to learn about and 

experience the parks.

FOUNDATION 1.6-1.9

15
MANAGEMENT POLICIES 2006

16 Pursuant to this statute, volunteers may be recruited 

without regard to civil service regulations; are covered for 

tort liability and work-injury compensation; and may be 

reimbursed for out-of-pocket expenses while participating 

in the program. However, volunteers cannot be used for 

law enforcement work or in policymaking processes, 

or to displace NPS employees. Volunteers may perform 

hazardous duties only if they possess the necessary skills 

to perform the duties assigned to them. Volunteers will be 

accepted without regard to race, creed, religion, age, sex, 

color, national origin, disability, or sexual orientation. NPS 

housing may be used for volunteers. 

(See Volunteers in Parks 7.6.1. Also see Director’s Order #7: 

Volunteers in Parks, and associated Reference Manual 7) 

1.9.2 Managing Information 

The future of individual parks and of the Service as 

an accountable organization depends heavily on (1) 

the availability, management, and dissemination of 

comprehensive information, and (2) the Service’s success in 

the long-term preservation of, management of, and access 

to that information. NPS information resources exist 

in a variety of diff erent media, including paper records, 

electronic documents, maps, databases, photographs, 

videos, and audio recordings. The Service will implement 

professional quality programs to preserve, manage, and 

integrate these resources and make them accessible. 

The Service will also use tools and technologies that will 

enhance 

information capture in permanent and durable forms; 

information management that is required by NPS policy 

and by legal and professional standards, including 

information security; 

management of electronic, textual, and audiovisual 

information resources, including still images, for 

continuous accessibility by NPS staff and the public; 

Internet and World Wide Web capabilities, while 

maintaining information security;

geographic information systems (GIS); 

the understanding and management of the nation’s 

natural and cultural resources; and

the accessibility and availability of information to 

persons with disabilities.

1.9.2.1 Information Sharing 

The Service is committed to the widest possible availability 

and sharing of knowledge and to fostering discussion about 

the national park system, America’s natural and cultural 

heritage that is found in national parks, and the national 

experiences and values they represent. Most information 

shared with the public is presumed to be in the public 

domain, and therefore available to anyone who is interested. 

The only exceptions to information sharing are where 

disclosure could jeopardize specifi c park resources or donor 

agreements or violate legal or confi dentiality requirements.

1.9.2.2 Proprietary Information 

When producing or acquiring new works (such as images, 

graphic designs, logos, writing, Web sites, or other 

proprietary information) through acquisition by donation, 

contracting, partnerships, or other means, the Service 

will acquire the appropriate copyrights and any necessary 

releases whenever there is a current or anticipated need for 

unrestricted access to those works. The Service will respect 

the rights of owners of copyrights to control how their 

works are used and comply with fair use standards when 

information or works are not licensed for dissemination. 

(Also see Director’s Order #67: Copyright and Trademarks) 

1.9.2.3 Information Confi dentiality 

Although it is the general NPS policy to share information 

widely, the Service also realizes that providing information 

about the location of park resources may sometimes place 

those resources at risk of harm, theft, or destruction. This 

can occur, for example, with regard to caves, archeological 

sites, tribal information, and rare plant and animal species. 

Some types of personnel, fi nancial, and law enforcement 

matters are other examples of information that may 

be inappropriate for release to the public. Therefore, 

information will be withheld when the Service foresees that 

disclosure would be harmful to an interest protected by an 

exemption under the Freedom of Information Act (FOIA). 

Information will also be withheld when the Park Service 

has entered into a written agreement (e.g., deed of gift, 

interview release, or similar written contract) to withhold 

data for a fi xed period of time at the time of acquisition of 

the information. Such information will not be provided 

unless required by the Freedom of Information Act or other 

applicable law, a subpoena, a court order, or a federal audit. 

NPS managers will use these exemptions sparingly, and 

only to the extent allowed by law. In general, if information 

is withheld from one requesting party, it must be withheld 

from anyone else who requests it, and if information is 

provided to one requesting party, it must be provided 

to anyone else who requests it. Procedures contained 

in Director’s Order #66: FOIA and Protected Resource 

Information will be followed to document any decisions to 

release information or to withhold information from the 

public. Director’s Order #66 also provides more detailed 

information regarding the four specifi c statutes and an 

executive order that exempt park resource information from 

FOIA disclosure.

(See Natural Resource Information 4.1.2; Studies and 

Collections 4.2; Caves 4.8.2.2; Research 5.1; Confi dentiality 

5.2.3; Access to Interpretive and Educational Opportunities 

7.5.2. Also see Director’s Orders #5: Paper and Electronic 

Communications; #19: Records Management; #84: Library 

Management; and #11C: Web Publishing. Also see Reference 

Manual 53, chapter 5) 
1.9.3 Accessibility for Persons with Disabilities

All practicable eff orts will be made to make NPS facilities, 

programs, services, employment, and meaningful 

work opportunities accessible and usable by all people, 

including those with disabilities. This policy refl ects the 

commitment to provide access to the widest cross section 

of the public and ensure compliance with the Architectural 

Barriers Act of 1968, the Rehabilitation Act of 1973, the 

Equal Employment Opportunity Act of 1972, and the 

Americans with Disabilities Act of 1990. Specifi c guidance 

for implementing these laws is found in the Secretary 

of the Interior’s regulations regarding enforcement of 

nondiscrimination on the basis of disability in Department 

of the Interior programs (43 CFR Part 17, Subpart E), and 

the General Services Administration’s regulations adopting 

accessibility standards for the Architectural Barriers Act (41 

CFR Part 102-76, Subpart C). 

A primary principle of accessibility is that, to the highest 

degree practicable, people with disabilities should be 

able to participate in the same programs, activities, and 

employment opportunities available to everyone else. In 

choosing among methods of providing accessibility, higher 

priority will be given to methods that off er programs and 

activities in the most integrated setting appropriate. Special, 

separate, or alternative facilities, programs, or services will 

be provided only when existing ones cannot reasonably be 

made accessible. The determination of what is practicable 

will be made only after careful consultation with persons 

with disabilities or their representatives. Any decision that 

would result in less than equal opportunity is subject to 

the fi ling of an offi cial disability rights complaint under the 

departmental regulations cited above. 

(See Physical Access for Persons with Disabilities 5.3.2; 

Accessibility for Persons with Disabilities 8.2.4; Accessibility 

of Commercial Services 10.2.6.2. Also see Americans with 

Disabilities Act and Architectural Barriers Act Accessibility 

Standards)

1.9.4 Public Information and Media Relations

The Park Service will provide timely and accurate 

information to the public and news media in accordance 

with applicable laws, departmental policy, and director’s 

orders. Park managers should identify appropriate 

opportunities to inform and educate the public about park 

resources and values and ways to enjoy them. Every eff ort 

should be made to provide early notifi cation of changes 

in park management practices and conduct active civic 

engagement pursuant to Directors Order #75A. Park 

managers should keep the public informed of ongoing 

events in parks, especially as they may aff ect visitors 

and gateway communities. In some instances, certain 

information about individuals or events may need to be 

withheld for privacy, security, or other reasons, consistent 

with the Freedom of Information Act and the Privacy Act of 

1974.

(Also see Director’s Order #66: FOIA and Protected Resource 

Information)

1.9.5 Management Accountability

Managers are responsible for the quality and timeliness of 

program performance, increasing productivity, controlling 

costs, mitigating the adverse aspects of agency operations, 

and ensuring that programs are managed with integrity 

and in compliance with applicable law. Management 

accountability systems will be designed and implemented to 

add value and contribute to the effi ciency and eff ectiveness 

of NPS programs.

The National Park Service will comply with OMB (Offi ce 

of Management and Budget) Circular A-123, the Federal 

Managers’ Financial Integrity Act of 1982 (31 USC 3512), 

and the Government Performance and Results Act of 1993 

(31 USC 1115), which require that all federal agencies and 

individual managers take systematic and proactive measures 

to (1) develop and implement appropriate, cost-eff ective 

management controls for results-oriented management, 

(2) assess the adequacy of management controls in 

federal programs and operations, (3) identify needed 

improvements, (4) take corresponding corrective action, 

and (5) report annually on management controls.

The concept of management accountability will be applied 

to all strategies, plans, guidance, and procedures that govern 

programs and operations throughout the Park Service, 

including those at the park level, the program center level, 

and the Service-wide level. The Service will, through its 

organization, policies, and procedures, implement systems 

of controls to reasonably ensure that 

programs achieve their intended results; 

resources are used consistently with the NPS mission;

programs and resources are managed to prevent waste, 

fraud, abuse, and mismanagement;

laws and regulations are followed; and 

reliable and timely information is obtained, maintained, 

reported, and used for decision making.

(See Strategic Planning 2.3.3, and Director’s Order #54: 

Management Accountability) 

1.9.5.1 Financial Sustainability 

The Park Service will strive to be an eff ective and effi cient 

steward of appropriated and nonappropriated funds 

and services. These include revenues from recreation, 

concessions, and other fees, as well as fi nancial and in-kind 

support from cooperating associations, friends’ groups, 

other partnership entities, and volunteers. The Park Service 

will attempt to meet management goals consistently through 

strategic planning that anticipates budget requirements, 

changing conditions, and reasonably foreseeable trends and 

events.

The Service will continually implement best management 

practices to achieve fi nancial sustainability, including

analyzing and revising work processes to achieve 

greater effi ciency;

FOUNDATION 1.9

17
MANAGEMENT POLICIES 2006

18 making full use of information technology;

anticipating and addressing funding availability 

through accepted business practices;

ensuring that the out-year budget implications of 

decision-making are carefully considered in planning 

and other processes;

ensuring that both short- and long-term costs of facility 

development and operation are factored into the project 

formulation and selection process;

using value-based decision-making processes such 

as value analysis, capital asset planning, benefi t-cost 

analysis, life-cycle cost estimating, risk analysis, and 

total cost of ownership analysis;

linking performance management elements to 

achieving and maintaining fi nancial sustainability;

embracing preventative maintenance and management 

that prevents the degradation of park resources 

and facilities, thereby avoiding costly restoration or 

rehabilitation eff orts; and

using best fi nancial management practices to ensure 

transparent information and public accountability 

consistent with proven fi nancial accounting standards.

The Service will continually seek improvement and 

innovation in the areas covered by the following 

subsections. 

1.9.5.2 Facilities

The National Park Service will provide visitor and 

administrative facilities that are necessary, appropriate, 

and consistent with the conservation of park resources and 

values. Facilities will be harmonious with park resources, 

compatible with natural processes, esthetically pleasing, 

functional, energy- and water-effi cient, cost-eff ective, 

universally designed, and as welcoming as possible to all 

segments of the population. Park facilities and operations 

of all sizes will demonstrate environmental leadership by 

incorporating sustainable practices to the maximum extent 

practicable in planning, design, siting, construction, and 

maintenance.

1.9.5.3 Budget Performance and 

 Accountability Programs 

The Park Service will also continue to improve the budget 

formulation and accounting and fi nancial reporting 

processes, particularly related to park specifi cs and assets, 

including heritage assets, by making them more transparent. 

The goal of these eff orts will be to ensure that

funds are spent in support of a park’s purpose or 

 NPS mission; 

funds are spent in an effi cient, transparent, and 

 eff ective manner; 

a park’s request for funding is credible; and 

there are adequate funds and staff to conserve and 

protect the resources for which parks are responsible 

and provide for the enjoyment of the same. 

1.10 Partnerships 

The Service recognizes the benefi ts of cooperative 

conservation (in accordance with Executive Order 13352, 

Facilitation of Cooperative Conservation), as well as the 

signifi cant role partners play in achieving conservation 

goals and funding conservation initiatives on behalf of the 

national park system. The Service has had many successful 

partnerships with individuals; organizations; tribal, state, 

and local governments; and other federal agencies that have 

helped fulfi ll the NPS mission. Through these partnerships, 

the Service has received valuable assistance in the form 

of educational programs, visitor services, living history 

demonstrations, search-and-rescue operations, fund-raising 

campaigns, habitat restoration, scientifi c and scholarly 

research, ecosystem management, and a host of other 

activities. These partnerships, both formal and informal, 

have produced countless benefi ts for the Service and for the 

national park system. 

Benefi ts often extend into the future, because many people 

who participate as partners connect more strongly with the 

parks and commit themselves to long-term stewardship. 

The Service will continue to welcome and actively seek 

partnership activities with individuals, organizations, 

and others who share the Service’s commitment to 

protecting park resources and values and providing for 

their enjoyment. The Service will embrace partnership 

opportunities that will help accomplish the NPS mission 

provided that personnel and funding requirements do 

not make it impractical for the Service to participate and 

that the partnership activity would not (1) violate legal or 

ethical standards, (2) otherwise refl ect adversely on the NPS 

mission and image, or (3) imply or indicate an unwillingness 

by the Service to perform an inherently governmental 

function. 

In the spirit of partnership, the Service will also seek 

opportunities for cooperative management agreements with 

state or local agencies that will allow for more eff ective and 

effi cient management of the parks, as authorized by section 

802(a) of the National Parks Omnibus Management Act of 

1998 (16 USC 1a-2(l)). 

Whenever groups are created, controlled, or managed for 

the purpose of providing advice or recommendations to 

the Service, the Service will fi rst consult with the Offi ce of 

the Solicitor to determine whether the Federal Advisory 

Committee Act requires the chartering of an advisory 

committee. Consultation with the Offi ce of the Solicitor will 

not be necessary when the Service meets with individuals, 

groups, or organizations simply to exchange views and 

information or to solicit individual advice on proposed 

actions. This act does not apply to intergovernmental 

meetings held exclusively between federal offi cials and 

elected offi cers of state, local and tribal governments (or 

their designated employees with authority to act on their 

behalf) acting in their offi cial capacities, when (1) the 

meetings relate to intergovernmental responsibilities or 

administration, and (2) the purpose of the committee is 
solely to exchange views, information, or advice relating 

to the management or implementation of federal programs 

established pursuant to statute that explicitly or inherently 

share intergovernmental responsibilities or administration. 

(See Public Involvement 2.3.1.5; Partnerships 4.1.4; Studies 

and Collections 4.2; Independent Research 5.1.2; Agreements 

5.2.2; Interpretive and Educational Partnerships 7.6; 

Volunteers in Parks 7.6.1; Cooperating Associations 7.6.2; 

Enforcement Authority 8.3.4; Commercial Visitor Services 

Chapter 10. Also see Director’s Orders #7: Volunteers in 

Parks;#17: National Park Service Tourism; #20: Agreements, 

#21: Donations and Fundraising; #27: Challenge Costshare Program; #32: Cooperating Associations; #75A: Civic 

Engagement and Public Involvement; NPS Guide to the 

Federal Advisory Committee Act; Executive Order 13352 

(Facilitation of Cooperative Conservation) 

1.11 Relationship with American Indian Tribes

The National Park Service has a unique relationship with 

American Indian tribes, which is founded in law and 

strengthened by a shared commitment to stewardship of 

the land and resources. The Service will honor its legal 

responsibilities to American Indian tribes as required by 

the Constitution of the United States, treaties, statutes, 

and court decisions. For the purposes of these policies, 

“American Indian tribe” means any band, nation, or other 

organized group or community of Indians, including any 

Alaska Native Village, which is recognized as eligible for the 

special programs and services provided by the United States 

to Indians because of their status as Indians. 

The formal legal rationale for the relationship between 

the National Park Service and tribes is augmented by 

the historical, cultural, and spiritual relationships that 

American Indian tribes have with park lands and resources. 

As the ancestral homelands of many American Indian tribes, 

parks protect resources, sites, and vistas that are highly 

signifi cant for the tribes. Therefore, the Service will pursue 

an open, collaborative relationship with American Indian 

tribes to help tribes maintain their cultural and spiritual 

practices and enhance the Park Service’s understanding 

of the history and signifi cance of sites and resources in 

the parks. Within the constraints of legal authority and its 

duty to protect park resources, the Service will work with 

tribal governments to provide access to park resources and 

places that are essential for the continuation of traditional 

American Indian cultural or religious practices.

1.11.1 Government-to-Government Relationship

In accordance with the Presidential Memorandum of April 

29, 1994, and Executive Order 13175 (Consultation and 

Coordination with Indian Tribal Governments), the Service 

will maintain a government-to-government relationship 

with federally recognized tribal governments. This means 

that NPS offi cials will work directly with appropriate tribal 

government offi cials whenever plans or activities may 

directly or indirectly aff ect tribal interests, practices, and/or 

traditional use areas such as sacred sites.

1.11.2 Consultation

Consultations, whether initiated by a tribe or the Park 

Service, will be respectful of tribal sovereignty. The Federal 

Advisory Committee Act does not apply to consultation 

meetings held exclusively between federal offi cials and 

elected offi cers of tribal governments or their designees. 

Tribal needs for privacy and confi dentiality of certain 

kinds of information will be respected. Such information 

will be deemed confi dential when authorized by law, 

regulation, or policy. Before beginning government-togovernment consultations, park managers will consider 

what information is necessary to record. Culturally sensitive 

information will be collected and recorded only to the 

extent necessary to support sound management decisions 

and only in consultation with tribal representatives.

Mutually acceptable consultation protocols to guide 

government-to-government relationships will be developed 

at the park and program levels with assistance from regional 

and support offi ces as needed. The protocols will be 

developed with an understanding of special circumstances 

present at individual parks. These protocols and the actual 

consultation itself will be informed by national, regional, 

and park-based subject matter experts. 

NPS managers will be open and candid with tribal 

governments during consultations so that the aff ected tribes 

may fully evaluate the potential impact of the proposal 

and the Service may fully consider tribal views in its 

decision-making processes. This means that governmentto-government consultation should begin at the earliest 

possible stages of planning. 

(See Consultation 5.2.1; Ethnographic Resources 5.3.5.3. 

Also see Director’s Order #66: FOIA and Protected Resource 

Information) 

1.11.3 Trust Resources

Activities carried out on park lands may sometimes aff ect 

tribal trust resources. Trust resources are those natural 

resources reserved by or for Indian tribes through treaties, 

statutes, judicial decisions, and executive orders, which are 

protected by a fi duciary obligation on the part of the United 

States. In accordance with the government-to-government 

relationship and mutually established protocols, the Service 

will interact directly with tribal governments regarding 

the potential impacts of proposed NPS activities on Indian 

tribes and trust resources.

In considering a proposed program, project, or action, 

the Service will ensure that eff ects on trust resources are 

explicitly identifi ed and evaluated in consultation with 

potentially concerned tribes and that they are addressed in 

planning, decision, and operational documents. With regard 

to activities that may impact Indian trust resources or tribal 

health and safety, the Service will consult with the Bureau 

of Indian Aff airs, the Offi ce of the Solicitor, and other offi ces 

and agencies, as appropriate.

(Also see Secretarial Order 3206, June 5, 1997)

FOUNDATION 1.9-1.11

19
MANAGEMENT POLICIES 2006

20 1.12 Native Hawaiians, Pacifi c Islanders, 

 and Caribbean Islanders

The National Park Service administers parks in Hawaii, 

Guam, the Commonwealth of the Northern Mariana 

Islands, American Samoa, Puerto Rico, and the Virgin 

Islands. The Service will maintain open, collaborative 

relationships with native peoples for whom these islands 

are their ancestral homes. The Service will also meet any 

responsibilities that may have been defi ned in the enabling 

legislation of these island parks and to Native Hawaiians 

in the administration of the Native American Graves 

Protection and Repatriation Act and the National Historic 

Preservation Act.

1.13 An Enduring Message 

The need for Management Policies in the National Park 

Service was fi rst articulated by Secretary of the Interior 

Franklin K. Lane in a letter to the fi rst Director of the 

National Park Service, Stephen T. Mather, on May 13, 1918. 

Secretary Lane stated that administrative policy should 

adhere to three broad principles based on the 1916 Organic 

Act: 

 First, that the national parks must be maintained 

in absolutely unimpaired form for the use of future 

generations as well as those of our own time; second, 

that they are set apart for the use, observation, health, 

and pleasure of the people; and third, that the national 

interest must dictate all decisions aff ecting public or 

private enterprise in the parks. 

Today’s national parks have become important to our 

nation in more ways than Secretary Lane could possibly 

have imagined. Parks are a true refl ection of our nation’s 

collective history, heritage, and ideals. They can be models 

of healthy, natural, sustainable ecosystems. To remain 

relevant now and into the future, parks must be welcoming 

in order that visitors may understand and appreciate these 

special places that have been set aside for their enjoyment. 

As America’s story continues to evolve, new park units 

will be added in the future, and they will carry equally 

compelling reasons for their inclusion in the national park 

system.

Secretary Lane’s guiding principles remain fundamentally 

valid, and they serve as a useful reminder of the need for 

a sustained commitment to park resource protection so 

that they are left unimpaired for the enjoyment of future 

generations. The Service’s commitment to protecting the 

national parks and ensuring public enjoyment for present 

and future generations is embodied in this 2006 edition of 

Management Policies. 
Park System 

Planning

Park planning helps defi ne the set of resource conditions, visitor 

experiences, and management actions that, taken as a whole, will 

best achieve the mandate to preserve resources unimpaired for the 

enjoyment of present and future generations. NPS planning processes 

will fl ow from broad-scale general management planning through 

progressively more specifi c strategic planning, implementation 

planning, and annual performance planning and reporting, all of 

which will be grounded in foundation statements.

Public participation in 

planning and decisionmaking will ensure that

 the Park Service fully 

understands and 

considers the public’s 

interests in the parks.

2
MANAGEMENT POLICIES 2006

22 2.1.4 Goal Orientation 

Managers will be held accountable for identifying and 

accomplishing measurable long-term goals and annual 

goals that are incremental steps to carrying out the park 

mission. Such planning is a critical and essential part of 

the NPS performance management system that is designed 

to improve the Park Service’s performance and results. 

Park staff will monitor resource conditions and visitor 

experiences and plan, track, and report performance.

If goals are not being met, managers will seek to understand 

why and take appropriate action. The goals will be 

periodically reassessed, taking into account new knowledge 

or previously unforeseen circumstances, and then the 

planning cycle will be reinitiated at the appropriate point. 

(See Park Management 1.4) 

2.2 Major Elements of Park Planning 

 and Decision-making 

A documented, comprehensive, logical, trackable rationale 

for decisions will be created through several levels of 

planning that are complementary and become increasingly 

detailed. The process begins with determining why the park 

was established and what resource conditions and visitor 

experiences should exist there; the process will become 

increasingly focused on how resource conditions and visitor 

experiences should be achieved. 

The following planning elements are part of an interrelated 

framework that will inform NPS decision-making: 

Foundation Statement — The planning process begins 

with the development of a foundation statement that is 

based on the park’s enabling legislation or presidential 

proclamation and that documents the park purpose, 

signifi cance, fundamental resources and values and 

primary interpretive themes. It also includes any 

relevant laws and executive orders that apply to the 

national park system or to the individual park unit. 

The foundation statement is generally developed (or 

reviewed and expanded or revised, if appropriate) 

early as part of the public and agency scoping and data 

collection for the general management plan (GMP). 

Once a park has developed a complete foundation 

statement, it should remain relatively stable from 

one GMP cycle to the next, although new scientifi c 

and scholarly information may require expansion 

and revision to refl ect the most current knowledge 

about what is most important about the park. General 

management planning is the most appropriate context 

for developing or reviewing a foundation statement 

because of the comprehensive public involvement and 

NEPA analysis that occurs during general management 

planning. The foundation statement may be vetted 

within the agency and with the public, then formally 

adopted as part of the fi nal general management plan, or 

may be produced as a stand-alone foundation document 

for the park unit.

General Management Plan — This is a broad umbrella 

document that sets the long-term goals for the park 

based on the foundation statement. The general 

management plan (1) clearly defi nes the desired natural 

2.1 General Principles

2.1.1 Decision-making 

The National Park Service will use planning to bring logic, 

analysis, public involvement, and accountability into the 

decision-making process. Park planning and decisionmaking will be conducted as a continuous, dynamic cycle, 

from broad visions shared with the public to individual, 

annual work assignments and evaluations. Each park will 

be able to demonstrate to decision-makers, staff , and the 

public how decisions relate to one another in terms of a 

comprehensive, logical, and trackable rationale. 

2.1.2 Scientifi c, Technical, 

 and Scholarly Analysis 

Decision-makers and planners will use the best available 

scientifi c and technical information and scholarly analysis 

to identify appropriate management actions for protection 

and use of park resources. Analysis will be interdisciplinary 

and tiered. Tiering is a staged approach to environmental 

analysis that addresses broad programs and issues in 

initial or systems-level analyses. Site-specifi c proposals 

and impacts are analyzed in subsequent studies. The tiered 

process supports decision-making on issues that are ripe for 

decision and provides a means to sustain those decisions. 

The focus of analysis starts with the park as a whole 

(including its global, national, and regional contexts) and 

then moves to site-specifi c details. At key points of planning 

and decision-making, the Park Service will identify 

reasonable alternatives and analyze and compare their 

diff erences with respect to 

consistency with the park’s purpose, 

the quality of visitor experiences, 

the impacts on park resources, 

short- and long-term costs, and 

environmental consequences that may extend beyond 

park boundaries. 

2.1.3 Public Participation 

Public participation in planning and decision-making will 

ensure that the Service fully understands and considers the 

public’s interests in the parks, which are part of the public’s 

national heritage, cultural traditions, and community 

surroundings. The Service will actively seek out and consult 

with existing and potential visitors, neighbors, American 

Indians, other people with traditional cultural ties to park 

lands, scientists and scholars, concessioners, cooperating 

associations, gateway communities, other partners, and 

government agencies. The Service will work cooperatively 

with others to improve the condition of parks; to enhance 

public service; and to integrate parks into sustainable 

ecological, cultural, and socioeconomic systems. 

(See Cooperative Conservation Beyond Park Boundaries 

1.6; Civic Engagement 1.7; Public Involvement 2.3.1.5; 

Consultation 5.2.1. Also see Director’s Order #75A: Civic 

Engagement and Public Involvement) 
and cultural resource conditions to be achieved and 

maintained over time; (2) clearly defi nes the necessary 

conditions for visitors to understand, enjoy, and 

appreciate the park’s signifi cant resources, and (3) 

identifi es the kinds and levels of management activities, 

visitor use, and development that are appropriate for 

maintaining the desired conditions; and (4) identifi es 

indicators and standards for maintaining the desired 

conditions. For wild and scenic rivers and national 

trails, the analogous documents are a comprehensive 

river management plan and comprehensive 

management plan, respectively. Each of these plans has 

requirements very similar to a general management 

plan, so units usually refer to these plans as GMPs. 

Additional requirements for river and trail studies 

are covered in the Wild and Scenic Rivers Act and the 

National Trails System Act.

Program Management Plans — These more detailed 

documents follow the general management plan and 

provide program-specifi c information on strategies to 

achieve and maintain the desired resource conditions 

and visitor experiences, including identifi cation of 

appropriate visitor use where applicable (for example, 

resource stewardship strategy and comprehensive 

interpretation plan).

Strategic Plans — These plans provide 1- to 5-year 

direction and objective, measurable, long-term goals. 

The long-term goals will defi ne the resource conditions 

and visitor experiences to be achieved in the near 

future, for which the superintendent will be held 

accountable. Results on progress towards these goals 

will be reported annually. These goals are based on 

the park’s foundation statement; an assessment of the 

park’s natural and cultural resources; park visitors’ 

experiences; and the park’s performance capability 

given available personnel, funding, and external factors. 

Implementation Plans — These plans provide projectspecifi c details needed to implement an action in an 

area of a park and explain how the action(s) helps 

achieve long-term goals.

Annual Performance Plans —Annual goals and an 

annual work plan that will guide park eff orts for a fi scal 

year are in annual performance plans. 

Annual Performance Reports — These reports 

contain an accounting of annual results in relation to 

annual goals. 

Park managers and regional directors are responsible for 

ensuring that planning is properly conducted within this 

planning framework and making management decisions 

that are supported by public involvement, the best available 

information, and analysis. However, many parks may 

initially lack one or more of these planning elements. In 

the interim, management will be guided by the park’s 

foundation statement, strategic plan, and other current 

approved plans. No major new development or other 

major commitment of park land or natural or cultural 

resources will be authorized without an approved general 

management plan.

(See Visitor Use 8.2)

2.3 Levels of Park Planning 

The order of plan development will generally fl ow from 

broad general management plans to progressively more 

specifi c implementation plans. 

When determining a plan’s scope, it will be important 

to distinguish which issues can most appropriately be 

addressed by general management planning, and which can 

be most appropriately addressed by more detailed strategic 

or implementation planning. Each level of planning has a 

distinct function, and all levels are designed to interrelate 

with a minimum of duplication and confusion. At each level, 

plans will be written to make the links and relationships 

among the planning levels apparent to readers. 

Environmental analysis of alternatives and public 

involvement required under section 102(2)(C) of the 

National Environmental Policy Act (NEPA) (42 USC 

4332(2)(C)) will be conducted at any level of planning 

in which the decisions to be made constitute a major 

federal action signifi cantly aff ecting the quality of the 

human environment. Normally, NEPA analysis and public 

participation will be done at the general management 

planning level, when the overall direction for the park’s 

future is decided, and again at the implementation planning 

level before funding and resources are committed to carry 

out specifi c actions (see 2.3.1 and 2.3.4, below). In keeping 

with the Council on Environmental Quality guidelines for 

NEPA compliance, environmental analysis for more specifi c 

programs or actions will follow, or fl ow from, earlier NEPA 

documents for the broader general management plan.

(See Civic Engagement 1.7. Also see Director’s Orders #2: Park 

Planning, and #12: Conservation Planning, Environmental 

Impact Analysis, and Decision-making) 

2.3.1 General Management Planning 

The Park Service will maintain a general management plan 

for each unit of the national park system. The purpose 

of each general management plan, which will begin with 

the development of a foundation statement for the park 

unit, will be to ensure that the park has a clearly defi ned 

direction for resource preservation and visitor use. This 

basic foundation for decision-making will be developed 

by an interdisciplinary team, in consultation with relevant 

NPS offi ces, other federal and state agencies, local and tribal 

governments, other interested parties, and the general 

public. The management plans will be based on full and 

proper use of scientifi c and scholarly information related 

to existing and potential resource conditions, visitor 

experiences, environmental impacts, and relative costs of 

alternative courses of action. 

The approved plan will create a realistic vision for the 

future, setting a direction for the park that takes into 

consideration the environmental and fi nancial impact of 

proposed facilities and programs and ensures that the fi nal 

plan is achievable and sustainable. The plan will take the 

long view, which may project many years into the future, 

when dealing with the time frames of natural and cultural 

PARK SYSTEM PLANNING 2.1-2.3

23
MANAGEMENT POLICIES 2006

24 processes. The fi rst phase of general management planning 

will be the development of the foundation statement. The 

plan will consider the park in its full ecological, scenic, and 

cultural contexts as a unit of the national park system and 

as part of a surrounding region. The general management 

plan will also establish a common management direction 

for all park divisions and districts. This integration will help 

avoid inadvertently creating new problems in one area while 

attempting to solve problems in another. 

(See Decision-making Requirements to Identify and Avoid 

Impairments 1.4.7; Visitor Use 8.2) 

2.3.1.1 Statutory Requirements 

General management plans will meet all statutory 

requirements contained in 16 USC 1a-7(b) and will include 

the types of management actions required for the 

preservation of park resources; 

the types and general intensities of development 

(including visitor circulation and transportation 

patterns, systems, and modes) associated with public 

enjoyment and use of the area, including general 

locations, timing of implementation, and anticipated 

costs; 

visitor carrying capacities and implementation 

commitments for all areas of the park; and 

potential modifi cations to the external boundaries of 

the park—if any—and the reasons for the proposed 

changes. 

For NPS-administered components of the National Wild 

and Scenic Rivers System and the National Trails System, 

comprehensive management plans will meet all the statutory 

requirements of 16 USC 1271-1287 or 16 USC 1244.

(See Visitor Carrying Capacity 8.2.1)

2.3.1.2 Management Zoning 

Each park’s approved general management plan will include 

a map that delineates management zones or districts that 

correspond to a description of the desired resource and 

visitor experience conditions for each area of the park. 

Management zoning will outline the criteria for (or describe 

the kind of) appropriate uses and facilities necessary to 

support these desired conditions. For example, highly 

sensitive natural areas might tolerate little, if any, visitor use, 

while other areas might accommodate much higher levels 

of use. Even in historic structures, one fl oor might be most 

appropriate for exhibits, while another could accommodate 

offi ces or administrative uses. Some desired conditions 

may apply parkwide, but the delineation of management 

zones will illustrate where there are diff erences in intended 

resource conditions, visitor experiences, and management 

activities.

2.3.1.3 Planning Team 

Interdisciplinary teams, including park managers and 

technical experts, will prepare general management plans. 

Planning teams will work with the park superintendent and 

regional directors and consult with other park staff , NPS 

leadership, other agencies with jurisdiction by virtue of law 

or expertise, other knowledgeable persons, and the public 

concerning future management of park resources. The 

superintendent will be involved with all phases of the plan’s 

development. The superintendent and regional director 

have ultimate responsibility for the contents of the plan, 

ensuring that there is consistency in direction and decisions 

between parks with similar resources and values. The 

regional director is the offi cial responsible for approving 

general management plans.

2.3.1.4 Science and Scholarship 

Decisions documented in general management plans and 

other planning products, including environmental analyses 

and documentation, will be based on current scientifi c and 

scholarly understanding of park ecosystems and cultural 

contexts and the socioeconomic environment both internal 

and external to the park. The collection and analysis of 

information about park resources will be a continuous 

process that will help ensure that decisions are consistent 

with park purposes.

(See Decision-making Requirements to Avoid Impairments 

1.4.7; Planning for Natural Resource Management 4.1.1; 

Planning 5.2) 

2.3.1.5 Public Involvement 

Members of the public—including existing and potential 

visitors, park neighbors, American Indians, other people 

with traditional cultural ties to lands within the park, 

concessioners, cooperating associations, other partners, 

scientists and scholars, and other government agencies—

will be encouraged to participate during the preparation of a 

general management plan and the associated environmental 

analysis. Public involvement strategies, practices, and 

activities will be developed and conducted within the 

framework of civic engagement. (Whereas civic engagement 

is the philosophy of welcoming people into the parks and 

building relationships around a shared stewardship mission, 

public involvement—also called public participation—is the 

specifi c, active involvement of the public in NPS planning 

and other decision-making processes.) Public involvement 

will meet NEPA and other federal requirements for 

identifying the scope of issues, 

developing the range of alternatives considered in 

planning, 

reviewing the analysis of potential impacts, and 

disclosing the rationale for decisions about the 

 park’s future. 

The Park Service will use the public involvement process to 

share information about legal and policy mandates, the 

planning process, issues, and proposed management 

directions, 

learn about the values placed by other people and 

groups on the same resources and visitor experiences, 

and 
build support for implementing the plan among local 

interests, visitors, Congress, and others at the regional 

and national levels. 

Whenever groups are created, controlled, or managed for 

the purpose of providing advice or recommendations to 

the Service, the Service will fi rst consult with the Offi ce of 

the Solicitor to determine whether the Federal Advisory 

Committee Act requires the chartering of an advisory 

committee. Consultation with the Offi ce of the Solicitor will 

not be necessary when the Service meets with individuals, 

groups, or organizations simply to exchange views and 

information, or to solicit individual advice on proposed 

actions. This act does not apply to intergovernmental 

meetings held exclusively between federal offi cials and 

elected offi cers of state, local and tribal governments 

(or their designated employees with authority to act on 

their behalf) acting in their offi cial capacities, when the 

meetings relate to intergovernmental responsibilities or 

administration. 

(See Civic Engagement 1.7; Consultation 5.2.1. Also see 

NPS Guide to the Federal Advisory Committee Act. Also 

see Director’s Order #75A: Civic Engagement and Public 

Involvement) 

2.3.1.6 Alternative Futures 

Alternative futures for the park will be explored and 

assessed during general management planning and 

environmental analysis. Within the broad parameters of 

the park mission and mission goals, various approaches to 

park resource preservation, use, and development may be 

possible, some of which may represent competing demands 

for the same resource base. The general management plan 

will be the principal tool for resolving such issues. The 

range of alternatives will examine diff erent combinations of 

management zoning, within the limits of laws, regulations, 

and policies governing national parks. 

2.3.1.7 Environmental Analysis 

The analysis of alternatives will meet the program standards 

for NPS implementation of the National Environmental 

Policy Act and related legislation, including the National 

Historic Preservation Act. In most cases, an environmental 

impact statement (EIS) will be prepared for general 

management plans. In a few cases, the regional director, in 

consultation with the NPS Environmental Quality Division, 

through the Associate Director for Natural Resource 

Stewardship and Science, may approve an exception to this 

general rule if

completion of scoping demonstrates that there is no 

public controversy concerning potential environmental 

eff ects, and 

the initial analysis of alternatives clearly indicates there 

is no potential for signifi cant impact by any alternative. 

Where the National Environmental Policy Act and 

sections 106 and 110 of the National Historic Preservation 

Act (16 USC 470f and 470h-2, respectively) both apply, 

NEPA procedures will be used to inform the public about 

undertakings having the potential to aff ect properties 

listed on, or eligible for listing on, the National Register of 

Historic Places, consistent with the Advisory Council on 

Historic Preservation’s regulatory provisions governing 

coordination with the National Environmental Policy 

Act and the NPS nationwide programmatic agreement 

on section 106 compliance (36 CFR Part 800). The tiered 

approach to environmental analysis will be used as often as 

possible, in accordance with 40 CFR 1502.20.

(See Evaluating Environmental Impacts 4.1.3; Planning 

5.2. Also see Director’s Order #12: Conservation Planning, 

Environmental Impact Analysis, and Decision-making) 

2.3.1.8 Cooperative Planning 

General management planning will be conducted as part 

of cooperative regional planning and ecosystem planning 

whenever possible. NPS participation in cooperative 

regional planning will be undertaken with the hope of 

better coordinating and focusing the independent eff orts 

of multiple parties. NPS participation in such planning 

eff orts will acknowledge the rights and interests of other 

landowners. While being consistent with NPS Management 

Policies and park goals, plans will identify and consider 

potential eff ects outside and inside park boundaries, and 

plans will identify ways to enhance benefi cial eff ects and 

mitigate adverse eff ects.

2.3.1.9 Wild and Scenic Rivers 

Potential national wild and scenic rivers will be considered 

in planning for the use and development of a park’s 

water and related land resources. The Park Service will 

compile a complete listing of all rivers and river segments 

in the national park system that it considers eligible for 

the National Wild and Scenic Rivers System. General 

management plans and other plans potentially aff ecting 

river resources will propose no actions that could adversely 

aff ect the values that qualify a river for the National 

Wild and Scenic Rivers System. After a determination of 

eligibility is made, a decision concerning whether or not 

to seek legislation to designate a river or river segment 

may be made only through a general management plan, an 

amendment to a general management plan, or the legislative 

review process. 

2.3.1.10 Wilderness

The Wilderness Act directs agencies responsible for 

managing wilderness to study wilderness resources and 

values. The Park Service will develop wilderness studies 

and plans as part of the comprehensive planning framework 

for each park. Managers are encouraged to incorporate 

these studies and plans within general management plans 

when possible. To preserve Congress’s prerogative to 

designate wilderness, general management plans and other 

plans potentially aff ecting eligible wilderness resources 

will propose no actions that could adversely aff ect the 

wilderness characteristics and values that make them 

eligible for consideration for inclusion in the National 

Wilderness Preservation System. 

PARK SYSTEM PLANNING 2.3

25
MANAGEMENT POLICIES 2006

26 Lands and waters found to possess the characteristics and 

values of wilderness, as defi ned in the Wilderness Act, can 

be studied to develop a recommendation to Congress for 

wilderness designation in a general management plan/

wilderness study. Where designated wilderness exists, park 

mangers have a responsibility to develop and maintain 

a wilderness management plan or equivalent planning 

document to guide the preservation, management, and use 

of these resources. A comprehensive management plan for 

wilderness is appropriately done in tandem with a general 

management plan, and wilderness should be taken into 

consideration in subsequent program management and 

implementation plans. 

When wilderness eligibility and suitability are evaluated 

as a part of the GMP process, a determination of eligibility 

or suitability will not necessarily mean that the Service 

will seek designation. After the determination is made, 

a decision concerning whether to seek legislation to 

designate wilderness may be made only through a general 

management plan, an amendment to a general management 

plan, or the legislative review process.

(See Wilderness Review Process 6.2)

2.3.1.11 Alaska Park Units 

General management plans for park system units in Alaska 

that were established or expanded by the Alaska National 

Interest Lands Conservation Act will address the provisions 

for conservation and management planning specifi ed in 

section 1301 of that act (16 USC 3191). 

2.3.1.12 Periodic Review of 

 General Management Plans

As necessary, general management plans will be reviewed 

and amended or revised, or a new plan will be prepared, 

to keep them current. GMP reviews may be needed every 

10 to 15 years, but may be needed sooner if conditions 

change signifi cantly. If conditions remain substantially 

unchanged, a longer period between reviews would be 

acceptable. Even in parks with strong traditions and 

established patterns of use and development, managers 

will be responsible for assessing whether resources are 

threatened with impairment, the visitor experience has 

been degraded, or the park’s built environment is diffi cult 

to sustain. Periodically reassessing the general management 

plan will give everyone with a major stake in the park an 

opportunity to revalidate the park’s role in the nation and 

in the region and reevaluate whether the kinds of resource 

conditions and visitor experiences being pursued are the 

best possible mix for the future. An approved management 

plan may be amended or revised, rather than a new plan 

prepared, if conditions and management prescriptions 

governing most of the area covered by the plan remain 

essentially unchanged from those present when the plan was 

originally approved. Amendments or revisions to a general 

management plan will be accompanied by a supplemental 

environmental impact statement or other suitable NEPA 

analysis and public involvement.

(See Chapter 1: The Foundation; Chapter 3: Land Protection; 

Chapter 4: Natural Resource Management; Chapter 5: 

Cultural Resource Management; Chapter 6: Wilderness 

Preservation and Management; Chapter 8: Use of the Parks; 

Chapter 9: Park Facilities; Chapter 10: Commercial Visitor 

Services. Also see Director’s Orders #2: Park Planning; and 

#12: Conservation Planning, Environmental Impact Analysis, 

and Decision-making) 

2.3.2 Program Management Planning 

Program management planning for a park provides a 

bridge between the broad direction provided in the general 

management plan and specifi c actions taken to achieve 

goals. These plans provide a comprehensive approach 

for a single park program area across most or all of the 

park. Program management planning may include special 

emphasis plans, such as a park resource stewardship 

strategy, a comprehensive interpretive plan, a land 

protection plan, a visitor use plan, a fi re management plan, 

an asset management plan, or a management stewardship 

plan. Integrated, interdisciplinary approaches to program 

planning are encouraged. Program management plans will 

provide comprehensive recommendations about specifi c 

actions needed to achieve and maintain the desired resource 

conditions and visitor experiences.

2.3.3 Strategic Planning 

The Service is committed to performance management and 

accountability. Managers are responsible for the quality and 

timeliness of program performance, increasing productivity, 

controlling costs, mitigating the adverse aspects of agency 

operations, and ensuring that programs are managed with 

integrity and in compliance with applicable laws. Strategic 

planning will be conducted for the National Park Service 

as a whole, and every park, program, and central offi ce 

will be covered by a strategic plan. Strategic plans will 

address both Service-wide and local outcomes. Park-related 

strategic plans will be recommended by the superintendent, 

approved by the regional director, and consistent with the 

department’s overall strategic plan. Strategic plans will 

contain

mission statement and purpose from the foundation 

document 

long-term performance goals (with performance 

targets)

a short description of the strategies chosen to 

accomplish the goals

a description of how the annual goals will relate to the 

long-term goals

a description of the analysis used to establish or 

 revise goals

a section that identifi es the civic engagement strategy 

used to involve stakeholders and communities in the 

development of the strategic plan

an identifi cation of the key external factors that could 

signifi cantly aff ect achievement of the goals

a list of those who developed the plan
Information in park strategic plans is used to compile 

Service-wide achievements; therefore, these plans must 

contain similar information. 

(See Management Accountability 1.9.5)

2.3.3.1 Relationship between the Strategic Plan 

 and the General Management Plan

The park’s strategic plan will be consistent with the 

Department of the Interior’s strategic plan and the park’s 

general management plan, and it will build from the 

foundation statement. Parks that lack a current general 

management plan will work from their existing plans or 

an updated foundation document. A strategic plan will 

focus on a shorter time frame than a general management 

plan, target measurable results; and not require the 

comprehensive resource analysis, consultation, and 

compliance required for a general management plan.

Should a park decide, through its strategic planning process, 

that a major shift in direction or emphasis is needed, the 

strategic plan will identify the need for a new general 

management plan or a GMP amendment. Strategic plans 

may also identify the need for more detailed program 

management or implementation plans. 

2.3.4 Implementation Planning

Implementation planning will focus on how to implement 

activities and projects needed to achieve the desired 

conditions identifi ed in the general management plan, 

strategic plan, and program management planning 

documents. Implementation plans may deal with complex, 

technical, and sometimes controversial issues that often 

require a level of detail and thorough analysis beyond that 

appropriate for other planning documents.

Implementation plans may concentrate on individual 

projects or components of the general management 

plan, and they may specify the techniques, disciplines, 

equipment, infrastructure, schedule, and funding necessary 

to accomplish outcomes.

Implementation plan details may vary widely and may 

direct a fi nite project (such as reintroducing an extirpated 

species or developing a trail) or a continuous activity 

(such as maintaining a historic structure). Examples of 

implementation plan details include management plans for 

specifi c species and habitats, site designs, off -road-vehicle 

management plans, and interpretive media plans. Details 

will generally be deferred until the activity or project under 

consideration has attained suffi cient priority to indicate 

that action will be taken within the next two to fi ve years 

and will be included in an annual work plan. This will help 

ensure that decisions about how to best achieve a certain 

goal are relevant, timely, and based on current data. As 

a means for providing fl exibility in the face of changing 

natural conditions, park managers are encouraged to use 

an adaptive management approach when appropriate (see 

glossary for defi nition of adaptive management). 

Technical specialty teams under the direction of the 

program leader in the park (usually a division chief) or in the 

regional offi ce will develop implementation plans, and the 

plans will be approved by the superintendent (or at a higher 

level when appropriate).

Development of an implementation plan may overlap other 

planning eff orts if this is appropriate for the purposes 

of planning effi ciency or public involvement. However, 

the decisions made for the general management plan will 

precede—and direct—more detailed decisions regarding 

projects and activities. Major new development or 

rehabilitation and major actions or commitments aimed at 

changing resource conditions or visitor use in a park must 

be consistent with an approved general management plan.

2.3.4.1 Environmental Analysis 

Many actions taken by the National Park Service, unless 

categorically excluded from further NEPA analysis, 

require public involvement and analysis of alternatives. 

They also require compliance with the National Historic 

Preservation Act and related legislation. Although general 

management planning addresses key environmental quality 

and cultural resource issues at the programmatic level over 

the long term, resolution of resource issues must continue 

during implementation planning. This will generally be 

accomplished through the appropriate NEPA and NHPA 

section 106 compliance processes and the application of the 

tiered approach to environmental analysis. 

(See Park Management 1.4; Chapter 3: Land Protection; 

Chapter 4: Natural Resource Management; Chapter 5: 

Cultural Resource Management; Chapter 6: Wilderness 

Preservation and Management; Chapter 8: Use of the Parks; 

Chapter 9: Park Facilities; Chapter 10: Commercial Visitor 

Services. Also see Director’s Orders #2: Park Planning; 

Director’s Order #12: Conservation Planning, Environmental 

Impact Analysis, and Decision-making (and the related 

Environmental Screening Form); Executive Order 12898 

(Federal Actions to Address Environmental Justice in Minority 

Populations and Low Income Populations)) 

2.3.5 Park Annual Performance 

 Planning and Reporting 

Each park will prepare annual performance plans 

(articulating annual goals for each fi scal year) and annual 

performance reports (describing the progress made in 

meeting the annual goals). The development of the annual 

performance plan and report will be synchronized with 

NPS budget development. 

PARK SYSTEM PLANNING 2.3

27

3

Land Protection

The National Park Service will use all available authorities to protect 

lands and resources within units of the national park system, and the 

Park Service will seek to acquire nonfederal lands and interests in 

land that have been identifi ed for acquisition as promptly as possible. 

For lands not in federal ownership, both those that have been identifi ed 

for acquisition and other nonfederally owned lands within a park 

unit’s authorized boundaries, the Service will cooperate with federal 

agencies; tribal, state, and local governments; nonprofi t organizations; 

and property owners to provide appropriate protection measures. 

Cooperation with these entities will also be pursued, and other available 

land protection tools will be employed when threats to resources 

originate outside boundaries.

Appropriate land 

protection methods 

must be applied to

protect park resources 

and values from

incompatible land uses.
MANAGEMENT POLICIES 2006

30 3.1 General 

The National Park Service is required by the 1916 Organic 

Act to protect and preserve unimpaired the resources 

and values of the national park system while providing 

for public use and enjoyment. A number of park units 

have nonfederally owned lands within their authorized 

boundaries. When nonfederal lands exist within park 

boundaries, acquisition of those lands and/or interests in 

those lands may be the best way to protect and manage 

natural and cultural resources or provide for visitor 

enjoyment. When acquisition is necessary and appropriate, 

the Park Service will acquire those lands and/or interests 

as promptly as possible, consistent with departmental land 

transaction and appraisal policies. Practical, cost-eff ective 

alternatives will be considered and pursued by the Service to 

advance protection and management goals. 

The boundaries of most park units are not based strictly on 

ecological processes or other resource protection principles, 

and park units are increasingly subject to impacts from 

external sources. Examples include air pollution, water 

pollution, and the loss of scenic vistas, natural quiet, and 

wildlife habitat. To fulfi ll NPS protection responsibilities, 

strategies and actions beyond park boundaries may be 

employed. External threats may be addressed by using 

available tools—such as gateway community planning and 

partnership arrangements; NPS educational programs; 

and participation in the planning processes of federal 

agencies and tribal, state, and local governments. Strong 

fulfi llment of Service responsibilities is required by the 

National Environmental Policy Act, the National Historic 

Preservation Act, and other applicable laws to minimize 

impacts on park resources and values. 

3.2 Land Protection Methods 

The Park Service may employ a variety of diff erent methods, 

as appropriate, for protecting park resources. These 

methods will be considered in the land protection planning 

process for each unit. Examples include 

acquisition of fee-simple real property interest, possibly 

with arrangements for some rights to be reserved; 

acquisition of less-than-fee real property interests, such 

as easements or rights-of-way; and 

cooperative approaches, such as cooperative 

agreements, participation in regional consortiums, 

local planning and zoning processes, or other measures 

that do not involve federal acquisition of any interest in 

real property. 

Federal fee-simple ownership (all of the rights associated 

with real property) provides the Service with the greatest 

ability to protect and manage resources and provide for 

public use and enjoyment. Less-than-fee interests (some of 

the rights associated with real property) require a federal 

commitment to monitor and enforce the Service’s interest in 

the aff ected property. Acquisition of less-than-fee interests 

may be appropriate in instances in which the Service needs 

only a specifi c interest in land, or in which it needs to modify 

uses of the land to protect resources or values but full fee 

ownership is not required or possible. 

Acquisition of fee-simple interests is a critically important 

and eff ective land protection method for lands within park 

unit boundaries. The Service may employ, as appropriate, 

a broad strategy to protect land and resources, including 

innovative techniques; partnerships; participation in the 

planning and decision-making processes of other federal 

agencies; and vigilance at the regional and local levels 

of government where nonfederal land use decisions are 

generally made. 

Some park units created by Congress have been specifi cally 

authorized to continue historical or traditional activities 

such as farming, ranching, or low-density residential uses. 

Congress may also restrict the method of acquisition or 

prohibit acquisition without owner consent. In all cases, the 

Park Service will acquire the lands and/or interests in land 

only by the method or methods authorized. 

When nonfederal land is identifi ed for acquisition, the 

Service will make every reasonable eff ort to reach an 

agreement with the owner on the purchase price, in 

accordance with the uniform appraisal standards for 

departmental land transaction policies. If an agreement 

cannot be reached, the Service will take further steps in 

accordance with authorities and congressional directions 

that apply to the unit in question. NPS policy is to acquire 

lands and interests in lands from willing sellers, and 

condemnation is generally considered only as a last resort. 

However, acquisition by condemnation is sometimes 

necessary to establish just compensation, to clear a title, or 

to prevent imminent damage or unacceptable threats to park 

resources and values. 

(See Condemnation 3.8)

3.3 Land Protection Plans 

Planning for the protection of park lands will be integrated 

into the planning process for park management. Land 

protection plans (LPPs) should be prepared to determine 

and publicly document what lands or interests in land need 

to be in public ownership and what means of protection 

are available to achieve the purposes for which the unit was 

created. These plans will be prepared for each unit of the 

national park system containing nonfederal land or interests 

in land within its authorized boundary. A thorough review 

of a park’s authorizing statutes and complete legislative 

history will be conducted as part of the land protection 

planning process. 

Land acquisition priorities will be guided by a park unit’s 

land protection plan. Superintendents will ensure that land 

protection plans are developed, and periodically reviewed 

and updated to identify what land or interests in land 

would facilitate achieving park purposes. These purposes 

and the desired conditions for resources and visitor 
experiences are normally defi ned in the park’s general 

management plan. Strategic plans defi ne what results can 

be accomplished in the foreseeable future—usually a fi veyear period. Land protection plans will be coordinated 

with general management plans, strategic plans, and other 

plans for resource management and visitor use. Decisions 

about acquisition within park boundaries will consider 

the relationship between the park and its adjacent lands. 

Superintendents have the responsibility to be aware of uses 

or activities that are planned for lands around the park that 

may have impacts on park resources and opportunities for 

visitor enjoyment. 

A land protection plan should be simple and concise and 

document (1) what lands or interests in land would advance 

park purposes through public ownership, (2) what means 

of protection are available to achieve park purposes as 

established by Congress, (3) the protection methods and 

funds that will be sought or applied to protect resources 

and to provide for visitor use and park facility development, 

and (4) acquisition priorities. Historic structures and 

objects on the land under consideration within the land 

protection plan will be evaluated for their relevance to the 

park mission and the scope of the park museum collection. 

The land protection plan will specify those structures and 

objects that benefi t the public through public ownership 

and identify the appropriate source of funding. Personal 

property not identifi ed for acquisition should be removed 

by the property owner. For acquisition of water rights, see 

chapter 4, section 4.6.2. 

When appropriate, the land protection plan may serve as a 

vehicle for addressing land protection issues external to a 

park’s boundaries. When external impacts or opportunities 

are addressed, plans will clearly distinguish between the 

authorities related to land acquisition and the authorities for 

the Service to cooperate with other entities beyond the park 

boundary. 

3.4 Cooperative Conservation 

Superintendents will be aware of and monitor state 

government programs for managing state-owned 

submerged lands and resources within NPS units. When 

there is potential for such programs to adversely impact 

park resources or values, superintendents will make their 

concerns known to appropriate state government offi cials 

and encourage compatible land uses that avoid or mitigate 

potential adverse impacts. When federal acquisition of 

state-owned submerged lands and resources within NPS 

units is not feasible, the Park Service will seek to enter into 

cooperative agreements with state governments to ensure 

the adequate protection of park resources and values. 

External threats may originate with proposed uses outside 

a park that may adversely impact park resources or values. 

Superintendents will therefore be aware of and monitor 

land use proposals and changes to adjacent lands and 

their potential impacts. They will also seek to encourage 

compatible adjacent land uses to avoid or to mitigate 

potential adverse eff ects. Superintendents will make their 

concerns known and, when appropriate, actively participate 

in the planning and regulatory processes of neighboring 

jurisdictions, including other federal agencies and tribal, 

state, and local governments. 

In working cooperatively with surrounding landowners and 

managers a superintendent might, for example, comment 

on potential zoning changes for proposed development 

projects, or brief the public and offi cials about park 

resources and related studies that are relevant to proposed 

zoning or other changes. Superintendents should, whenever 

possible, work cooperatively and communicate their 

concerns as early as possible in the process to minimize 

potential confl ict. Superintendents should seek advice from 

the appropriate NPS program managers and the Solicitor’s 

Offi ce when dealing with complicated external land 

protection issues and threats, especially those with potential 

for Service-wide controversy or consequences. 

In some cases—such as air or water pollution—the source 

of a signifi cant threat may be far removed from the park’s 

boundaries. In such cases the Park Service will coordinate at 

the regional or national level in making its concerns known 

and in seeking a remedy to the problem. Threats to parks 

from external sources should be identifi ed and addressed 

in the general management plan or in other planning 

documents. The result will be enhanced public awareness of 

the far-reaching impacts of these threats and an increased 

likelihood of remedial actions by those who are responsible. 

(See Cooperative Conservation Beyond Park Boundaries 1.6; 

Evaluating Impacts on Natural Resources 4.1.3; Partnerships 

4.1.4; Biological Resource Management 4.4; Removal of Exotic 

Species Already Present 4.4.4.2; Water Resource Management 

4.6; Air Resource Management 4.7; Geologic Resource 

Management 4.8; Soundscape Management 4.9; Lightscape 

Management 4.10; Stewardship 5.3. Also see Director’s Order 

#25: Land Protection, and Reference Manual 25); Director’s 

Order #75A: Civic Engagement and Public Involvement) 

3.5 Boundary Adjustments 

The boundary of a national park may be modifi ed only as 

authorized by law. For many parks, such statutory authority 

is included in the enabling legislation or subsequent 

legislation that specifi cally authorizes a boundary revision. 

Where park-specifi c authority is not available, the Land and 

Water Conservation Fund Act of 1965, as amended, provides 

an additional but limited authority to adjust boundaries. 

The act provides for boundary adjustments that essentially 

fall into three distinct categories: (1) technical revisions; 

(2) minor revisions based upon statutorily defi ned criteria; 

and (3) revisions to include adjacent real property acquired 

by donation, purchased with donated funds, transferred 

from any other federal agency, or obtained by exchange. 

Adjacent real property is considered to be land located 

contiguous to but outside the boundary of a national park 

system unit. 

LAND PROTECTION 3.1-3.5

31
MANAGEMENT POLICIES 2006

32 As part of the planning process, the Park Service will 

identify and evaluate boundary adjustments that may be 

necessary or desirable for carrying out the purposes of the 

park unit. Boundary adjustments may be recommended to 

protect signifi cant resources and values, or to enhance 

opportunities for public enjoyment related to park 

purposes; 

address operational and management issues, such 

as the need for access or the need for boundaries to 

correspond to logical boundary delineations such as 

topographic or other natural features or roads; or 

otherwise protect park resources that are critical to 

fulfi lling park purposes. 

If the acquisition will be made using appropriated funds, 

and it is not merely a technical boundary revision, the 

criteria set forth by Congress at 16 USC 460l-9(c) (2) must be 

met. All recommendations for boundary changes must meet 

the following two criteria: 

The added lands will be feasible to administer 

considering their size, confi guration, and ownership; 

costs; the views of and impacts on local communities 

and surrounding jurisdictions; and other factors such as 

the presence of hazardous substances or exotic species. 

Other alternatives for management and resource 

protection are not adequate. 

These criteria apply conversely to recommendations for the 

deletion of lands from the authorized boundaries of a park 

unit. For example, before recommending the deletion of 

land from a park boundary, a fi nding would have to be made 

that the land did not include a signifi cant resource, value, or 

opportunity for public enjoyment related to the purposes 

of the park. Full consideration should be given to current 

and future park needs before a recommendation is made to 

delete lands from the authorized boundaries of a park unit. 

Actions consisting solely of deletions of land from existing 

park boundaries would require an act of Congress. 

3.6 Land Acquisition Authority

The National Park Service acquires lands or interests in land 

within parks when authorized to do so by an act of Congress 

or by presidential proclamation. Although acquisition 

outside authorized boundaries is generally prohibited, 

certain statutes provide limited systemwide authority for 

minor boundary changes and the acceptance of donated 

lands adjacent to a park’s boundaries. There is no single 

statute authorizing land acquisition. There are, however, 

several laws that provide limited acquisition authority 

that is applicable systemwide. For most parks, acquisition 

authority is provided by statutes specifi c to the park. The 

Park Service land acquisition process and land protection 

planning process will comply with all applicable legislation, 

congressional guidelines, executive orders, and Department 

of the Interior policies. For delegations of authority for land 

acquisition, see Director’s Order #25: Land Protection. 

3.7 Land Acquisition Funding

When the acquisition of lands and/or interests in land 

within a park boundary is necessary, the Park Service will 

consider acquisition by

purchase with appropriated or donated funds;

exchange; 

donation;

bargain sale; 

transfer or withdrawal from public domain; or 

condemnation, as a last resort.

Funding for land acquisition within the national park 

system is derived primarily from the Land and Water 

Conservation Fund. LWCF monies are restricted to uses 

associated with the acquisition of land and/or interests in 

land within the authorized boundaries of NPS units. As 

outlined in Department of the Interior policy, the federal 

portion of the fund will be used to acquire the lands, waters, 

and interests therein necessary to achieve the Service’s 

natural, cultural, wildlife, and recreation management 

objectives. To implement this policy, the fund will be 

used in accordance with management objectives for each 

park unit based on the NPS mission and congressional 

mandates and in accordance with an analysis of long-range 

goals for resource protection, safe public access, and park 

management. As further required by departmental policy, 

the Service will, to the extent consistent with statutory 

authorities,

prioritize acquisition of lands or interests in land within 

unit boundaries to achieve park purposes consistent 

with management objectives; 

use to the maximum extent practical, cost-eff ective 

alternatives to the direct federal purchase of privately 

owned lands, and, when acquisition is necessary, 

acquire or retain only the minimum interests 

determined by park offi cials to be necessary to meet 

management objectives; 

cooperate with landowners; other federal agencies; 

tribal, state, and local governments; and the private 

sector to manage land for public use or protect it for 

resource conservation; and

formulate, or revise as necessary, plans for land 

acquisition and resource use or protection to ensure 

that sociocultural impacts are considered and that the 

most outstanding areas are adequately managed. 
3.8 Condemnation

As a general policy and in accordance with congressional 

direction, condemnation is the acquisition method of last 

resort for the Park Service when acquiring lands or interests 

in lands.

It is the Service’s goal to acquire lands or interests in 

lands through a cooperative negotiation process with 

a willing seller. Under certain circumstances, however, 

condemnation may be necessary. Friendly condemnations 

with willing sellers may be appropriate to ensure that the 

United States acquires clear title to the property in question, 

or to enable a court to determine the fair market value to be 

paid for the property. If there is no willing seller, the Service 

may pursue condemnation proceedings if it is fi rst determined that other acquisition means will 

not be successful; 

the acquisition would be consistent with any 

restrictions applicable to that park unit; and

approval has been obtained from the Director and any 

other required sources (e.g., by the Department of the 

Interior or Congress). 

In Alaska, consideration of a land exchange is required 

before acquisition through condemnation.

LAND PROTECTION 3.5-3.8

33

Natural Resource 

Management

The National Park Service will preserve and protect the 

natural resources, processes, systems, and values of units of the 

national park system in an unimpaired condition to perpetuate 

their inherent integrity and to provide present and future generations 

with the opportunity to enjoy them.

4

Natural resource studies

contribute to a better 

understanding of park 

resources, and help 

managers make better 

decisions.
MANAGEMENT POLICIES 2006

36 Introduction

The National Park Service will strive to understand, 

maintain, restore, and protect the inherent integrity of 

the natural resources, processes, systems, and values of 

the parks while providing meaningful and appropriate 

opportunities to enjoy them. The Service recognizes that 

natural processes and species are evolving, and the Service 

will allow this evolution to continue—minimally infl uenced 

by human actions. The natural resources, processes, 

systems, and values that the Service preserves are described 

generally in the 1916 NPS Organic Act and in the enabling 

legislation or presidential proclamation establishing each 

park. They are described in greater detail in management 

plans specifi c to each park. Natural resources, processes, 

systems, and values found in parks include 

physical resources such as water, air, soils, topographic 

features, geologic features, paleontological resources, 

and natural soundscapes and clear skies, both during 

the day and at night 

physical processes such as weather, erosion, cave 

formation, and wildland fi re 

biological resources such as native plants, animals, and 

communities 

biological processes such as photosynthesis, succession, 

and evolution 

ecosystems 

highly valued associated characteristics such as scenic 

views 

In this chapter, natural resources, processes, systems, and 

values are all included in the term “natural resources.” 

The term “natural condition” is used here to describe the 

condition of resources that would occur in the absence of 

human dominance over the landscape. 

The Service manages the natural resources of parks to 

maintain them in an unimpaired condition for present 

and future generations in accordance with NPS-specifi c 

statutes, including the NPS Organic Act and the National 

Parks Omnibus Management Act of 1998; general 

environmental laws such as the Clean Air Act, the Clean 

Water Act, the Endangered Species Act of 1973, the National 

Environmental Policy Act, and the Wilderness Act; 

executive orders; and applicable regulations. 

Activities that take place outside park boundaries and that 

are not managed by the Service can profoundly aff ect the 

Service’s ability to protect natural resources inside the 

parks. The Service will act to protect natural resources 

from impacts caused by external activities by working 

cooperatively with federal, state, and local agencies; tribal 

authorities; user groups; adjacent landowners; and others 

to identify and achieve broad natural resource goals. By 

working cooperatively through both formal and informal 

lines of communication and consultation, the Service 

will better achieve park management objectives and the 

protection of parks’ natural resources. 

(See Park Management 1.4; Cooperative Conservation Beyond 

Park Boundaries 1.6; Partnerships 4.1.4) 

4.1 General Management Concepts 

As explained in chapter 1 of these Management Policies, 

preserving park resources and values unimpaired is the core 

or primary responsibility of NPS managers. The Service 

cannot conduct or allow activities in parks that would 

impact park resources and values to a level that would 

constitute impairment. To comply with this mandate, park 

managers must determine in writing whether proposed 

activities in parks would impair natural resources. Park 

managers must also take action to ensure that ongoing 

NPS activities do not cause the impairment of park natural 

resources. In cases of uncertainty as to the impacts of 

activities on park natural resources, the protection of 

natural resources will predominate. The Service will reduce 

such uncertainty by facilitating and building a sciencebased understanding of park resources and the nature and 

extent of the impacts involved.

Natural resources will be managed to preserve fundamental 

physical and biological processes, as well as individual 

species, features, and plant and animal communities. The 

Service will not attempt to solely preserve individual species 

(except threatened or endangered species) or individual 

natural processes; rather, it will try to maintain all the 

components and processes of naturally evolving park 

ecosystems, including the natural abundance, diversity, 

and genetic and ecological integrity of the plant and animal 

species native to those ecosystems. Just as all components 

of a natural system will be recognized as important, 

natural change will also be recognized as an integral part 

of the functioning of natural systems. By preserving these 

components and processes in their natural condition, the 

Service will prevent resource degradation and therefore 

avoid any subsequent need for resource restoration. In 

managing parks to preserve naturally evolving ecosystems, 

and in accordance with requirements of the National Parks 

Omnibus Management Act of 1998, the Service will use the 

fi ndings of science and the analyses of scientifi cally trained 

resource specialists in decision-making. 

Park units with signifi cant natural resources range in size 

from just a few acres to millions of acres and from urban 

to remote and wilderness settings. As integral parts of a 

national park system, these park units individually and 

cumulatively contribute to America’s natural heritage 

and provide the places where that heritage can be better 

understood and enjoyed.

Science has demonstrated that few if any park units can fully 

realize or maintain their physical and biological integrity if 

managed as biogeographic islands. Instead, park units must 

be managed in the context of their larger ecosystems. The 

ecosystem context for some species and processes may be 

relatively small, while for others this context is vast. In any 

case, superintendents face the challenge of placing each of 

the resources they protect in their appropriate ecosystem 
context and then working with all involved and aff ected 

parties to advance their shared conservation goals and avoid 

adverse impacts on these resources.

Superintendents must be mindful of the setting in which 

they undertake the protection of park resources. The 

practicability of achieving a natural soundscape may be 

quite reasonable at a park unit in a remote setting, but the 

same may not be true at a popular roadside viewpoint in 

the same park unit, or at a park unit in a more urban locale. 

Similarly, the restoration and maintenance of natural fi re 

regimes can advance more rapidly and on a larger landscape 

scale in wilderness areas where considerations for public 

safety and the protection of private property and physical 

developments can usually be readily addressed. However, 

the restoration and maintenance of natural fi re regimes in 

more developed and highly visited locations with the same 

considerations can be extremely complicated. The goal of 

protecting natural resources and values while providing 

for their enjoyment remains the same in all cases except 

to the extent that Congress has directly and specifi cally 

provided otherwise. The degree to which a park can 

adequately restore and maintain its natural resources to a 

desired condition will depend on a variety of factors—such 

as size, past management events, surrounding land uses, 

and the availability of resources. Through its planning 

processes, the Park Service will determine the desired 

future conditions for each park unit and identify a strategy 

to achieve them. This strategy should include working 

cooperatively with adjacent land and resource managers, as 

appropriate.

The Service will not intervene in natural biological or 

physical processes, except

when directed by Congress; 

in emergencies in which human life and property are at 

stake; 

to restore natural ecosystem functioning that has been 

disrupted by past or ongoing human activities; or 

when a park plan has identifi ed the intervention as 

necessary to protect other park resources, human 

health and safety, or facilities. 

Any such intervention will be kept to the minimum 

necessary to achieve the stated management objectives. 

Natural systems in the national park system, and the human 

infl uences upon them, will be monitored to detect change. 

The Service will evaluate possible causes and eff ects of 

changes that might cause impacts on park resources and 

values. The Service will use the results of monitoring and 

research to understand the detected change and to develop 

appropriate management actions. 

Biological or physical processes altered in the past by 

human activities may need to be actively managed to restore 

them to a natural condition or to maintain the closest 

approximation of the natural condition when a truly natural 

system is no longer attainable. Prescribed burning and the 

control of ungulates when predators have been extirpated 

are two examples. Decisions about the extent and degree 

of management actions taken to protect or restore park 

ecosystems or their components will be based on clearly 

articulated, well-supported management objectives and the 

best scientifi c information available. 

There may be situations in which an area may be closed to 

visitor use to protect the natural resources (for example, 

during an animal breeding season) or for reasons of 

public safety (for example, during a wildland fi re). Such 

closures may be accomplished under the superintendent’s 

discretionary authority and will comply with applicable 

regulations (36 CFR 1.5 and 1.7). 

(See The Prohibition on Impairment of Park Resources 

and Values 1.4.4; Environmental Leadership 1.8; General 

Management Planning 2.3.1; Facility Planning and Design 

9.1.1. Also see Director’s Order #11B: Ensuring Quality of 

Information Disseminated by the NPS; Director’s Order #75A: 

Civic Engagement and Public Involvement) 

4.1.1 Planning for Natural Resource Management 

Each park with a signifi cant natural resource base (as 

exemplifi ed by participation in the Vital Signs component 

of the Natural Resource Challenge) will prepare and 

periodically update a long-range (looking at least one to 

two decades ahead) comprehensive strategy for natural 

resource management. This long-range strategy will 

describe the comprehensive program of activities needed 

to achieve the desired future conditions for the park’s 

natural resources. It will integrate the best available science 

and prescribe activities such as inventories, research, 

monitoring, restoration, mitigation, protection, education, 

and management of resource uses. The strategy will also 

describe the natural-resource-related activities needed to 

achieve desired future conditions for cultural resources 

(such as historic landscapes) and visitor enjoyment. 

Similarly, planning for park operations, development, and 

management activities that might aff ect natural resources 

will be guided by high-quality, scientifi cally acceptable 

information, data, and impact assessment. Where existing 

information is inadequate, the collection of new information 

and data may be required before decision-making. Longterm research or monitoring may also be necessary to 

correctly understand the eff ects of management actions on 

natural resources whose function and signifi cance are not 

clearly understood. 

(See Decision-making Requirements to Identify and Avoid 

Impairments 1.4.7; General Management Planning 2.3.1; 

Land Protection Plans 3.3; NPS-conducted or -sponsored 

Inventory, Monitoring, and Research Studies 4.2.1; Cultural 

Landscapes 5.3.5.2; Chapter 8: Use of the Parks; Chapter 9: 

Park Facilities. Also see 516 DM 4.16—Adaptive Management) 

NATURAL RESOURCE MANAGEMENT 4.1

37
MANAGEMENT POLICIES 2006

38 4.1.2 Natural Resource Information 

Information about natural resources that is collected and 

developed will be maintained for as long as it is possible 

to do so. All forms of information collected through 

inventorying, monitoring, research, assessment, traditional 

knowledge, and management actions will be managed to 

professional NPS archival and library standards. 

Most information about park natural resources will be 

made broadly available to park employees, the scientifi c 

community, and the public. Pursuant to provisions of the 

National Parks Omnibus Management Act, the Service will 

withhold information about the nature and specifi c location 

of sensitive park natural resources—specifi cally caves and 

mineral, paleontological, endangered, threatened, rare, 

or commercially valuable resources— unless the Service 

determines, in writing, that disclosure of the information 

would further the purposes of the park; would not create 

an unreasonable risk of harm, theft, or destruction of 

resources; and would be consistent with other applicable 

laws.

Under the Freedom of Information Act, the Park Service 

may be able to withhold sensitive natural resource data 

and information that is used in ongoing law enforcement 

investigations or subject to national security clearance 

classifi cation. The Service may be able to withhold data 

provided through interim project reporting, pending the 

completion of relevant projects and the receipt of fi nal 

project reports, as specifi ed in approved scientifi c research 

and collecting permits and associated research proposals 

if the release of information will cause foreseeable harm 

to the NPS interests. Information that is made available 

to the public (that is, not withheld under the Freedom of 

Information Act or other laws) will remain searchable and 

accessible under the professional and NPS archival and 

library standards. 

(See Information Confi dentiality 1.9.2.3; Confi dentiality 5.2.3; 

Interpretive and Educational Programs 7.1. Also see Director’s 

Order #66: FOIA and Protected Resource Information; 

Museum Handbook 24-Part II) 

4.1.3 Evaluating Impacts on Natural Resources 

Planning, environmental evaluation, and civic engagement 

regarding management actions that may aff ect the natural 

resources of the national park system are essential for 

carrying out the Service’s responsibilities to present 

and future generations. The Service will ensure that the 

environmental costs and benefi ts of proposed operations, 

development, and resource management are fully and 

openly evaluated before taking actions that may impact the 

natural resources of parks. This evaluation must include 

appropriate participation by the public; the application 

of scholarly, scientifi c, and technical information in the 

planning, evaluation, and decision-making processes; 

the use of NPS knowledge and expertise through 

interdisciplinary teams and processes; and the full 

incorporation of mitigation measures, pollution prevention 

techniques, and other principles of sustainable park 

management. 

Every environmental assessment and environmental 

impact statement produced by the Service will include 

an analysis of whether the impacts of a proposed activity 

constitute impairment of park natural resources and 

values. Every fi nding of no signifi cant impact, record of 

decision, and National Historic Preservation Act Section 

106 memorandum of agreement signed by the Park Service 

will contain a discrete certifi cation that the impacts of the 

proposed activity will not impair park natural resources and 

values. 

(See Park Management 1.4; Implementation Planning 2.3.4; 

NPS-conducted or -sponsored Inventory, Monitoring, 

and Research Studies 4.2.1. Also see Director’s Order #12: 

Conservation Planning, Environmental Impact Analysis, and 

Decision-making) 

4.1.4 Partnerships 

The Service will pursue opportunities to improve 

natural resource management within parks and across 

administrative boundaries by pursuing cooperative 

conservation with public agencies, appropriate 

representatives of American Indian tribes and other 

traditionally associated peoples, and private landowners 

in accordance with Executive Order 13352 (Facilitation 

of Cooperative Conservation). The Service recognizes 

that cooperation with other land and resource managers 

can accomplish ecosystem stability and other resource 

management objectives when the best eff orts of a 

single manager might fail. Therefore, the Service will 

develop agreements with federal, tribal, state, and local 

governments and organizations; foreign governments 

and organizations; and private landowners, when 

appropriate, to coordinate plant, animal, water, and 

other natural resource management activities in ways 

that maintain and protect park resources and values. 

Such cooperation may include park restoration activities, 

research on park natural resources, and the management 

of species harvested in parks. Cooperation also may 

involve coordinating management activities in two or 

more separate areas, integrating management practices 

to reduce confl icts, coordinating research, sharing data 

and expertise, exchanging native biological resources for 

species management or ecosystem restoration purposes, 

establishing native wildlife corridors, and providing 

essential habitats adjacent to or across park boundaries. 

In addition, the Service will seek the cooperation of 

others in minimizing the impacts of infl uences originating 

outside parks by controlling noise and artifi cial lighting, 

maintaining water quality and quantity, eliminating toxic 

substances, preserving scenic views, improving air quality, 

preserving wetlands, protecting threatened or endangered 

species, eliminating exotic species, managing the use of 

pesticides, protecting shoreline processes, managing fi res, 

managing boundary infl uences, and using other means of 

preserving and protecting natural resources. 

(See Cooperative Conservation Beyond Park Boundaries 1.6; 

Partnerships 1.10; Cooperative Conservation 3.4; Agreements 

5.2.2) 
4.1.5 Restoration of Natural Systems 

The Service will reestablish natural functions and processes 

in parks unless otherwise directed by Congress. Landscapes 

disturbed by natural phenomena, such as landslides, 

earthquakes, fl oods, hurricanes, tornadoes, and fi res, will 

be allowed to recover naturally unless manipulation is 

necessary to protect other park resources, developments, 

or employee and public safety. Impacts on natural systems 

resulting from human disturbances include the introduction 

of exotic species; the contamination of air, water, and soil; 

changes to hydrologic patterns and sediment transport; 

the acceleration of erosion and sedimentation; and the 

disruption of natural processes. The Service will seek to 

return such disturbed areas to the natural conditions and 

processes characteristic of the ecological zone in which 

the damaged resources are situated. The Service will use 

the best available technology, within available resources, 

to restore the biological and physical components of these 

systems, accelerating both their recovery and the recovery 

of landscape and biological community structure and 

function. Eff orts may include, for example 

removal of exotic species

removal of contaminants and nonhistoric structures or 

facilities 

restoration of abandoned mineral lands, abandoned 

or unauthorized roads, areas overgrazed by domestic 

animals, or disrupted natural waterways and/or 

shoreline processes

restoration of areas disturbed by NPS administrative, 

management, or development activities (such as 

hazard tree removal, construction, or sand and gravel 

extraction) or by public use

restoration of natural soundscapes

restoration of native plants and animals 

restoration of natural visibility

When park development/facilities are damaged or destroyed 

and replacement is necessary, the development will be 

replaced or relocated to promote the restoration of natural 

resources and processes. 

(See Decision-making Requirements to Identify and Avoid 

Impairments 1.4.7; Restoration of Native Plant and Animal 

Species 4.4.2.2; Management of Natural Landscapes 4.4.2.4; 

Siting Facilities to Avoid Natural Hazards 9.1.1.5. Also see 

Director’s Order #18: Wildland Fire Management) 

4.1.6 Compensation for Injuries to 

 Natural Resources 

The Service will use all legal authorities that are available to 

protect and restore natural resources and the environmental 

benefi ts they provide when actions of another party cause 

the destruction or loss of, or injury to, park resources or 

values. As a fi rst step, damage assessments provide the 

basis for determining the restoration and compensation 

needs that address the public’s loss and are a key milestone 

toward the ultimate goal, which is restoration, replacement, 

and/or reclamation of resources for the American public. 

Pursuant to applicable provisions of the Comprehensive 

Environmental Response, Compensation and Liability Act 

of 1980; the Oil Pollution Act of 1990; the Federal Water 

Pollution Control Act (as amended by the Clean Water Act 

of 1977); and the National Park System Resource Protection 

Act, the Service will 

determine the injury caused to natural resources, assess 

all appropriate damages, and monitor damages; 

seek to recover all appropriate costs associated with 

responses to such actions and the costs of assessing 

resource damages, including the direct and indirect 

costs of response, restoration, and monitoring 

activities; and 

use all sums recovered in compensation for resource 

injuries to restore, replace, or acquire the equivalent of 

the resources that were the subject of the action. 

(See Compensation for Injuries to Cultural Resources 5.3.1.3. 

Also see Director’s Order #14: Resource Damage Assessment 

and Restoration) 

4.2 Studies and Collections 

The Service will encourage appropriately reviewed natural 

resource studies whenever such studies are consistent with 

applicable laws and policies. These studies support the NPS 

mission by providing the Service, the scientifi c community, 

and the public with an understanding of park resources, 

processes, values, and uses that will be cumulative and 

constantly refi ned. This approach will provide a scientifi c 

and scholarly basis for park planning, development, 

operations, management, education, and interpretive 

activities. 

As used here, the term studies means short- or longterm scientifi c or scholarly investigations or educational 

activities that may involve natural resource surveys, 

inventories, monitoring, and research, including data and 

specimen collection. Studies include projects conducted 

by researchers and scholars in universities, foundations 

and other institutions; tribal colleges and organizations; 

other federal, tribal, and state agencies; and NPS staff . The 

data and information acquired through studies conducted 

in parks will be made publicly available, consistent with 

section 4.1.2, and will be obtained and disseminated in 

accordance with the standards found in Director’s Order 

#11B: Ensuring Quality of Information Disseminated by the 

NPS. 

The Service will promote cooperative relationships with 

educational and scientifi c institutions and qualifi ed 

individuals when that relationship can assist the Service 

in obtaining information and when the opportunity for 

research and study in the parks off ers the cooperators a 

signifi cant benefi t to their programs. NPS facilities and 

assistance may be made available to qualifi ed cooperators 

who are conducting NPS-authorized studies.

Studies in parks will be preceded by (1) an approved scope 

of work, proposal, or other detailed written description 

NATURAL RESOURCE MANAGEMENT 4.1-4.2

39
MANAGEMENT POLICIES 2006

40 of the work to be performed; and (2) a written statement 

of environmental and cultural resource compliance 

appropriate to the proposed methodology and study site. 

All studies in parks will employ nondestructive methods 

to the maximum extent feasible with respect to resource 

protection, research methodology, and the scientifi c and 

management value of the information and collections to 

be obtained. Although studies involving physical impacts 

to park resources or the removal of objects or specimens 

may be permitted, studies and collecting activities that will 

lead to the impairment of park resources and values are 

prohibited. 

Scientifi c natural resource collecting activities are governed 

by 36 CFR 2.5. A very limited number of other types of 

natural resource collecting are governed by 36 CFR 2.1. 

In most cases, only small quantities may be collected. The 

repeated collection of materials to ensure a continuing 

source of supply for research or propagation is prohibited 

unless the proposed activity clearly requires repeated 

collection, as might be the case with a monitoring or park 

restoration program. 

(See Decision-making Requirements to Identify and Avoid 

Impairments 1.4.7; Managing Information 1.9.2; Research 

5.1; Resource Access and Use 5.3.5.3.1; Collecting Natural 

Products 8.8; Consumptive Uses 8.9; Social Science Studies 

8.11. Also see Director’s Order #28B: Ethnography Program; 

Director’s Order #74: Studies and Collecting; Director’s Order 

#78: Social Science) 

4.2.1 NPS-conducted or -sponsored Inventory, 

Monitoring, and Research Studies 

The Service will 

identify, acquire, and interpret needed inventory, 

monitoring, and research, including applicable 

traditional knowledge, to obtain information and 

data that will help park managers accomplish park 

management objectives provided for in law and 

planning documents; 

defi ne, assemble, and synthesize comprehensive 

baseline inventory data describing the natural resources 

under NPS stewardship, and identify the processes that 

infl uence those resources; 

use qualitative and quantitative techniques to monitor 

key aspects of resources and processes at regular 

intervals;

analyze the resulting information to detect or predict 

changes (including interrelationships with visitor 

carrying capacities) that may require management 

intervention and provide reference points for 

comparison with other environments and time frames; 

and

use the resulting information to maintain—and where 

necessary restore—the integrity of natural systems. 

The Service may support studies to (among other things)

ensure a systematic, current, and fully adequate park 

information base; 

provide a sound basis for policy, guidelines, and 

management actions; 

develop eff ective strategies, methods, and technologies 

to (1) restore disturbed resources, and (2) predict, avoid, 

or minimize adverse impacts on natural and cultural 

resources and on visitors and related activities; 

ensure that plans and actions refl ect contemporary 

knowledge about the natural and cultural context of 

special natural areas, cultural landscapes, and natural 

resources having traditional cultural meaning and value 

to associated human groups; 

determine the causes of natural resource management 

problems and identify alternative strategies for 

potentially resolving them; 

understand the ceremonial and traditional resource 

management practices of Native Americans, subsistence 

uses by rural Alaska residents, and traditional uses by 

groups with demonstrated ties to particular natural 

resources of parks; 

further understand park ecosystems and related 

human social systems, including visitors and gateway 

communities, and document their components, 

condition, and signifi cance; and 

ensure that the interpretation of the parks’ natural 

resources and issues refl ects current standards of 

scholarship relating to the history, science, and 

condition of the resources. 

Superintendents may authorize NPS staff to carry out 

routine inventory, monitoring, study, and related duties 

without requiring an NPS scientifi c research and collecting 

permit. With or without an NPS permit, staff will comply 

appropriately with professional standards and with general 

and park-specifi c research and collecting permit conditions. 

All research and data and specimen collection conducted 

by NPS employees will be appropriately documented 

and carried out in accordance with all laws, regulations, 

policies, and professional standards pertaining to survey, 

inventory, monitoring, and research. NPS staff will be 

expected to make their fi ndings available to the public, such 

as by publication in professional journals or presentation in 

interpretive programs. 

Park inventory, monitoring, and research needs and specifi c 

research objectives will be identifi ed in the appropriate 

management plans for each park, or in park, regional, or 

Service-wide program plans. 

(See Decision-making Requirements to Identify and Avoid 

Impairments 1.4.7; Natural Resource Information 4.1.2; 

Restoration of Natural Systems 4.1.5; Weather and Climate 

4.7.2; Miscellaneous Management Facilities 9.4.5) 

4.2.2 Independent Studies 

Non-NPS studies conducted in parks are not required to 

address specifi cally identifi ed NPS management issues 

or information needs. However, these studies, including 

data and specimen collection, require an NPS scientifi c 

research and collecting permit. The studies must conform 

to NPS policies and guidelines regarding the collection 
and publication of data, the conduct of studies, wilderness 

restrictions, and park-specifi c requirements identifi ed 

in the terms and conditions of the permit. Projects will 

be administered and conducted only by fully qualifi ed 

personnel and conform to current standards of scholarship. 

NPS scientifi c research and collecting permits may include 

requirements that permittees provide for parks, within 

agreed-upon time frames, copies of appropriate fi eld notes, 

cataloging, and other data; information about the data; 

progress reports; interim and fi nal reports; and publications 

derived from the permitted activities. 

(See Independent Research 5.1.2) 

4.2.3 Natural Resource Collections 

Natural resource collections include non-living and 

living specimens. Guidance for collecting and managing 

specimens and associated fi eld records can be found in the 

Code of Federal Regulations (36 CFR 2.5) and NPS guidance 

documents, including the museum handbook. Nonliving 

specimens and their associated fi eld records are managed 

as museum collections. Living collections will be managed 

in accordance with the provisions of a park’s general 

management plan, the Animal Welfare Act, and other 

appropriate requirements. 

Field data, objects, specimens, and features obtained for 

preservation during inventory, monitoring, research, 

and study projects, together with associated records and 

reports, will be managed over the long term within the 

museum collection. Specimens that are not authorized for 

consumptive analysis remain federal property and will 

be labeled and cataloged into the NPS cataloging system 

(ANCS+, or its successor) in accordance with applicable 

regulations (36 CFR 2.5). 

(See Paleontological Resources and Their Contexts 4.8.2.1; 

Collecting Natural Products 8.8; Consumptive Uses 8.9; 

Natural and Cultural Studies, Research, and Collection 

Activities 8.10; Social Science Studies 8.11. Also see Director’s 

Order #24: NPS Museum Collections Management) 

4.2.4 Collection Associated with the 

 Development of Commercial Products 

Extractive use of park resources for commercial purposes is 

prohibited except when specifi cally authorized by law or in 

the exercise of valid existing rights. 

The results of research conducted on any material 

originating as a research specimen collected under an 

NPS scientifi c research and collecting permit (including 

progeny, replicates, or derivatives) may be used only for 

scientifi c purposes and not for commercial purposes 

without supplemental written authorization from the Park 

Service. The sale of collected research specimens from the 

permitted collector to third parties is prohibited; these 

research specimens remain federal property. Specimens and 

any material originating as a specimen may be loaned for 

scientifi c purposes related to commercial use in accordance 

with the terms of applicable written authorization from the 

Park Service. 

Similarly, the results of other research conducted under 

an NPS scientifi c research and collecting permit that does 

not involve the collection of specimens may be used for 

scientifi c purposes only and may not be used for commercial 

purposes without supplemental written authorization. 

(Also see Director’s Order #74: Studies and Collecting) 

4.3 Special Designations 

The Park Service recognizes that special designations apply 

to parts or all of some parks to highlight the additional 

management considerations that those designated areas 

warrant. These designations include research natural area, 

experimental research area, wilderness area, national wild 

and scenic river, national natural landmark, biosphere 

reserve, and world heritage listing. These designations 

do not reduce the Service’s authority for managing the 

parks, although in some cases they may create additional 

management requirements or considerations. 

4.3.1 Research Natural Areas 

Research natural areas contain prime examples of natural 

resources and processes, including signifi cant genetic 

resources that have value for long-term observational 

studies or as control areas for manipulative research taking 

place outside the parks. Superintendents recommend areas 

of parks to their regional director, who is authorized to 

designate them as research natural areas. Superintendents 

cooperate with other federal land managers in identifying 

park sites for designation and planning research and 

educational activities for this interagency program. 

Activities in research natural areas generally will be 

restricted to nonmanipulative research, education, and 

other activities that will not detract from an area’s research 

values. 

4.3.2 Experimental Research Areas 

Experimental research areas are specifi c tracts that are set 

aside and managed for approved manipulative research. 

Manipulative research is defi ned as research in which 

conscious alteration of existing conditions is part of the 

experiment. The limited situations that may warrant 

establishment of experimental research areas are identifi ed 

in Natural Resources Reference Manual 77. Superintendents 

may recommend areas of the park to their regional director, 

who is authorized to designate them as experimental 

research areas. 

4.3.3 Wilderness Areas 

See chapter 6. 

4.3.4 National Wild and Scenic Rivers System 

Parks containing one or more river segments listed in the 

NPS National Rivers Inventory, or that have characteristics 

that might make them eligible for the National Wild and 

Scenic Rivers System, will comply with section 5(d)(1) of 

the Wild and Scenic Rivers Act (16 USC 1276(d)(1)), which 

instructs each federal agency to assess whether those rivers 

are suitable for inclusion in the system. The assessments, 

NATURAL RESOURCE MANAGEMENT 4.2-4.3

41
MANAGEMENT POLICIES 2006

42 and any resulting management requirements, may be 

incorporated into a park’s general management plan or 

other management plan. No management actions may be 

taken that could adversely aff ect the values that qualify a 

river for inclusion in the National Wild and Scenic Rivers 

System. 

(See Wild and Scenic Rivers 2.3.1.9. Also see Director’s Order 

#46A: Wild and Scenic Rivers within the National Park 

System; Wild and Scenic Rivers Act) 

4.3.5 National Natural Landmarks 

Park sites that are among the best examples of a type 

of biotic community or geological feature in a park’s 

physiographic province may be nominated to the Secretary 

of the Interior for inclusion in the National Registry 

of Natural Landmarks. As the agency responsible for 

maintaining the registry, the Park Service has developed 

criteria for eligibility (36 CFR Part 62). 

4.3.6 Biosphere Reserves 

Biosphere reserves are sites that are part of a worldwide 

network of natural reserves recognized for their roles 

in conserving genetic resources; facilitating long-term 

research and monitoring; and encouraging education, 

training, and the demonstration of sustainable resource 

use. A biosphere reserve is usually representative of a 

biogeographic province. 

With the approval of the NPS Director, parks may be 

nominated for recognition as biosphere reserves, or as 

constituents of biosphere reserves. Specifi c guidance 

for recognition is provided by the United States Man 

and Biosphere (MAB) Programme based on the general 

guidance of the United Nations Education, Scientifi c, and 

Cultural Organization (UNESCO). Working within the 

Man and Biosphere Programme, the Park Service may assist 

in determining the suitability and feasibility of including 

parks in U.S. biosphere reserves, may participate in research 

and educational activities, and may furnish information 

on its biosphere reserves for inclusion in domestic and 

international information systems. 

The designation of park lands as biosphere reserves or 

constituents of biosphere reserves does not alter the 

purposes for which the parks were established, change the 

management requirements, or reduce NPS jurisdiction over 

parks. To the extent practicable, superintendents of parks 

that are recognized as biosphere reserves will incorporate 

biosphere reserve objectives into general management plans, 

implementation plans, action plans, and park interpretive 

programs. Superintendents will pursue opportunities to use 

the biosphere reserve designation as a framework for local, 

regional, and international cooperation. 

4.3.7 World Heritage List 

Park properties containing natural features believed to 

possess outstanding universal value to humanity may 

qualify for placement on the World Heritage List under 

criteria described in the World Heritage Committee 

Operational Guidelines and in accordance with the World 

Heritage Convention. Before they can be nominated, all 

such properties must be assessed according to World 

Heritage criteria, and before the United States can submit a 

nomination to the World Heritage Committee, the property 

must fi rst be included on the U.S. Tentative List of Potential 

Future World Heritage Nominations.

Any park superintendent who believes that part or all of the 

park they manage should be considered for inscription on 

the World Heritage List must consult with the NPS Offi ce of 

International Aff airs, the NPS Director, and the Department 

of the Interior before proceeding. U.S. recommendations 

are approved by an interagency panel chaired by the 

Assistant Secretary for Fish and Wildlife and Parks based 

on criteria promulgated by the World Heritage Committee. 

These criteria and the rules for U.S. participation in the 

Convention Concerning the Protection of the World 

Cultural and Natural Heritage are published in 36 CFR 

Part 73. 

Once a property is placed on the World Heritage List, 

the Park Service will recognize the designation in 

public information and interpretive programs. Where 

appropriate, superintendents should use the park’s world 

heritage status to promote sustainable tourism (tourism 

that does not adversely impact park resources and values) 

and the preservation of the world’s natural and cultural 

heritage. Placement on the World Heritage List will not 

alter the purposes for which a park was established, or its 

management requirements, or reduce NPS jurisdiction over 

the park. 

(See Nominations for World Heritage List Designation 

5.1.3.2.3) 

4.4 Biological Resource Management 

4.4.1 General Principles for Managing 

 Biological Resources 

The National Park Service will maintain as parts of the 

natural ecosystems of parks all plants and animals native to 

park ecosystems. The term “plants and animals” refers to all 

fi ve of the commonly recognized kingdoms of living things 

and includes such groups as fl owering plants, ferns, mosses, 

lichens, algae, fungi, bacteria, mammals, birds, reptiles, 

amphibians, fi shes, insects, worms, crustaceans, and 

microscopic plants or animals. The Service will successfully 

maintain native plants and animals by

preserving and restoring the natural abundances, 

diversities, dynamics, distributions, habitats, and 

behaviors of native plant and animal populations and 

the communities and ecosystems in which they occur; 

restoring native plant and animal populations in parks 

when they have been extirpated by past human-caused 

actions; and 

minimizing human impacts on native plants, animals, 

populations, communities, and ecosystems, and the 

processes that sustain them. 
4.4.1.1 Plant and Animal Population 

 Management Principles 

The individual plants and animals found in parks are 

genetically parts of species populations that may extend 

across both park and nonpark lands. As local populations 

within a group of populations naturally fl uctuate in size, 

they become vulnerable to extirpation during periods when 

their numbers are low. The periodic disappearance of local 

populations is common in some species, and the regional 

persistence of these species depends upon the natural 

recolonization of suitable habitat by individuals from 

the remaining local populations. Thus, providing for the 

persistence of a species in a park may require maintaining a 

number of local populations, often both within and outside 

the park. 

In addition, some populations of vertebrate and invertebrate 

animals, such as bats, caribou, warblers, marine turtles, 

frogs, salmon, whales, and butterfl ies, migrate at regular 

intervals into and out of parks. For these migratory 

populations, the parks provide only one of the several major 

habitats they need, and survival of the species in parks also 

depends on the existence and quality of habitats outside 

the parks, including in many cases outside the United 

States. The Service will adopt park resource preservation, 

development, and use management strategies that are 

intended to maintain the natural population fl uctuations 

and processes that infl uence the dynamics of individual 

plant and animal populations, groups of plant and animal 

populations, and migratory animal populations in parks. 

In addition to maintaining all native plant and animal 

species and their habitats inside parks, the Service will work 

with other land managers to encourage the conservation 

of the populations and habitats of these species outside 

parks whenever possible. To meet its commitments for 

maintaining native species in parks, the Service will 

cooperate with states, tribal governments, the U.S. Fish and 

Wildlife Service, NOAA Fisheries, and other countries, as 

appropriate, to 

participate in local and regional scientifi c and planning 

eff orts, identify ranges of populations of native plants 

and animals, and develop cooperative strategies for 

maintaining or restoring these populations in the parks; 

suggest mutually benefi cial harvest regulations for 

lands and waters outside the parks for populations that 

extend across park boundaries, such as resident deer or 

fi shes; for short-distance seasonal migrant populations, 

such as elk or fi shes; or for long-distance migrant 

populations, such as salmon; 

develop data, through monitoring, for use in plant 

and animal management programs (such as local land 

management decision-making for assessing resident 

plant and animal population trends and in international 

management negotiations for such far-ranging seasonal 

migrants as geese, whales, and marine turtles); 

present information about species life cycles, ranges, 

and population dynamics in park interpretive programs 

for use in increasing public awareness of management 

needs for all species, both resident and migrant, that 

occur in parks; and 

prevent the introduction of exotic species into units of 

the national park system, and remove, when possible, or 

otherwise contain individuals or populations of these 

species that have already become established in parks. 

(See Civic Engagement 1.7; Cooperative Conservation Beyond 

Park Boundaries 1.6)

4.4.1.2 Genetic Resource Management Principles 

The Service will strive to protect the full range of genetic 

types (genotypes) of native plant and animal populations in 

the parks by perpetuating natural evolutionary processes 

and minimizing human interference with evolving genetic 

diversity. 

The restoration of native plants and animals will be 

accomplished using organisms taken from populations 

as closely related genetically and ecologically as possible 

to park populations, preferably from similar habitats in 

adjacent or local areas. Deviations from this general policy 

may be made where the management goal is to increase the 

variability of the park gene pool to mitigate past, humaninduced loss of genetic variability. Actions to transplant 

organisms for purposes of restoring genetic variability 

through gene fl ow between native breeding populations will 

be preceded by an assessment of the genetic compatibility of 

the populations. 

The need to maintain appropriate levels of genetic diversity 

will guide decisions on what actions to take to manage 

isolated populations of species or to enhance the recovery 

of populations of rare, threatened, or endangered species. 

All resource management actions involving planting 

or relocating species, subspecies, or varieties will be 

guided by detailed knowledge of site ecological histories 

and knowledge of local adaptations, ranges, and habitat 

requirements. 

When native plants or animals are removed for any reason—

such as hunting, fi shing, pest management, or culling to 

reduce unnatural population conditions resulting from 

human activities—the Service will maintain the appropriate 

levels of natural genetic diversity. 

(See Restoration of Natural Systems 4.1.5; Restoration of 

Native Plant and Animal Species 4.4.2.2) 

4.4.1.3 Defi nition of Native and Exotic Species

Native species are defi ned as all species that have occurred, 

now occur, or may occur as a result of natural processes 

on lands designated as units of the national park system. 

Native species in a place are evolving in concert with each 

other. Exotic species are those species that occupy or could 

occupy park lands directly or indirectly as the result of 

deliberate or accidental human activities. Exotic species are 

also commonly referred to as nonnative, alien, or invasive 

species. Because an exotic species did not evolve in concert 

with the species native to the place, the exotic species is not 

NATURAL RESOURCE MANAGEMENT 4.3-4.4

43
MANAGEMENT POLICIES 2006

44 a natural component of the natural ecosystem at that place. 

Genetically modifi ed organisms exist solely due to human 

activities and therefore are managed as exotic species in 

parks. 

4.4.2 Management of Native Plants and Animals 

Whenever possible, natural processes will be relied upon 

to maintain native plant and animal species and infl uence 

natural fl uctuations in populations of these species. The 

Service may intervene to manage individuals or populations 

of native species only when such intervention will not cause 

unacceptable impacts to the populations of the species 

or to other components and processes of the ecosystems 

that support them. The second is that at least one of the 

following conditions exists:

Management is necessary 

 because a population occurs in an unnaturally 

high or low concentration as a result of human 

infl uences (such as loss of seasonal habitat, the 

extirpation of predators, the creation of highly 

productive habitat through agriculture or urban 

landscapes) and it is not possible to mitigate the 

eff ects of the human infl uences; 

 to protect specifi c cultural resources of parks; 

 to accommodate intensive development in portions 

of parks appropriate for and dedicated to such 

development; 

 to protect rare, threatened, or endangered species; 

 to protect human health as advised by the U.S. 

Public Health Service (which includes the Centers 

for Disease Control and the NPS public health 

program); 

 to protect property when it is not possible to change 

the pattern of human activities; or 

 to maintain human safety when it is not possible to 

change the pattern of human activities. 

Or,

Removal of individuals or parts thereof 

 is part of an NPS research project described in an 

approved management plan, or is part of research 

being conducted by others who have been issued a 

scientifi c research and collecting permit; 

 is done to provide plants or animals for restoring 

native populations in parks or cooperating areas 

without diminishing the viability of the park 

populations from which the individuals are taken; 

or 

 meets specifi c park management objectives. 

In planning and implementing plant and animal population 

management actions, the Service will follow established 

planning procedures, including provisions for public review 

and comment. The Service will consult, as appropriate, 

with other federal land-management agencies, the U.S. Fish 

and Wildlife Service, the NOAA Fisheries, state wildlife 

management agencies, other appropriate state agencies, 

tribal governments, and others. Such consultation will 

address (1) the management of selected animal populations, 

(2) research involving the taking of animal species of 

interest to these agencies, and (3) cooperative studies and 

plans dealing with the public hunting and fi shing of animal 

populations that occur across park boundaries. 

The Service’s cooperative conservation eff orts concerning 

fi sh and wildlife management will be consistent with 

departmental policy articulated at 43 CFR Part 24. This 

departmental policy recognizes the broad authorities and 

responsibilities of federal and state agencies with regard to 

the management of the nation’s fi sh and wildlife resources; 

this policy also promotes cooperative management 

relationships among these agencies. In particular, the policy 

calls on the Service to consult with state agencies on certain 

fi sh and wildlife management actions and encourages the 

execution of memoranda of understanding as appropriate to 

ensure the conduct of programs that meet mutual objectives 

as long as they do not confl ict with federal law or regulation.

The Service will assess the results of managing plant and 

animal populations by conducting follow-up monitoring or 

other studies to determine the impacts of the management 

methods on nontargeted and targeted components of the 

ecosystem. 

4.4.2.1 NPS Actions That Remove Native Plants 

 and Animals 

Whenever the Service removes native plants or animals, 

manages plant or animal populations to reduce their 

sizes, or allows others to remove plants or animals for an 

authorized purpose, the Service will seek to ensure that 

such removals will not cause unacceptable impacts on 

native resources, natural processes, or other park resources. 

Whenever the Service identifi es a possible need for reducing 

the size of a park plant or animal population, the Service 

will use scientifi cally valid resource information obtained 

through consultation with technical experts, literature 

review, inventory, monitoring, or research to evaluate the 

identifi ed need for population management; the Service will 

document it in the appropriate park management plan. 

In addition, the Service will manage such removals to 

prevent them from interfering broadly with

natural habitats, natural abundances, and natural 

distributions of native species and natural processes

rare, threatened, and endangered plant or animal 

species or their critical habitats

scientifi c study, interpretation, environmental 

education, appreciation of wildlife, or other public 

benefi ts

opportunities to restore depressed populations of 

native species 

breeding or spawning grounds of native species

Where the need to reduce animal populations may be due 

to persistent human/animal confl icts, the Service will 

determine whether or not it can eliminate or mitigate the 
confl icts by modifying or curtailing the confl icting visitor 

use or other human activities. Where visitor use or other 

human activities cannot be modifi ed or curtailed, the 

Service may directly reduce the animal population by using 

several animal population management techniques, either 

separately or together. These techniques include relocation, 

public hunting on lands outside a park or where legislatively 

authorized within a park, habitat management, predator 

restoration, reproductive 

intervention, and destruction of animals by NPS personnel 

or their authorized agents. Where animal populations are 

reduced, destroyed animals may be left in natural areas 

of the park to decompose unless there are human safety 

concerns regarding attraction of potentially harmful 

scavengers to populated sites or trails or other human health 

and sanitary concerns associated with decomposition. Live 

animals or carcasses may be removed from parks according 

to the provisions of applicable laws, agreements, and 

regulations, including the granting of preference to Native 

Americans.

(See Pest Management 4.4.5. Also see Director’s Order #18: 

Wildland Fire Management) 

4.4.2.2 Restoration of Native Plant and 

 Animal Species 

The Service will strive to restore extirpated native plant and 

animal species to parks whenever all of the following criteria 

are met: 

Adequate habitat to support the species either exists or 

can reasonably be restored in the park and if necessary 

also on adjacent public lands and waters; once a natural 

population level is achieved, the population can be selfperpetuating. 

The species does not, based on an eff ective management 

plan, pose a serious threat to the safety of people in 

parks, park resources, or persons or property within or 

outside park boundaries. 

The genetic type used in restoration most nearly 

approximates the extirpated genetic type. 

The species disappeared or was substantially 

diminished as a direct or indirect result of humaninduced change to the species population or to the 

ecosystem. 

Potential impacts upon park management and use have 

been carefully considered. 

Programs to restore animal species may include confi ning 

animals in small fi eld enclosures during restoration eff orts, 

but only until the animals have become accustomed to the 

new area or they have become suffi ciently established to 

minimize threats from predators, poaching, disease, or 

other factors. Programs to restore animal species may also 

include confi ning animals in cages for captive breeding 

to increase the number of off spring for release to the wild 

or to manage the population’s gene pool. Programs to 

restore plant species may include propagating plants in 

greenhouses, gardens, or other confi ned areas to develop 

propagation materials (propagules) for restoration eff orts or 

to manage a population’s gene pool. 

(See Restoration of Natural Systems 4.1.5) 

4.4.2.3 Management of Threatened or Endangered 

Plants and Animals 

The Service will survey for, protect, and strive to recover all 

species native to national park system units that are listed 

under the Endangered Species Act. The Service will fully 

meet its obligations under the NPS Organic Act and the 

Endangered Species Act to both proactively conserve listed 

species and prevent detrimental eff ects on these species. To 

meet these obligations, the Service will

cooperate with both the U.S. Fish and Wildlife 

Service and the NOAA Fisheries to ensure that NPS 

actions comply with both the written requirements 

and the spirit of the Endangered Species Act. This 

cooperation should include the full range of activities 

associated with the Endangered Species Act, including 

consultation, conferencing, informal discussions, 

and securing all necessary scientifi c and/or recovery 

permits; 

undertake active management programs to inventory, 

monitor, restore, and maintain listed species’ habitats; 

control detrimental nonnative species; manage 

detrimental visitor access; and reestablish extirpated 

populations as necessary to maintain the species and 

the habitats upon which they depend; 

manage designated critical habitat, essential habitat, 

and recovery areas to maintain and enhance their value 

for the recovery of threatened and endangered species; 

cooperate with other agencies to ensure that the 

delineation of critical habitat, essential habitat, and/or 

recovery areas on park-managed lands provides needed 

conservation benefi ts to the total recovery eff orts being 

conducted by all the participating agencies; 

participate in the recovery planning process, including 

the provision of members on recovery teams and 

recovery implementation teams where appropriate; 

cooperate with other agencies, states, and private 

entities to promote candidate conservation agreements 

aimed at precluding the need to list species; and 

conduct actions and allocate funding to address 

endangered, threatened, proposed, and candidate 

species. 

The National Park Service will inventory, monitor, and 

manage state and locally listed species in a manner similar 

to its treatment of federally listed species to the greatest 

extent possible. In addition, the Service will inventory other 

native species that are of special management concern to 

parks (such as rare, declining, sensitive, or unique species 

and their habitats) and will manage them to maintain their 

natural distribution and abundance. 

The Service will determine all management actions for the 

protection and perpetuation of federally, state, or locally 

NATURAL RESOURCE MANAGEMENT 4.4

45
MANAGEMENT POLICIES 2006

46 listed species through the park management planning 

process, and will include consultation with lead federal and 

state agencies as appropriate. 

(See Cooperative Conservation Beyond Park Boundaries 1.6; 

Partnerships 1.10 and 4.1.4; Cooperative Planning 2.3.1.8; 

Visitor Use 8.2)

4.4.2.4 Management of Natural Landscapes 

Natural landscapes disturbed by natural phenomena, such 

as landslides, earthquakes, fl oods, hurricanes, tornadoes, 

and fi res, will be allowed to recover naturally unless 

manipulation is necessary to (1) mitigate for excessive 

disturbance caused by past human eff ects, (2) preserve 

cultural and historic resources as appropriate based on park 

planning documents, or (3) protect park developments or 

the safety of people. Landscape and vegetation conditions 

altered by human activity may be manipulated where the 

park management plan provides for restoring the lands to a 

natural condition. Management activities to restore humanaltered landscapes may include, but are not restricted to

removing constructed features, restoring natural 

topographic gradients, and revegetating with native 

park species on acquired inholdings and on sites from 

which previous development is being removed; 

restoring natural processes and conditions to areas 

disturbed by human activities such as fi re suppression; 

rehabilitating areas disturbed by visitor use or by the 

removal of hazard trees; and 

maintaining open areas and meadows in situations 

in which they were formerly maintained by natural 

processes that now are altered by human activities. 

Landscape revegetation eff orts will use seeds, cuttings, or 

transplants representing species and gene pools native to 

the ecological portion of the park in which the restoration 

project is occurring. Where a natural area has become so 

degraded that restoration with gene pools native to the 

park has proven unsuccessful, improved varieties or closely 

related native species may be used. 

Landscape restoration eff orts will use geological materials 

and soils obtained in accordance with geological and soil 

resource Management Policies. Landscape restoration eff orts 

may use, on a temporary basis, appropriate soil fertilizers 

or other soil amendments so long as that use does not 

unacceptably alter the physical, chemical, or biological 

characteristics of the soil and biological community and 

does not degrade surface or groundwaters. 

(See Restoration of Natural Systems 4.1.5; Cultural 

Landscapes 5.3.5.2) 

4.4.2.5 Maintenance of Altered Plant Communities 

In altered plant communities managed for a specifi ed 

purpose, plantings will consist of species that are native 

to the park or that are historically appropriate for the 

period or event commemorated. Communities altered to 

maintain habitat for threatened or endangered species may 

only use native plants, and the manipulation of existing 

plants will be carried out to enhance the recovery of the 

threatened or endangered species or the recovery of the 

natural functioning of the plant and animal community 

that endangered species are a part of. Use of exotic plants 

must conform to exotic species policy. Use of nonnatural 

plantings in altered communities may be permitted under 

any of the following conditions: 

In localized, specifi c areas, screen plantings may be 

used to protect against the undesirable impacts of 

adjacent land uses provided that the plantings do not 

result in the invasion of exotic species. 

Where necessary to preserve and protect the desired 

condition of specifi c cultural resources and landscapes, 

plants and plant communities generally will be 

managed to refl ect the character of the landscape 

that prevailed during the historic period. Eff orts may 

be made to extend the lives of specimen trees dating 

from the historic period being commemorated. An 

individual tree or shrub known to be of historic value 

that is diseased beyond recovery and has become 

hazardous will be removed and may be replaced. While 

specimen trees or shrubs that need to be perpetuated 

are still healthy, their own progeny will be propagated 

from seeds or through vegetative reproduction, such as 

cuttings. 

Where cultivated crop plants may be needed for 

livestock or agricultural uses that are allowed as part 

of the cultural landscape, authorized by federal law, or 

retained as a property right, with rigorous review given 

to any proposal to introduce a genetically modifi ed 

organism. 

Where needed for intensive development areas. Such 

plantings will use noninvasive native or nonnative 

historic species and materials to the maximum extent 

possible. Certain native species may be fostered for 

esthetic, interpretive, or educational purposes. 

Exotic species may not be used to vegetate vista clearings in 

otherwise natural vegetation. 

Limited, recurring use of soil fertilizers or other soil 

amendments may be allowed only as needed to maintain the 

desired condition of the altered plant community, and only 

where such use does not unacceptably alter the physical, 

chemical, or biological characteristics of the soil and 

biological community or degrade surface or groundwaters.

(See Management of Exotic Species 4.4.4; Cultural Landscapes 

5.3.5.2) 

4.4.3 Harvest of Plants and Animals by the Public 

Public harvesting of designated species of plants and 

animals, or their components, may be allowed in park units 

when

hunting, trapping, subsistence use, or other harvesting 

is specifi cally authorized by statute or regulation and 

not subsequently prohibited by regulation; 
harvest of certain plant parts or unoccupied seashells 

for personal consumption or use is specifi cally 

authorized by the superintendent in accordance with 36 

CFR 2.1(c)(1); 

recreational fi shing is not specifi cally prohibited; or 

commercial fi shing is specifi cally authorized by statute 

or regulation.

Where harvesting is allowed and subject to NPS control, the 

Service will allow harvesting only when (1) the monitoring 

requirement contained in section 4.4.2 and the criteria in 

section 4.4.2.1 above have been met, and (2) the Service 

has determined that the harvesting will not unacceptably 

impact park resources or natural processes, including the 

natural distributions, densities, age-class distributions, and 

behavior of 

harvested species 

native species that the harvested species use for any 

purpose, or

native species that use the harvested species for any 

purpose 

In consultation and cooperation, as appropriate, with 

individual state or tribal governments, the Service will 

manage harvesting programs and any associated habitat 

management programs intended to restore and maintain 

habitats supporting harvested plant or animal populations 

to conform with applicable federal and state regulations. 

Habitat manipulation for harvested species may include the 

restoration of a disturbed area to its natural condition so it 

can become self-perpetuating, but this will not include the 

artifi cial manipulation of habitat to increase the numbers 

of a harvested species above its natural range in population 

levels. 

The Service may encourage the intensive harvesting of 

exotic species in certain situations when needed to meet 

park management objectives. 

The Service does not engage in activities to reduce the 

numbers of native species for the purpose of increasing the 

numbers of harvested species (i.e., predator control), nor 

does the Service permit others to do so on lands managed by 

the National Park Service.

The Service manages harvest to allow for self-sustaining 

populations of harvested species and does not engage in the 

stocking of plants or animals to increase harvest. In some 

special situations, the Service may stock native or exotic 

animals for recreational harvesting purposes, but only when 

such stocking will not unacceptably impact park natural 

resources or processes and when

the stocking is of fi sh into constructed large reservoirs 

or other signifi cantly altered large water bodies and the 

purpose is to provide for recreational fi shing; or 

the intent for stocking is a treaty right or expressed 

in statute, other applicable law, or a House or Senate 

report accompanying a statute. 

The Service will not stock waters that are naturally barren of 

harvested aquatic species. 

4.4.4 Management of Exotic Species 

Exotic species will not be allowed to displace native species 

if displacement can be prevented. 

4.4.4.1 Introduction or Maintenance 

 of Exotic Species 

In general, new exotic species will not be introduced 

into parks. In rare situations, an exotic species may be 

introduced or maintained to meet specifi c, identifi ed 

management needs when all feasible and prudent measures 

to minimize the risk of harm have been taken and it is 

a closely related race, subspecies, or hybrid of an 

extirpated native species; or 

an improved variety of a native species in situations 

in which the natural variety cannot survive current, 

human-altered environmental conditions; or

used to control another, already established exotic 

species; or

needed to meet the desired condition of a historic 

resource, but only where it is noninvasive and is 

prevented from being invasive by such means as 

cultivating (for plants), or tethering, herding, or 

pasturing (for animals). In such cases, the exotic species 

used must be known to be historically signifi cant, to 

have existed in the park during the park’s period of 

historical signifi cance, to be a contributing element to a 

cultural landscape, or to have been commonly used in 

the local area at that time; or 

an agricultural crop used to maintain the character of 

a cultural landscape, with rigorous review given to any 

proposal to introduce a genetically modifi ed organism; 

or 

necessary to provide for intensive visitor use in 

developed areas and both of the following conditions 

exist: 

 Available native species will not meet park 

management objectives. 

 The exotic species is managed so it will not spread 

or become a pest on park or adjacent lands.

a sterile, noninvasive plant that is used temporarily for 

erosion control; or 

directed by law or expressed legislative intent. 

Domestic livestock such as cattle, sheep, goats, horses, 

mules, burros, reindeer, and llamas are exotic species that 

are maintained in some parks for commercial herding, 

pasturing, grazing, or trailing; for recreational use; or for 

administrative use for maintaining the cultural scene or 

supporting park operations. The policies applicable to the 

grazing of commercial domestic livestock are discussed 

in chapter 8, section 8.6.8. The Service will phase out the 

commercial grazing of livestock whenever possible and 

manage recreational and administrative uses of livestock 

to prevent those uses from unacceptably impacting park 

resources. 

NATURAL RESOURCE MANAGEMENT 4.4

47
MANAGEMENT POLICIES 2006

48 4.4.4.2 Removal of Exotic Species Already Present 

All exotic plant and animal species that are not maintained 

to meet an identifi ed park purpose will be managed—up 

to and including eradication—if (1) control is prudent and 

feasible, and (2) the exotic species 

interferes with natural processes and the perpetuation 

of natural features, native species or natural habitats, or 

disrupts the genetic integrity of native species, or 

disrupts the accurate presentation of a cultural 

landscape, or 

damages cultural resources, or 

signifi cantly hampers the management of park or 

adjacent lands, or 

poses a public health hazard as advised by the U.S. 

Public Health Service (which includes the Centers for 

Disease Control and the NPS public health program), or 

creates a hazard to public safety. 

High priority will be given to managing exotic species that 

have, or potentially could have, a substantial impact on 

park resources, and that can reasonably be expected to 

be successfully controlled. Lower priority will be given to 

exotic species that have almost no impact on park resources 

or that probably cannot be successfully controlled. Where 

an exotic species cannot be successfully eliminated, 

managers will seek to contain the exotic species to prevent 

further spread or resource damage.

The decision to initiate management should be based 

on a determination that the species is exotic. For species 

determined to be exotic and where management appears to 

be feasible and eff ective, superintendents should (1) evaluate 

the species’ current or potential impact on park resources; 

(2) develop and implement exotic species management plans 

according to established planning procedures; (3) consult, as 

appropriate, with federal, tribal, local, and state agencies as 

well as other interested groups; and (4) invite public review 

and comment, where appropriate. Programs to manage 

exotic species will be designed to avoid causing signifi cant 

damage to native species, natural ecological communities, 

natural ecological processes, cultural resources, and human 

health and safety. Considerations and techniques regarding 

removal of exotic species are similar to those used for native 

species (see 4.4.2.1 NPS Actions That Remove Native Plants 

and Animals).

(Also see Executive Order 13112 (Invasive Species)) 

4.4.5 Pest Management 

All park employees, concessioners, contractors, permittees, 

licensees, and visitors on all lands managed or regulated 

by the National Park Service will comply with NPS pest 

Management Policies. 

4.4.5.1 Pests 

Pests are living organisms that interfere with the purposes 

or management objectives of a specifi c site within a park 

or that jeopardize human health or safety. Decisions 

concerning whether or not to manage a pest or pest 

population will be infl uenced by whether the pest is an 

exotic or a native species. Exotic pests will be managed 

according to both the policies in this section (4.4.5) and 

the exotic species policies in section 4.4.4. Native pests will 

be allowed to function unimpeded, except as noted below. 

Many fungi, insects, rodents, disease organisms, and other 

organisms that may be perceived as pests are, in fact, native 

organisms existing under natural conditions and are natural 

elements of the ecosystem. Also, native pests that were 

evident in pesticide-free times are traditional elements in 

park cultural settings.

The Service may control native pests to

conserve threatened, rare, or endangered species, or 

unique specimens or communities; 

preserve, maintain, or restore the historical integrity of 

cultural resources; 

conserve and protect plants, animals, and facilities in 

developed areas; 

prevent outbreaks of a pest from invading uninfested 

areas outside the park; 

manage a human health hazard when advised to do so 

by the U.S. Public Health Service (which includes the 

Centers for Disease Control and the NPS public health 

program); or 

to otherwise protect against a signifi cant threat to 

human safety. 

4.4.5.2 Integrated Pest Management Program 

The Service conducts an integrated pest management (IPM) 

program to reduce risks to the public, park resources, and 

the environment from pests and pest-related management 

strategies. Integrated pest management is a decisionmaking process that coordinates knowledge of pest biology, 

the environment, and available technology to prevent 

unacceptable levels of pest damage by cost-eff ective means 

while posing the least possible risk to people, resources, and 

the environment. 

The Service and each park unit will use an IPM approach 

to address pest issues. Proposed pest management 

activities must be conducted according to the IPM process 

prescribed in Director’s Order #77-7: Integrated Pest 

Management. Pest issues will be reviewed on a case-by-case 

basis. Controversial issues, or those that have potential 

to negatively impact the environment, must be addressed 

through established planning procedures and be included 

in an approved park management or IPM plan. IPM 

procedures will be used to determine when to implement 

pest management actions and which combination of 

strategies will be most eff ective for each pest situation.
Under the Service’s IPM program, all pesticide use on lands 

managed or regulated by the Service, whether that use was 

authorized or unauthorized, must be reported annually. 

4.4.5.3 Pesticide Use 

A pesticide, as defi ned by the Federal Insecticide, Fungicide 

and Rodenticide Act, is any substance or mixture that is 

used in any manner to destroy, repel, or control the growth 

of any viral, microbial, plant, or animal pest. Except as 

identifi ed in the next paragraph, all prospective users of 

pesticides in parks must submit pesticide use requests, 

which will be reviewed on a case-by-case basis, taking 

into account environmental eff ects, cost and staffi ng, and 

other relevant considerations. The decision to incorporate 

a chemical, biological, or bioengineered pesticide into a 

management strategy will be based on a determination by 

a designated IPM specialist that it is necessary and other 

available options are either not acceptable or not feasible. 

Pesticide applications will only be performed by or under 

the supervision of certifi ed or registered applicators licensed 

under the procedures of a federal or state certifi cation 

system.

Insect repellents, bear deterrent sprays, and insecticides 

applied to persons or to livestock must conform to NPS 

policies and approval procedures, except that pesticides 

used under the following conditions do not require 

approval: 

cleansers and disinfectants used in restrooms and 

restaurants 

personal insect repellents, insecticides, and bear 

deterrent sprays that employees or park visitors 

personally obtain and use to meet personal needs 

insect repellents and insecticides applied to personally 

owned pets and pack and saddle stock 

4.4.5.4 Biological Control Agents and 

 Bioengineered Products 

The application or release of any bio-control agent or 

bioengineered product relating to pest management 

activities must be reviewed by designated IPM specialists in 

accordance with Director’s Order #77-7 and conform to the 

exotic species policies in section 4.4.4. 

4.4.5.5 Pesticide Purchase and Storage 

Pesticides must not be stockpiled. No pesticides may 

be purchased unless they are authorized and expected 

to be used within one year from the date of purchase. 

Pesticide storage, transport, and disposal will comply with 

procedures established by (1) the Environmental Protection 

Agency; (2) the individual states in which parks are located; 

and (3) Director’s Order #30A: Hazardous and Solid Waste 

Management, Director’s Order #77-1: Wetland Protection, 

and Director’s Order 77-7: Integrated Pest Management. 

(See Planning for Natural Resource Management 4.1.1; 

Genetic Resource Management Principles 4.4.1.2; 

Management of Exotic Species 4.4.4; Maintenance 9.1.4) 

4.5 Fire Management 

Naturally ignited fi re, including the smoke it produces, is 

part of many of the natural systems that are being sustained 

in parks. Such natural systems contain plant and animal 

communities that are characterized as fi re-adapted or fi redependent. They require periodic episodes of fi re to retain 

their ecological integrity and, in the human-caused absence 

of fi re, they can experience undesirable impacts that 

diminish their integrity—such as unnatural successional 

trends, loss of habitat for fi re-adapted plant and animal 

species, or vulnerability to unnaturally intense wildland fi re. 

Other park natural systems are characterized by a natural 

absence or very low frequency of fi re. These systems are at 

risk of losing their ecological integrity when the natural fi re 

regime is subjected to human interference.

Fires that burn natural or landscaped vegetation in parks 

are called wildland fi res. Wildland fi res occur from both 

natural and human sources of ignition. Wildland fi res 

may contribute to or hinder the achievement of park 

management objectives, and management response to 

each wildland fi re is determined by whether or not the fi re 

occurs within prescription as identifi ed in the park’s fi re 

management plan. Wildland fi re use is the application of 

an appropriate management response to naturally ignited 

wildland fi res to accomplish specifi c resource management 

objectives in predefi ned areas outlined in fi re management 

plans. Prescribed fi res are the deliberate ignition of fi res 

under prescribed circumstances to accomplish resource 

management objectives in predefi ned areas outlined in 

approved fi re management plans.

Fire management consists of a program of activities 

designed to meet management objectives for protection of 

resource values, life, and property and, where appropriate, 

for using naturally ignited and human-ignited wildland 

fi res as management tools. Park fi re management programs 

designed specifi cally to meet park resource management 

objectives—including allowing fi re to perform its natural 

role as much as practicable—will ensure that fi refi ghter and 

public safety are not compromised. 

Parks with vegetation capable of burning will prepare a fi re 

management plan that is consistent with federal law and 

departmental fi re Management Policies, and that includes 

addressing the need for adequate funding and staffi ng to 

support the planned fi re management program. The plan 

will be designed to guide a program that 

responds to the park’s natural and cultural resource 

objectives; 

provides for safety considerations for park visitors, 

employees, and developed facilities; 

addresses potential impacts on public and private 

neighbors and their property adjacent to the park; and 

protects public health and safety. 

NATURAL RESOURCE MANAGEMENT 4.4-4.5

49
MANAGEMENT POLICIES 2006

50 The fi re management plan will also include guidance on 

determining in which situations natural regeneration of a 

burned ecosystem is appropriate and when management 

actions are needed to restore, stabilize, or rehabilitate an 

area following wildland fi re. 

Environmental and cultural resource compliance 

documentation developed in support of the plan will 

consider the eff ects of fi re on air quality, water quality, and 

human health and safety. It will also discuss the infl uence 

of fi re, fi re management, and the potential consequences 

and eff ects of fi re exclusion on the ability of the park to meet 

its natural and cultural resource management objectives. 

Preparation of the plan and supporting documents will 

include collaboration with appropriate NPS natural and 

cultural resource offi ces, adjacent communities, interest 

groups, state and federal agencies, and tribal governments, 

with cooperating agency status granted when requested by 

eligible adjacent communities, state and federal agencies, 

and tribal governments. 

All wildland fi res will be eff ectively managed through 

application of the appropriate strategic and tactical 

management options as guided by the park’s fi re 

management plan. These options will be selected after 

comprehensive consideration of the resource values to be 

protected, fi refi ghter and public safety, costs, availability 

of fi refi ghting resources, weather, and fuel conditions. 

Naturally ignited and human-ignited fi res managed to 

achieve resource management and fuel treatment objectives, 

and the smoke they produce, will both be managed to 

comply with applicable local, state, and federal air quality 

regulations. Such fi res will also include monitoring 

programs that record fi re behavior, smoke behavior, 

fi re decisions, and fi re eff ects to provide information on 

whether specifi c objectives are met and to improve future 

fi re management strategies. All parks will use a systematic 

decision-making process identifi ed in their fi re management 

plans or other documents to determine the most appropriate 

management strategies for all unplanned ignitions and for 

any naturally or management-ignited fi res that are no longer 

meeting resource management objectives. 

Parks lacking an approved fi re management plan may not 

use resource benefi ts as a consideration infl uencing the 

selection of a suppression strategy; they must consider 

the resource impacts of suppression alternatives in their 

decisions. Until a plan is approved, parks must immediately 

suppress all wildland fi res, taking into consideration park 

resources and values to be protected, fi refi ghter and public 

safety, costs, availability of fi refi ghting resources, weather, 

and fuel conditions. Parks will use methods to suppress 

wildland fi res that minimize the impacts of the suppression 

action and the fi re and are commensurate with eff ective 

control, fi refi ghter and public safety, and resource values to 

be protected. 

Burnable vegetation in many parks includes areas that 

are hazardous to specifi c park resources or human safety 

and property because of the presence of fuels that could 

carry wildland fi re into special resource protection zones, 

developed areas, or outside park boundaries. The fi re 

management plan will address strategies for preventing 

the accumulation of hazardous fuels in specifi c areas 

and for eliminating hazardous conditions that may have 

developed over time due to past fi re suppression programs 

or ongoing development activities. These strategies will 

entail strategic planning, interdisciplinary coordination, 

and interorganizational collaboration as needed to provide 

appropriate treatment using adaptive management practices 

that range from site specifi c to landscape level. Although 

prescribed fi re remains the preferred and most widely used 

NPS tool for managing the accumulation of hazardous 

fuels, the strategies will incorporate other activities, such 

as manual, mechanical, biological and, rarely, chemical 

treatments (applying integrated pest management 

principles), that may be appropriate in specifi c instances, as 

guided by NPS and DOI policies and legal requirements.

More details on wildland fi re management, including 

interagency and Department of the Interior policies and 

requirements, are contained in Director’s Order #18: 

Wildland Fire Management.

Fire management or suppression activities conducted 

within wilderness, including the categories of designated, 

recommended, potential, proposed, and eligible areas, will 

be consistent with the “minimum requirement” concept 

identifi ed in chapter 6 and Director’s Order #41: Wilderness 

Preservation and Management.

(See General Management Concepts 4.1; Partnerships 

4.1.4; Restoration of Natural Systems 4.1.5; Air Resource 

Management 4.7; Fire Detection, Suppression, and Post-fi re 

Rehabilitation and Protection 5.3.1.2; Fire Management 

6.3.9; Visitor Safety 8.2.5.1; Structural Fire Protection and 

Suppression 9.1.8) 

4.6 Water Resource Management 

4.6.1 Protection of Surface Waters 

 and Groundwaters 

The Service will perpetuate surface waters and 

groundwaters as integral components of park aquatic and 

terrestrial ecosystems. 

4.6.2 Water Rights 

Water for the preservation and management of the national 

park system will be obtained and used in accordance with 

legal authorities. The Park Service will consider all available 

authorities on a case-by-case basis and will pursue those 

that are the most appropriate to protect water-related 

resources in parks. While preserving its legal remedies, the 

Service will work with state water administrators to protect 

park resources and participate in negotiations to seek the 

resolution of confl icts among multiple water claimants. 

Water essential for NPS needs will be purchased if it is not 

otherwise available. NPS consumptive use of water will be 

effi cient and frugal, especially in water-scarce areas. 

All rights to the use of water diverted from or used on 

federal lands within the national park system by the United 
States or its concessioners, lessors, or permittees will be 

perfected in the name of the United States. 

Park surface waters or groundwater will be withdrawn for 

consumptive use only when such withdrawal is absolutely 

necessary for the use and management of the park. All 

park water withdrawn for domestic or administrative uses 

will be returned to the park watershed system once it has 

been treated to a degree that ensures that there will be no 

impairment of park resources. 

The Service may enter into contracts for the sale or lease 

of water to persons, states, or their political subdivisions 

that provide public accommodations or services for park 

visitors outside and near the park that have no reasonable 

alternative sources of water. The Service will authorize such 

contracts only if 

the transfer does not jeopardize or unduly interfere 

with the natural or cultural resources of the park, and

the government’s costs are fully recovered, and

the contract is for a short term, true emergency.

The Service will follow the requirements and procedures of 

Director’s Orders #35A and #35B when considering the sale 

or lease of park water.

(See Decision-making Requirements to Identify and Avoid 

Impairments 1.4.7; Cooperative Conservation Beyond Park 

Boundaries 1.6) 

4.6.3 Water Quality 

The pollution of surface waters and groundwaters by 

both point and nonpoint sources can impair the natural 

functioning of aquatic and terrestrial ecosystems and 

diminish the utility of park waters for visitor use and 

enjoyment. The Service will determine the quality of park 

surface and groundwater resources and avoid, whenever 

possible, the pollution of park waters by human activities 

occurring within and outside the parks. The Service will

work with appropriate governmental bodies to 

 obtain the highest possible standards available under 

the Clean Water Act for the protection for park waters; 

take all necessary actions to maintain or restore the 

quality of surface waters and groundwaters within the 

parks consistent with the Clean Water Act and all other 

applicable federal, state, and local laws and regulations; 

and 

enter into agreements with other agencies and 

governing bodies, as appropriate, to secure their 

cooperation in maintaining or restoring the quality of 

park water resources. 

(See Pest Management 4.4.5; Soil Resource Management 

4.8.2.4; Backcountry Use 8.2.2.4; Domestic and Feral 

Livestock 8.6.8; Mineral Exploration and Development 8.7; 

Water Supply Systems 9.1.5.1; Wastewater Treatment Systems 

9.1.5.2; Waste Management and Contaminant Issues 9.1.6; 

Facilities for Water Recreation 9.3.4.2. Also see Director’s 

Order #83: Public Health) 

4.6.4 Floodplains 

In managing fl oodplains on park lands, the National Park 

Service will (1) manage for the preservation of fl oodplain 

values; (2) minimize potentially hazardous conditions 

associated with fl ooding; and (3) comply with the NPS 

Organic Act and all other federal laws and executive orders 

related to the management of activities in fl ood-prone areas, 

including Executive Order 11988 (Floodplain Management), 

the National Environmental Policy Act, applicable 

provisions of the Clean Water Act, and the Rivers and 

Harbors Appropriation Act of 1899. Specifi cally, 

the Service will

protect, preserve, and restore the natural resources and 

functions of fl oodplains; 

avoid the long- and short-term environmental eff ects 

associated with the occupancy and modifi cation of 

fl oodplains; and 

avoid direct and indirect support of fl oodplain 

development and actions that could adversely aff ect 

the natural resources and functions of fl oodplains or 

increase fl ood risks. 

When it is not practicable to locate or relocate development 

or inappropriate human activities to a site outside and not 

aff ecting the fl oodplain, the Service will 

prepare and approve a statement of fi ndings, in 

accordance with procedures described in Director’s 

Order 77-2 (Floodplain Management); 

use nonstructural measures as much as practicable 

to reduce hazards to human life and property while 

minimizing the impact to the natural resources of 

fl oodplains; 

ensure that structures and facilities are designed to be 

consistent with the intent of the standards and criteria 

of the National Flood Insurance Program (44 CFR 

 Part 60). 

(See Siting Facilities to Avoid Natural Hazards 9.1.1.5) 

4.6.5 Wetlands 

The Service will manage wetlands in compliance with NPS 

mandates and the requirements of Executive Order 11990 

(Protection of Wetlands), the Clean Water Act, the Rivers 

and Harbors Appropriation Act of 1899, and the procedures 

described in Director’s Order 77-1 (Wetland Protection). 

The Service will (1) provide leadership and take action to 

prevent the destruction, loss, or degradation of wetlands; 

(2) preserve and enhance the natural and benefi cial values of 

wetlands; and (3) avoid direct and indirect support of new 

construction in wetlands unless there are no practicable 

alternatives and the proposed action includes all practicable 

measures to minimize harm to wetlands. 

The Service will implement a “no net loss of wetlands” 

policy. In addition, the Service will strive to achieve a 

longer-term goal of net gain of wetlands across the national 

park system through restoration of previously degraded or 

destroyed wetlands.

NATURAL RESOURCE MANAGEMENT 4.5-4.6

51
MANAGEMENT POLICIES 2006

52 When natural wetland characteristics or functions have 

been degraded or lost due to previous or ongoing human 

actions, the Service will, to the extent practicable, restore 

them to predisturbance conditions. 

The Service will conduct or obtain parkwide wetland 

inventories to help ensure proper planning with respect 

to the management and protection of wetland resources. 

Additional, more detailed wetland inventories will be 

conducted in areas that are proposed for development or are 

otherwise susceptible to degradation or loss due to human 

activities. 

When practicable, the Service will not simply protect 

but will seek to enhance natural wetland values by using 

them for educational, recreational, scientifi c, and similar 

purposes that do not disrupt natural wetland functions. 

For proposed new development or other new activities, 

plans, or programs that are either located in or otherwise 

could have adverse impacts on wetlands, the Service will 

employ the following sequence: 

Avoid adverse wetland impacts to the extent 

practicable. 

Minimize impacts that cannot be avoided. 

Compensate for remaining unavoidable adverse 

wetland impacts by restoring wetlands that have been 

previously destroyed or degraded. 

Compensation for wetland impacts or losses will require 

that at least 1 acre of wetlands be restored for each acre 

destroyed or degraded. 

Actions proposed by the Park Service that have the potential 

to cause adverse impacts on wetlands must be addressed in 

an environmental assessment or an environmental impact 

statement. If the preferred alternative will result in adverse 

impacts on wetlands, a statement of fi ndings must be 

prepared and approved in accordance with Director’s Order 

#77-1: Wetland Protection. 

(See Decision-making Requirements to Identify and Avoid 

Impairments 1.4.7; Siting Facilities to Avoid Natural Hazards 

9.1.1.5) 

4.6.6 Watershed and Stream Processes 

The Service will manage watersheds as complete hydrologic 

systems and minimize human- caused disturbance to the 

natural upland processes that deliver water, sediment, and 

woody debris to streams. These processes include runoff , 

erosion, and disturbance to vegetation and soil caused by 

fi re, insects, meteorological events, and mass movements. 

The Service will manage streams to protect stream processes 

that create habitat features such as fl oodplains, riparian 

systems, woody debris accumulations, terraces, gravel bars, 

riffl es, and pools. Stream processes include fl ooding, stream 

migration, and associated erosion and deposition. 

The Service will protect watershed and stream features 

primarily by avoiding impacts on watershed and riparian 

vegetation and by allowing natural fl uvial processes to 

proceed unimpeded. When confl icts between infrastructure 

(such as bridges and pipeline crossings) and stream 

processes are unavoidable, NPS managers will fi rst consider 

relocating or redesigning facilities rather than manipulating 

streams. Where stream manipulation is unavoidable, 

managers will use techniques that are visually nonobtrusive 

and that protect natural processes to the greatest extent 

practicable. 

(See Floodplains 4.6.4; Shorelines and Barrier Islands; 

4.8.1.1; Facility Planning and Design 9.1.1. Also see “Unifi ed 

Federal Policy for a Watershed Approach to Federal Land and 

Resource Management,” 65 FR 62566, October 18, 2000) 

4.7 Air Resource Management 

4.7.1 Air Quality 

The National Park Service has a responsibility to protect air 

quality under both the 1916 Organic Act and the Clean Air 

Act (CAA). Accordingly, the Service will seek to perpetuate 

the best possible air quality in parks to (1) preserve natural 

resources and systems; (2) preserve cultural resources; and 

(3) sustain visitor enjoyment, human health, and scenic 

vistas. Vegetation, visibility, water quality, wildlife, historic 

and prehistoric structures and objects, cultural landscapes, 

and most other elements of a park environment are sensitive 

to air pollution and are referred to as “air quality-related 

values.” The Service will actively promote and pursue 

measures to protect these values from the adverse impacts of 

air pollution. In cases of doubt as to the impacts of existing 

or potential air pollution on park resources, the Service will 

err on the side of protecting air quality and related values for 

future generations. 

Superintendents will take actions consistent with their 

affi rmative responsibilities under the Clean Air Act to 

protect air quality-related values in Class I areas. Class 

I areas are national parks over 6, 000 acres and national 

wilderness areas over 5,000 acres that were in existence 

on August 7, 1977. The act establishes a national goal of 

preventing any future and remedying any existing humanmade visibility impairment in Class I areas. The Service 

supports that goal and will take advantage of opportunities 

created by the act to help achieve it. The federal land 

manager shares the responsibility to protect air qualityrelated values in Class I areas. As the federal land manager 

for the department, the Secretary of the Interior has 

delegated this responsibility to the Assistant Secretary for 

Fish and Wildlife and Parks. 

The Clean Air Act also recognizes the importance of 

integral vistas, which are those views perceived from within 

Class I areas of a specifi c landmark or panorama located 

outside the boundary of the Class I area. Integral vistas 

have been identifi ed by the Service and are listed in Natural 

Resources Reference Manual 77. There are no regulations 

requiring special protection of these integral vistas, but the 
Service will strive to protect these park-related resources 

through cooperative means. 

Although the Clean Air Act gives the highest level of 

air quality protection to Class I areas, it provides many 

opportunities for the Service to participate in the 

development of pollution control programs to preserve, 

protect, and enhance the air quality of all units of the 

national park system. Regardless of Class I designation, the 

Service will take advantage of these opportunities. 

Air resource management requirements will be integrated 

into NPS operations and planning, and all air pollution 

sources within parks—including prescribed fi re 

management and visitor use activities—will comply with 

all federal, state, and local air quality regulations and 

permitting requirements. Superintendents will make 

reasonable eff orts to notify visitors and employees when air 

pollution concentrations within an area exceed the national 

or state air quality standards established to protect public 

health. Furthermore, because the current and future quality 

of park air resources depends heavily on the actions of 

others, the Service will acquire the information needed to 

eff ectively participate in decision-making that aff ects park 

air quality. The Service will 

inventory the air quality-related values associated with 

each park; 

monitor and document the condition of air quality and 

related values; 

evaluate air pollution impacts and identify causes; 

minimize air quality pollution emissions associated 

with park operations, including the use of prescribed 

fi re and visitor use activities; and 

ensure healthful indoor air quality in NPS facilities. 

External programs needed to remedy existing and prevent 

future impacts on park resources and values from humancaused air pollution will be aggressively pursued by NPS 

participation in the development of federal, state, and 

local air pollution control plans and regulations. Permit 

applications for major new air pollution sources will be 

reviewed, and potential impacts will be assessed. If it 

is determined that any such new source might cause or 

contribute to an adverse impact on air quality-related 

values, the Park Service will recommend to the permitting 

authority that the construction permit be denied or 

modifi ed to eliminate adverse impacts. 

The public’s understanding of park air quality issues and the 

positive role and eff orts of the Service toward improving the 

air quality in parks will be promoted through educational 

and interpretive programs. 

(See Cooperative Conservation Beyond Park Boundaries 

1.6; Fire Management 4.5; Environmental Monitoring and 

Control 5.3.1.4; Resource Issue Interpretation and Education 

7.5.3; Visitor Safety and Emergency Response 8.2.5; Energy 

Management 9.1.7) 

4.7.2 Weather and Climate 

Earth’s climate has changed throughout history. Although 

national parks are intended to be naturally evolving 

places that conserve our natural and cultural heritage 

for generations to come, accelerated climate change may 

signifi cantly alter park ecosystems. Thus, parks containing 

signifi cant natural resources will gather and maintain 

baseline climatological data for reference. 

Because any human attempt to modify weather has the 

potential to alter the natural conditions in parks, the Service 

will not conduct weather-modifi cation activities, the 

Service will seek to prevent weather modifi cation activities 

conducted by others from aff ecting a park’s weather, 

climate, and resources. 

(See NPS-conducted or -sponsored Inventory, Monitoring, 

and Research Studies 4.2.1; Miscellaneous Management 

Facilities 9.4.5) 

4.8 Geologic Resource Management 

The Park Service will preserve and protect geologic 

resources as integral components of park natural systems. 

As used here, the term “geologic resources” includes both 

geologic features and geologic processes. The Service will (1) 

assess the impacts of natural processes and human activities 

on geologic resources; (2) maintain and restore the integrity 

of existing geologic resources; (3) integrate geologic 

resource management into Service operations and planning; 

and (4) interpret geologic resources for park visitors. 

4.8.1 Protection of Geologic Processes 

The Service will, except as identifi ed below, allow natural 

geologic processes to proceed unimpeded. Geologic 

processes are the natural physical and chemical forces that 

act within natural systems and on human developments 

across a broad spectrum of space and time. Such processes 

include, but are not limited to, exfoliation, erosion and 

sedimentation, glaciation, karst processes, shoreline 

processes, and seismic and volcanic activity. Geologic 

processes will be addressed during planning and other 

management activities in an eff ort to reduce hazards that 

can threaten the safety of park visitors and staff and the 

long-term viability of the park infrastructure. 

Intervention in natural geologic processes will be permitted 

only when 

directed by Congress; 

necessary in emergencies that threaten human life and 

property; 

there is no other feasible way to protect natural 

resources, park facilities, or historic properties; 

intervention is necessary to restore impacted conditions 

and processes, such as restoring habitat for threatened 

or endangered species. 

NATURAL RESOURCE MANAGEMENT 4.6-4.8

53
MANAGEMENT POLICIES 2006

54 4.8.1.1 Shorelines and Barrier Islands 

Natural shoreline processes (such as erosion, deposition, 

dune formation, overwash, inlet formation, and shoreline 

migration) will be allowed to continue without interference. 

Where human activities or structures have altered the 

nature or rate of natural shoreline processes, the Service 

will, in consultation with appropriate state and federal 

agencies, investigate alternatives for mitigating the eff ects 

of such activities or structures and for restoring natural 

conditions. The Service will comply with the provisions of 

Executive Order 11988 (Floodplain Management) and state 

coastal zone management plans prepared under the Coastal 

Zone Management Act of 1972. 

Any shoreline manipulation measures proposed to protect 

cultural resources may be approved only after an analysis 

of the degree to which such measures would impact natural 

resources and processes, so that an informed decision can 

be made through an assessment of alternatives. 

Where erosion control is required by law, or where present 

developments must be protected in the short run to achieve 

park management objectives, including high-density visitor 

use, the Service will use the most eff ective method feasible to 

achieve the natural resource management objectives while 

minimizing impacts outside the target area. 

New developments will not be placed in areas subject to 

wave erosion or active shoreline processes unless (1) the 

development is required by law; or (2) the development 

is essential to meet the park’s purposes, as defi ned by its 

establishing act or proclamation, and 

no practicable alternative locations are available;

the development will be reasonably assured of surviving 

during its planned life span without the need for 

shoreline control measures; and 

steps will be taken to minimize safety hazards and harm 

to property and natural resources. 

(See Floodplains 4.6.4; Cultural Resources Chapter 5; Siting 

Facilities to Avoid Natural Hazards 9.1.1.5. Also see Director’s 

Order #77-2: Floodplain Management) 

4.8.1.2 Karst 

The Service will manage karst terrain to maintain the 

inherent integrity of its water quality, spring fl ow, drainage 

patterns, and caves. Karst processes (the processes by which 

water dissolves soluble rock such as limestone) create areas 

typifi ed by sinkholes, underground streams, caves, and 

springs. 

Local and regional hydrological systems resulting from 

karst processes can be directly infl uenced by surface land 

use practices. If existing or proposed developments do or 

will signifi cantly alter or adversely impact karst processes, 

these impacts will be mitigated. Where practicable, these 

developments will be placed where they will not have an 

eff ect on the karst system. 

4.8.1.3 Geologic Hazards 

Naturally occurring geologic processes, which the Park 

Service is charged to preserve unimpaired, can be hazardous 

to humans and park infrastructure. These include 

earthquakes, volcanic eruptions, mudfl ows, landslides, 

fl oods, shoreline processes, tsunamis, and avalanches. 

The Service will work closely with specialists at the U.S. 

Geological Survey and elsewhere, and with local, state, 

tribal, and federal disaster management offi cials, to devise 

eff ective geologic hazard identifi cation and management 

strategies. Although the magnitude and timing of future 

geologic hazards are diffi cult to forecast, park managers will 

strive to understand future hazards and, once the hazards 

are understood, minimize their potential impact on visitors, 

staff , and developed areas. Before interfering with natural 

processes that are potentially hazardous, superintendents 

will consider other alternatives. 

The Service will try to avoid placing new visitor and other 

facilities in geologically hazardous areas. Superintendents 

will examine the feasibility of phasing out, relocating, 

or providing alternative facilities for park developments 

subject to hazardous processes, consistent with other 

sections of these Management Policies. 

(See Siting Facilities to Avoid Natural Hazards 9.1.1.5) 

4.8.2 Management of Geologic Features 

The Service will protect geologic features from the 

unacceptable impacts of human activity while allowing 

natural processes to continue. The term “geologic features” 

describes the products and physical components of geologic 

processes. Examples of geologic features in parks include 

rocks, soils, and minerals; geysers and hot springs in 

geothermal systems; cave and karst systems; canyons and 

arches in erosional landscapes; sand dunes, moraines, and 

terraces in depositional landscapes; dramatic or unusual 

rock outcrops and formations; and paleontological and 

paleoecological resources such as fossilized plants or 

animals or their traces. 

4.8.2.1 Paleontological Resources and Their 

Contexts 

Paleontological resources, including both organic and 

mineralized remains in body or trace form, will be 

protected, preserved, and managed for public education, 

interpretation, and scientifi c research. The Service will 

study and manage paleontological resources in their 

paleoecological context (that is, in terms of the geologic data 

associated with a particular fossil that provides information 

about the ancient environment). 

Superintendents will establish programs to inventory 

paleontological resources and systematically monitor for 

newly exposed fossils, especially in areas of rapid erosion. 

Scientifi cally signifi cant resources will be protected by 

collection or by on-site protection and stabilization. The 

Service will encourage and help the academic community 

to conduct paleontological fi eld research in accordance 

with the terms of a scientifi c research and collecting 

permit. Fossil localities and associated geologic data will 
be adequately documented when specimens are collected. 

Paleontological resources found in an archeological 

context are also subject to the policies for archeological 

resources. Paleontological specimens that are to be retained 

permanently are subject to the policies for museum objects. 

The Service will take appropriate action to prevent damage 

to and unauthorized collection of fossils. To protect 

paleontological resources from harm, theft, or destruction, 

the Service will ensure, where necessary, that information 

about the nature and specifi c location of these resources 

remains confi dential, in accordance with the National Parks 

Omnibus Management Act of 1998. 

Parks will exchange fossil specimens only with other 

museums and public institutions that are dedicated to the 

preservation and interpretation of natural heritage and 

qualifi ed to manage museum collections. Fossils to be 

deaccessioned in an exchange must fall outside the park’s 

scope of collection statement. Systematically collected 

fossils in an NPS museum collection in compliance with 36 

CFR 2.5 cannot be outside the scope of collection statement. 

Exchanges must follow deaccession procedures in the 

Museum Handbook, Part II, chapter 6. 

The sale of original paleontological specimens is prohibited 

in parks. 

The Service generally will avoid purchasing fossil 

specimens. Casts or replicas should be acquired instead. A 

park may purchase fossil specimens for the park museum 

collection only after making a written determination that

the specimens are scientifi cally signifi cant and 

accompanied by detailed locality data and pertinent 

contextual data; 

the specimens were legally removed from their site of 

origin, and all transfers of ownership have been legal; 

the preparation of the specimens meets professional 

standards; 

the alternatives for making these specimens available to 

science and the public are unlikely; and

acquisition is consistent with the park’s enabling 

legislation and scope of collection statement, and 

acquisition will ensure the specimens’ availability in 

perpetuity for public education and scientifi c research. 

All NPS construction projects in areas with potential 

paleontological resources must be preceded by a 

preconstruction surface assessment prior to disturbance. 

For any occurrences noted, or when the site may yield 

paleontological resources, the site will be avoided or the 

resources will, if necessary, be collected and properly 

cared for before construction begins. Areas with potential 

paleontological resources must also be monitored during 

construction projects. 

(See Natural Resource Information 4.1.2; Studies and 

Collections 4.2; Independent Research 5.1.2; Artifacts and 

Specimens 10.2.4.6. Also see 36 CFR 2.5) 

4.8.2.2 Caves 

As used here, the term “caves” includes karst (such as 

limestone and gypsum caves) and nonkarst caves (such 

as lava tubes, littoral caves, and talus caves). The Service 

will manage caves in accordance with approved cave 

management plans to perpetuate the natural systems 

associated with the caves, such as karst and other drainage 

patterns, air fl ows, mineral deposition, and plant and animal 

communities. Wilderness and cultural resources and values 

will also be protected. 

Many caves or portions of caves contain fragile 

nonrenewable resources and have no natural restorative 

processes. In these cases, most impacts are cumulative and 

essentially permanent. As a result, no developments or uses, 

including those that allow for general public entry (such as 

pathways, lighting, and elevator shafts), will be allowed in, 

above, or adjacent to caves until it can be demonstrated that 

they will not unacceptably impact natural cave resources 

and conditions, including subsurface water movements, and 

that access will not result in unacceptable risks to public 

safety. Developments already in place above caves will be 

removed if they are impairing or threatening to impair 

natural conditions or resources. 

Parks will manage the use of caves when such actions are 

required for the protection of cave resources or for human 

safety. Some caves or portions of caves may be managed 

exclusively for research, with access limited to permitted 

research personnel. In accordance with the Federal Cave 

Resources Protection Act of 1988, recreational use of 

undeveloped caves will be governed by a permit system, 

and cave use will be regulated or restricted if necessary to 

protect and preserve cave resources. Under 43 CFR Part 37 

regulations for the act, all caves in the national park system 

are deemed to be signifi cant. As further established by this 

act, specifi c locations of signifi cant cave entrances may be 

kept confi dential and exempted from FOIA requests. 

(See Decision-making Requirements to Identify and Avoid 

Impairments 1.4.7; Information Confi dentiality 1.9.2.3; Caves 

6.3.11.2) 

4.8.2.3 Geothermal and Hydrothermal Resources 

Thermal resources, also known as geothermal or 

hydrothermal systems, comprise a subsurface heat source, 

heat conduit rock formations, and air and/or water that 

circulates through the formations and may discharge at 

the surface. Such resources create features such as geysers, 

hot springs, mudpots, fumaroles, unique/ rare mineral 

precipitates and formations, and hydrophilic biotic 

communities. Thermal resources in park units will be 

protected, preserved, and managed as a critical component 

of the units’ natural resource systems, and for public 

education, interpretation, and scientifi c research.

Superintendents will strive to maintain the natural integrity 

of thermal systems, including the movement of air and/or 

water through the heated rock, cold water recharge, the 

proximity of the hot and warm water to the heat source, and 

the hydrostatic pressure and elevated temperature. 

NATURAL RESOURCE MANAGEMENT 4.8

55
MANAGEMENT POLICIES 2006

56 Superintendents will work to prevent unacceptable impacts 

on thermal resources caused by development. Such impacts 

include the loss of surface thermal features; land subsidence; 

an increase in seismic activity; the release of noxious gases; 

noise and surface disturbance from drilling or power plant 

construction; and the release of polluted water or brines. 

Because thermal systems may extend well beyond park 

boundaries, the Service will work closely with tribes and 

federal, state, local agencies to delineate the full extent of 

thermal resources and protect those that occur in parks. In 

protecting park thermal resources, superintendents should 

consider authorities available under the Geothermal Steam 

Act of 1970, as amended; state water rights; and mineral 

leasing laws. 

As required by the Geothermal Steam Act, the Service will 

maintain a list of signifi cant thermal features in park units. 

The criteria and procedures for designating signifi cant 

thermal resources in parks are specifi ed in the Geothermal 

Steam Act Amendments of 1988. In cooperation with 

the U.S. Geological Survey, the Service will conduct a 

monitoring program for the designated signifi cant thermal 

features. 

4.8.2.4 Soil Resource Management 

The Service will actively seek to understand and preserve 

the soil resources of parks, and to prevent, to the extent 

possible, the unnatural erosion, physical removal, or 

contamination of the soil or its contamination of other 

resources. Parks will obtain adequate soil surveys for the 

management of park resources. All soil surveys will follow 

National Cooperative Soil Survey Standards. Products 

will include soil maps, determinations of the physical and 

chemical characteristics of soils, and the interpretations 

needed to guide resource management and development 

decisions. 

Management action will be taken by superintendents to 

prevent or at least minimize adverse, potentially irreversible 

impacts on soils. Soil conservation and soil amendment 

practices may be implemented to reduce impacts. 

Importation of off -site soil or soil amendments may be 

used to restore damaged sites. Off -site soil normally will be 

salvaged soil, not soil removed from pristine sites, unless 

the use of pristine site soil can be achieved without causing 

any overall ecosystem impairment. Before using any off -site 

materials, parks must develop a prescription and select 

the materials that will be needed to restore the physical, 

chemical, and biological characteristics of original native 

soils without introducing any exotic species. 

When soil excavation is an unavoidable part of an approved 

facility development project, the Service will minimize soil 

excavation, erosion, and off -site soil migration during and 

after the development activity. 

When use of a soil fertilizer or other soil amendment is 

an unavoidable part of restoring a natural landscape or 

maintaining an altered plant community, the use will be 

guided by a written prescription. The prescription will 

be designed to ensure that such use of soil fertilizer or 

soil amendment does not unacceptably alter the physical, 

chemical, or biological characteristics of the soil, biological 

community, or surface or groundwaters. 

(See Evaluating Impacts on Natural Resources 4.1.3; Natural 

Resource Collections 4.2.3; Floodplains 4.6.4; Wetlands 4.6.5; 

Facility Planning and Design 9.1.1) 

4.9 Soundscape Management 

Park natural soundscape resources encompass all the 

natural sounds that occur in parks, including the physical 

capacity for transmitting those natural sounds and the 

interrelationships among park natural sounds of diff erent 

frequencies and volumes. Natural sounds occur within 

and beyond the range of sounds that humans can perceive, 

and they can be transmitted through air, water, or solid 

materials. The National Park Service will preserve, to the 

greatest extent possible, the natural soundscapes of parks.

Some natural sounds in the natural soundscape are also part 

of the biological or other physical resource components of 

the park. Examples of such natural sounds include 

sounds produced by birds, frogs, or katydids to defi ne 

territories or aid in attracting mates 

sounds produced by bats or porpoises to locate prey or 

navigate 

sounds received by mice or deer to detect and avoid 

predators or other danger 

sounds produced by physical processes, such as wind in 

the trees, claps of thunder, or falling water. 

The Service will restore to the natural condition wherever 

possible those park soundscapes that have become degraded 

by unnatural sounds (noise), and will protect natural 

soundscapes from unacceptable impacts. 

Using appropriate management planning, superintendents 

will identify what levels and types of unnatural sound 

constitute acceptable impacts on park natural soundscapes. 

The frequencies, magnitudes, and durations of acceptable 

levels of unnatural sound will vary throughout a park, 

being generally greater in developed areas. In and adjacent 

to parks, the Service will monitor human activities that 

generate noise that adversely aff ects park soundscapes, 

including noise caused by mechanical or electronic devices. 

The Service will take action to prevent or minimize all noise 

that through frequency, magnitude, or duration adversely 

aff ects the natural soundscape or other park resources 

or values, or that exceeds levels that have been identifi ed 

through monitoring as being acceptable to or appropriate 

for visitor uses at the sites being monitored. 

(See General 4.1; Cultural Soundscape Management 5.3.1.7; 

Recreational Activities 8.2.2; Use of Motorized Equipment 

8.2.3; Overfl ights and Aviation Uses 8.4. Also see 36 CFR 2.12: 

Audio Disturbances)
4.10 Lightscape Management 

The Service will preserve, to the greatest extent possible, the 

natural lightscapes of parks, which are natural resources 

and values that exist in the absence of human-caused light. 

The absence of light in areas such as caves and at the bottom 

of deep bodies of water infl uences biological processes and 

the evolution of species, such as the blind cave fi sh. The 

phosphorescence of waves on dark nights helps hatchling 

sea turtles orient to the ocean. The stars, planets, and 

earth’s moon that are visible during clear nights infl uence 

humans and many other species of animals, such as birds 

that navigate by the stars or prey animals that reduce their 

activities during moonlit nights. 

Improper outdoor lighting can impede the view and visitor 

enjoyment of a natural dark night sky. Recognizing the roles 

that light and dark periods and darkness play in natural 

resource processes and the evolution of species, the Service 

will protect natural darkness and other components of 

the natural lightscape in parks. To prevent the loss of dark 

conditions and of natural night skies, the Service will 

minimize light that emanates from park facilities, and also 

seek the cooperation of park visitors, neighbors, and local 

government agencies to prevent or minimize the intrusion 

of artifi cial light into the night scene of the ecosystems of 

parks. The Service will not use artifi cial lighting in areas 

such as sea turtle nesting locations where the presence of 

the artifi cial lighting will disrupt a park’s dark-dependent 

natural resource components. 

The Service will 

restrict the use of artifi cial lighting in parks to those 

areas where security, basic human safety, and specifi c 

cultural resource requirements must be met; 

use minimal-impact lighting techniques; 

shield the use of artifi cial lighting where necessary to 

prevent the disruption of the night sky, natural cave 

processes, physiological processes of living organisms, 

and similar natural processes. 

The decision about whether or not to install artifi cial 

lighting in particular circumstances is left to the discretion 

of the superintendent and is made through the planning 

process. 

(See Cooperative Conservation Beyond Park Boundaries 

1.6; Visitor Safety and Emergency Response 8.2.5, Facility 

Planning and Design 9.1.1; Integration of Facilities into the 

Park Environment 9.1.1.2; Energy Management 9.1.7) 

4.11 Chemical Information and Odors

Natural chemicals and odors transmit information that is 

received by living organisms. Natural chemicals involved 

in the transmission of information are released by animals, 

plants, and geologic materials. Once released, these 

chemicals can be transmitted through air and water. Many 

animals can perceive these natural chemicals and modify 

their behaviors, such as mating, migration, feeding, predator 

avoidance, prey selection, and the establishment of social 

structures, as a response. Specifi c examples of relationships 

that involve natural chemical information and odors 

include, among others, 

scent posts where one animal deposits one or more 

chemicals by rubbing, urination, defecation, or other 

means, and where other animals can detect the passage 

of the fi rst animal because of the odor produced by a 

deposited chemical; 

fl owers that produce odors that attract insects, birds, 

and other animals, with resulting cross-pollination 

of the fl owers and reproduction of the species as the 

outcome; 

female insects that release chemicals (pheromones) that 

attract males, with fertilization of the female’s eggs and 

reproduction of the species as the outcome; 

stressed trees that emit chemicals that some types 

of beetles use to fi nd weakened trees, which they 

then successfully can colonize and use as habitat for 

reproducing themselves; and 

geologic materials (soils or bedrock) that emit 

characteristic chemicals that fi sh can sense and use as 

guides to fi nd the places in streams where they hatched 

and where they subsequently return to breed and 

deposit fertilized eggs, with reproduction of the species 

as the outcome. 

The Service will preserve, to the greatest extent possible, 

the natural fl ow of natural chemical information and odors 

by preventing (1) the release of human-generated chemicals 

that can block the release, deposition, or perception of 

natural chemicals; and (2) human actions that disrupt or 

commingle the pathways through which natural chemicals 

are dispersed. 

The Service acknowledges that some of its management 

activities may necessarily alter the natural fl ow of natural 

chemical information and odors. The Service may, for 

example, 

introduce pesticides or pheromones into parks as part 

of an integrated pest management program; 

construct and operate intensive development areas 

that eliminate animal scent stations and introduce 

unnatural chemicals; 

change the vegetation and thereby change the kinds of 

natural plant chemicals released to the air; 

move water from one drainage to another through 

water and sewer systems; or

provide for the use of exhaust-emitting motors in the 

air, on land, and on water. 

Whenever the Service engages in activities that disrupt the 

natural fl ow of natural chemical information or odors, it will 

comply with all applicable laws, regulations, and policies 

and seek to minimize harm to the environment. In no case 

will the Service engage in an activity if it will impair park 

resources or values. 

NATURAL RESOURCE MANAGEMENT 4.8-4.11

57

5

Cultural Resource 

Management

The National Park Service will protect, preserve, and foster 

appreciation of the cultural resources in its custody and demonstrate 

its respect for the peoples traditionally associated with those resources 

through appropriate programs of research, planning, and stewardship.

The National Park Service 

is steward of many of 

America’s most important 

cultural resources, 

including the home 

of President Franklin D. 

Roosevelt in Hyde Park, NY.
MANAGEMENT POLICIES 2006

60 Introduction

The National Park Service is the steward of many of 

America’s most important cultural resources. These 

resources are categorized as archeological resources, 

cultural landscapes, ethnographic resources, historic 

and prehistoric structures, and museum collections. The 

Service’s cultural resource management program involves

research to identify, evaluate, document, register, and 

establish basic information about cultural resources 

and traditionally associated peoples; 

planning to ensure that management processes for 

making decisions and setting priorities integrate 

information about cultural resources and provide for 

consultation and collaboration with outside entities; 

and 

stewardship to ensure that cultural resources 

are preserved and protected, receive appropriate 

treatments (including maintenance) to achieve 

desired conditions, and are made available for public 

understanding and enjoyment. 

The cultural resource Management Policies of the 

National Park Service are derived from a suite of historic 

preservation, environmental, and other laws, proclamations, 

executive orders, and regulations. A comprehensive list can 

be found in the Cultural Resource Management Handbook 

issued pursuant to Director’s Order #28. Taken collectively, 

this guidance provides the Service with the authority and 

responsibility for managing cultural resources in every unit 

of the national park system so that those resources may 

be preserved unimpaired for future generations. Cultural 

resource management will be carried out in a manner that is 

consistent with these legislative and regulatory provisions 

and with implementing policies and procedures such as 

the Secretary of the Interior’s Standards and Guidelines for 

Archeology and Historic Preservation (48 Federal Register 

(FR) 44716-740), and Standards and Guidelines for Federal 

Agency Historic Preservation Programs Pursuant to the 

National Historic Preservation Act (63 FR 20497-508). 

Superintendents and qualifi ed cultural resource 

professionals will work together to carry out the Park 

Service’s cultural resource management program. 

Other NPS staff and volunteers participating in cultural 

resource research, planning, and stewardship activities 

will be supervised by full-performance-level cultural 

resource professionals of the appropriate disciplines. 

Law enforcement professionals will consult with fullperformance-level cultural resource professionals of the 

appropriate disciplines when investigating cultural resource 

crimes. 

Superintendents and cultural resource professionals will 

ensure that research about and stewardship of cultural 

resources are carried out only after adequate planning and 

consultation with interested or aff ected individuals, groups, 

and other outside entities.

(See Decision-making Requirements to Identify and Avoid 

Impairments 1.4.7. Also see NHPA [16 USC 470h-4]; Secretary 

of the Interior’s Professional Qualifi cation Standards [48 FR 

44738-44739]; Employee Training and Development Planning 

and Tracking Kit [1996]) 

5.1 Research 

5.1.1 NPS Research 

The National Park Service will conduct a vigorous 

interdisciplinary program of research into the cultural 

resources of each park. The principal goals of such research 

will be to

ensure a systematic, adequate, and current information 

base representing park cultural resources and 

traditionally associated peoples in support of planning, 

management, and operations; 

ensure appropriate protection, preservation, treatment, 

and interpretation of cultural resources, employing the 

best current scholarship; 

develop approaches for managing park cultural and 

natural resources that ensure consideration of the views 

held by traditionally associated peoples and others 

by emphasizing cooperative conservation and civic 

engagement;

collect data on subsistence and other consumptive uses 

of park resources in order to reach informed decisions; 

and

develop appropriate technologies and methods for 

monitoring, protecting, preserving, and treating 

cultural resources. 

Adequate research to support informed planning and 

compliance with legal requirements will precede any fi nal 

decisions about the treatment of cultural resources, or 

about park operations, development, and natural resource 

management activities that might aff ect cultural resources. 

Research will be periodically updated to refl ect changing 

issues, sources, and methods. Research needs will be 

identifi ed and justifi ed in a park’s approved resource 

stewardship strategy. 

A written scope of work, research design, project agreement, 

proposal, or other description of work to be performed will 

be prepared and approved before any research is conducted. 

All archeological research, whether for inventory, data 

recovery, or other purposes, must comply with the 

Archaeological Resources Protection Act of 1979 (ARPA), 

the Antiquities Act, and the Native American Graves 

Protection and Repatriation Act (NAGPRA), as applicable. 

The National Park Service will not take or allow any action 

that reduces the research potential of cultural resources 

without fi rst performing an appropriate level of research, 

consultation, and documentation. Because research 

involving physical intervention into cultural resources or 

the removal of objects or specimens is a destructive process 

entailing an irretrievable commitment of the resources and 

often aff ecting traditional practices associated with the 

resources, research in parks will employ nondestructive 

methods to the maximum extent feasible. 
CULTURAL RESOURCE MANAGEMENT 5.1

The features of sites, landscapes, and structures will be 61

left in place unless impracticable. Field data, objects, 

specimens, and features of sites and structures retrieved 

for preservation during cultural resource research and 

treatment projects, together with associated records 

and reports, will be managed within the park museum 

collection, stored in NPS or non-NPS repositories, as 

appropriate, including repositories maintained by partners. 

All collections of archeological material remains and 

associated records will be maintained in repositories in 

accordance with applicable regulations.

Research conducted by NPS personnel, contractors, and 

cooperative researchers will be subjected to peer review 

both inside and outside the Service to ensure that it meets 

professional standards, refl ects current scholarship, and 

adheres to the principles of conduct for the appropriate 

discipline. The data and knowledge acquired through 

research will be recorded on permanent and durable (longlived) media, documented in the appropriate Service-wide 

databases, and placed permanently in park museum and 

library collections and park fi les. This information will be 

made widely available and be incorporated, as appropriate, 

into park planning documents, exhibits, and interpretive 

programs. As appropriate, information will be shared with 

proper state and tribal historic preservation offi ces, other 

tribal offi ces, and certifi ed local governments. 

Certain research data may be withheld from public 

disclosure to protect sensitive or confi dential information 

about archeological, historic, or other NPS resources 

when doing so would be consistent with the Freedom of 

Information Act, section 304 of the National Historic 

Preservation Act, or section 9 of the Archaeological 

Resources Protection Act. In some circumstances, the 

Service may withhold information about ethnographic 

resources. The Solicitor’s Offi ce should be consulted when 

there is any question about the legal authority to withhold 

information. 

(See Levels of Park Planning 2.3; Studies and Collections 4.2; 

Confi dentiality 5.2.3; Research and Scholarship 7.5.4; Use by 

American Indians and Other Traditionally Associated Groups 

8.5. Also see 36 CFR 79; 36 CFR Part 800; 43 CFR Parts 3, 

7, and 10; NHPA; Secretary of the Interior’s Standards and 

Guidelines for Preservation Planning [48 FR 44716-720]; 

Secretary of the Interior’s Standards and Guidelines for 

Historical Documentation [48 FR 44728-730]; Director’s 

Order #28: Cultural Resource Management; Cultural 

Resource Management Handbook; Director’s Order #66: 

FOIA and Protected Resource Information ) 

5.1.2 Independent Research 

The National Park Service will promote relationships with 

individuals and organizations qualifi ed to perform research, 

and encourage them to direct their research toward park 

management objectives and the broader contexts within 

which park resources exist. The Park Service will encourage 

independent researchers to follow the Secretary of the 

Interior’s standards and guidelines and NPS guidelines 

to the fullest extent possible; the Service will also require 

that the views of traditionally associated peoples be fully 

considered. Research done in cooperation with tribal 

governments, tribal colleges, and tribal organizations 

should include mutually agreed upon conditions concerning 

the dissemination of data as well as consideration of the 

confi dentiality of culturally sensitive information. 

Research that includes taking plants, fi sh, wildlife, rocks, 

or minerals must comply with the permit requirements of 

36 CFR 2.5. Permits that would allow cultural resources to 

be physically disturbed or allow objects or specimens to 

be collected will be issued only when there is compelling 

evidence that the proposed research is essential to 

signifi cant research concerns, and when that the purpose 

of the research can be reasonably achieved only by using 

park resources. Permits must require provision for the 

long-term preservation and management of any recovered 

objects and specimens and for their cataloging, together 

with any associated records, in the NPS museum cataloging 

system. Independent researchers will be authorized to 

conduct archeological research on park lands only through 

the issuance of an ARPA or Antiquities Act permit by the 

appropriate regional director. This permitting authority 

cannot be further delegated. As appropriate, parks will 

also issue other necessary permits, such as a special use 

permit. Archeological research conducted by independent 

researchers must comply with the Native American Graves 

Protection and Repatriation Act when applicable. 

NPS facilities, collections, and assistance will be made 

available to qualifi ed scholars conducting NPS-authorized 

research as long as park operations are not substantially 

impeded or park resources are not adversely impacted. 

(See Independent Studies 4.2.2; Consultation 5.2.1; Natural 

and Cultural Studies, Research, and Collection Activities 8.10. 

Also see 43 CFR Parts 3, 7, and 10)

5.1.3 Identifi cation and Evaluation of Resources 

The National Park Service will conduct surveys to identify 

and evaluate the cultural resources of each park, assessing 

resources within their larger cultural, chronological, 

and geographic contexts. The resulting inventories will 

provide the substantive data required for (1) nominating 

resources to the National Register of Historic Places; 

(2) general park planning and specifi c proposals for 

preserving, protecting, and treating cultural resources 

to achieve desired conditions; (3) land acquisition, 

development, and maintenance activities; (4) interpretation, 

education, and natural and cultural resource management 

activities; and (5) compliance with legal requirements. 

5.1.3.1 Inventories 

The Park Service will (1) maintain and expand the following 

inventories (or their successors) about cultural resources in 

units of the national park system, (2) enter information into 

appropriate related databases, and (3) develop an integrated 

information system—

Archeological sites inventory for historic and 

prehistoric archeological resources and the related 
MANAGEMENT POLICIES 2006

62 Archeological Sites Management Information System 

(ASMIS) database

Cultural Landscapes Inventory (CLI) of historic 

designed landscapes, historic vernacular landscapes, 

ethnographic landscapes, and historic sites 

List of Classifi ed Structures (LCS), encompassing 

historic and prehistoric structures 

National Catalog of Museum Objects, encompassing 

all cultural objects, archival and manuscript materials, 

and natural history specimens in NPS collections and 

the related automated version, the Automated National 

Catalog System (ANCS+) 

(See Levels of Park Planning 2.3; Confi dentiality 5.2.3. Also 

see Secretary of the Interior’s Standards and Guidelines 

for Identifi cation [48 FR 44720-723]; Director’s Order 

#28: Cultural Resource Management; Cultural Resource 

Management Handbook) 

5.1.3.2 Evaluation and Categorization 

Cultural resources will be professionally evaluated and 

categorized to assist in management decisions about their 

treatment and use. Cultural resources will be evaluated 

for signifi cance using the National Register Criteria for 

Evaluation (36 CFR 60.4), and those meeting the criteria 

will be nominated for listing. Museum collections are 

inappropriate for listing and will not be evaluated using 

these criteria. Some collections in their original structures 

can be included as contributing elements to a listed 

structure. As appropriate, cultural resources will be 

categorized using other management categories established 

by the National Park Service and listed in the Cultural 

Resource Management Handbook. 

Cultural resource professionals will evaluate cultural 

resources in consultation with the appropriate state and 

tribal historic preservation offi cers. Ethnographically 

meaningful cultural and natural resources, including 

traditional cultural properties, will be identifi ed and 

evaluated in consultation with peoples having traditional 

associations to park resources. Examples of traditionally 

associated peoples include Acadians, African Americans, 

Hispanic Americans, and Native Americans. Some 

ethnographically meaningful resources do not meet the 

National Register Criteria for Evaluation, but will be 

inventoried in consultation with traditionally associated 

peoples and considered in management decisions about 

treatment and use. 

(See Consultation 5.2.1. Also see Secretary of the Interior’s 

Standards and Guidelines for Evaluation [48 FR 44723-726]) 

5.1.3.2.1 National Register Nomination 

Park resources that appear to meet the criteria for the 

National Register of Historic Places will be nominated—

either individually, as components of historic districts, 

or within multiple property nominations—for listing by 

the Keeper of the National Register. National historic 

sites, national historical parks, and other parks that are 

signifi cant primarily for their cultural resources are entered 

automatically in the National Register upon establishment. 

However, nomination forms will be prepared and submitted 

to document the qualifying and contributing features of 

such parks and other National Register-eligible resources 

within them. 

(Also see 36 CFR Parts 60 and 63; Secretary of the Interior’s 

Standards and Guidelines for Registration [48 FR 44726-

728]; National Register Bulletins 16A and 16B [Guidelines for 

Completing National Register of Historic Places Forms]) 

5.1.3.2.2 National Historic Landmark Designation 

Historic and cultural units of the national park system 

are nationally signifi cant by virtue of their authorizing 

legislation or presidential proclamation. National historic 

landmark designations are appropriate for park cultural 

resources that meet national historic landmark criteria 

if the national signifi cance of those resources is not 

adequately recognized in the park’s authorizing legislation 

or presidential proclamation. Cultural parks may warrant 

landmark designation as parts of larger areas encompassing 

resources associated with their primary themes. Modifi ed 

National Register forms will be prepared and submitted to 

nominate such resources for landmark designation by the 

Secretary of the Interior. 

(Also see 36 CFR Part 65) 

5.1.3.2.3 Nominations for World Heritage

 List Designation 

Park properties containing cultural features believed to 

possess outstanding universal value to humanity may 

qualify for placement on the World Heritage List under 

criteria described in the World Heritage Committee 

Operational Guidelines and in accordance with the World 

Heritage Convention. Before they can be nominated, all 

such properties must be assessed according to World 

Heritage criteria, and before the United States can submit a 

nomination to the World Heritage Committee the property 

must fi rst be included on the U.S. Tentative List of Potential 

Future World Heritage Nominations. 

Any park superintendent who believes that part or all of the 

park they manage should be considered for inscription on 

the World Heritage List must consult with the NPS Offi ce of 

International Aff airs, the NPS Director, and the Department 

of the Interior before proceeding. U.S. recommendations 

are approved by an interagency panel chaired by the 

Assistant Secretary for Fish and Wildlife and Parks, based 

on criteria promulgated by the World Heritage Committee. 

These criteria and the rules for U.S. participation in the 

Convention Concerning the Protection of World Cultural 

and Natural Heritage are published in 36 CFR Part 73.

Once a property is placed on the World Heritage List, 

the Park Service will recognize the designation in public 

information and interpretive programs. Where appropriate, 

superintendents should use a park’s world heritage status 

to promote the park and encourage sustainable tourism 

(tourism that does not adversely impact park resources 
and values) and the preservation of the world’s natural and 

cultural heritage. Placement on the World Heritage List 

will not alter the purposes for which a park was established, 

change management requirements, or reduce NPS 

jurisdiction over a park.

(See World Heritage Sites 4.3.7. Also see 36 CFR Part 73) 

5.2 Planning 

Eff ective park stewardship requires informed decisionmaking about a park’s cultural resources. This is best 

accomplished through a comprehensive planning process. 

Eff ective planning is based on an understanding of what a 

park’s cultural resources are and why those resources are 

signifi cant. To gain this understanding, the Service must 

obtain baseline data on the nature and types of cultural 

resources, and their (1) distribution; (2) condition; (3) 

signifi cance; and (4) local, regional, and national contexts. 

Cultural resource planning, and the resource evaluation 

process that is part of it, will include consultation with 

cultural resource professionals and scholars having relevant 

expertise; traditionally associated peoples; and other groups 

and individuals. Current scholarship and needs for research 

are considered in this process, along with the park’s 

legislative history and other relevant information.

Each park’s resource stewardship strategy will provide 

comprehensive recommendations about specifi c actions 

needed to achieve and maintain the desired resource 

conditions and visitor experiences for the park’s cultural 

resources. This will include activities necessary to identify, 

evaluate, manage, monitor, protect, preserve, and treat the 

park’s cultural resources, and to provide for enjoyment and 

understanding of the resources by the public.

Superintendents will ensure full consideration of the park’s 

cultural resources and values in all proposals for operations, 

development, and natural resource programs, including 

the management of wilderness areas. When proposed 

undertakings may adversely aff ect national historic sites, 

national battlefi elds, and other predominantly cultural 

units of the national park system that were established 

in recognition of their national historical signifi cance, 

superintendents will provide opportunities for the same 

level of review and consideration by the Advisory Council 

on Historic Preservation and the Secretary of the Interior 

that the Advisory Council’s regulations require for 

undertakings that may adversely aff ect national historic 

landmarks (36 CFR 800.10). 

(See Decision-making Requirements to Identify and Avoid 

Impairments 1.4.7; Strategic Planning 2.3.3; Implementation 

Planning 2.3.4. Also see Executive Order 13007 (Indian Sacred 

Sites); Secretary of the Interior’s Standards and Guidelines 

for Federal Agency Historic Preservation Programs Pursuant 

to the National Historic Preservation Act [63 FR 20496-508]; 

Secretary of the Interior’s Standards and Guidelines for 

Preservation Planning [48 FR 44716-720]; Secretary of the 

Interior’s Standards for the Treatment of Historic Properties) 

5.2.1 Consultation 

The National Park Service is committed to the open and 

meaningful exchange of knowledge and ideas to enhance (1) 

the public’s understanding of park resources and values and 

the policies and plans that aff ect them; and (2) the Service’s 

ability to plan and manage the parks by learning from 

others. Open exchange requires that the Service seek and 

employ ways to reach out to and consult with all those who 

have an interest in the parks. 

Each superintendent will consult with outside parties 

having an interest in the park’s cultural resources or in 

proposed NPS actions that might aff ect those resources, 

and provide them with opportunities to learn about 

and comment on those resources and planned actions. 

Consultation may be formal, as when it is required pursuant 

to the Native American Graves Protection and Repatriation 

Act or section 106 of the National Historic Preservation 

Act, or it may be informal, when there is not a specifi c 

statutory requirement. Consultation will be initiated, as 

appropriate, with tribal, state, and local governments; 

state and tribal historic preservation offi cers; the Advisory 

Council on Historic Preservation; other interested federal 

agencies; traditionally associated peoples; present-day park 

neighbors; and other interested groups. 

Consultations on proposed NPS actions will take place as 

soon as practical and in an appropriate forum that ensures, 

to the maximum extent possible, eff ective communication 

and the identifi cation of mutually acceptable alternatives. 

The Service will establish and maintain continuing 

relationships with outside parties to facilitate future 

collaboration, formal consultations, and the ongoing 

informal exchange of views and information on cultural 

resource matters. 

Because national parks embody resources and values of 

interest to a national audience, eff orts to reach out and 

consult must be national in scope. However, the Service 

will be especially mindful of consulting with traditionally 

associated peoples—those whose cultural systems or ways 

of life have an association with park resources and values 

that predates establishment of the park. Traditionally 

associated peoples may include park neighbors, traditional 

residents, and former residents who remain attached 

to the park area despite having relocated. Examples of 

traditionally associated peoples include both federally 

designated and nondesignated American Indian tribes in 

the contiguous 48 states, Alaska Natives, Native Hawaiians, 

African Americans at Jean Lafi tte, Asian Americans at 

Manzanar, Hispanic Americans at Tumacacori, and others. 

In particular, traditionally associated peoples should be 

consulted about

proposed research on and stewardship of cultural and 

natural resources with ethnographic meaning for the 

groups; 

development of park planning and interpretive 

documents that may aff ect resources traditionally 

associated with the groups; 

CULTURAL RESOURCE MANAGEMENT 5.1-5.2

63
MANAGEMENT POLICIES 2006

64 proposed research that entails collaborative study of 

the groups; 

identifi cation, treatment, use, and determination of 

affi liation of objects subject to the Native American 

Graves Protection and Repatriation Act; 

repatriation of Native American cultural items or 

human remains based on requests by affi liated groups 

in accordance with the Native American Graves 

Protection and Repatriation Act; 

planned excavations and proposed responses to 

inadvertent discoveries of cultural resources that may 

be culturally affi liated with the groups; 

other proposed NPS actions that may aff ect the 

treatment of, use of, and access to cultural and natural 

resources with known or potential cultural meaning for 

the groups; and 

designation of National Register, National Historic 

Landmark, and World Heritage Sites with known or 

potential cultural meaning for the groups. 

Consultation with federally recognized American Indian 

tribes will be on a government-to-government basis. The 

Service will notify appropriate tribal authorities (such as 

tribal historic preservation offi cers) about proposed actions 

when fi rst conceived, and by subsequently consulting their 

appointed representatives whenever proposed actions may 

aff ect tribal interests, practices, and traditional resources 

(such as places of religious value).

There are other groups and individuals with strong 

connections to the land through experiencing a signifi cant 

life event within or near a park unit. Through its civic 

engagement activities, the Service will be sensitive to 

and carefully consider the views of those who have these 

associations.

Whenever groups are created, controlled, or managed for 

the purpose of providing advice or recommendations to 

the Service, the Service will fi rst consult with the Offi ce of 

the Solicitor to determine whether the Federal Advisory 

Committee Act requires the chartering of an advisory 

committee. Consultation with the Offi ce of the Solicitor will 

not be necessary when the Service meets with individuals, 

groups, or organizations simply to exchange views and 

information or to solicit individual advice on proposed 

actions. The act does not apply to intergovernmental 

meetings held exclusively between federal offi cials and 

elected offi cers of state, local, and tribal governments (or 

their designated employees with authority to act on their 

behalf) acting in their offi cial capacities, when (1) the 

meetings relate to intergovernmental responsibilities or 

administration, and (2) the purpose of the committee is 

solely to exchange views, information, or advice relating 

to the management or implementation of federal programs 

established pursuant to statute that explicitly or inherently 

share intergovernmental responsibilities or administration.

(See Civic Engagement 1.7; Relationship with American Indian 

Tribes 1.11; Ethnographic Resources 5.3.5.3. Also see ARPA; 

NAGPRA; NEPA; NHPA [16 USC 470f]; 36 CFR Part 800; 40 

CFR Parts 1500-1508; 41 CFR Part 101;, 43 CFR Parts 7 and 

10; Executive Memorandum on Government-to-Government 

Relations with Native American Tribal Governments; 

Executive Order 13007 (Indian Sacred Sites); Executive 

Order 13175 (Consultation and Coordination with Indian 

Tribal Governments); 512 Department of the Interior Manual 

[DM] 2; Director’s Order #71: Government-to-government 

Relationships with Tribal Governments; NPS Guide to the 

Federal Advisory Committee Act) 

5.2.2 Agreements 

The National Park Service will seek to establish mutually 

benefi cial agreements with interested groups to facilitate 

collaborative research, consultation, park planning, 

training, and cooperative management approaches with 

respect to park cultural resources and culturally important 

natural resources. The NPS goal is to allow traditionally 

associated peoples to exercise traditional cultural practices 

in parks to the extent allowable by law and consistent 

with the criteria listed in section 8.2. To the extent this 

goal can be legally reached through agreements, park 

superintendents should do so. 

Whenever parks have cultural resources that are owned 

or managed by others, agreements will clarify how the 

resources are to be managed. Agreements will provide 

ways for periodically reviewing their eff ectiveness, making 

mutually agreed-upon modifi cations, and avoiding and 

resolving disagreements and disputes. All agreements 

will conform to the requirements of Director’s Order #20: 

Agreements. 

(See Decision-making Requirements to Identify and Avoid 

Impairments 1.4.7; Partnerships 1.10; Partnerships 4.1.4; 

Park Structures Owned or Managed by Others 5.3.5.4.8; 

Submerged Cultural Resources 5.3.5.1.6; Use by American 

Indians and Other Traditionally Associated Groups 8.5; 

Consumptive Uses 8.9. Also see Executive Order 13007 (Indian 

Sacred Sites); 36 CFR 2.1) 

5.2.3 Confi dentiality 

Sensitive or confi dential information is sometimes acquired 

during consultations and during other research, planning, 

and stewardship activities. Under certain circumstances 

and to the extent permitted by law, information about 

the specifi c location, character, nature, ownership, or 

acquisition of cultural resources on park lands will be 

withheld from public disclosure. If a question arises about 

withholding information, and disclosure could result in a 

signifi cant invasion of privacy or a risk of harm to a cultural 

resource, the Park Service will consult the provisions of the 

Archaeological Resources Protection Act (16 USC 470hh); 

the National Parks Omnibus Management Act (16 USC 

5937); and the National Historic Preservation Act (16 USC 

470w-3) before making a decision. Under some conditions, 

the Service may be required by law to disclose confi dential 

information acquired during consultations, public meetings, 

and other research, planning, and stewardship activities, or 

in association with the acquisition of resources, including 

museum collections. Before these activities occur, NPS staff 

and authorized researchers will make every eff ort to inform 
aff ected parties that, while the information they provide 

will not be shared voluntarily, confi dentiality cannot be 

guaranteed. 

To the extent permitted by law, the Service will withhold 

from public disclosure (1) information provided 

by individuals who wish the information to remain 

confi dential, and (2) the identities of individuals who wish 

to remain anonymous and who are protected from release 

by exemption under the Freedom of Information Act. 

In each instance the Service will document its decision 

to disseminate or withhold sensitive or confi dential 

information from public disclosure. 

More detailed guidance on sensitive and confi dential 

information can be found in Director’s Order #66: FOIA 

and Protected Resource Information and the Museum 

Handbook, Part III. 

(See Information Confi dentiality 1.9.2.3; Natural Resource 

Information 4.1.2. Also see 43 CFR Part 2; 43 CFR 7.18; 

Privacy Act) 

5.3 Stewardship 

5.3.1 Protection and Preservation of 

 Cultural Resources 

The National Park Service will employ the most eff ective 

concepts, techniques, and equipment to protect cultural 

resources against theft, fi re, vandalism, overuse, 

deterioration, environmental impacts, and other threats 

without compromising the integrity of the resources. 

5.3.1.1 Emergency Management 

Measures to protect or rescue cultural resources in the 

event of an emergency, disaster, or fi re will be developed as 

part of a park’s emergency operations and fi re management 

planning processes. Designated personnel will be trained 

to respond to all emergencies in a manner that maximizes 

visitor and employee safety and the protection of resources 

and property. 

(See Emergency Preparedness and Emergency Operations 

8.2.5.2. Also see 36 CFR Part 78) 

5.3.1.2 Fire Detection, Suppression, and Post-fi re 

Rehabilitation and Protection 

The Park Service will take action to prevent or minimize 

the impact of wildland, prescribed, and structural fi res on 

cultural resources, including the impact of suppression and 

rehabilitation activities. 

In the preservation of historic structures and museum and 

library collections, every attempt will be made to comply 

with national building and fi re codes. When these cannot be 

met without signifi cantly impairing a structure’s integrity 

and character, management and use of the structure will 

be modifi ed to minimize potential hazards rather than 

modifying the structure itself. 

Subject to the previous paragraph, when warranted by 

the signifi cance of a historic structure or a museum or 

library collection, adequate and appropriate fi re detection, 

warning, and suppression systems will be installed. Pre-fi re 

plans will be developed for historic structures and buildings 

housing museum or library collections; these plans will 

be designed to identify the fl oor plan, utilities, hazards, 

and areas and objects requiring special protection. This 

information will be kept current and made available to local 

and park fi re personnel. 

Park and local fi re personnel will be advised of the locations 

and characteristics of cultural resources threatened by fi re 

and of any priorities for protecting them during any planned 

or unplanned fi re incident. At parks with cultural resources, 

park fi re personnel will receive cultural resource protection 

training. At parks that have wildland or structural fi re risks 

and programs, cultural resource management specialists 

will receive fi re prevention and emergency response 

training. Cultural resource management specialists who 

assist with wildland fi re programs will be certifi ed for 

incident management positions commensurate with their 

individual responsibilities. 

Smoking will not be permitted in spaces housing museum 

or library collections or in historic structures (except those 

used as residences in which smoking is permitted by the 

park superintendent). 

(See Fire Management 4.5; Fire Management 6.3.9; Structural 

Fire Protection and Suppression 9.1.8. Also see Director’s 

Order #18: Wildland Fire Management; Director’s Order #58: 

Structural Fire Management and Reference Manual 58) 

5.3.1.3 Compensation for Injuries to 

 Cultural Resources

The Service will use all legal authorities that are available 

to protect and restore cultural resources and the benefi ts 

they provide when actions of another party cause the 

destruction or loss of or injury to park resources or values. 

As a fi rst step, damage assessments provide the basis for 

determining the restoration and compensation needs that 

address the public’s loss and are a key milestone toward 

the ultimate goal, which is restoration of resources for the 

American public. In accordance with the National Park 

System Resource Protection Act, the Park Service will take 

all necessary and appropriate steps to recover costs and 

damages from any person who destroys, causes the loss of, 

or injures any resource of the national park system. When 

such incidents involve cultural resources, the Service will 

prevent or minimize the destruction or loss of or injury 

to the cultural resource, or abate or minimize the 

imminent risk of such destruction, loss, or injury; 

assess and monitor damage to the cultural resource; 

recover any and all costs associated with the restoration 

or replacement of the cultural resource or costs 

associated with the acquisition of an equivalent 

resource; 

CULTURAL RESOURCE MANAGEMENT 5.2-5.3

65
MANAGEMENT POLICIES 2006

66 recover the value of any signifi cant loss of use of the 

cultural resource pending its restoration or replacement 

or the acquisition of an equivalent, or the value of the 

cultural resource in the event it cannot be restored or 

replaced; and 

recover any and all costs incurred in responding to, 

assessing, and/or monitoring damage to the cultural 

resource. 

(See Compensation for Injuries to Natural Resources 4.1.6. 

Also see Director’s Order #14: Resource Damage Assessment 

and Restoration) 

5.3.1.4 Environmental Monitoring and Control 

When necessary to preserve a historic structure or a 

museum collection, appropriate measures will be taken 

to control relative humidity, temperature, light, and air 

quality. When museum collections are housed in a historic 

structure, the needs of both the collection and the structure 

will be identifi ed and evaluated, weighing relative rarity 

and signifi cance, before environmental control measures 

are introduced. The environmental conditions of all areas 

housing museum collections will be regularly monitored, 

according to a schedule specifi c to each condition, to 

determine whether appropriate levels of relative humidity, 

temperature, and light are being maintained. 

(See Air Quality 4.7.1. Also see Director’s Order #24: NPS 

Museum Collections Management) 

5.3.1.5 Pest Management 

The Park Service will follow an integrated pest management 

approach in addressing pest problems (including invasive 

vegetation) related to cultural resources. Pest occurrences 

will be dealt with on a case-by-case basis according to the 

principles identifi ed in section 4.4.5 and Director’s Order 

#77: Natural Resource Protection to ensure the most 

eff ective and lowest risk management strategy. 

(See Pest Management 4.4.5) 

5.3.1.6 Visitor Carrying Capacity 

Superintendents will set, enforce, and monitor carrying 

capacities to limit public visitation to or use of cultural 

resources that would be subject to adverse eff ects from 

unrestricted levels of visitation or use. This will include 

(1) reviewing the park’s purpose; (2) analyzing existing 

visitor use of and related impacts on the park’s cultural 

resources and traditional resource users; (3) prescribing 

indicators and specifi c standards for acceptable and 

sustainable visitor use; and (4) identifying ways to address 

and monitor unacceptable impacts resulting from overuse. 

Studies to gather basic data and make recommendations on 

setting, enforcing, and monitoring carrying capacities for 

cultural resources will be conducted in collaboration with 

cultural resource specialists representing the appropriate 

disciplines. 

(See Visitor Carrying Capacity 8.2.1) 

5.3.1.7 Cultural Soundscape Management

Culturally appropriate sounds are important elements of 

the national park experience in many parks. The Service 

will preserve soundscape resources and values of the parks 

to the greatest extent possible to protect opportunities for 

appropriate transmission of cultural and historic sounds 

that are fundamental components of the purposes and 

values for which the parks were established. Examples of 

appropriate cultural and historic sounds include native 

drumming (at Yosemite National Park, for example), 

music (at New Orleans Jazz National Historical Park, for 

example), and bands, marching, cannon fi re, or other 

military demonstrations at some national battlefi eld parks. 

The Service will prevent inappropriate or excessive types 

and levels of sound (noise) from unacceptably impacting 

the ability of the soundscape to transmit the cultural and 

historic resource sounds associated with park purposes.

(See Soundscape Management 4.9; Recreational Activities 

8.2.2. Also see 36 CFR 2.12: Audio Disturbances)

5.3.2 Physical Access for Persons with Disabilities 

The National Park Service will provide persons with 

disabilities the highest feasible level of physical access 

to historic properties that is reasonable, consistent with 

the preservation of each property’s signifi cant historical 

features. Access modifi cations for persons with disabilities 

will be designed and installed to least aff ect the features of 

a property that contribute to its signifi cance. Modifi cations 

to some features may be acceptable in providing access once 

a review of options for the highest level of access has been 

completed. However, if it is determined that modifi cation 

of particular features would impair a property’s integrity 

and character in terms of the Advisory Council’s regulations 

at 36 CFR 800.9, such modifi cations will not be made. To 

the extent possible, modifi cations for access will benefi t 

the greatest number of visitors, staff , and the public, and 

be integrated with or close to the primary path of travel 

for entrances and from parking areas. In situations where 

access modifi cations cannot be made, alternative methods 

of achieving program access will be adopted. 

(See Access to Interpretive and Educational Opportunities 

7.5.2; Accessibility for Persons with Disabilities 8.2.4; 

Accessibility for Persons with Disabilities 9.1.2; Accessibility of 

Commercial Services 10.2.6.2. Also see Director’s Order #42: 

Accessibility for Visitors with Disabilities in National Park 

Service Programs and Services) 

5.3.3 Historic Property Leases and 

 Cooperative Agreements 

The National Park Service may permit the use of a historic 

property through a lease or cooperative agreement if the 

lease or cooperative agreement will ensure the property’s 

preservation. Proposed uses must not unduly limit public 

appreciation of the property; interfere with visitor use and 

enjoyment of the park; or preclude use of the property 

for park administration, employee residences, or other 

management purposes judged more appropriate or costeff ective. 
If a lease or cooperative agreement requires or allows 

the lessee or cooperator to maintain, repair, rehabilitate, 

restore, or build upon the property, the work must be done 

in accordance with applicable Secretary of the Interior’s 

standards and guidelines and other NPS policies, guidelines, 

and standards. 

(See Leases 8.12. Also see Director’s Order #38: Real Property 

Leasing; NHPA [16 USC 470h-3]; 16 USC 460l-22(a); Omnibus 

Consolidated Appropriations Act, 1997 [16 USC 1g]; 36 CFR 

Part 18) 

5.3.4 Stewardship of Human Remains and Burials

Marked and unmarked prehistoric and historic burial areas 

and graves will be identifi ed, evaluated, and protected. 

Every eff ort will be made to avoid impacting burial areas and 

graves when planning park development and managing park 

operations. Such burial areas and graves will not knowingly 

be disturbed or archeologically investigated unless 

threatened with destruction. 

The Service will consult with American Indian tribes, 

Alaska Natives, Native Hawaiians, and other individuals 

and groups linked by demonstrable ties of kinship or 

culture to potentially identifi able human remains when such 

remains may be disturbed or are inadvertently encountered 

on park lands. Reinterment at the same park may be 

permitted and may include remains that may have been 

removed from lands now within the park. 

American Indian, Alaska Native, and Native Hawaiian 

human remains and photographs of such remains will 

not be exhibited. Drawings, renderings, or casts of such 

remains may be exhibited with the consent of culturally 

affi liated Indian tribes, Alaska Natives, and Native Hawaiian 

organizations. The exhibit of non-Native American human 

remains, or photographs, drawings, renderings, or casts of 

such remains, is allowed in consultation with traditionally 

associated peoples. The Service may allow access to and 

study, publication, and destructive analysis of human 

remains, but must consult with traditionally associated 

peoples and consider their opinions and concerns before 

making decisions on appropriate actions. In addition, such 

use of human remains will occur only with an approved 

research proposal that describes why the information 

cannot be obtained through other sources or analysis and 

why the research is important to the fi eld of study and the 

general public. 

(See Cultural Resources 6.3.8; Consultation 7.5.6; Cemeteries 

and Burials 8.6.10. Also see ARPA; NAGPRA; 36 CFR Part 79; 

43 CFR Part 10) 

5.3.5 Treatment of Cultural Resources 

The Park Service will provide for the long-term preservation 

of, public access to, and appreciation of the features, 

materials, and qualities contributing to the signifi cance of 

cultural resources. With some diff erences by type, cultural 

resources are subject to several basic treatments, including 

(1) preservation in their existing states; (2) rehabilitation 

to serve contemporary uses, consistent with their integrity 

and character; and (3) restoration to earlier appearances by 

the removal of later additions and replacement of missing 

elements. Decisions regarding which treatments will best 

ensure the preservation and public enjoyment of particular 

cultural resources will be reached through the planning and 

compliance process, taking into account

the nature and signifi cance of a resource and its 

condition and interpretive value

the research potential of the resource 

the level of intervention required by treatment 

alternatives

the availability of data and the terms of any binding 

restrictions

the concerns of traditionally associated peoples and 

other groups and individuals 

Except for emergencies that threaten irreparable loss 

without immediate action, no treatment project will be 

undertaken unless supported by an approved planning 

document appropriate to the proposed action. 

The preservation of cultural resources in their existing 

states will always receive fi rst consideration. Treatments 

entailing greater intervention will not proceed without 

the consideration of interpretive alternatives. The 

appearance and condition of resources before treatment 

and changes made during treatment will be documented. 

Such documentation will be shared with any appropriate 

state or tribal historic preservation offi ce or certifi ed local 

government and added to the park museum cataloging 

system. Pending treatment decisions reached through 

the planning process, all resources will be protected and 

preserved in their existing states. 

As a basic principle, anything of historical appearance 

that the National Park Service presents to the public in 

a park will be either an authentic survival from the past 

or an accurate representation of that once existing there. 

Reconstructions and reproductions will be clearly identifi ed 

as such. 

The Service will holistically approach the treatment of 

related cultural resources in a park. All cultural resource 

and natural resource values will be considered in defi ning 

specifi c treatment and management goals. Research will 

be coordinated and sequenced so that decisions are not 

made in isolation. Each proposed action will be evaluated to 

ensure consistency or compatibility in the overall treatment 

of park resources. The relative importance and relationship 

of all values will be weighed to identify potential confl icts 

between and among resource preservation goals, park 

management and operation goals, and park user goals. 

Confl icts will be considered and resolved through the 

planning process, which will include any consultation 

required by 16 USC 470f. 

CULTURAL RESOURCE MANAGEMENT 5.3

67
MANAGEMENT POLICIES 2006

68 Although each resource type is most closely associated with 

a particular discipline, an interdisciplinary approach is 

commonly needed to properly defi ne specifi c treatment and 

management goals for cultural resources. Policies applicable 

to the various resource types follow. 

(See Park Management 1.4; Levels of Park Planning 2.3; 

Planning 5.2; Cultural Resources 6.3.8. Also see NEPA; 

Secretary of the Interior’s Standards for the Treatment of 

Historic Properties) 

5.3.5.1 Archeological Resources 

Archeological resources will be managed in situ, unless 

the removal of artifacts or physical disturbance is justifi ed 

by research, consultation, preservation, protection, or 

interpretive requirements. Preservation treatments will 

include proactive measures that protect resources from 

vandalism and looting, and will maintain or improve 

their condition by limiting damage due to natural and 

human agents. Data recovery actions will be taken only 

in the context of planning, consultation, and appropriate 

decision-making. Preservation treatments and data 

recovery activities will be conducted within the scope of an 

approved research design. Archeological research will use 

nondestructive methods of testing and analysis wherever 

possible. The Park Service will incorporate information 

about archeological resources into interpretive, educational, 

and preservation programs. Artifacts and specimens 

recovered from archeological resources, along with 

associated records and reports, will be maintained together 

in the park museum collection. 

(Also see Director’s Order #28A: Archeology; 36 CFR Part 

79; Secretary of the Interior’s Standards and Guidelines for 

Archeological Documentation [48 FR 44734-737]; Museum 

Handbook) 

5.3.5.1.1 Preservation 

Archeological resources will be maintained and preserved 

in a stable condition to prevent degradation and loss. The 

condition of archeological resources will be documented, 

regularly monitored, and evaluated against initial baseline 

data. Parks are encouraged to enlist concerned local citizens 

in site stewardship programs to patrol and monitor the 

condition of archeological resources. The preservation 

of archeological components of cultural landscapes, 

structures, and ruins are also subject to the treatment 

policies for cultural landscapes, historic and prehistoric 

structures, and historic and prehistoric ruins. 

(See Volunteers in the Parks 1.9.1.6)

5.3.5.1.2 Stabilization 

Archeological resources subject to erosion, slumping, 

subsidence, or other natural deterioration will be stabilized 

using the least intrusive and destructive methods. The 

methods used will protect natural resources and processes 

to the maximum extent feasible. Stabilization will occur 

only after suffi cient research demonstrates the likely 

success of the proposed stabilizing action and after existing 

conditions are documented. 

5.3.5.1.3 Rehabilitation, Restoration, 

 and Reconstruction 

These terms are normally related to the treatment of historic 

structures and cultural landscapes. The Park Service will 

not normally undertake the rehabilitation, restoration, 

or reconstruction of archeological resources or features. 

Archeological studies undertaken in conjunction with 

the rehabilitation or restoration of cultural landscapes, 

structures, or ruins, or with the reconstruction of 

obliterated cultural landscapes or missing structures, will be 

guided by the treatment policies for archeological resources 

as well as those for the other associated resource types. 

5.3.5.1.4 Protection 

Archeological resources will be protected against human 

agents of destruction and deterioration whenever 

practicable. Archeological resources subject to vandalism 

and looting will be periodically monitored and, if 

appropriate, fencing, warning signs, remote-sensing alarms, 

and other protective measures will be installed. Training 

and public education programs will be developed to make 

park staff and the public aware of the value of the park’s 

archeological resources and the penalties for destroying 

them. For public safety reasons, local citizens who are 

monitoring resources under site stewardship programs will 

be instructed to report incidents of vandalism and looting to 

law enforcement personnel for response. 

(See Volunteers in Parks 7.6.1; Shared Responsibilities 8.3.3) 

5.3.5.1.5 Archeological Data Recovery 

Archeological data recovery is permitted if justifi ed by 

research or interpretation needs. Signifi cant archeological 

data that would otherwise be lost as a result of resource 

treatment projects or uncontrollable degradation 

or destruction will be recovered in accordance with 

appropriate research proposals and preserved in park 

museum collections. Data will be recovered to mitigate 

the loss of signifi cant archeological data due to park 

development, but only after

the redesign, relocation, and cancellation of the 

proposed development have all been considered and 

ruled out as infeasible through the planning process; 

the park development has been approved; and 

the project has provided for data recovery, cataloging, 

and the initial preservation of recovered collections. 

(See Planning 5.2) 

5.3.5.1.6 Earthworks 

Appropriate and, when feasible, native vegetation will 

be maintained when necessary to prevent the erosion of 

prehistoric and historic earthworks, even when the historic 

condition might have been bare earth. Because earthwork 

restorations and reconstructions can obliterate surviving 

remains and are often diffi cult to maintain, other means of 

representing and interpreting the original earthworks will 

receive fi rst consideration. 

(See Management of Native Plants and Animals 4.4.2; 

Management of Exotic Species 4.4.4) 
5.3.5.1.7 Submerged Cultural Resources 

Historic shipwrecks and other submerged cultural 

resources will be protected, to the extent permitted by law, 

in the same manner as terrestrial archeological resources. 

Protection activities involve inventory, evaluation, 

monitoring, interpretation, and establishing partnerships 

to provide for the management of historic shipwrecks and 

other submerged cultural resources in units of the national 

park system. The Service will not allow treasure hunting 

or commercial salvage activities at or around historic 

shipwrecks or other submerged cultural resources located 

within park boundaries unless legally obligated to do so. 

Parks may provide recreational diving access to submerged 

cultural resources that are not susceptible to damage or 

the removal of artifacts. The Service will ensure that the 

activities of others in park waters do not adversely aff ect 

submerged cultural resources or the surrounding natural 

environment. The Service will consult with the owners of 

non-abandoned historic shipwrecks and enter into written 

agreements with them to clarify how the shipwrecks will be 

managed by the Park Service. Shipwrecks owned by a state 

government pursuant to the Abandoned Shipwreck Act of 

1987 will be managed in accordance with the Abandoned 

Shipwreck Act Guidelines (55 FR 50116-145, 55 FR 51528, 

and 56 FR 7875). 

(See Recreational Activities 8.2.2. Also see 36 CFR Part 2; 485 

DM 27; Director’s Order #4: Diving Management) 

5.3.5.2 Cultural Landscapes 

The treatment of a cultural landscape will preserve 

signifi cant physical attributes, biotic systems, and uses when 

those uses contribute to historical signifi cance. Treatment 

decisions will be based on a cultural landscape’s historical 

signifi cance over time, existing conditions, and use. 

Treatment decisions will consider both the natural and built 

characteristics and features of a landscape, the dynamics 

inherent in natural processes and continued use, and the 

concerns of traditionally associated peoples. 

The treatment implemented will be based on sound 

preservation practices to enable long-term preservation of a 

resource’s historic features, qualities, and materials. There 

are three types of treatment for extant cultural landscapes: 

preservation, rehabilitation, and restoration. 

(See Decision-making Requirements to Identify and Avoid 

Impairments 1.4.7. Also see Secretary of the Interior’s 

Standards for the Treatment of Historic Properties with 

Guidelines for the Treatment of Cultural Landscapes) 

5.3.5.2.1 Preservation 

A cultural landscape will be preserved in its present 

condition if 

that condition allows for satisfactory protection, 

maintenance, use, and interpretation; or

another treatment is warranted but cannot be 

accomplished until some future time. 

5.3.5.2.2 Rehabilitation 

A cultural landscape may be rehabilitated for contemporary 

use if 

it cannot adequately serve an appropriate use in its 

present condition; and 

rehabilitation will retain its essential features and 

not alter its integrity and character or confl ict with 

approved park management objectives. 

5.3.5.2.3 Restoration 

A cultural landscape may be restored to an earlier 

appearance if 

all changes after the proposed restoration period have 

been professionally evaluated and the signifi cance of 

those changes has been fully considered; 

restoration is essential to public understanding of the 

park’s cultural associations; 

suffi cient data about that landscape’s earlier appearance 

exist to enable its accurate restoration; and 

the disturbance or loss of signifi cant archeological 

resources is minimized and mitigated by data recovery. 

5.3.5.2.4 Reconstruction of Obliterated Landscapes 

No matter how well conceived or executed, reconstructions 

are contemporary interpretations of the past rather than 

authentic survivals from it. The National Park Service will 

not reconstruct an obliterated cultural landscape unless 

there is no alternative that would accomplish the park’s 

interpretive mission; 

suffi cient data exist to enable its accurate 

reconstruction, based on the duplication of historic 

features substantiated by documentary or physical 

evidence, rather than on conjectural designs or features 

from other landscapes; 

reconstruction will occur in the original location; 

the disturbance or loss of signifi cant archeological 

resources is minimized and mitigated by data recovery; 

and 

reconstruction is approved by the Director. 

A landscape will not be reconstructed to appear damaged or 

ruined. General representations of typical landscapes will 

not be attempted. 

5.3.5.2.5 Biotic Cultural Resources 

Biotic cultural resources, which include plant and animal 

communities associated with the signifi cance of a cultural 

landscape, will be duly considered in treatment and 

management. The cultural resource and natural resource 

components of the park’s resource stewardship strategy will 

jointly identify acceptable plans for the management and 

treatment of biotic cultural resources. The park’s resource 

stewardship strategy will anticipate and plan for the natural 

and human-induced processes of change. Before any major 

treatment of a cultural landscape is undertaken, there 

must be an understanding of the degree to which change 

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69
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70 contributes to or compromises the historic character of the 

landscape, and the way in which natural cycles infl uence 

the ecological processes within the landscape. Treatment 

and management of a cultural landscape will establish 

acceptable parameters for change and manage the biotic 

resources within those parameters. 

(See Maintenance of Altered Plant Communities 4.4.2.5) 

5.3.5.2.6 Land Use and Ethnographic Value 

Many cultural landscapes are signifi cant because of their 

historic land use and practices. When land use is a primary 

reason for the signifi cance of a landscape, the objective 

of treatment will be to balance the perpetuation of use 

with the retention of the tangible evidence that represents 

its history. The variety and arrangement of cultural and 

natural features in a landscape often have sacred or other 

continuing importance in the ethnic histories and cultural 

vigor of associated peoples. These features and their past 

and present-day uses will be identifi ed, and the beliefs, 

attitudes, practices, traditions, and values of traditionally 

associated peoples will be considered in any treatment 

decisions. 

Contemporary use of a cultural landscape is appropriate if it

does not adversely aff ect signifi cant landscape 

characteristics and features; and 

either follows the historic use or does not impede public 

appreciation of it. 

All uses of cultural landscapes are subject to legal 

requirements, policy, guidelines, and standards for natural 

and cultural resource preservation, public safety, and 

special park uses. 

5.3.5.2.7 New Construction 

Contemporary alterations and additions to a cultural 

landscape must not radically change, obscure, or destroy 

its signifi cant spatial organization, materials, and features. 

New buildings, structures, landscape features, and utilities 

may be constructed in a cultural landscape if 

existing structures and improvements do not meet 

essential management needs; 

new construction is designed and sited to preserve the 

landscape’s integrity and historic character; and 

the alterations, additions, or related new construction is 

diff erentiated from yet compatible with the landscape’s 

historic character—unless associated with an approved 

restoration or reconstruction. 

New additions will meet the Secretary of the Interior’s 

Standards for Rehabilitation. 

5.3.5.3 Ethnographic Resources 

Park ethnographic resources are the cultural and natural 

features of a park that are of traditional signifi cance to 

traditionally associated peoples. These peoples are the 

contemporary park neighbors and ethnic or occupational 

communities that have been associated with a park for two 

or more generations (40 years), and whose interests in the 

park’s resources began before the park’s establishment. 

Living peoples of many cultural backgrounds—American 

Indians, Inuit (Eskimos), Native Hawaiians, African 

Americans, Hispanics, Chinese Americans, EuroAmericans, and farmers, ranchers, and fi shermen—may 

have a traditional association with a particular park. 

Traditionally associated peoples generally diff er as a 

group from other park visitors in that they typically assign 

signifi cance to ethnographic resources—places closely 

linked with their own sense of purpose, existence as a 

community, and development as ethnically distinctive 

peoples. These places may be in urban or rural parks and 

support ceremonial activities or represent birthplaces of 

signifi cant individuals, group origin sites, migration routes, 

or harvesting or collecting places. Although these places 

have historic attributes that are of great importance to the 

group, they may not necessarily have a direct association 

with the reason the park was established or be appropriate 

as a topic of general public interest. Some ethnographic 

resources might also be traditional cultural properties. 

A traditional cultural property is one that is eligible for 

inclusion in the National Register of Historic Places because 

of its association with cultural practices or beliefs of a living 

community that are (1) rooted in that community’s history, 

and (2) important in maintaining the continuing cultural 

identity of the community. 

The Service’s primary interest in these places stems from its 

responsibilities under 

the NPS Organic Act—to conserve the natural and 

historic objects within parks unimpaired for the 

enjoyment of future generations; 

the National Historic Preservation Act (NHPA)—

 to preserve, conserve, and encourage the continuation 

of the diverse traditional prehistoric, historic, ethnic, 

and folk cultural traditions that underlie and are a 

living expression of our American heritage; 

the American Indian Religious Freedom Act (AIRFA)—

to protect and preserve for American Indians access 

to sites, use and possession of sacred objects, and 

the freedom to worship through ceremonials and 

traditional rites; 

the Archeological Resources Protection Act (ARPA)—

to secure, for the present and future benefi t of the 

American people, the protection of archeological 

resources and sites that are on public lands and Indian 

Lands; 

the National Environmental Policy Act (NEPA)—to 

preserve important historic, cultural, and natural 

aspects of our national heritage; and 

Executive Order 13007 (Indian Sacred Sites)—to 

accommodate access to and ceremonial use of Indian 

sacred sites by Indian religious practitioners and avoid 

adversely aff ecting the physical integrity of such 

 sacred sites. 

The Service must therefore be respectful of these 

ethnographic resources and carefully consider the eff ects 
that NPS actions may have on them. When religious issues 

are evident, the Service must also consider constraints 

imposed on federal agency actions by the First and 

Fourteenth Amendments to the U.S. Constitution. 

The National Park Service will adopt a comprehensive 

approach towards appreciating the diverse human heritage 

and associated resources that characterize the national park 

system. The Service will identify the present-day peoples 

whose cultural practices and identities were, and often still 

are, closely associated with each park’s cultural and natural 

resources. 

The Alaska National Interest Lands Conservation Act 

(ANILCA) recognizes the importance of maintaining Alaska 

Native and non-Native subsistence lifestyles and contains 

provisions that authorize activities by the Park Service 

to assist Alaska Natives in the preservation of cultural 

resources. For many rural Alaskans, the land and the way of 

life are inseparable. The Service will explore opportunities 

in Alaska to forge a mutually benefi cial relationship between 

Alaska Natives, rural Alaskans, and the Service. In Alaska 

and elsewhere, the Service will try to strengthen the ability 

of traditional and indigenous peoples to perpetuate their 

culture and to enrich the parks with a deeper sense of place 

and applicable traditional knowledge held by associated 

groups. 

Ethnographic information will be collected through 

collaborative research that recognizes the sensitive nature of 

such information. Cultural anthropologists/ethnographers 

will document the meanings that traditionally associated 

groups assign to traditional natural and cultural resources 

and the landscapes they form. The park’s ethnographic 

fi le will include this information, as well as data on the 

traditional management practices and knowledge systems 

that aff ect resource uses and the short- and long-term eff ects 

of use on the resources. 

(See Confi dentiality 5.2.3. Also see Director’s Order #28B: 

Ethnography Program) 

5.3.5.3.1 Resource Access and Use 

Consistent with the requirements of the Organic Act, the 

National Historic Preservation Act, American Indian 

Religious Freedom Act, the Archaeological Resources 

Protection Act, the National Environmental Policy Act, and 

Executive Order 13007 (Indian Sacred Sites) cited in section 

5.3.5.3 above, the Service will strive to allow American 

Indians and other traditionally associated peoples access 

to and use of ethnographic resources. Continued access to 

and use of ethnographic resources is often essential to the 

survival of family, community, or regional cultural systems, 

including patterns of belief and sociocultural and religious 

life. However, the Service may not allow access and use if it 

would violate the criteria listed in section 8.1. 

The Service generally supports traditional access and use 

when reasonable accommodations can be made under 

NPS authorities to allow greater access and use. Park 

superintendents may reasonably control the times when and 

places where specifi c groups may have exclusive access to 

particular areas of a park. 

With regard to consumptive use of park resources, current 

NPS policy is refl ected in regulations published at 36 CFR 

2.1. These regulations allow superintendents to designate 

certain fruits, berries, nuts, or unoccupied seashells that 

may be gathered by hand for personal use or consumption 

if it will not adversely aff ect park wildlife, the reproductive 

potential of a plant species, or otherwise adversely aff ect 

park resources. The regulations do not authorize the 

taking, use, or possession of fi sh, wildlife, or plants for 

ceremonial or religious purposes except where specifi cally 

authorized by federal statute or treaty rights or where 

hunting, trapping, or fi shing are otherwise allowed. These 

regulations are currently under review, and NPS policy is 

evolving in this area. 

Regulations addressing traditional subsistence uses that 

are authorized in Alaska by the Alaska National Interest 

Lands Conservation Act are published at 36 CFR Part 13. 

Some park-specifi c enabling acts (for example, Big Cypress 

National Preserve and Kaloko-Honokohau National 

Historical Park) allow subsistence or other traditional uses 

of park resources. 

(See Appropriate Use 8.1.1; Use by American Indians and 

Other Traditionally Associated Groups 8.5; Special Park Uses 

8.6; Collecting Natural Products 8.8; Consumptive Uses 8.9) 

5.3.5.3.2 Sacred Sites 

The National Park Service acknowledges that American 

Indian tribes, including Native Alaskans, treat specifi c 

places containing certain natural and cultural resources 

as sacred places having established religious meaning and 

as locales of private ceremonial activities. Consistent with 

Executive Order 13007 (Indian Sacred Sites), the Service 

will, to the extent practicable, accommodate access to 

and ceremonial use of Indian sacred sites by religious 

practitioners from recognized American Indian tribes and 

Alaska Natives, and avoid adversely aff ecting the physical 

integrity of such sacred sites. 

In consultation with the appropriate groups, the Service 

will develop a record about such places, and identify any 

treatments preferred by the groups. This information will 

alert superintendents and planners to the potential presence 

of sensitive areas and will be kept confi dential to the 

extent permitted by law. The Service will collaborate with 

aff ected groups to prepare mutually agreeable strategies 

for providing access to ordinarily gated or otherwise 

inaccessible locales, and for enhancing the likelihood of 

privacy during religious ceremonies. Any strategies that 

are developed must comply with constitutional and other 

legal requirements. To the extent feasible and allowable 

by law, accommodations will also be made for access to 

and the use of sacred places when interest is expressed by 

other traditionally associated peoples (especially Native 

Hawaiians and other Pacifi c islanders) and by American 

Indian peoples and others who often have a long-standing 

connection and identity with a particular park or resource. 

CULTURAL RESOURCE MANAGEMENT 5.3

71
MANAGEMENT POLICIES 2006

72 Various ethnic groups, local groups with recently developed 

ties to resources in neighboring parks, and visitors to family 

and national cemeteries and national memorials also might 

use park resources for traditional or individual religious 

ceremonies. Mutually acceptable agreements may be 

negotiated with known groups to provide access to and the 

use of such places, consistent with constitutional and other 

legal constraints. 

(See Confi dentiality 5.2.3; Resource Access and Use 

5.3.5.3.1; Use by American Indians and Other Traditionally 

Associated Groups 8.5; First Amendment Activities 8.6.3. 

Also see Director’s Orders #66: FOIA and Protected Resource 

Information, and #71B: Indian Sacred Sites; NHPA [16 USC 

470w-3]; Executive Order 13007 (Indian Sacred Sites); 512 

DM 3) 

5.3.5.3.3 Research 

The Park Service will maintain a program of professional 

cultural anthropological/ethnographic research designed 

to provide NPS managers with information about 

relationships between park resources and associated 

peoples. Research will be undertaken in cooperation with 

associated peoples in an interdisciplinary manner whenever 

reasonable, especially in studies of natural resource use and 

ethnographic landscapes. Research fi ndings will be used to 

inform planning, cultural and natural resource management 

decision-making, and interpretation, as well as to help 

managers meet responsibilities to associated peoples and 

other stakeholders in the outcomes of NPS decisions. 

Collaborative research dealing with recent or contemporary 

cultural systems and the resources of park-associated 

peoples will involve the groups in the design and 

implementation of the research and the review of research 

fi ndings to the fullest possible extent. The Service will 

provide individuals or groups involved with or directly 

aff ected by the research with copies or summaries of the 

reports, as appropriate. 

(See Levels of Park Planning 2.3; Studies and Collections 

4.2; Consultation 7.5.6; Use by American Indians and Other 

Traditionally Associated Groups 8.5. Also see Secretary of the 

Interior’s Standards for the Treatment of Historic Properties 

with Guidelines for the Treatment of Cultural Landscapes) 

5.3.5.4 Historic and Prehistoric Structures 

The treatment of historic and prehistoric structures will 

be based on sound preservation practice to enable the 

long-term preservation of a structure’s historic features, 

materials, and qualities. There are three types of treatment 

for extant structures: preservation, rehabilitation, and 

restoration. 

(Also see Secretary of the Interior’s Standards for the 

Treatment of Historic Properties) 

5.3.5.4.1 Preservation 

A structure will be preserved in its present condition if 

that condition allows for satisfactory protection, 

maintenance, use, and interpretation; or 

another treatment is warranted but cannot be 

accomplished until some future time. 

5.3.5.4.2 Rehabilitation 

A historic structure may be rehabilitated (rehabilitation 

does not apply to prehistoric structures) for contemporary 

use if

it cannot adequately serve an appropriate use in its 

present condition; and 

rehabilitation will retain its essential features and will 

not alter its integrity and character or confl ict with 

approved park management objectives. 

5.3.5.4.3 Restoration 

A structure may be restored to an earlier appearance if 

all changes after the proposed restoration period have 

been professionally evaluated, and the signifi cance of 

those changes has been fully considered; 

restoration is essential to public understanding of the 

park’s cultural associations; 

suffi cient data about that structure’s earlier appearance 

exist to enable its accurate restoration; and 

the disturbance or loss of signifi cant archeological 

resources is minimized and mitigated by data recovery.

5.3.5.4.4 Reconstruction of Missing Structures 

No matter how well conceived or executed, reconstructions 

are contemporary interpretations of the past rather than 

authentic survivals from it. The National Park Service will 

not reconstruct a missing structure unless

there is no alternative that would accomplish the park’s 

interpretive mission; 

suffi cient data exist to enable its accurate 

reconstruction based on the duplication of historic 

features substantiated by documentary or physical 

evidence rather than on conjectural designs or features 

from other structures; 

reconstruction will occur in the original location; 

the disturbance or loss of signifi cant archeological 

resources is minimized and mitigated by data recovery; 

and 

reconstruction is approved by the Director. 

A structure will not be reconstructed to appear damaged or 

ruined. Generalized representations of typical structures 

will not be attempted. 

(See Environmental Monitoring and Control 5.3.1.4; Physical 

Access for Persons with Disabilities 5.3.2; Historic and 

Prehistoric Ruins 5.3.5.4.10) 

5.3.5.4.5 Movement of Historic Structures 

Proposals for moving historic structures will consider 

the eff ects of movement on the structures, their present 

environments, their proposed environments, and the 

archeological research value of the structures and their 

sites. No historic structure will be moved if its preservation 
would be adversely aff ected or until the appropriate 

recovery of signifi cant archeological data has occurred. 

Prehistoric structures will not be moved. 

A nationally signifi cant historic structure may be moved 

only if 

it cannot practically be preserved on its present site; or 

the move constitutes a return to a previous historic 

location, and the previous move and present location 

are not important to the structure’s signifi cance. 

A historic structure of less-than-national signifi cance may 

be moved if 

it cannot practically be preserved on its present site; or 

its present location is not important to its signifi cance, 

and its relocation is essential to public understanding of 

the park’s cultural associations. 

In moving a historic structure, every eff ort will be made to 

reestablish its historic orientation, immediate setting, and 

general relationship to its environment. 

The Park Service will not acquire historic structures for 

relocation to parks unless those structures were removed 

from the park and are necessary to achieve the park purpose 

or authorized by legislation. 

5.3.5.4.6 New Construction 

In preference to new construction, every reasonable 

consideration will be given to using historic structures 

for park purposes compatible with their preservation and 

public appreciation. Additions may be made to historic 

structures when essential to their continued use and when 

new construction will not destroy historic materials, 

features, and spatial relationships that characterize the 

structure. Structural additions will harmonize in size, 

scale, proportion, and materials with, but be readily 

distinguishable from, the older work, and will not intrude 

upon the historic scene. New additions will meet the 

Secretary of the Interior’s Standards for Rehabilitation. 

In those areas of parks managed for the preservation, 

protection, and interpretation of cultural resources and 

their settings, new structures, landscape features, and 

utilities will be constructed only if 

existing structures and improvements do not meet 

essential park management needs; and 

new construction is designed and sited to preserve the 

integrity and character of the area. 

Unless associated with an approved restoration or 

reconstruction, all alterations, additions, or related new 

construction will be diff erentiated from yet compatible with 

the historic character of the structure. 

(See Rehabilitation 5.3.5.4.2; Use of Historic Structures 

5.3.5.4.7; Adaptive Use 9.1.1.4. Also see Executive Order 13006 

(Locating Federal Facilities on Historic Properties); National 

Historic Preservation Act) 

5.3.5.4.7 Use of Historic Structures 

NHPA (16 USC 470h-2(a)(1)) and Executive Order 13006 

(Locating Federal Facilities on Historic Properties) require 

each federal agency—before acquiring, constructing, or 

leasing buildings—to use, to the maximum extent feasible, 

historic properties available to it whenever operationally 

appropriate and economically prudent. The National 

Historic Preservation Act also requires each agency to 

implement alternatives for the adaptive use of historic 

properties it owns if that will help ensure the properties’ 

preservation. Therefore, compatible uses for structures 

will be found whenever possible. This policy will help 

prevent the accelerated deterioration of historic structures 

due to neglect and vandalism. Unused signifi cant historic 

structures should be stabilized and protected through 

appropriate measures (such as mothballing) until long-term 

decisions are made through the planning process.

All uses of historic structures are subject to preservation 

and public safety requirements. No administrative or public 

use will be permitted that would threaten the stability or 

character of a structure, the museum objects within it, or 

the safety of its users, or that would entail alterations that 

would signifi cantly compromise its integrity. 

(See Fire Detection, Suppression, and Post-fi re Rehabilitation 

and Protection 5.3.1.2; Physical Access for Persons with 

Disabilities 5.3.2; Adaptive Use 9.1.1.4; Energy Management 

9.1.7; Historic Structures 9.4.3.3. Also see Executive Order 

13287 (Preserve America)) 

5.3.5.4.8 Park Structures Owned or 

 Managed by Others 

Structures and related property owned or managed by 

others will be managed in accordance with NPS policies, 

guidelines, and standards to the extent permitted by the 

Service’s interest. This includes structures and property 

owned but not occupied by the Service, and structures 

and property owned by others in which the Service has 

a less-than-fee interest or plays a major management or 

preservation role. Interests acquired or retained by the 

Service will enable the application of this policy. 

(See Land Protection Plans 3.3; Historic Property Leases and 

Cooperative Agreements 5.3.3; Commercial Visitor Services 

Planning 10.2.2) 

5.3.5.4.9 Damaged or Destroyed Historic Structures 

Historic structures damaged or destroyed by fi re, storm, 

earthquake, war, or any other accident may be preserved 

as ruins; be removed; or be rehabilitated, restored, or 

reconstructed in accordance with these policies. 

5.3.5.4.10 Historic and Prehistoric Ruins 

The stabilization of historic and prehistoric ruins will be 

preceded by studies leading to the recovery of any data 

that would be aff ected by stabilization work. Ruins and 

related features on unexcavated archeological sites will be 

stabilized only to the extent necessary to preserve research 

values or to arrest structural deterioration, recognizing 

that it is preferable to preserve archeological sites in situ 

CULTURAL RESOURCE MANAGEMENT 5.3

73
MANAGEMENT POLICIES 2006

74 than to excavate them. Archeological ruins to be exhibited 

will not be excavated until consultation has occurred with 

traditionally associated peoples and adequate provisions are 

made for data recovery and stabilization. Structures will not 

be deliberately reduced to ruins, and missing structures will 

not be reconstructed to appear damaged or ruined. 

5.3.5.5 Museum Collections 

The Service will collect, protect, preserve, provide 

access to, and use objects, specimens, and archival and 

manuscript collections (henceforth referred to collectively 

as “collections,” or individually as “items”) in the disciplines 

of archeology, ethnography, history, biology, geology, and 

paleontology to aid understanding among park visitors, 

and to advance knowledge in the humanities and sciences. 

As appropriate, the Service will consult with culturally 

affi liated or traditionally associated peoples before treating 

or reproducing items in NPS collections that are subject to 

the Native American Graves Protection and Repatriation 

Act.

(Also see Museum Handbook) 

5.3.5.5.1 Preservation 

An item in a museum collection will be preserved in its 

present condition through ongoing preventive care if 

that condition is satisfactory for exhibit or research; or 

another treatment is warranted but it cannot be 

accomplished until some future time. 

An item will be stabilized if 

preventive measures are insuffi cient to reduce 

deterioration to a tolerable level; or 

the item is so fragile that it will be endangered under 

any circumstances. 

Active conservation treatment (intervention) will be 

minimized to reduce the possibility of compromising the 

item’s integrity. All active treatment will be documented. 

5.3.5.5.2 Restoration 

An item in a museum collection may be restored to an earlier 

appearance if 

restoration is required for exhibit or research purposes; 

suffi cient data about that item’s earlier appearance exist 

to enable its accurate restoration; and 

restoration will not modify that item’s known original 

character. 

Restoration will be accomplished using the techniques and 

materials that least modify the item and so that the materials 

can be removed at a later time with minimal adverse eff ect. 

Restored areas will be documented and distinguishable 

from original material. Restoration will take into account 

the possible importance of preserving signs of wear, 

damage, former maintenance, and other historical and 

scientifi c evidence. 

5.3.5.5.3 Reproduction 

Items needed for interpretive and educational presentations 

will be reproduced for such use when the originals (1) are 

unavailable, or (2) would be subject to undue deterioration 

or loss, or (3) are otherwise inappropriate for exhibit. If an 

object is inappropriate for exhibit because of its religious or 

spiritual signifi cance to a traditionally associated people, it 

will be reproduced only after consultation with such people. 

5.3.5.5.4 Acquisition, Management, 

 Disposition, and Use 

Collections and related documentation essential to 

achieving the purposes and objectives of parks will be 

acquired and maintained in accordance with approved 

scope of collection statements for each park. When museum 

objects, specimens, or archival documents become available 

and fall within a park’s approved scope of collection 

statement, every reasonable eff ort will be made to acquire 

them if they can be managed and made accessible according 

to NPS standards. 

Archeological objects systematically collected in a park, 

and natural history specimens systematically collected in 

a park for exhibit or permanent retention, will be managed 

as part of the park’s museum collection. The management 

and care of museum collections will be addressed at all 

appropriate levels of planning. Requisite levels of care 

will be established through the interdisciplinary eff orts of 

qualifi ed professionals. 

Museum collections will be acquired and disposed of in 

conformance with legal authorizations and current NPS 

procedures. The National Park Service will acquire only 

collections having legal and ethical pedigrees. Each park 

will maintain complete and current accession records 

to establish the basis for legal custody of the collections 

in its possession, including intellectual property rights 

when acquired. Each park will prepare museum catalog 

records to record basic property management data and 

other documentary information about the park’s museum 

collection. Collections will be inventoried in accordance 

with current procedures. Archeological, cultural landscape, 

ethnographic, historic and prehistoric structure, historic 

furnishings, natural resource, and other projects that 

generate collections for parks will provide for cataloging 

and initial preservation of those collections in the project 

budget. 

The Service may cooperate with qualifi ed entities in the 

management, use, and exhibition of museum collections, 

and may loan items to or borrow items from such entities 

for approved purposes. The Service may deaccession items 

using means authorized in the Museum Act and the Native 

American Graves Protection and Repatriation Act.

Interested persons will be permitted to inspect and study 

NPS museum collections and records in accordance with 

standards for the preservation and use of collections, and 

subject to laws and policies regarding the confi dentiality 

of resource data. At-cost copies of documents may be 

provided. 
(See Natural Resource Collections 4.2.3; Paleontological 

Resources and Their Contexts 4.8.2.1; Confi dentiality 5.2.3; 

Fire Detection, Suppression, and Post-fi re Rehabilitation and 

Protection 5.3.1.2; Environmental Monitoring and Control 

5.3.1.4; Consultation 7.5.6; Special Park Uses 8.6; Museum 

Collections Management Facilities 9.4.2. Also see 16 USC 18f; 

43 USC 1460; 36 CFR Part 79; 43 CFR Part 10; and Museum 

Handbook) 

5.3.5.5.5 Historic Furnishings 

When historic furnishings are present in their original 

arrangement in a historic structure, every eff ort will be made 

to preserve them as an entity. Such historic furnishings 

will not be moved or replaced unless required for their 

protection or repair or unless the structure is designated 

for another use in an approved planning document. The 

original arrangement of historic furnishings will be properly 

documented. A structure may be refurnished in whole or in 

part if

all changes after the proposed refurnishing period have 

been professionally evaluated, and their signifi cance 

has been fully considered; 

a planning process has demonstrated that refurnishing 

is essential to public understanding of the park’s 

cultural associations; and 

suffi cient evidence of the design and placement of the 

structure’s furnishings exists to enable its accurate 

refurnishing without reliance on evidence from 

comparable structures. 

Generalized representations of typical interiors will not 

be attempted except in exhibit contexts that make their 

representative nature obvious. Reproductions may be used 

in place of historic furnishings, but only when photographic 

evidence or prototypes exist to ensure the accurate recreation of historic pieces. 

(See Levels of Park Planning 2.3; Nonpersonal Services 7.3.2) 

5.3.5.5.6 Archives and Manuscripts 

Archival and manuscript collections are museum 

collections; they will be preserved, arranged, cataloged, 

and described in fi nding aids. They will be maintained and 

used in ways that preserve the collections and their context 

(provenance and original order) intact while providing 

controlled access. With few legal exemptions, the Park 

Service will make archives and manuscripts available to 

researchers. Electronic documents that are to be preserved 

in archival and manuscript collections will be migrated so 

that their information remains accessible. 

All documentation associated with natural and cultural 

resource studies and other resource management actions 

will be retained in the park’s museum collection for use 

in managing park resources over time. Parks will retain 

notes or copies of records signifi cant to their administrative 

histories when they periodically transfer their offi cial 

records to federal record centers. 

(See Managing Information 1.9.2; Confi dentiality 5.2.3)

CULTURAL RESOURCE MANAGEMENT 5.3

75

6

Wilderness 

Preservation and 

Management

All NPS lands will be evaluated for their eligibility for inclusion within 

the national wilderness preservation system. For those lands that 

possess wilderness characteristics, no action that would diminish their 

wilderness eligibility will be taken until after Congress and the President 

have taken fi nal action. The superintendent of each park containing 

wilderness will develop and maintain a wilderness management plan or 

equivalent document. Wilderness considerations will be integrated into 

all planning documents to guide the preservation, management, and use 

of the park’s wilderness area and ensure that wilderness is unimpaired 

for future use and enjoyment as wilderness.

A wilderness is an area 

where the earth and its 

community of life are 

untrammeled by man, 

where man himself is 

a visitor who does not 

remain.
MANAGEMENT POLICIES 2006

78 6.1 General Statement

The National Park Service will manage wilderness areas 

for the use and enjoyment of the American people in such 

a manner as will leave them unimpaired for future use 

and enjoyment as wilderness. Management will include 

the protection of these areas, the preservation of their 

wilderness character, and the gathering and dissemination 

of information regarding their use and enjoyment as 

wilderness. The purpose of wilderness in the national 

parks includes the preservation of wilderness character and 

wilderness resources in an unimpaired condition and, in 

accordance with the Wilderness Act, wilderness areas shall 

be devoted to the public purposes of recreational, scenic, 

scientifi c, educational, conservation, and historical use. 

The policies contained in this chapter are supplemented 

by Director’s Order #41: Wilderness Preservation and 

Management and Reference Manual 41, which accompanies 

the director’s order. Those documents should be referred 

to for more detailed information on the topics covered in 

this chapter. 

6.2 Identifi cation and Designation 

 of the Wilderness Resource

The National Park Service will use the following wilderness 

study process to consider NPS areas for inclusion within 

the congressionally designated national wilderness 

preservation system. 

6.2.1 Assessment of Wilderness Eligibility 

 or Ineligibility 

All lands administered by the National Park Service, 

including new units or additions to existing units since 1964, 

will be evaluated for their eligibility2

 for inclusion in the 

national wilderness preservation system. Additionally, lands 

that were originally assessed as ineligible for wilderness 

because of nonconforming or incompatible uses must be 

reevaluated if the nonconforming uses have been terminated 

or removed. A wilderness eligibility assessment will consist 

of a brief memorandum from the regional director to the 

Director that makes a managerial determination as to the 

eligibility of the park lands for wilderness designation. 

The assessment may include information important for 

other park planning purposes, and other park planning 

eff orts may likewise produce information important to 

wilderness. The assessment should therefore be completed 

in a timely manner and thoughtfully coordinated with 

other planning activities. The assessment may be combined 

with the wilderness study described below if the combined 

document can be completed in a timely manner.

6.2.1.1 Primary Eligibility Criteria

NPS lands will be considered eligible for wilderness if 

they are at least 5,000 acres or of suffi cient size to make 

practicable their preservation and use in an unimpaired 

condition, and if they possess the following characteristics 

(as identifi ed in the Wilderness Act): 

The earth and its community of life are untrammeled by 

humans, where humans are visitors and do not remain. 

The area is undeveloped and retains its primeval 

character and infl uence without permanent 

improvements or human habitation. 

The area generally appears to have been aff ected 

primarily by the forces of nature, with the imprint of 

humans’ work substantially unnoticeable. 

The area is protected and managed so as to preserve its 

natural conditions.

The area off ers outstanding opportunities for solitude 

or a primitive and unconfi ned type of recreation. 

6.2.1.2 Additional Considerations in 

 Determining Eligibility 

In addition to the primary eligibility criteria, the following 

considerations should be taken into account in determining 

eligibility:

A wilderness area may contain signifi cant ecological, 

geological, or other features of scientifi c, educational, 

scenic, or historical value, although it does not need 

these things to be considered eligible for wilderness 

designation. 

Lands that have been logged, farmed, grazed, mined, 

or otherwise used in ways not involving extensive 

development or alteration of the landscape may also 

be considered eligible for wilderness designation if, at 

the time of assessment, the eff ects of these activities are 

substantially unnoticeable or their wilderness character 

could be maintained or restored through appropriate 

management actions. 

An area will not be excluded from a determination 

of wilderness eligibility solely because established 

or proposed management practices require the use 

of tools, equipment, or structures if those practices 

are necessary to meet minimum requirements for the 

administration of the area as wilderness. 

In the process of determining wilderness eligibility, 

lands will not be excluded solely because of existing 

rights or privileges (e.g., mineral exploration and 

development, commercial operations, agricultural 

development, grazing, or stock driveways). If the 

National Park Service determines that these lands 

possess wilderness character, they may be included 

in the eligibility determination so that they can be 

considered for designation as wilderness or potential 

wilderness. 

Lands containing aboveground or buried utility 

lines will normally not be considered as eligible for 

wilderness designation, but they can be considered as 

2 Management Policies 2001 used the term “suitability” to refer 

to the Park Service’s initial screening assessment as to whether 

lands meet the minimum criteria for inclusion in the national 

wilderness preservation system. The Wilderness Act, however, 

uses “suitability” to refer to the Secretary’s determinations in 

forwarding recommendations to the President. For purposes of 

clarity, the NPS initial screening assessment has been renamed 

an “eligibility” assessment. The change from “suitability” to 

“eligibility” in no way lessens the protected status of these lands. 
eligible for “potential” wilderness designation if there 

is a long-term intent to remove the lines. No new utility 

lines may be installed in wilderness, and existing utility 

lines may not be extended or enlarged except as may be 

allowed pursuant to section 1106 of the Alaska National 

Interest Lands Conservation Act (16 USC 1133(c)). 

Historic features that are primary attractions for park 

visitors will generally not be recommended as eligible 

for wilderness designation. However, an area that 

attracts visitors primarily for the enjoyment of solitude 

and unconfi ned recreation in a primitive setting may 

also contain cultural resource features and still be 

included in wilderness. Historic trails may serve and 

be maintained as part of the wilderness trail system, 

as identifi ed and coordinated within an approved 

wilderness management plan and the park’s cultural 

resource plan. The presence of historic structures 

does not make an area ineligible for wilderness. A 

recommendation may be made to include a historic 

structure in wilderness if (1) the structure would be 

only a minor feature of the total wilderness proposal; 

and (2) the structure will remain in its historic state, 

without development.

Dams within or aff ecting the area being studied do not 

make a waterway ineligible for wilderness designation. 

The nature and extent of impacts and the extent to 

which the impacts can be mitigated would need to be 

addressed in subsequent wilderness studies. 

The established use of motorboats, snowmobiles, 

or aircraft does not make an area ineligible for 

wilderness. The nature and extent of any impacts on 

the environment and on eligibility, and the extent to 

which the impacts can be mitigated would need to be 

addressed in subsequent wilderness studies, along with 

the possible need to discontinue the use. 

Overfl ights do not make an area ineligible for 

wilderness designation. The nature and extent of 

any overfl ight impacts and the extent to which the 

impacts can be mitigated would need to be addressed in 

subsequent wilderness studies. 

6.2.1.3 The Assessment Process 

The Service will involve the public in the wilderness 

eligibility assessment process through notifi cation of its 

intentions to conduct the assessment and publication of 

the Director’s determination, either as “eligible” or as 

“ineligible” for further wilderness study. Notifi cation 

will include the issuance of news releases to local and 

regional news media and the publication of a fi nal 

eligibility determination in the Federal Register. The fi nal 

determination of an area’s eligibility, or ineligibility, for 

further study must be approved by the Director before 

publication of the fi nal eligibility determination in the 

Federal Register. For areas determined to be ineligible 

for wilderness designation, the wilderness preservation 

provisions in the NPS Management Policies are not 

applicable. However, ineligible lands will be managed in 

accordance with the NPS Organic Act and all other laws, 

executive orders, regulations, and policies applicable to 

units of the national park system.

6.2.2 Wilderness Studies 

Lands and waters found to possess the characteristics and 

values of wilderness, as defi ned in the Wilderness Act and 

determined eligible pursuant to the wilderness eligibility 

assessment, will be formally studied to develop the 

recommendation to Congress for wilderness designation. 

The National Park Service will continue to undertake 

wilderness studies of all lands that have been determined to 

be eligible as a result of the wilderness eligibility assessment. 

Also, studies will be made of lands for which subsequent 

legislation directs that wilderness studies be completed. 

Wilderness studies will be supported by appropriate 

documentation of compliance with the National 

Environmental Policy Act and the National Historic 

Preservation Act. The Council on Environmental Quality 

requires environmental impact statements for wilderness 

studies that will result in recommendations for designations 

(i.e., proposals for legislation to designate as wilderness). 

6.2.2.1 Potential Wilderness 

A wilderness study may identify lands that are surrounded 

by or adjacent to lands proposed for wilderness designation 

but that do not themselves qualify for immediate 

designation due to temporary nonconforming or 

incompatible conditions. The wilderness recommendation 

forwarded to the Congress by the President may 

identify these lands as “potential” wilderness for future 

designation as wilderness when the nonconforming use 

has been removed or eliminated. If so authorized by 

Congress, these potential wilderness areas will become 

designated wilderness upon the Secretary’s determination, 

published in the Federal Register, that they have fi nally 

met the qualifi cations for designation by the cessation or 

termination of the nonconforming use. 

6.2.2.2 Proposed Wilderness 

The fi ndings and conclusions of a formal wilderness study 

will be reviewed by the Director, who will then determine 

which lands will be forwarded to the Department of 

the Interior (Assistant Secretary’s Offi ce) as “proposed” 

wilderness. The Director’s proposed wilderness will 

identify park lands that the Director believes the Secretary 

should recommend for immediate wilderness designation, 

as well as any other lands identifi ed as “not proposed” or as 

“potential” wilderness. 

6.2.3 Recommended Wilderness 

The Secretary of the Interior is responsible for 

recommending to the President those lands under his/her 

jurisdiction that are suitable or nonsuitable for inclusion 

within the national wilderness preservation system. The 

Secretary performs this function through the Assistant 

Secretary’s Offi ce by reviewing NPS proposed wilderness 

and either approving or revising the proposal. The fi nal 

result is forwarded by the Secretary for the President’s 

consideration. The President is then responsible for 

transmitting his recommendations with respect to 

wilderness designation to both houses of Congress. These 

recommendations must be accompanied by maps and 

boundary descriptions. The National Park Service will 

WILDERNESS PRESERVATION AND MANAGEMENT 6.1-6.2

79
MANAGEMENT POLICIES 2006

80 track the status of the wilderness designation process in 

Congress. 

6.2.4 Designated Wilderness

After the President’s wilderness recommendation is 

formally sent to and considered by Congress, Congress 

may subsequently enact the legislation needed to include 

the area within the national wilderness preservation 

system as “designated” and/or “potential” wilderness. 

The National Park Service will assist the department and 

Congress in this process as requested. Lands released by 

Congress from further wilderness consideration will be 

managed in accordance with the NPS Organic Act and 

all other laws, executive orders, regulations, and policies 

applicable to nonwilderness areas of the national park 

system. 

6.3 Wilderness Resource Management

6.3.1 General Policy 

For the purposes of applying these policies, the term 

“wilderness” will include the categories of eligible, study, 

proposed, recommended, and designated wilderness. 

Potential wilderness may be a subset of any of these fi ve 

categories. The policies apply regardless of category 

except as otherwise provided herein. 

In addition to managing these areas for the preservation 

of the physical wilderness resources, planning for 

these areas must ensure that the wilderness character 

is likewise preserved. This policy will be applied to all 

planning documents aff ecting wilderness. 

The National Park Service will take no action that would 

diminish the wilderness eligibility of an area possessing 

wilderness characteristics until the legislative process of 

wilderness designation has been completed. Until that 

time, management decisions will be made in expectation 

of eventual wilderness designation. This policy also 

applies to potential wilderness, requiring it to be managed 

as wilderness to the extent that existing nonconforming 

conditions allow. The National Park Service will apply 

the principles of civic engagement and cooperative 

conservation as it determines the most appropriate 

means of removing the temporary, nonconforming 

conditions that preclude wilderness designation from 

potential wilderness. All management decisions aff ecting 

wilderness will further apply the concept of “minimum 

requirement” for the administration of the area 

regardless of wilderness category. The only exception 

is for areas that have been found eligible, but for which, 

after completion of a wilderness study, the Service has not 

proposed wilderness designation. However, those lands will 

still be managed to preserve their eligibility for designation.

(See Minimum Requirement 6.3.5)

6.3.2 Responsibility 

NPS responsibility for carrying out wilderness preservation 

mandates will be shared by the Director, regional directors, 

and superintendents of parks with eligible, study area, 

Has the Director published a determination that the land is “eligible” for 

designation? (Eligibility assessment is completed by the park superintendent.

May be done in conjunction with the wilderness study in step 2.)

YES NO

YES

then manage lands as

wilderness per all

Chapter 6 provisions

NO

Has the wilderness study been completed and has the Director “proposed” 

designation? (A wilderness study/EIS is completed, with an ROD signed by the

NPS regional director and published in the Federal Register.)

Director sends NPS wilderness proposal to Secretary through the Assistant 

Secretary’s office.

YES NO

Has the Secretary “recommended” wilderness designation? (Secretary 

approves, disapproves, or changes NPS proposal and forwards 

recommendation to the President.)

Has the President “recommended” wilderness designation? (President 

approves, disapproves, or changes the Secretary’s recommendation and 

forwards recommendation to Congress.)

YES NO

Has Congress “designated” lands as wilderness or recognized “potential” 

wilderness?

YES

then manage lands as

wilderness per Wilderness

Act and all Chapter 6 

provisions

NO

Has Congress specifically

released lands from further

wilderness consideration?

YES

then manage 

lands as nonwilderness under

the Organic Act

NO

Were lands included

in President’s 

wilderness

recommendations?

YES NO

WILDERNESS REVIEW AND MANAGEMENT PROCESS STEP 1STEP 2STEP 3STEP

4

STEP 5STEP

6

then manage lands proposed

in the study as wilderness 

per all Chapter 6 provisions

then manage eligible lands 

not proposed in the study

to preserve their wilderness

resources and values

then manage eligible lands 

not proposed in the study

to preserve their wilderness

resources and values

then manage lands proposed

in the study as wilderness 

per all Chapter 6 provisions

then manage lands 

proposedin the study 

as wilderness per all 

Chapter 6 provisions

then manage eligible lands 

not proposed in the study

to preserve their wilderness

resources and values

then manage lands as

nonwilderness park lands

under the Organic Act

then manage lands proposed

in the study as wilderness 

per all Chapter 6 provisions

then manage eligible lands 

not proposed in the study

to preserve their wilderness

resources and values

proposed, recommended, and designated wilderness. 

Interagency cooperation and coordination and training 

responsibilities will also be carried out at the Washington, 

D.C., region, and park levels. Specifi c wilderness 

management responsibilities will be assigned at each of 

these administrative levels to carry out these responsibilities 

eff ectively and to facilitate eff orts for establishing agency 

and interagency consistency in wilderness management 

techniques. 
Superintendents will provide the information needed 

to prepare an annual wilderness report to Congress 

and to report to the Director on the status of wilderness 

management in the national park system. Based on this 

information, the Associate Director for Visitor and 

Resource Protection will provide the Directorate with 

recommendations and advice to permanently establish a 

system of accountability, consistency, and continuity for 

NPS wilderness management. 

6.3.3 Consistency 

The National Park Service will seek to achieve consistency 

in wilderness management objectives, techniques, and 

practices on both an agency and an interagency basis. 

Accordingly, the National Park Service will seek to maintain 

eff ective intra-agency and interagency communications, and 

will encourage, sponsor, and participate in intra-agency and 

interagency training and workshops designed to promote 

the sharing of ideas, concerns, and techniques related to 

wilderness management. However, the need for interagency 

consistency will in no way diminish any established NPS 

wilderness standards and values. 

6.3.4 Wilderness-related Planning and 

Environmental Compliance 

Policies on wilderness planning and compliance include the 

following. 

6.3.4.1 Zoning for Wilderness 

When necessary, all categories of wilderness may be zoned 

for visitor experiences and resource conditions consistent 

with their wilderness values within the established 

management zoning system for each park. However, 

management zoning or other land use classifi cations cannot 

and will not diminish or reduce the maximum protection to 

be aff orded lands with wilderness values. Transition zones 

adjacent to wilderness may be identifi ed to help protect 

wilderness values, but no transitional or “buff er” zones are 

appropriate within wilderness boundaries. 

6.3.4.2 Wilderness Management Planning 

The superintendent of each park containing wilderness 

resources will develop and maintain a wilderness 

management plan or equivalent planning document to 

guide the preservation, management, and use of these 

resources. The wilderness management plan will identify 

desired future conditions, as well as establish indicators, 

standards, conditions, and thresholds beyond which 

management actions will be taken to reduce human impacts 

on wilderness resources. 

The park’s wilderness management plan may be developed 

as a separate document or as an action component of 

another planning document. Whether prepared as a 

stand-alone plan or as part of another planning document, 

all wilderness management plans must meet the same 

standards for process and content as specifi ed in this section 

6.3.4. Wilderness management plans will be supported 

by appropriate documentation of compliance with the 

National Environmental Policy Act and the National 

Historic Preservation Act. The plan will be developed with 

public involvement and will contain specifi c, measurable 

management objectives that address the preservation and 

management of natural and cultural resources within 

wilderness as appropriate to achieve the purposes of the 

Wilderness Act and other legislative requirements. 

(See Visitor Carrying Capacity 8.2.1) 

6.3.4.3 Environmental Compliance 

Proposals having the potential to impact wilderness 

resources will be evaluated in accordance with NPS 

procedures for implementing the National Environmental 

Policy Act. Those procedures include the use of categorical 

exclusions, environmental assessments (EAs), or 

environmental impact statements (EISs). Administrative 

actions impacting wilderness must be addressed in 

either the environmental assessment or environmental 

impact statement accompanying the approved wilderness 

management plan or as a separate environmental 

compliance document. 

Managers contemplating the use of aircraft or other 

motorized equipment or mechanical transportation within 

wilderness must consider impacts to the character, esthetics, 

and traditions of wilderness before considering the costs 

and effi ciency of the equipment. 

In evaluating environmental impacts, the National Park 

Service will take into account (1) wilderness characteristics 

and values, including the primeval character and infl uence 

of the wilderness; (2) the preservation of natural conditions 

(including the lack of man-made noise); and (3) assurances 

that there will be outstanding opportunities for solitude, 

that the public will be provided with a primitive and 

unconfi ned type of recreational experience, and that 

wilderness will be preserved and used in an unimpaired 

condition. Managers will be expected to appropriately 

address cultural resources management considerations in 

the development and review of environmental compliance 

documents impacting wilderness resources. 

(Also see Director’s Order #12: Conservation Planning, 

Environmental Impact Analysis, and Decision-making) 

6.3.5 Minimum Requirement 

All management decisions aff ecting wilderness must be 

consistent with the minimum requirement concept. This 

concept is a documented process used to determine if 

administrative actions, projects, or programs undertaken by 

the Service or its agents and aff ecting wilderness character, 

resources, or the visitor experience are necessary, and if 

so how to minimize impacts. The minimum requirement 

concept will be applied as a two-step process that 

determines

whether the proposed management action is 

appropriate or necessary for administration of the area 

as wilderness and does not cause a signifi cant impact to 

wilderness resources and character, in accordance with 

the Wilderness Act; and 

WILDERNESS PRESERVATION AND MANAGEMENT 6.2-6.3

81
MANAGEMENT POLICIES 2006

82 the techniques and types of equipment needed to 

ensure that impacts on wilderness resources and 

character are minimized. 

In accordance with this policy, superintendents will 

apply the minimum requirement concept in the context 

of wilderness stewardship planning, as well as to all other 

administrative practices, proposed special uses, scientifi c 

activities, and equipment use in wilderness. The only 

exception to the minimum requirement policy is for eligible 

areas that the Service has not proposed for wilderness 

designation. However, those lands will still be managed to 

preserve their eligibility.

When determining minimum requirements, the potential 

disruption of wilderness character and resources will be 

considered before, and given signifi cantly more weight than, 

economic effi ciency and convenience. If a compromise of 

wilderness resources or character is unavoidable, only those 

actions that preserve wilderness character and/or have 

localized, short-term adverse impacts will be acceptable. 

Although park managers have fl exibility in identifying 

the method used to determine minimum requirement, the 

method used must clearly weigh the benefi ts and impacts of 

the proposal, document the decision-making process, and 

be supported by an appropriate environmental compliance 

document. Parks must develop a process to determine 

minimum requirement until the plan is fi nally approved. 

Parks will complete a minimum requirement analysis on 

those administrative practices and equipment uses that 

have the potential to impact wilderness resources or values. 

The minimum requirement concept cannot be used to 

rationalize permanent roads or inappropriate or unlawful 

uses in wilderness. 

Administrative use of motorized equipment or mechanical 

transport will be authorized only

if determined by the superintendent to be the minimum 

requirement needed by management to achieve the 

purposes of the area, including the preservation of 

wilderness character and values, in accordance with the 

Wilderness Act; or 

in emergency situations (for example, search and 

rescue, homeland security, law enforcement) involving 

the health or safety of persons actually within the area. 

Such management activities will also be conducted in 

accordance with all applicable regulations, policies, and 

guidelines and, where practicable, will be scheduled to avoid 

creating adverse resource impacts or confl icts with visitor 

use. 

While actions taken to address search and rescue, 

homeland security and law enforcement issues are subject 

to the minimum requirement concept, preplanning or 

programmatic planning should be undertaken whenever 

possible to facilitate a fast and eff ective response and reduce 

paperwork.

For more detailed guidance, see Director’s Order #41 and 

the National Wilderness Steering Committee Guidance 

Paper #3: “What Constitutes the Minimum Requirements in 

Wilderness?”

(See Director’s Order #12: Conservation Planning, 

Environmental Impact Analysis, and Decision-making) 

6.3.6 Scientifi c Activities in Wilderness 

The statutory purposes of wilderness include scientifi c 

activities, and these activities are encouraged and permitted 

when consistent with the Service’s responsibilities to 

preserve and manage wilderness. 

6.3.6.1 General Policy 

The National Park Service has a responsibility to support 

appropriate scientifi c activities in wilderness and to use 

science to improve wilderness management. The Service 

recognizes that wilderness can and should serve as an 

important resource for long-term research into and study 

and observation of ecological processes and the impact of 

humans on these ecosystems. The National Park Service 

further recognizes that appropriate scientifi c activities may 

be critical to the long-term preservation of wilderness. 

Scientifi c activities are to be encouraged in wilderness. Even 

those scientifi c activities (including inventory, monitoring, 

and research) that involve a potential impact to wilderness 

resources or values (including access, ground disturbance, 

use of equipment, and animal welfare) should be allowed 

when the benefi ts of what can be learned outweigh the 

impacts on wilderness resources or values. However, all 

such activities must also be evaluated using the minimum 

requirement concept and include documented compliance 

that assesses impacts against benefi ts to wilderness. This 

process should ensure that the activity is appropriate and 

uses the minimum tool required to accomplish project 

objectives. Scientifi c activities involving prohibitions 

identifi ed in section 4(c) of the Wilderness Act (16 USC 

1133(c)) may be conducted within wilderness when the 

following occur: 

The desired information is essential for the 

understanding health, management, or administration 

of wilderness, and the project cannot be reasonably 

modifi ed to eliminate or reduce the nonconforming 

wilderness use(s); or if it increases scientifi c 

knowledge, even when this serves no immediate 

wilderness management purposes, provided it does not 

compromise wilderness resources or character. The 

preservation of wilderness resources and character 

will be given signifi cantly more weight than economic 

effi ciency and/or convenience. 

Compliance with the National Environmental Policy 

Act (including completion of documented categorical 

exclusions, environmental assessments/fi ndings 

of no signifi cant impact, or environmental impact 

statements/records of decision) and other regulatory 

compliance (including compliance with section 106 of 

the National Historic Preservation Act (16 USC 470f)) 

are accomplished and documented. 
All scientifi c activities will be accomplished in 

accordance with terms and conditions adopted at the 

time the research permit is approved. Later requests for 

exceptions to the Wilderness Act will require additional 

review and approval. 

The project will not signifi cantly interfere with other 

wilderness purposes (recreational, scenic, educational, 

conservation, or historical) over a broad area or for a 

long period of time. 

The minimum requirement concept is applied to 

implementation of the project. 

Research and monitoring devices (e.g., video cameras, 

data loggers, meteorological stations) may be installed 

and operated in wilderness if (1) the desired information 

is essential for the administration and preservation of 

wilderness and cannot be obtained from a location outside 

wilderness without signifi cant loss of precision and 

applicability; and (2) the proposed device is the minimum 

requirement necessary to accomplish the research objective 

safely. 

Park managers will work with researchers to make NPS 

wilderness area research a model for the use of low-impact, 

less intrusive techniques. New technology and techniques 

will be encouraged if they are less intrusive and cause less 

impact. The goal will be for studies in NPS wilderness to 

lead the way in “light on the resource” techniques. 

Devices located in wilderness will be removed when 

determined to be no longer essential. Permanent equipment 

caches are prohibited within wilderness. Temporary caches 

must be evaluated using the minimum requirement concept. 

All scientifi c activities, including the installation, servicing, 

removal, and monitoring of research devices, will apply 

minimum requirement concepts and be accomplished in 

compliance with Management Policies, director’s orders, and 

procedures specifi ed in the park’s wilderness management 

plan. 

(See Studies and Collections 4.2; Social Science Studies 8.11) 

6.3.6.2 Monitoring Wilderness Resources 

In every park containing wilderness, the conditions and 

long-term trends of wilderness resources will be monitored 

to identify the need for or eff ects of management actions. 

The purpose of this monitoring will be to ensure that 

management actions and visitor impacts on wilderness 

resources and character do not exceed standards and 

conditions established in an approved park plan. 

As appropriate, wilderness monitoring programs may 

assess physical, biological, and cultural resources and 

social impacts. Monitoring programs may also need to 

assess potential problems that may originate outside 

the wilderness to determine the nature, magnitude, and 

probable source of those impacts. 

6.3.7 Natural Resources Management 

The National Park Service recognizes that wilderness is a 

composite resource with interrelated parts. Without natural 

resources, especially indigenous and endemic species, 

a wilderness experience would not be possible. Natural 

resources are critical, defi ning elements of the wilderness 

resource, but they need to be managed within the context 

of the whole ecosystem. Natural resource management 

plans will be integrated with and cross-reference wilderness 

management plans. Pursuing a series of independent 

component projects in wilderness, such as single-species 

management, will not necessarily accomplish the overarching goal of wilderness management. Natural resources 

management in wilderness will include and be guided by a 

coordinated program of scientifi c inventory, monitoring, 

and research. 

The principle of nondegradation will be applied to 

wilderness management, and each wilderness area’s 

condition will be measured and assessed against its own 

unimpaired standard. Natural processes will be allowed, 

insofar as possible, to shape and control wilderness 

ecosystems. Management should seek to sustain the natural 

distribution, numbers, population composition, and 

interaction of indigenous species. Management intervention 

should only be undertaken to the extent necessary to correct 

past mistakes, the impacts of human use, and infl uences 

originating outside of wilderness boundaries. 

Management actions, including the restoration of extirpated 

native species, the alteration of natural fi re regimes, the 

control of invasive alien species, the management of 

endangered species, and the protection of air and water 

quality, should be attempted only when the knowledge and 

tools exist to accomplish clearly articulated goals. 

(See Chapter 4: Natural Resource Management. Also see 

Director’s Order #77 series on natural resources management) 

6.3.8 Cultural Resources 

The Wilderness Act specifi es that the designation of any 

area of the park system as wilderness “shall in no manner 

lower the standards evolved for the use and preservation 

of” such unit of the park system under the various laws 

applicable to that unit (16 USC 1133(a)(3)). Thus, the laws 

pertaining to historic preservation also remain applicable 

within wilderness but must generally be administered to 

preserve the area’s wilderness character. The responsible 

decision-maker will include appropriate consideration 

of the application of these provisions of the Wilderness 

Act in analyses and decision-making concerning cultural 

resources.

Cultural resources that have been included within 

wilderness will be protected and maintained according to 

the pertinent laws and policies governing cultural resources 

using management methods that are consistent with the 

preservation of wilderness character and values. These 

laws include the Antiquities Act and the Historic Sites, 

Buildings and Antiquities Act, as well as subsequent historic 

WILDERNESS PRESERVATION AND MANAGEMENT 6.3

83
MANAGEMENT POLICIES 2006

84 preservation legislation, including the National Historic 

Preservation Act, the Archaeological Resources Protection 

Act, and the Native American Graves Protection and 

Repatriation Act. The Secretary of the Interior’s Standards 

and Guidelines for Archeology and Historic Preservation

projects provide direction for protection and maintenance. 

Cemeteries or commemorative features, such as plaques 

or memorials, that have been included in wilderness may 

be retained (including approved access to these sites), but 

no new cemeteries or additions to existing cemeteries may 

be made unless specifi cally authorized by federal statute, 

existing reservations, or retained rights. 

(See Chapter 5: Cultural Resource Management) 

6.3.9 Fire Management 

All fi re management activities conducted in wilderness 

areas will conform to the basic purposes of wilderness. 

Actions taken to suppress wildfi res must use the minimum 

requirements concept unless the on-site decision-maker 

determines in his professional judgment that conditions 

dictate otherwise. Preplanning is critical to ensure that 

emergency response incorporates minimum requirements 

to the greatest extent possible. Fire suppression activities 

should be managed in ways that protect natural and 

cultural resources and minimize the lasting impacts of 

the suppression actions. Information on developing a 

fi re management program in wilderness is contained in 

Director’s Order #18: Wildland Fire Management.

Guidance on the need to suppress wildland fi re or to use 

some wildland fi res to achieve desired future conditions 

should appear in the park’s planning documents (for 

example, in the wilderness management plan and fi re 

management plan). Information in these documents will 

guide managers in the selection of fi re management tactics 

that protect natural and cultural resources from fi re and 

from fi re suppression actions.

The park’s fi re management plan will provide guidance for 

responses to natural and human-caused wildland fi res based 

on fuel conditions, climatic conditions, resources at risk, 

potential for damage to property or loss of life, both within 

and adjacent to the wilderness, as well as the availability of 

fi re suppression resources.

If a wildland fi re use program is implemented, planning 

documents will also include the prescriptions and 

procedures under which the program will be conducted 

within wilderness.

(See Fire Management 4.5)

6.3.10 Management Facilities 

Part of the defi nition of wilderness as provided by the 

Wilderness Act is “undeveloped federal land retaining 

its primeval character and infl uence, without permanent 

improvements.” Accordingly, authorizations of NPS 

administrative facilities in wilderness will be limited to 

the types and minimum number essential to meet the 

minimum requirements for the administration of the 

wilderness area. A decision to construct, maintain, or 

remove an administrative facility will be based primarily on 

whether or not the facility is required to preserve wilderness 

character or values, not on considerations of administrative 

convenience, economic eff ect, or convenience to the 

public or park staff . Maintenance or the removal of 

historic structures will also comply with cultural resource 

protection and preservation policies and directives, and 

with the concept of minimum requirement management 

techniques for wilderness. 

6.3.10.1 Administrative Facilities 

Administrative facilities (for example, ranger stations 

and/or patrol cabins, fi re lookouts, radio and/or cellular 

telephone antennas, radio repeater sites, associated storage 

or support structures, drift fences, and facilities supporting 

trail stock operations) may be allowed in wilderness only 

if they are determined to be the minimum requirement 

necessary to carry out wilderness management objectives 

and are specifi cally addressed within the park’s wilderness 

management plan or other appropriate planning documents. 

New roads will not be built in wilderness. Temporary 

vehicular access may be permitted only to meet the 

minimum requirements of emergency situations. As rapidly 

as possible, disturbed resources will be restored according 

to an approved restoration plan. Where abandoned roads 

have been included within wilderness, they may be used 

as trails, restored to natural conditions, or managed as a 

cultural resource. 

No permanent heliports, helipads, or airstrips will be 

allowed in wilderness unless specifi cally authorized by 

statute or legislation. Temporary landing facilities may be 

used to meet the minimum requirements of emergency 

situations. Site improvements determined to be essential 

for safety reasons during individual emergency situations 

may be authorized, but no site markings or improvements 

of any kind may be installed to support nonemergency use. 

In Alaska, any prohibitions or restrictions on the use of 

fi xed-wing aircraft should follow the procedures in 43 CFR 

36.11(f). 

Permanent storage caches are prohibited in wilderness 

unless necessary for health and safety purposes or 

when such caches are determined necessary, justifi ed, 

documented, and approved through a minimum 

requirements analysis.

(See Overfl ights and Aviation Uses 8.4) 

6.3.10.2 Trails in Wilderness 

Trails will be permitted within wilderness when they are 

determined to be necessary for resource protection and/or 

for providing for visitor use for the purposes of wilderness. 

The identifi cation and inventory of the wilderness trail 

system will be included as an integral part of the wilderness 

management plan or other appropriate planning document. 
Trails will be maintained at levels and conditions identifi ed 

within the approved wilderness management plan or other 

planning document. Trail maintenance structures (such 

as water bars, gabions) may be provided, under minimum 

requirement protocols, where they are essential for resource 

preservation or where signifi cant safety hazards exist during 

normal use periods. Historic and/or prehistoric trails will 

be administered in keeping with approved cultural resource 

and wilderness management plan requirements. 

Borrow pits are not permitted in wilderness areas, with 

the exception of small-quantity use of borrow material 

for trails, which must be in accordance with an approved 

minimum requirements analysis. 

6.3.10.3 Shelters and Campsites 

The construction of new shelters for public use will 

generally not be allowed, in keeping with the values 

and character of wilderness. An existing shelter may be 

maintained or reconstructed only if the facility is necessary 

to achieve specifi c wilderness management objectives as 

identifi ed in the park’s wilderness and cultural resources 

management plans. The construction, use, and occupancy 

of cabins and other structures in wilderness areas in Alaska 

are governed by applicable provisions of the Alaska National 

Interest Lands Conservation Act and by NPS regulations 

in 36 CFR Part 13; such structures may be permitted only 

under conditions prescribed in the park’s wilderness 

management plan. 

Although the development of facilities to serve visitors will 

generally be avoided, campsites may be designated when 

essential for resource protection and preservation or to 

meet other specifi c wilderness management objectives. In 

keeping with the terms of the park’s wilderness management 

plan, campsite facilities may include a site marker, fi re 

rings, tent sites, food storage devices, and toilets if these 

are determined by the superintendent to be the minimum 

facilities necessary for the health and safety of wilderness 

users or for the preservation of wilderness resources 

and values. Toilets will be placed only in locations where 

their presence and use will resolve health and sanitation 

problems or prevent serious resource impacts, especially 

where reducing or dispersing visitor use is impractical or 

has failed to alleviate the problems. Picnic tables will not be 

allowed in wilderness except in those limited circumstances 

when they are necessary for resource protection and 

when documented and approved through a minimum 

requirements analysis.

6.3.10.4 Signs 

Signs detract from the wilderness character of an area and 

make the imprint of man and management more noticeable. 

Only those signs necessary for visitor safety or to protect 

wilderness resources, such as those identifying routes and 

distances, will be permitted. Where signs are used, they 

should be compatible with their surroundings and the 

minimum size possible. 

6.3.11 Wilderness Boundaries 

Policies related to wilderness boundaries include the 

following. 

6.3.11.1 Legal Descriptions and Boundary Maps 

Every park with designated wilderness will possess a written 

legal description of the wilderness area and a map (or maps) 

that illustrates the legal description of the wilderness. Each 

park will ensure that the legal description and map(s) are 

fi led in the appropriate locations. Wilderness boundaries 

have the force of federal law and may only be modifi ed 

through the legislative process—unless minor adjustments 

and corrections are specifi cally authorized within the 

wilderness designation enabling legislation. 

6.3.11.2 Caves 

All cave passages located totally within the surface 

wilderness boundary will be managed as wilderness. Caves 

that have entrances within wilderness but contain passages 

that may extend outside the surface wilderness boundary 

will be managed as wilderness. Caves that may have multiple 

entrances located both within and exterior to the surface 

wilderness boundary will be managed consistent with the 

surface boundary; those portions of the cave within the 

wilderness boundary will be managed as wilderness. 

(See Caves 4.8.2.2) 

6.3.11.3 Waters in Wilderness 

In keeping with established jurisdictions and authorities, 

the Service will manage as wilderness all waters included 

within wilderness boundaries, and the lands beneath these 

waters (if owned by the United States). 

(See Water Resource Management 4.6) 

6.3.12 American Indian Access and Associated Sites

American Indian access rights and protection of sites 

associated with Indian tribes will be protected and 

maintained according to applicable laws and policies. The 

American Indian Religious Freedom Act reaffi rms the First 

Amendment rights of Native Americans to access national 

park system lands for the exercise of their traditional 

religious practices. Native American human remains that 

were removed from wilderness areas and are subject to the 

NAGPRA repatriation may be reinterred at or near the site 

from which they were removed. American Indian religious 

areas and other ethnographic and cultural resources will 

be inventoried and protected. American Indians will be 

permitted access within wilderness for sacred or religious 

purposes consistent with the intent of the American Indian 

Religious Freedom Act, the Wilderness Act, and other 

applicable authorities provided by federal statues and 

executive orders.

(See also Executive Order 13007 (Indian Sacred Sites))

WILDERNESS PRESERVATION AND MANAGEMENT 6.3-6.4

85
MANAGEMENT POLICIES 2006

86 6.4 Wilderness Use Management

The National Park Service will encourage and facilitate 

those uses of wilderness that are in keeping with the 

defi nitions and purposes of wilderness and do not 

degrade wilderness resources and character. Appropriate 

restrictions may be imposed on any authorized activity 

in the interest of preserving wilderness character and 

resources or to ensure public safety. 

When resource impacts or demands for use exceed 

established thresholds or capacities, superintendents may 

limit or redirect use. If these actions are determined to 

be the minimally required level of management, physical 

alterations, public education, general regulations, special 

regulations, permit systems, and the local restrictions, 

public use limits, closures, and designations implemented 

under the discretionary authority of the superintendent (36 

CFR 1.5 and Part 13; 43 CFR Part 36 for Alaska units) may all 

be used in managing use and protecting wilderness. 

6.4.1 General Policy 

Park visitors need to accept wilderness on its own unique 

terms. Accordingly, the National Park Service will promote 

education programs that encourage wilderness users to 

understand and be aware of certain risks, including possible 

dangers arising from wildlife, weather conditions, physical 

features, and other natural phenomena that are inherent 

in the various conditions that comprise a wilderness 

experience and primitive methods of travel. The National 

Park Service will not modify the wilderness area to 

eliminate risks that are normally associated with wilderness, 

but it will strive to provide users with general information 

concerning possible risks, any recommended precautions, 

related user responsibilities, and applicable restrictions and 

regulations, including those associated with ethnographic 

and cultural resources. 

6.4.2 Wilderness Interpretation and Education 

In the context of interpretive and educational planning, 

national park system units with wilderness resources will 

(1) operate public education programs designed to promote 

and perpetuate public awareness of and appreciation 

for wilderness character, resources, and ethics while 

providing for acceptable use limits; (2) focus on fostering 

an understanding of the concept of wilderness that 

includes respect for the resource, willingness to exercise 

self-restraint in demanding access to it, and an ability to 

adhere to appropriate, minimum-impact techniques; and 

(3) encourage the public to use and accept wilderness on 

its own terms—that is, the acceptance of an undeveloped, 

primitive environment and the assumption of the 

potential risks and responsibilities involved in using and 

enjoying wilderness areas. NPS interpretive plans and 

programs for wilderness parks will address the primary 

interpretive themes for wilderness. Education is among 

the most eff ective tools for dealing with wilderness use and 

management problems and should generally be applied 

before more restrictive management tools. 

(See Visitor Safety 8.2.5.1) 

6.4.3 Recreational Use Management in Wilderness 

Recreational uses of NPS wilderness are generally those 

traditionally associated with wilderness and identifi ed by 

Congress in the legislative record for the development of the 

Wilderness Act and in keeping with the language provided 

by sections 2(a) and 2(c) of the act itself (16 USC 1131(a) 

and (c)). These recreational uses of wilderness will be of 

a type and nature that ensures that its use and enjoyment 

(1) will leave it unimpaired for future use and enjoyment 

as wilderness, (2) provides for the protection of the area 

as wilderness, and (3) provides for the preservation of 

wilderness character. Recreational uses in NPS wilderness 

areas will be of a nature that 

enables the areas to retain their primeval character and 

infl uence; 

protects and preserves natural conditions; 

leaves the imprint of man’s work substantially 

unnoticeable; 

provides outstanding opportunities for solitude or 

primitive and unconfi ned types of recreation; and 

preserves wilderness in an unimpaired condition. 

(See Management of Recreational Use 8.2.2.1) 

6.4.3.1 Recreation Use Evaluation 

Recreational uses—particularly new and emerging activities 

that compromise the stated purposes and defi nitions of 

wilderness or unduly impact the wilderness resource or 

the visitor experience within wilderness—will be evaluated 

to determine if these uses are appropriate or should be 

limited or disallowed through use of the superintendent’s 

compendium in 36 CFR 1.5. Evaluation or reevaluation 

should be accomplished within wilderness management 

plans or similar implementation plans. Recreational uses 

that do not meet the purposes and defi nitions of wilderness 

should be prohibited in NPS wilderness. 

Signifi cant changes in patterns or increased levels of use 

will not be authorized by special permit, administrative 

discretion, or authorities under the superintendents’ 

compendia, except in cases where suffi cient information 

exists to adequately determine there is no signifi cant impact 

on wilderness resources and values, including visitor 

experiences. These increased levels of use and changes 

in patterns of existing use will normally not qualify for a 

categorical exclusion under the National Environmental 

Policy Act. Decisions regarding signifi cant changes in 

patterns and new levels of use will require environmental 

analysis and review, including opportunity for public 

comment, in accordance with the NEPA requirements.

(See Appropriate Use of the Parks 1.5; Visitor Carrying 

Capacity 8.2.1) 
6.4.3.2 Outdoor Skills and Ethics

Leave-no-trace principles and practices will be applied 

to all forms of recreation management within wilderness, 

including commercial operations. Wilderness users will 

generally be required to carry out all refuse. Refuse is 

defi ned in 36 CFR 1.4. 

6.4.3.3 Use of Motorized Equipment 

Public use of motorized equipment or any form of 

mechanical transport will be prohibited in wilderness 

except as provided for in specifi c legislation. Operating 

a motor vehicle or possessing a bicycle in designated 

wilderness outside Alaska is prohibited (see NPS regulations 

in 36 CFR 4.30(d)(1)).

However, section 4(d)(1) of the Wilderness Act (16 USC 

1133(d)(1)) authorizes the Secretary—where legislation 

designating the wilderness specifi cally makes this provision 

applicable—to allow the continuation of motorboat and 

aircraft use under certain circumstances in which those 

activities were established prior to wilderness designation. 

Section 4(d)(1) gives the Secretary the discretion to 

manage and regulate the activity in accordance with the 

Wilderness Act, the NPS Organic Act, and individual park 

enabling legislation. As authorized, the National Park 

Service will administer this use to be compatible with the 

purpose, character, and resource values of the particular 

wilderness area involved. The use of motorized equipment 

by the public in wilderness areas in Alaska is governed by 

applicable provisions of the Alaska National Interest Lands 

Conservation Act, NPS regulations in 36 CFR Part 13, and 

Department of the Interior regulations in 43 CFR Part 36. 

The specifi c conditions under which motorized equipment 

may be used by the public will be outlined in each park’s 

wilderness management plan. 

(See Soundscape Management 4.9; Use of Motorized 

Equipment 8.2.3) 

6.4.4 Commercial Services 

Wilderness-oriented commercial services that contribute to 

public education and visitor enjoyment of wilderness values 

or provide opportunities for primitive and unconfi ned types 

of recreation may be authorized if they meet the “necessary 

and appropriate” tests of the National Park Service 

Concessions Management Improvement Act of 1998 and 

section 4(d)(6) of the Wilderness Act (16 USC 1133(d)(5)), 

and if they are consistent with the wilderness management 

objectives contained in the park’s wilderness management 

plan, including the application of the minimum requirement 

concept. Activities such as guide services for outfi tted 

horseback, hiking, mountain climbing, or river trips and 

similar activities may be appropriate and may be authorized 

if conducted under the terms and conditions outlined in the 

park’s wilderness management plan and/or in legislation 

authorizing these types of commercial uses. 

The only structures or facilities used by commercial services 

that will be allowed in wilderness will be temporary shelters, 

such as tents, or other specifi cally approved facilities that 

may be required within the wilderness management plan 

for resource protection and the preservation of wilderness 

values. Temporary facilities will generally be removed from 

the wilderness after each trip, unless such removal will 

cause degradation of the wilderness resources. In Alaska, 

additional guidance for the management of temporary 

facilities for hunting and fi shing guides is found in the 

Alaska National Interest Lands Conservation Act section 

1316 (16 USC 3204). The use of permanent equipment and 

supply caches by commercial operators is prohibited within 

wilderness. 

Managers will ensure that commercial operators are in 

compliance with established leave-no-trace protocols. 

(See Visitor Use 8.2; Commercial Use Authorizations 10.3) 

6.4.5 Special Events 

The National Park Service will not sponsor or issue permits 

for special events to be conducted in wilderness if those 

events are inconsistent with wilderness resources and 

character or if they do not require a wilderness setting to 

occur. Permits will not be issued in NPS wilderness areas 

for commercial enterprises or competitive events, including 

activities involving animal, foot, or watercraft races; the 

physical endurance of a person or animal; organized 

survival exercises; war games; or similar exercises.

(See Special Events 8.6.2. Also see 36 CFR 2.50) 

6.4.6 Existing Private Rights 

Wilderness designation does not extinguish valid existing 

private rights (for example, fee-simple interest, less-thanfee-simple interest, valid mineral operations, rights-ofway, grazing permits). The validity of private rights within 

wilderness must be determined on a case-by-case basis. 

Valid private rights in wilderness must be administered in 

keeping with the specifi c conditions and requirements of the 

valid right. 

6.4.7 Grazing and Livestock Driveways 

Commercial grazing or driving of livestock in park 

wilderness will be allowed only as specifi cally authorized 

by Congress. Where these activities are authorized, they 

will be managed under conditions and requirements 

identifi ed within the approved wilderness management 

plan and corresponding allotment management plans. 

The use of motorized vehicles, motorized equipment, or 

mechanical transport by grazing permittees will not be 

allowed except as provided for by a specifi c authority—that 

is, a valid existing right, the enabling legislation, or an NPS 

determination of minimum requirement. The construction 

of livestock management facilities other than those 

specifi cally authorized by legislation is prohibited. 

Noncommercial grazing of trail stock used as part of an 

approved livestock management program within wilderness 

may be authorized in accordance with NPS regulations 

and conditions outlined in the wilderness management 

plan or stock use management plan. All approved livestock 

WILDERNESS PRESERVATION AND MANAGEMENT 6.4

87
MANAGEMENT POLICIES 2006

88 use must ensure the preservation of wilderness resources 

and character. Superintendents will be responsible for 

monitoring livestock use in wilderness to the same degree 

as human use, and may use the same management tools 

and techniques, including the application of the minimum 

requirement concept to manage livestock use that are 

available for managing other wilderness uses. 

(See 8.6.8 Domestic and Feral Livestock) 

6.4.8 Rights-of-Way 

Existing rights-of-way that have been included in wilderness 

should be terminated or phased out where practicable. 

Rights-of-way subject to NPS administrative control 

should be administered under conditions outlined in the 

park’s wilderness management plan that protect wilderness 

character and resources and limit the use of motorized or 

mechanical equipment. The Service will not issue any new 

rights-of-way or widen or extend any existing rights-ofway in wilderness. Rights-of-way and access procedures 

aff ecting wilderness areas in Alaska are governed by 

applicable provisions of the Alaska National Interest Lands 

Conservation Act and regulations in 43 CFR Part 36, and 36 

CFR Part 13. 

(See Existing Private Rights 6.4.6) 

6.4.9 Mineral Development 

The National Park Service will seek to remove or extinguish 

valid mining claims and nonfederal mineral interests 

in wilderness through authorized processes, including 

purchasing valid rights. In parks where Congress has 

authorized the leasing of federal minerals, the Park Service 

will take appropriate actions to preclude the leasing of lands 

or minerals within wilderness whenever and wherever it is 

authorized to do so. Lands included within wilderness will 

be listed as “excepted areas” under applicable regulations in 

43 CFR Parts 3100 and 3500 (see section 3500.8).

Unless and until mineral interests and mining claims 

within NPS wilderness are eliminated, they must be 

managed pursuant to existing NPS regulations, policies, 

and procedures. (See 36 CFR Part 9, Subpart A, for mineral 

development on mining claims; 36 CFR Part 9, subpart 

B, for nonfederal oil and gas development; and 43 CFR 

Parts 3100 and 3500 for federal mineral leasing.). A validity 

examination of unpatented claims in wilderness aff ected 

by a proposed plan of operations must be conducted by a 

certifi ed mineral examiner before plan approval. Motorized 

use in wilderness is allowed only with an approved plan of 

operations on valid mineral claims and where there is no 

reasonable alternative. Motorized use for access can occur 

only on existing or approved roads. There will be no new 

roads or improvement of existing roads unless documented 

as being necessary for resource protection. Any plan of 

operations that is approved will include stipulations on 

operations and reclamation that will ensure that longterm eff ects on the wilderness area are substantially 

unnoticeable. For access to mining claims in NPS wilderness 

in Alaska, see 43 CFR 36.10. 

6.4.10 Accessibility for Persons with Disabilities 

The National Park Service has legal obligations to make 

available equal opportunities for people with disabilities 

in all programs and activities. This requirement includes 

the opportunity to participate in wilderness experiences. 

Management decisions responding to requests for special 

consideration to provide wilderness use by persons with 

disabilities must be in accord with the Architectural Barriers 

Act of 1968, the Rehabilitation Act of 1973 (as amended in 

1978), and section 507(c) of the Americans with Disabilities 

Act of 1990 (42 USC 12207(c)). Such decisions should balance 

the intent of access and wilderness laws and fi nd a way of 

providing the highest level of protection to the wilderness 

resource. 

Section 17.550 of the Secretary of the Interior’s regulations 

regarding the enforcement of nondiscrimination on the 

basis of disability in Department of Interior programs (43 

CFR Part 17, subpart E) states that agencies are not required 

to take any actions or provide access that would result in 

a fundamental alteration in the nature of a program or 

activity. However, the agency has the burden of proving that 

compliance would result in a fundamental alteration. This 

concept is also found in section 507 of the Americans with 

Disabilities Act.

(See Accessibility for Persons with Disabilities 1.9.3, 8.2.4, and 

9.1.2. Also see Director’s Order #42: Accessibility for Visitors 

with Disabilities in National Park Service Programs and 

Services) 
7

Interpretation 

and Education

National parks are among the most remarkable places in America 

for recreation, learning, and inspiration. Interpretive programs 

are the methods the Service uses to connect people to their parks, 

with opportunities for all visitors to form their own intellectual, 

emotional, and physical connections to the meanings and values 

found in the parks’ stories. Facilitating those opportunities through 

eff ective interpretive and educational programs will encourage the 

development of a personal stewardship ethic and broaden public 

support for preserving and protecting park resources so that they 

may be enjoyed by present and future generations.

The visitor experience 

is heightened when 

it progresses from 

enjoyment to an 

understanding of the 

reasons for a park’s 

existence and the 

signifi cance of its 

resources.
MANAGEMENT POLICIES 2006

90 Introduction

The Organic Act of 1916 created the National Park Service 

to conserve park resources and “provide for the enjoyment 

of the same in such manner and by such means as will leave 

them unimpaired for future generations.” The purpose of 

NPS interpretive and educational programs is to advance 

this mission by providing memorable educational and 

recreational experiences that will (1) help the public 

understand the meaning and relevance of park resources, 

and (2) foster development of a sense of stewardship. The 

programs do so by forging a connection between park 

resources, visitors, the community, and the national park 

system. That connection is made by linking a park’s tangible 

resources to the intangible values and meanings found 

in those resources. An important outcome of the park 

experience is that visitors more readily retain information, 

grasp meanings, and adopt new behaviors and values 

because they are directly involved with cultural and natural 

heritage resources and sites. 

As a result of technological advances, people can visit a 

national park “virtually” and connect with park resources at 

their convenience. Hence, for purposes of this chapter, the 

terms “visitor” and “park visitor” are defi ned as anyone who 

uses a park’s interpretive and education services, regardless 

of where such use occurs.

The Service will maintain the capability to deliver visitor 

and interpretive services of the highest quality. Those 

services should provide understandable interpretation 

of the major features in the parks and the events that 

occurred there, with an emphasis on experiences that will 

lead visitors to appreciate the park’s authentic qualities. 

Excellent and eff ective interpretation and education will be 

the shared responsibility of everyone, from the Washington 

and regional directorates, through park superintendents 

and chief interpreters, to fi eld interpreters, noninterpretive 

staff , and partners. Excellence in interpretation and 

education will be achieved through specifi c visitor activities, 

interpretive media, ongoing scholarly research, planning, 

technical excellence in implementation, broad public 

input, continual reevaluation, sound business practices, 

and training to professional standards for all who provide 

interpretive services.

Enjoyment of the parks is a fundamental part of the 

visitor experience. That experience is heightened when 

it progresses from enjoyment to an understanding of the 

reasons for a park’s existence and the signifi cance of its 

resources. To determine the quality and quantity of the 

visitor experience, levels of visitor satisfaction, safety, 

understanding, and appreciation will be measured. 

Director’s Order #6 and Reference Manual 6 provide 

additional guidance for the development of interpretive and 

educational programs.

7.1 Interpretive and Educational Programs 

Since its inception, one of the chief functions of the 

national parks has been to serve educational purposes. The 

Service is committed to extend its leadership in education, 

build on what is in place, and pursue new relationships 

and opportunities to make national parks even more 

meaningful in the life of the nation. Within the rich learning 

environments of national parks and facilitation by NPS 

interpreters, visitors will be off ered authentic experiences 

and opportunities to immerse themselves in places 

where events actually happened, experience the thrill of 

connecting with real objects used by previous generations, 

enjoy some of the most beautiful and historic places in 

America, and understand the diffi cult moments our nation 

has endured.

Every park will develop an interpretive and educational 

program that is grounded in (1) park resources, (2) themes 

related to the park’s legislative history and signifi cance, and 

(3) park and Service-wide mission goals. The intent will 

be to provide each visitor with an interpretive experience 

that is enjoyable and inspirational within the context of the 

park’s tangible resources and the meanings they represent. 

In addition, visitors should be made aware of the purposes 

and scope of the national park system. 

Interpretation will encourage dialogue and accept that 

visitors have their own individual points of view Factual 

information presented will be current, accurate, based on 

current scholarship and science, and delivered to convey 

park meanings, with the understanding that audience 

members will draw their own conclusions. Interpretation 

will also reach out to park neighbors, segments of the 

population that do not visit national parks, and community 

decision-makers to stimulate discussions about the park 

and its meanings in local, regional, and national contexts. 

In addition, interpretive services will help employees better 

understand the park’s history, resources, processes, and 

visitors. 

An eff ective park interpretive and educational program will 

include 

information and orientation programs that provide 

visitors with easy access to the information they need to 

have a safe and enjoyable park experience;

interpretive programs that provide both on- and off -site 

presentations and are designed to encourage visitors to 

form their own intellectual or emotional connections 

with the resource. Interpretive programs facilitate a 

connection between the interests of visitors and the 

meanings of the park; 

curriculum-based educational programs that link park 

themes to national standards and state curricula and 

involve educators in planning and development. These 

programs include previsit and postvisit materials, 

address diff erent learning styles, include an evaluation 

mechanism, and provide learning experiences that are 

linked directly to clear objectives. Programs develop 
a thorough understanding of a park’s resources in 

individual, regional, national, and global contexts and 

of the park’s place within the national park system; and

interpretive media that provide visitors with 

relevant park information and facilitate more indepth understanding of—and personal connection 

with—park stories and resources. This media will be 

continually maintained for both quality of content and 

condition based upon established standards.

(See Air Quality 4.7.1; Geologic Resource Management 4.8; 

Wilderness Interpretation and Education 6.4.2; Energy 

Management 9.1.7; Visitor Facilities 9.3. Also see Director’s 

Order #6: Interpretation and Education) 

7.2 Interpretive Planning

General management plans and comprehensive interpretive 

plans (CIPs) will serve as the backbone of interpretive 

and educational program planning and direction. The 

CIP process will guide park staff in defi ning themes, 

determining desired visitor experience opportunities, 

identifying challenges, and recommending which stories to 

tell, how to tell them, and how to reach specifi c audiences. 

All interpretive and educational services, including 

personal services, interpretive media, and partnerships 

that work to support the delivery of interpretive and 

educational programs, will be based on and coordinated 

with the comprehensive interpretive plan. The resulting 

parkwide interpretation and education program will thus 

communicate park signifi cance and meanings in the most 

eff ective and effi cient way. Recognition that concessioners, 

cooperating associations, friends groups, and other partners 

may have an important role in providing interpretive and 

educational services will be most important in planning for 

the overall visitor services program, and such entities should 

be included where appropriate in the planning process. 

The CIP process will be initiated by superintendents. The 

life span of a CIP will be seven to ten years. Superintendents 

and chiefs of interpretation will be accountable to 

ensure that their parks have a completed and current 

comprehensive interpretive plan as defi ned in Director’s 

Order #6 and Reference Manual 6. Harpers Ferry Center 

and regional offi ces will provide support. 

(See also Director’s Order #75A: Civic Engagement and Public 

Involvement)

7.3 Personal and Nonpersonal Services

7.3.1 Personal Services 

Personal interpretive services feature contacts with visitors. 

Anyone who works in a park and makes contact with the 

public can and should provide an enjoyable, appropriate, 

and valuable visitor service. Superintendents and chiefs 

of interpretation will demand quality in the delivery of 

a multidimensional personal services program by park 

staff , volunteers, contractors, cooperating associations, 

concessioners, and other partners. In addition to basic 

information and orientation services, personal interpretive 

services can include walks, talks, tours, campfi re programs, 

roving contacts, curriculum-based education programs, 

and Junior Ranger programs. These types of activities and 

programs will be designed to off er opportunities for greater 

enjoyment and in-depth understanding and appreciation of 

the park’s resources. 

Personal services will provide opportunities for diverse 

audiences to enjoy and connect to parks and nurture future 

stewards of America’s national heritage. Park staff will 

help visitors have a safe, meaningful, and satisfying park 

experience; help them decide how to spend their time in 

the park, and inform them about the wonders that await 

their discovery. Personal services programs presented 

in parks will be recorded annually in the Service-wide 

interpretive report, which will document the number of 

programs off ered, visitors served, and the costs associated 

with those programs. Park chiefs of interpretation will be 

responsible for submitting their park’s portion of the report 

to the Washington Offi ce Division of Interpretation and 

Education. 

7.3.1.1 Curriculum-based Education Programs

Parks will be managed as places to demonstrate the 

principles of science, to illustrate the national experience 

as history, to engage learners throughout their lifetimes, 

and to do these things while challenging visitors in exciting 

and motivating settings. Schools represent a microcosm of 

society and present myriad opportunities for the Service 

to foster stewardship in future generations. Therefore, 

curriculum-based programs will be designed to link 

classroom learning with experiences in the parks. Programs 

will complement school curricula by matching a group’s 

educational objectives with park resources. Curriculumbased programs will focus on the stories and meanings 

attached to park resources; the threats to the condition of 

those resources; and conservation or preservation issues 

relevant to the park, the national park system, and the 

park’s place within that system. To continue to meet the 

demand from schools for NPS programs, parks will identify, 

in cooperation with park partners, alternative means for 

program delivery, such as publications, Internet deliveries, 

and distance learning. 

7.3.2 Nonpersonal Services 

Nonpersonal services are interpretive media (publications 

such as a unigrid brochure or park newspaper, fi lms, 

exhibits, web-based programs). They do not require the 

presence of staff . Nonpersonal services, which can reach 

large audiences, must maintain a consistent quality of 

presentation over time. Used in conjunction with personal 

services, they will provide opportunities for visitor 

information, orientation, and personal connections to park 

resources. The Center for Media Services will establish 

Service-wide standards for all NPS informational media.

Harpers Ferry Center will also provide guidance and 

assistance to parks for interpretive media planning, design 

and production for museum and visitor center exhibits, 

INTERPRETATION AND EDUCATION 7.1-7.3

91
MANAGEMENT POLICIES 2006

92 wayside exhibits, audiovisual productions, publications, 

and directional signs. Plans or proposals to be accomplished 

by parks and regions, including privately funded projects, 

may be reviewed by the Center for Media Services for 

appropriateness and quality of design and execution. 

Proposals from concessioners, cooperating associations, 

and others may also be reviewed. To provide data for parks 

to maintain these assets, the condition of the NPS inventory 

of exhibits and interpretive trails (currently recorded in the 

Media Inventory Database System or MIDS) will be tracked 

through the Facilities Maintenance Management System.

Parks will be responsible for the conservation of historic 

furnishings and artifacts on exhibit in parks. They may 

obtain conservation services from the Center for Media 

Services or from outside contractors. 

7.3.2.1 Park Brochures

Offi cial park brochures are an important part of the 

NPS identity and a valuable and desired part of the park 

experience. Each brochure should provide a map of the 

park, address critical safety and resource protection issues, 

introduce park interpretive themes, and describe signifi cant 

park resources. The Service’s goal will be that 100% of 

parks have an adequate allotment of park brochures to meet 

demands and ensure that adequate numbers of brochures 

are available in other languages as needed. 

7.3.3 Technology and Interpretation

Innovative use of existing and emerging technology 

can maximize both the visitor experience and 

employee eff ectiveness. Parks should use technological 

communications, such as the Internet and distance learning, 

to enhance their informational, orientation, interpretive, 

and educational programs. The National Park Service 

will maintain a site on the World Wide Web (nps.gov) to 

provide an opportunity for all parks and programs to reach 

beyond their borders to a worldwide audience. Each park 

will maintain a home page for the purpose of reaching 

this audience. Parks should link from their home pages 

to web pages of entities that support the NPS mission. 

Park home pages will comply with Director’s Order #11C: 

Web Publishing and Department of the Interior policy, 

particularly as relates to security. 

(See Managing Information 1.9.2)

7.3.4 Interpretive and Educational Services 

Beyond Park Boundaries

The Service will continually adjust to changing patterns 

of visitation and an increasingly multiracial, multiethnic, 

and multicultural society to ensure that the national 

park system remains high among societal concerns and 

relevant to future generations. Each park’s interpretation 

and education program will reach out to park neighbors, 

those who are not visiting national parks, and community 

decision-makers to stimulate discussions about the park 

and its values in local, regional, and national contexts. Parks 

will use community programs and special events such as 

pageants, anniversaries, dedications, festivals, and other 

observances as opportunities to highlight meaningful 

connections between the park, its resources, the event, and 

the public. These activities, as well as other interpretive 

and educational services, support civic engagement and 

contribute to public understanding of the park’s signifi cance 

and the signifi cance of the national park system. 

National Park Service interpretive and educational 

programs must explore new and innovative approaches to 

inform a diverse constituency, many of whom may never 

set foot inside a park’s boundaries. A planned outreach 

program will be employed to fi rmly establish each park 

as part of the local, national, and global community. 

Outreach will be used to disseminate park information 

and interpretive and educational programs beyond park 

boundaries. Everyone should have the opportunity to 

connect to the parks through NPS outreach services. 

7.4 Interpretive Competencies and Skills

All interpretive services should be provided by highly 

trained personnel who have access to a continual supply 

of current information from research programs and other 

sources. All employees who provide interpretive services 

will be required to meet the Service’s national standards 

of interpretation and education. To support that eff ort, 

the Service will develop a web-based distance learning 

and credentialing platform based on the interpretive 

development program (IDP) to teach interpretive and 

educational skills and competencies and test for knowledge 

of those skills and competencies. 

NPS interpretation and education employees will be held to 

the most comprehensive standards and act as models and 

coaches for other NPS staff , especially law enforcement, 

volunteers, and other partners. Partners (including 

cooperating associations, contractors, and concessioners) 

will have access to and will be required to meet NPS national 

standards in the competency areas in which they work. 

Those who give formal programs will meet the appropriate 

national standards for such competencies. The cooperating 

association standard agreement, concession contracts, 

and other contracts that include interpretive services 

will require the demonstration of standards. Similarly, 

contractors for media projects will use the web-based 

distance learning and credentialing platform to both learn 

about NPS requirements and demonstrate their mastery of 

required standards. Permanent interpreters and seasonal 

interpreters will be required to certify in relevant and parkappropriate interpretive competencies of the interpretive 

development program. The certifi cation will be designed to 

establish a consistent Service-wide professional standard 

and to fortify the full-performance interpretive ranger as 

a provider of interpretive services while also serving as 

standard bearer, coach, mentor, and facilitator for all others 

who provide those services. 
7.5 Requirements for All Interpretive 

 and Educational Services

The following factors must be considered in the 

development and review of all personal and nonpersonal 

services.

7.5.1 Interpretation and 21st Century Relevancy

Demographic trends in the United States indicate an ever 

increasing array of diversity within the population. The 

National Park Service must change its traditional approach 

of interpretation to improve relevancy in the 21st century 

to our visitors. To enact this change the National Park 

Service will implement new and innovative ways to reach 

out, engage, and cultivate the support of the increasingly 

diverse array of visitors. The unique qualities of the national 

parks—qualities that highlight, for example, America’s 

diverse heritage and the principles of democracy—are 

what make them relevant. These qualities will be used to 

advantage in educating Americans and visitors to America 

about topics such as the civic experience of our country; 

the complex, diverse ecology of our nation and the world; 

and the infl uence of global climate change. Interpretation 

and education will seek to provide opportunities for more 

NPS audiences to have experiences that connect them to 

parks, so that they will come to value and enjoy these special 

places. The national park system and the Interpretation and 

Education program provide opportunities for facilitation of 

civic dialogue to engage Americans in understanding past 

and current issues of importance on a local-to-global basis. 

These opportunities should be pursued.

7.5.2 Access to Interpretive and 

 Educational Opportunities 

National parks belong to all of the nation’s people and 

should have opportunities to enjoy them. Eff orts will be 

made to ensure that interpretive and educational programs 

are available to all people and consider the special needs 

of children, senior citizens, non-English speaking visitors, 

and the economically disadvantaged. Foreign-language 

translations of park publications will be provided as needed 

in those parks visited by substantial numbers of nonEnglish-speaking visitors. 

The National Park Service will also ensure that persons 

with disabilities receive the same interpretive opportunities 

as those without disabilities. Interpretive and educational 

programs, exhibits, publications, and all other interpretive 

media will comply with Department of the Interior 

regulations at 43 CFR Part 17, subpart E, and with standards 

required by the Architectural Barriers Act. Accordingly, the 

Park Service will ensure that persons with disabilities have 

the opportunity to participate in all programs and activities 

in the most integrated setting appropriate. Additionally, 

the Service will take all feasible steps to ensure eff ective 

communication with individuals with hearing, visual, and 

cognitive disabilities. These steps should include but not be 

limited to providing sign language interpreters, audio/visual 

presentations, Braille, and large-print versions of printed 

materials. 

 (See Physical Access for Persons with Disabilities 5.3.2; 

Accessibility for Persons with Disabilities 8.2.4; Accessibility 

for Persons with Disabilities 9.1.2; Accessibility of Commercial 

Services 10.2.6.2. Also see Director’s Order #42; Reference 

Manual 41; 43 CFR 17.550) 

7.5.3 Resource Issue Interpretation and Education 

Park managers are increasingly called upon to make 

diffi cult resource decisions, some of which may be highly 

controversial. Interpretation and education programs can 

provide opportunities for civic engagement with Indian 

tribes and residents and offi cials of gateway and neighboring 

communities, the region, and the state(s) surrounding a 

park and beyond. Such opportunities for civic dialogue 

about resource issues and broad initiatives are often the 

most eff ective means for eliminating resource threats and 

gaining input and feedback from stakeholder constituents. 

Therefore, parks should, in balanced and appropriate ways, 

thoroughly integrate resource issues and initiatives of local 

and Service-wide importance into their interpretive and 

educational programs. Whenever possible, the appropriate 

interpretive managers at the national, regional, or park level 

should be involved in the process. 

In instances in which programming aff ects resources 

managed by other agencies, such agencies should be 

consulted during program planning. For interpretation of 

resource issues to be eff ective, frontline interpretive staff 

must be informed about the reasoning that guided the 

decision-making process, and interpreters must present 

balanced views. Acknowledging multiple points of view 

does not require interpretive and educational programs to 

provide equal time or disregard the weight of scientifi c or 

historical evidence. Resource issue interpretation should 

be integrated into both on- and off -site programs, as well 

as into printed and electronic media whenever deemed 

appropriate by the park manager.

7.5.4 Research and Scholarship

Interpretive and educational programs will be based on 

current scholarship and research about the history, science, 

and condition of park resources, and on research about the 

needs, expectations, and behavior of visitors. To accomplish 

this, a dialogue must be established and maintained among 

interpreters, education specialists, resource managers, 

scientists, archeologists, sociologists, ethnographers, 

historians, and other experts for the purpose of off ering 

the most current and accurate programs to the public. 

When appropriate, parks are encouraged to use a master 

interpreter to foster, facilitate, and maintain this dialogue.

(See Levels of Park Planning 2.3) 

7.5.5 Evaluation of Interpretation and 

 Education Effectiveness

Evaluation is also critically important for continuous 

improvement of educational and interpretive programs 

that lead to achievement of the NPS mission. Evaluation, 

systematically applied, is necessary to ensure that the NPS 

interpretation and education program is cost-eff ective 

INTERPRETATION AND EDUCATION 7.3-7.5

93
MANAGEMENT POLICIES 2006

94 and fi nancially accountable. The Service will maintain an 

evaluation strategy that fosters a Service-wide commitment 

to program planning and refl ection, information sharing, 

and application of research-based results.

7.5.6 Consultation

The National Park Service will present factual and balanced 

presentations of the many American cultures, heritages, 

and histories. Diverse constituencies will be consulted 

to (1) ensure appropriate content and accuracy, and (2) 

identify multiple points of view and potentially sensitive 

issues. When appropriate, state and local agencies involved 

in heritage tourism and history (such as state historic 

preservation offi cers) should be included in consultations 

to foster coordination and partnerships. Acknowledging 

multiple points of view does not require interpretive and 

educational programs to provide equal time or disregard the 

weight of scientifi c or historical evidence. 

Park managers will take culturally sensitive steps to 

preserve the knowledge of American Indian tribes and other 

traditionally associated peoples and secure the benefi t of 

their deep understanding of the nature and spirit of places 

within the parks by encouraging their participation in park 

activities. A related goal will be to ensure that irreplaceable 

connections such as place names, migration routes, 

harvesting practices, prayers, and songs are cataloged for 

use in current and future activities. 

The Service will respectfully consult traditionally 

associated peoples and other cultural and community 

groups in the planning, development, presentation, and 

operation of park interpretive programs and media relating 

to their cultures and histories. Cooperative programs will 

be developed with tribal governments and cultural groups 

to help the Service present accurate perspectives on their 

cultures. Ethnographic or cultural anthropological data and 

concepts will also be used in interpretive programs.

The Service will not display Native American human 

remains or photographs of those remains. Drawings, 

renderings, or casts of such remains will not be displayed 

without the consent of culturally affi liated Indian tribes, 

Alaska Natives, and Native Hawaiian organizations. 

The Service may exhibit non-Native American remains, 

photographs, drawings, renderings, or casts thereof, in 

consultation with appropriate traditionally associated 

peoples. The Service will consult with culturally affi liated or 

traditionally associated peoples to determine the religious 

status of any object whose sacred nature is suspected but not 

confi rmed. These consultations will occur before an object 

is exhibited or any action is taken that may have an adverse 

eff ect on its religious qualities. 

(See Relationship with American Indian Tribes 1.11; 

Evaluation and Categorization 5.1.3.2; Stewardship of 

Human Remains and Burials 5.3.4; Ethnographic Resources 

5.3.5.3; Museum Collections 5.3.5.5) 

7.5.7 Cultural Demonstrators

Cultural demonstrators can provide unique insights into 

their cultures. To facilitate their successful interaction 

with the public, parks may provide cultural demonstrators 

with training and direction. Cultural demonstrators 

(in parks outside the National Capital Region) who are 

not NPS employees may be permitted to sell self-made 

handcrafted items to park visitors, keeping the proceeds 

for themselves, where such handicrafts are related to the 

park’s interpretive themes. This is allowed under 16 USC 

1a-2(g), which authorizes the sale of products produced in 

the conduct of living exhibits, interpretive demonstrations, 

or park programs. When this practice is permitted, all 

materials used in creating such items must be the private 

property of the demonstrator, collected from outside the 

park. The superintendent may permit this practice through 

a cooperative agreement, special use permit, concession 

contract, or other legal instrument. 

Titles 8 and 13 of the Alaska National Interest Lands 

Conservation Act regulate the taking of fi sh, wildlife, and 

other natural resources for subsistence and other purposes 

in the Alaska parks. 

(See Reenactments 7.5.9; Special Events 8.6.2; Collecting 

Natural Products 8.8; Merchandise 10.2.4.5. Also see 36 CFR 

5.3; 60 FR 17639) 

7.5.8 Historic Weapons

All uses of historic weapons in parks will strictly comply 

with the Historic Weapons Demonstrations Safety 

Standards contained in Reference Manual 6, and will 

follow the procedures specifi ed therein for the particular 

weapon(s) being used. 

Weapons fi ring demonstrations conducted in NPSadministered areas are restricted to reproduction black 

powder weapons only. Original NPS museum weapons will 

not be used. Requests by outside groups or individuals to 

use non-NPS original weapons will follow the exemption 

request procedure prescribed in Reference Manual 6, and 

will be granted or denied in writing by the superintendent. 

7.5.9 Reenactments

Battle reenactments and demonstrations of battle tactics 

that involve exchanges of fi re between opposing lines, the 

taking of casualties, hand-to-hand combat, or any other 

form of simulated warfare are prohibited in all parks. 

Even the best-researched and most well-intentioned 

representation of combat cannot replicate the tragic 

complexity of real warfare. Respect for the memory of those 

whose lives were lost at these sites and whose unrecovered 

remains are often still interred in these grounds precludes 

the staging of inherently artifi cial battles at these memorial 

sites. Battle reenactments create an atmosphere that is 

inconsistent with the memorial qualities of the battlefi elds 

and other military sites placed in the Service’s trust. The 

safety risks to participants and visitors, and the inevitable 
damage to the physical resource that occurs during such 

events are also unacceptably high when seen in light of the 

NPS mandate to preserve and protect park resources and 

values. 

7.6 Interpretive and Educational Partnerships

The National Park Service will increase the eff ectiveness 

and accountability of park interpretation and education 

activities by collaborating with volunteers, cooperating 

associations, concessioners, and other partners to provide 

interpretive and educational services that adhere to Servicewide standards. To be successful, this will require all NPS 

interpretation and education practitioners, employees 

and partners, personal service providers, and media 

professionals to have access to training, coaching, and 

program evaluation results that meet national standards. 

NPS interpreters and educators will provide the leadership, 

example, and standards for all partners to deliver eff ective 

interpretation and education services. 

Interpretation and education operational capacity will 

be improved in parks by actively pursuing additional 

partnerships. Partnerships for this purpose will be sought 

with willing and able organizations with compatible 

purposes, such as historical societies, museums, colleges 

and universities, school districts, tourism commissions, 

conservation groups, health organizations, libraries, and 

others. 

7.6.1 Volunteers in Parks (VIPs)

Interpretation and education operational capacity will 

be increased in parks by actively pursuing volunteers 

and dedicating NPS staff time to coordinate volunteer 

programs in parks. Although the bulk of volunteer hours 

support interpretation and education, volunteer services 

may be used in various aspects of park operation under 

the authority of the Volunteers in the Parks Act of 1969. 

Pursuant to this legislation, volunteers may be recruited 

without regard to civil service regulations, are covered for 

tort liability and work-injury compensation, and may be 

reimbursed for out-of-pocket expenses while participating 

in the program. Volunteers will be accepted without regard 

to race, creed, religion, age, sex, color, national origin, 

disability, or sexual orientation. Volunteers will not displace 

NPS employees. NPS housing may be used for volunteers. 

Director’s Order #7 and Reference Manual 7 provide 

additional guidance for the volunteer program. 

(See Protection 5.3.5.1.4; Housing Management Plan 9.4.3.1. 

Also see Handbook 36 on Housing) 

7.6.2 Cooperating Associations

The National Park Service will continue to nurture its 

relationship with nonprofi t organizations that support 

park programs. Cooperating associations may provide 

publications and other items that enhance the interpretive 

story, allow visitors to explore particular interests, and 

enable them to take the park story home through their 

purchases.

When appropriate, cooperating associations will join 

the National Park Service in presenting interpretive and 

educational programs and supporting research eff orts as 

authorized in 16 USC 1-3, 6, and 17j-(2)e. In accordance 

with the standard, nonnegotiable cooperating association 

agreement, cooperating associations may, consistent with 

a park’s scope-of-sales statement, purchase for resale, or 

produce for sale, interpretive and educational items that 

are directly related to the understanding and interpretation 

of the park or the national park system. Associations may 

off er appropriate and approved interpretive services that 

support but do not supplant interpretive and educational 

services off ered by the Park Service. Associations may 

accept donations on behalf of the Service when appropriate 

and when conducted through approved fund-raising eff orts. 

Service housing may be used for cooperating association 

employees only if available and not needed for NPS 

employees. Guidance for managing NPS partnerships with 

cooperating associations is included in Director’s Order #32 

and Reference Manual 32. 

(See Housing Management Plan 9.4.3.1. Also see Director’s 

Order #21: Donations and Fundraising; Handbook 36 on 

Housing) 

INTERPRETATION AND EDUCATION 7.5-7.6

95

8

Use of the Parks

National parks belong to all Americans, and the National Park Service 

will welcome all Americans to experience their parks. The Service 

will focus special attention on visitor enjoyment of the parks while 

recognizing that the NPS mission is to conserve unimpaired each park’s 

natural and cultural resources and values for the enjoyment, education, 

and inspiration of present and future generations. The Service will 

also welcome international visitors, in keeping with its commitment to 

extend the benefi ts of natural and cultural resource conservation and 

outdoor recreation throughout the world.

Many different types 

of uses take place in 

the hundreds of park 

units that make up the 

national park system. 

The Service must ensure 

that these uses are 

appropriate to the park 

in which they occur.
MANAGEMENT POLICIES 2006

98 8.1 General

Many diff erent types of uses take place in the hundreds of 

park units that make up the national park system. Some 

of those uses are carried out by the National Park Service, 

but many more are carried out by park visitors, permittees, 

lessees, and licensees. The 1916 Organic Act, which 

created the National Park Service, directs the Service to 

conserve park resources “unimpaired” for the enjoyment 

of future generations. The 1970 National Park System 

General Authorities Act, as amended in 1978, prohibits 

the Service from allowing any activities that would cause 

derogation of the values and purposes for which the parks 

have been established (except as directly and specifi cally 

provided by Congress). Taken together, these two laws 

establish for NPS managers (1) a strict mandate to protect 

park resources and values; (2) a responsibility to actively 

manage all park uses; and (3) when necessary, an obligation 

to regulate their amount, kind, time, and place in such 

a way that future generations can enjoy, learn, and be 

inspired by park resources and values and appreciate their 

national signifi cance in as good or better condition than 

the generation that preceded them. (Throughout these 

Management Policies, the term “impairment” is construed to 

also encompass “derogation.”) 

8.1.1 Appropriate Use

The concept of appropriate use is especially important 

with regard to visitor enjoyment because, in accordance 

with the Organic Act, the fundamental purpose of all 

parks also includes providing for the enjoyment of park 

resources and values by present and future generations. 

The scope of enjoyment contemplated by the Organic Act 

is described in section 1.4.3. Appropriate forms of visitor 

enjoyment emphasize appropriate recreation consistent 

with the protection of the park. This includes interpretation 

of park resources and contemplation and understanding 

of the purposes for which a park unit’s resources are being 

preserved. Many of these forms of enjoyment support the 

federal policy of promoting the health and personal fi tness 

of the general public, as set forth in Executive Order 13266 

(Activities to Promote Personal Fitness).

While providing opportunities for appropriate public 

enjoyment is an important part of the Service’s mission, 

other park uses—unrelated to public enjoyment—may 

sometimes be allowed as a right or a privilege if they are not 

otherwise prohibited by law or regulation. In exercising 

its discretionary authority, the Service will allow only uses 

that are (1) appropriate to the purpose for which the park 

was established, and (2) can be sustained without causing 

unacceptable impacts. Recreational activities and other uses 

that would impair a park’s resources, values, or purposes 

cannot be allowed. The only exception is when an activity 

that would cause impairment is directly and specifi cally 

mandated by Congress. 

The fact that a park use may have an impact does not 

necessarily mean it will be unacceptable or impair park 

resources or values for the enjoyment of future generations. 

Impacts may aff ect park resources or values and still be 

within the limits of the discretionary authority conferred by 

the Organic Act. In these situations, the Service will ensure 

that the impacts are unavoidable and cannot be further 

mitigated. Even when they fall far short of impairment, 

unacceptable impacts can rapidly lead to impairment 

and must be avoided. For this reason, the Service will 

not knowingly authorize a park use that would cause 

unacceptable impacts.

When a use is mandated by law but causes unacceptable 

impacts on park resources or values, the Service will take 

appropriate management actions to avoid or mitigate the 

adverse eff ects. When a use is authorized by law but not 

mandated, and when the use may cause unacceptable 

impacts on park resources or values, the Service will avoid 

or mitigate the impacts to the point where there will be no 

unacceptable impacts; or, if necessary, the Service will deny 

a proposed activity or eliminate an existing activity. 

(See Park Management 1.4; Unacceptable Impacts 1.4.7.1; 

Consumptive Uses 8.9. Also see Director’s Order #12; 36 CFR 

1.5; 36 CFR 2.1) 

8.1.2 Process for Determining Appropriate Uses

All proposals for park uses will be evaluated for 

consistency with applicable laws, executive orders, 

regulations, and policies; 

consistency with existing plans for public use 

 and resource management; 

actual and potential eff ects on park resources 

 and values; 

total costs to the Service; and 

whether the public interest will be served. 

Superintendents must continually monitor and examine all 

park uses to ensure that unanticipated and unacceptable 

impacts do not occur. Superintendents should also be 

attentive to existing and emerging technologies that might 

further reduce or eliminate impacts from existing uses 

allowed in parks. Unless otherwise mandated by statute, 

only uses that meet the criteria listed in section 8.2 may be 

allowed. 

Specifi c park uses will be guided by the following 

subsections of this chapter, and must comply also with the 

other chapters of these Management Policies. The Service 

will coordinate with appropriate state authorities regarding 

activities that are subject to state regulation or to joint 

federal/state regulation. The regulatory framework for 

implementing NPS policies governing use of the parks, and 

for determining when and where activities may be allowed, 

is found in 36 CFR Parts 2, 3, 4, 5, 7, 12, and 13. Procedures 

for implementing or terminating a restriction, condition, 

public use limit, or closure within a park area are found in 36 

CFR 1.5 (but see also 36 CFR 13.30 and 43 CFR 36.11(h) for 

procedures specifi c to park areas in Alaska). Some activities 

may be allowed in parks only after park-specifi c regulations 

have been published, which requires extensive analysis and 

opportunities for civic engagement. 
The following illustration shows the process by which potential 

uses are evaluated for appropriateness.

The National Park Service will always consider allowing 

activities that are appropriate to the parks, although 

conditions may preclude certain activities or require that 

limitations be placed on them. In all cases, impacts from 

park uses must be avoided, minimized, or mitigated through 

one or more of the following methods:

visitor education and civic engagement

temporal, spatial, or numerical limitations on the use

the application of best available technology

the application of adaptive management techniques

If, in monitoring a park use, unanticipated impacts become 

apparent, the superintendent must further manage or 

constrain the use to minimize the impacts, or discontinue 

the use if the impacts are unacceptable.

(See Park Purposes and Legislatively Authorized Uses 1.4.3.1; 

Park System Planning Chapter 2; Use of the Parks Chapter 8. 

Also see 36 CFR 1.5)

8.2 Visitor Use 

Enjoyment of park resources and values by the people of 

the United States is part of the fundamental purpose of all 

parks. The Service is committed to providing appropriate, 

high-quality opportunities for visitors to enjoy the 

parks, and the Service will maintain within the parks an 

atmosphere that is open, inviting, and accessible to every 

segment of American society. However, many forms of 

recreation enjoyed by the public do not require a national 

park setting and are more appropriate to other venues. The 

Service will therefore

provide opportunities for forms of enjoyment that 

are uniquely suited and appropriate to the superlative 

natural and cultural resources found in the parks; 

defer to local, state, tribal, and other federal agencies; 

private industry; and nongovernmental organizations 

to meet the broader spectrum of recreational needs and 

demands. 

To provide for enjoyment of the parks, the National Park 

Service will encourage visitor activities that

are appropriate to the purpose for which the park was 

established; and 

are inspirational, educational, or healthful, and 

otherwise appropriate to the park environment; and 

will foster an understanding of and appreciation for 

park resources and values, or will promote enjoyment 

through a direct association with, interaction with, or 

relation to park resources; and 

can be sustained without causing unacceptable impacts 

to park resources or values. 

The primary means by which the Service will actively 

foster and provide activities that meet these criteria will be 

through its interpretive and educational programs, which 

are described in detail in chapter 7. The Service will also 

welcome the eff orts of nongovernmental organizations, 

tour companies, guides, outfi tters, and other private sector 

entities to provide structured activities that meet these 

USE OF THE PARKS 8.1-8.2

99

Before 

Allowing 

New Use

Process for Determining New Appropriate Uses

MONITOR/MITIGATE/DISCONTINUE

PROPOSED NEW USES

APPROPRIATE USES

(no unacceptable impacts)

After 

Allowing 

New Use

Assess Impacts

Planning, civic engagement, 

technical and scientifi c analyses 

(where, when, how much?)

Assess Park Purpose

Organic Act

Specifi c Park Legislation
MANAGEMENT POLICIES 2006

100 criteria. In addition to structured activities, the Service will, 

to the extent practicable, aff ord visitors ample opportunity 

for inspiration, appreciation, and enjoyment through their 

own personalized experiences—without the formality of 

program or structure. 

The Service may allow other visitor uses that do not meet all 

the above criteria if they are appropriate to the purpose for 

which the park was established and they can be sustained 

without causing unacceptable impacts to park resources 

or values. For the purposes of these policies, unacceptable 

impacts are impacts that, individually or cumulatively, 

would

be inconsistent with a park’s purposes or values, or

impede the attainment of a park’s desired conditions for 

natural and cultural resources as identifi ed through the 

park’s planning process, or

create an unsafe or unhealthy environment for visitors 

or employees, or

diminish opportunities for current or future 

generations to enjoy, learn about, or be inspired by park 

resources or values, or

unreasonably interfere with 

 park programs or activities, or

 an appropriate use, or

 the atmosphere of peace and tranquility, or the 

natural soundscape maintained in wilderness and 

natural, historic, or commemorative locations 

within the park, or

 NPS concessioner or contractor operations or 

services.

Management controls and conditions must be established 

for all park uses to ensure that park resources and values 

are preserved and protected for the future. If and when a 

superintendent has a reasonable basis for believing that an 

ongoing or proposed public use would cause unacceptable 

impacts to park resources or values, the superintendent 

must make adjustments to the way the activity is conducted 

to eliminate the unacceptable impacts. If the adjustments 

do not succeed in eliminating the unacceptable impacts, 

the superintendent may (1) temporarily or permanently 

close a specifi c area, or (2) place limitations on the use, or 

(3) prohibit the use. Restrictions placed on recreational uses 

that have otherwise been found to be appropriate will be 

limited to the minimum necessary to protect park resources 

and values and promote visitor safety and enjoyment.

Any closures or restrictions—other than those imposed by 

law—must be consistent with applicable laws, regulations, 

and policies, and (except in emergency situations) require 

a written determination by the superintendent that such 

measures are needed to

protect public health and safety; 

prevent unacceptable impacts to park resources or 

values; 

carry out scientifi c research; 

minimize visitor use confl icts; or 

otherwise implement management responsibilities. 

When practicable, restrictions will be based on the results 

of study or research, including (when appropriate) research 

in the social sciences. Any restrictions imposed will be fully 

explained to visitors and the public. Visitors will be given 

appropriate information on how to keep adverse impacts to 

a minimum, and how to enjoy the safe and lawful use of the 

parks. 

(See Park Management 1.4; Management of Recreational Use 

8.2.2.1. Also see 36 CFR 1.5: “Closures and Public Use Limits”; 

Director’s Order #17: National Park Service Tourism) 

8.2.1 Visitor Carrying Capacity 

Visitor carrying capacity is the type and level of visitor 

use that can be accommodated while sustaining the 

desired resource and visitor experience conditions in 

the park. By identifying and staying within carrying 

capacities, superintendents can manage park uses that 

may unacceptably impact the resources and values for 

which the parks were established. Superintendents will 

identify visitor carrying capacities for managing public use. 

Superintendents will also identify ways to monitor for and 

address unacceptable impacts on park resources and visitor 

experiences. 

When making decisions about carrying capacity, 

superintendents must use the best available natural and 

social science and other information, and maintain a 

comprehensive administrative record relating to their 

decisions. The decision-making process should be based 

on desired resource conditions and visitor experiences 

for the area, quality indicators and standards that defi ne 

the desired resource conditions and visitor experiences, 

and other factors that will lead to logical conclusions and 

the protection of park resources and values. The level 

of analysis necessary to make decisions about carrying 

capacities is commensurate with the potential impacts or 

consequences of the decisions. The greater the potential for 

signifi cant impacts or consequences on park resources and 

values or the opportunities to enjoy them, the greater the 

level of study and analysis and civic engagement needed to 

support the decisions. 

The planning process will determine the desired resource 

and visitor experience conditions that are the foundation 

for carrying capacity analysis and decision-making. If the 

time frame for making decisions is insuffi cient to allow 

the application of a carrying capacity planning process, 

superintendents must make decisions based on the best 

available science, public input, and other information. 

In either case, such planning must be accompanied by 

appropriate environmental impact analysis, in accordance 

with Director’s Order #12. 

As park use changes over time, superintendents must 

continue to decide if management actions are needed to 
keep use at sustainable levels and prevent unacceptable 

impacts. If indicators and standards have been prescribed 

for an impact, the acceptable level is the prescribed 

standard. If indicators and standards do not exist, the 

superintendent must determine how much impact is 

acceptable before management intervention is required. 

If and when park uses reach a level at which they must be 

limited or curtailed, the preferred choice will be to continue 

uses that are encouraged under the criteria listed in section 

8.2, and to limit or curtail those that least meet those 

criteria. The Service will consult with tourism organizations 

and other aff ected service providers in seeking ways to 

provide appropriate types and levels of visitor use while 

sustaining the desired resource and visitor experience 

conditions.

(See Decision-making Requirements to Identify and 

Avoid Impairments 1.4.7; General Management Planning 

2.3.1; Visitor Carrying Capacity 5.3.1.6; Management of 

Recreational Use 8.2.2.1. Also see Director’s Order #2: Park 

Planning; 36 CFR 1.5) 

8.2.2 Recreational Activities 

The National Park Service will manage recreational 

activities according to the criteria listed in sections 8.1 and 

8.2 (and 6.4 in wilderness areas). Examples of the broad 

range of recreational activities that take place in parks 

include, but are not limited to, boating, camping, bicycling, 

fi shing, hiking, horseback riding and packing, outdoor 

sports, picnicking, scuba diving, cross-country skiing, 

caving, mountain and rock climbing, earth caching, and 

swimming. Many of these activities support the federal 

policy of promoting the health and personal fi tness of 

the general public, as set forth in Executive Order 13266. 

However, not all of these activities will be appropriate or 

allowable in all parks; that determination must be made on 

the basis of park-specifi c planning. 

Service-wide regulations addressing aircraft use, off -road 

bicycling, hang gliding, off -road vehicle use, personal 

watercraft, and snowmobiling require that special, parkspecifi c regulations be developed before these uses may 

be allowed in parks. (The Alaska National Interest Lands 

Conservation Act statutory provisions (e.g., section 1110(a)) 

and regulatory provisions in 36 CFR Part 13 and 43 CFR 

36.11(h) apply to snowmobile, motorboat, aircraft, and 

other means of access in units of the national park system in 

Alaska.) 

The Service will monitor new or changing patterns of 

use or trends in recreational activities and assess their 

potential impacts on park resources. A new form of 

recreational activity will not be allowed within a park 

until a superintendent has made a determination that it 

will be appropriate and not cause unacceptable impacts. 

Restrictions placed on recreational uses that have been 

found to be appropriate will be limited to the minimum 

necessary to protect park resources and values and promote 

visitor safety and enjoyment. 

Sounds that visitors encounter aff ect their recreational 

and/or educational experience. Many park visitors have 

certain expectations regarding the sounds they will hear as 

part of their experience. The type of park unit (for example, 

national battlefi eld, national seashore, national recreation 

area, national park) and its specifi c features often help 

shape those expectations. In addition to expectations of 

muted to loud sounds associated with nature (such as wind 

rustling leaves, elk bugling, waves crashing on a beach), 

park visitors also expect sounds refl ecting our cultural 

heritage (such as cannons fi ring, native drumming, music) 

and sounds associated with people visiting their parks (such 

as children laughing, park interpretive talks, motors in cars 

and motorboats).

Park managers will (1) identify what levels and types of 

sounds contribute to or hinder visitor enjoyment, and 

(2) monitor, in and adjacent to parks, noise-generating 

human activities—including noise caused by mechanical 

or electronic devices—that adversely aff ect visitor 

opportunities to enjoy park soundscapes. Based on this 

information, the Service will take action to prevent or 

minimize those noises that adversely aff ect the visitor 

experience or that exceed levels that are acceptable to or 

appropriate for visitor uses of parks. 

(See Soundscape Management 4.9; Cultural Soundscape 

Management 5.3.1.7. Also see 36 CFR 2.12: Audio 

Disturbances)

8.2.2.1 Management of Recreational Use 

Superintendents will develop and implement visitor use 

management plans and take action, as appropriate, to 

ensure that recreational uses and activities in the park are 

consistent with its authorizing legislation or proclamation 

and do not cause unacceptable impacts on park resources or 

values. Depending on local park needs and circumstances, 

these plans may be prepared (1) as coordinated, activityspecifi c documents (such as a river use plan, a backcountry 

use plan, a wilderness management plan, an off -road vehicle 

use plan, a winter use plan); (2) as action-plan components 

of a resource management plan or general management 

plan; or (3) as a single integrated plan that addresses a broad 

spectrum of recreational activities. Regardless of their 

format or complexity, visitor use management plans will 

(1) contain specifi c, measurable management objectives 

related to the activity or activities being addressed; (2) be 

periodically reviewed and updated; and (3) be consistent 

with the carrying capacity decisions made in the general 

management plan. 

The Service will seek consistency in recreation management 

policies and procedures on both a Service-wide and 

interagency basis to the extent practicable. However, 

because of diff erences in the enabling legislation and 

resources of individual parks, and diff erences in the 

missions of the Service and other federal agencies, an 

activity that is entirely appropriate when conducted in one 

location may be inappropriate when conducted in another. 

The Service will consider a park’s purposes and the eff ects 

USE OF THE PARKS 8.2

101
MANAGEMENT POLICIES 2006

102 on park resources and visitors when determining the 

appropriateness of a specifi c recreational activity. 

Superintendents will consider a wide range of techniques 

in managing recreational use to avoid adverse impacts on 

park resources and values or desired visitor experiences. 

Examples of appropriate techniques include visitor 

information and education programs, separation of 

confl icting uses by time or location, “hardening” sites, 

modifying maintenance practices, and permit and 

reservation systems. Superintendents may also use their 

discretionary authority to impose local restrictions, public 

use limits, and closures and designate areas for a specifi c use 

or activity (see 36 CFR 1.5). Any restriction of appropriate 

recreational uses will be limited to what is necessary to 

protect park resources and values, to promote visitor safety 

and enjoyment, or to meet park management needs. To 

the extent practicable, public use limits established by the 

Service will be based on the results of scientifi c research 

and other available support data. However, an activity 

will be restricted or prohibited when, in the judgment 

of the superintendent, its occurrence, continuation, or 

expansion would (1) violate the criteria listed in section 

8.2, or (2) confl ict with the fi ndings of a carrying capacity 

analysis with no reasonable alternative that would avoid or 

satisfactorily mitigate the violation or confl ict. 

Recreational activities that are proposed as organized 

events or that involve commercialization, advertising, 

or publicity on the part of participants or organizers are 

defi ned as special events; these events are managed in 

accordance with the policies in section 8.6.2, regulations in 

36 CFR 2.50, and criteria and procedures in Director’s Order 

#53: Special Park Uses. 

(See Levels of Park Planning 2.3; Wilderness Management 

Planning 6.3.4.2; General Policy 6.4.1; Visitor Carrying 

Capacity 8.2.1; Commercial Visitor Services 8.2.2.2; River 

Use 8.2.2.3, Backcountry Use 8.2.2.4; Fishing 8.2.2.5; 

Hunting and Trapping 8.2.2.6; Motorized Off -road Vehicle 

Use 8.2.3.1; Snowmobiles 8.2.3.2; Visitor Safety 8.2.5.1; Use 

by American Indians and Other Traditionally Associated 

Groups 8.5; Special Park Uses 8.6; Collecting Natural Products 

8.8. Also see Director’s Order #2: Park Planning, and #12: 

Conservation Planning, Environmental Impact Analysis, and 

Decision-making) 

8.2.2.2 Commercial Visitor Services 

For information on commercial visitor services, see 

Commercial Services 6.4.4, Commercial Visitor Services 

Planning 10.2.2, and Commercial Use Authorizations 10.3.

8.2.2.3 River Use

A river use management plan will be developed for each 

park having signifi cant levels of river use unless the 

planning is accomplished through some other planning 

document. Appropriate types and levels of public uses will 

be identifi ed and managed to prevent unacceptable impacts, 

particularly adverse impacts on aquatic resources, the 

riparian environment, and visitor enjoyment. Each river 

use management plan will include specifi c procedures for 

disposing of refuse and human waste. Using cooperating 

agency status where appropriate, plans should be 

coordinated with interested tribal, state and/or local 

governments and will include public participation.

(See Implementation Planning 2.3.4; National Wild and 

Scenic Rivers System 4.3.4; Water Resource Management 

4.6; Floodplains 4.6.4; Wetlands 4.6.5; Domestic and Feral 

Livestock 8.6.8) 

8.2.2.4 Backcountry Use 

The Park Service uses the term backcountry to refer to 

primitive, undeveloped portions of parks. This is not a 

specifi c management zone, but rather refers to a general 

condition of land that may occur anywhere within a park. 

Backcountry use will be managed in accordance with a 

backcountry management plan (or other plan addressing 

backcountry uses) designed to avoid unacceptable impacts 

on park resources or adverse eff ects on the visitor enjoyment 

of appropriate recreational experiences. The Service will 

seek to identify acceptable limits of impacts, monitor 

backcountry use levels and resource conditions, and take 

prompt corrective action when unacceptable impacts occur. 

Strategies designed to guide the preservation, management, 

and use of the backcountry and to achieve the park’s 

management objectives will be integrated into the park’s 

backcountry management plan. Backcountry under study, 

proposed, or recommended for wilderness designation will 

be managed consistent with the wilderness stewardship 

policies in chapter 6.

The number and types of facilities to support visitor use 

in backcountry areas, including sanitary facilities, will be 

maintained at the minimum necessary to achieve a park’s 

backcountry management objectives and to provide for 

the health and safety of park visitors. To avoid the need for 

sanitary facilities, public use levels will be managed, where 

practicable, in accordance with the natural system’s ability 

to absorb human waste. The Service will not provide refuse 

containers in backcountry areas. All refuse must be carried 

out, except that combustible materials may be burned when 

authorized by the superintendent. 

(See Water Resource Management 4.6, Management Facilities 

6.3.10; Wilderness Use Management 6.4; Visitor Carrying 

Capacity 8.2.1; Waste Management 9.1.6.1; Comfort Stations 

9.3.3. Also see Director’s Order #83: Public Health). 

8.2.2.5 Fishing 

Recreational fi shing will be allowed in parks when it is 

authorized or not specifi cally prohibited by federal law 

provided that it has been determined to be an appropriate 

use per section 8.1 of these policies. When fi shing is allowed, 

it will be conducted in accordance with applicable federal 

laws and treaty rights, and nonconfl icting state laws and 

regulations. The Service will manage fi shing activities 

to achieve management objectives. Before the Service 

issues regulations or other restrictions, representatives 

of appropriate tribes and state and federal agencies will 

be consulted to ensure that all available scientifi c data 

are considered in the decision-making process. Any such 
regulations or other restrictions will be developed with 

public involvement and in consultation with fi sh and wildlife 

management agencies as appropriate, consistent with 

departmental policy at 43 CFR Part 24, and as described in 

section 4.4.3

For NPS units in Alaska, fi shing will additionally be 

managed in accordance with the Alaska National Interest 

Lands Conservation Act.

Commercial fi shing will be allowed only when specifi cally 

authorized by federal law or treaty right. 

(See Implementation Planning 2.3.4; Planning for Natural 

Resource Management 4.1.1; Harvest of Plants and Animals 

by the Public 4.4.3; Facilities for Water Recreation 9.3.4.2) 

8.2.2.6 Hunting and Trapping 

Hunting, trapping, or any other methods of harvesting 

wildlife by the public will be allowed where it is specifi cally 

mandated by federal law. Where hunting activity is not 

mandated but is authorized on a discretionary basis under 

federal law, it may take place only after the Service has 

determined that the activity is an appropriate use and can 

be managed consistent with sound resource management 

principles. 

Hunting and trapping, whether taking place as a mandated 

or a discretionary activity, will be conducted in accordance 

with federal law and applicable laws of the state or states in 

which a park is located. However, except for Alaska park 

units (which are subject to the Alaska National Interest 

Lands Conservation Act and regulations published at 36 

CFR Part 13), the park in which hunting and trapping occur 

must also publish special regulations to govern the activity. 

Those regulations may be more restrictive than applicable 

state laws when necessary to prevent unacceptable impacts. 

Before the Service issues regulations or other restrictions, 

representatives of appropriate tribes and state and federal 

agencies will be consulted to ensure that all available 

scientifi c data are considered in the decision-making 

process. Any such regulations or other restrictions will be 

developed with public involvement.

The Service’s cooperative consultation concerning fi sh and 

wildlife management will be consistent with departmental 

policy at 43 CFR Part 24. This policy recognizes the broad 

authorities and responsibilities of federal and state agencies 

with regard to the management of the nation’s fi sh and 

wildlife resources, and promotes cooperative management 

relationships among these agencies. In particular, the policy 

calls on the Service to consult with state agencies on certain 

fi sh and wildlife management actions, and encourages the 

execution of memoranda of understanding as appropriate to 

ensure the conduct of programs that meet mutual objectives 

as long as they do not confl ict with federal law or regulation.

(See Harvest of Plants and Animals by the Public 4.4.3; Genetic 

Resource Management Principles 4.4.1.2. Also see Director’s 

Order #75A: Civic Engagement and Public Involvement) 

8.2.2.7 Parachuting

Parachuting (or BASE jumping), whether from an aircraft, 

structure, or natural feature, is generally prohibited by 

36 CFR 2.17(a)(3). However, if determined through a park 

planning process to be an appropriate activity, it may be 

allowed pursuant to the terms and conditions of a permit.

(See Appropriate Use 8.1.1)

8.2.2.8 Recreational Pack and Saddle Stock Use

Equine species such as horses, mules, donkeys and burros, 

and other types of animals (including llamas, alpacas, 

goats, oxen, dogs and reindeer) may be employed when it 

is an appropriate use to support backcountry transport of 

people and materials and will not result in unacceptable 

impacts. NPS regulations at 36 CFR 2.16 prohibit the use of 

animals other than those designated as “pack animals” for 

transporting equipment.

Planning for recreational stock use should be conducted 

in the context of visitor use planning to address social, 

biological, and physical carrying capacity considerations, 

and to make allocation decisions that minimize potential 

confl icts between and among user groups. The plan should 

(1) establish routes, trails, and areas of travel; and (2) 

identify the need for supporting infrastructure such as 

designated horse camps, hitch rails, corrals, and appropriate 

trailhead facilities designed for vehicles towing horse 

trailers. The plan should also identify sensitive natural and 

cultural resource areas and develop management strategies 

to protect these resources.

In areas where demand for available grazing for recreational 

and administrative stock exceeds allowable limits, 

alternative strategies must be developed. If available, and to 

prevent the spread of invasive exotic plant species, certifi ed 

weed seed free hay or pellet rations should be considered 

as alternative feeding strategy to supplement grazing. 

Administrative stock use should generally follow the same 

rules and guidelines that are established for recreational 

stock use.

(See Domestic and Feral Livestock 8.6.8)

8.2.3 Use of Motorized Equipment

The variety of motorized equipment—including visitor 

vehicles, concessioner equipment, and NPS administrative 

or staff vehicles and equipment—that operates in national 

parks could adversely impact park resources, including the 

park’s natural soundscape and the fl ow of natural chemical 

information and odors that are important to many living 

organisms. In addition to their natural values, natural 

sounds (such as waves breaking on the shore, the roar of a 

river, and the call of a loon), form a valued part of the visitor 

experience. Conversely, the sounds of motor vehicle traffi c, 

an electric generator, or loud music can greatly diminish the 

solemnity of a visit to a national memorial, the eff ectiveness 

of a park interpretive program, or the ability of a visitor 

to hear a bird singing its territorial song. Many parks that 

USE OF THE PARKS 8.2

103
MANAGEMENT POLICIES 2006

104 appear as they did in historical context no longer sound the 

way they once did. 

The Service will strive to preserve or restore the natural 

quiet and natural sounds associated with the physical and 

biological resources of parks. To do this, superintendents 

will carefully evaluate and manage how, when, and where 

motorized equipment is used by all who operate equipment 

in the parks, including park staff . Uses and impacts 

associated with the use of motorized equipment will be 

addressed in park planning processes. Where such use is 

necessary and appropriate, the least impacting equipment, 

vehicles, and transportation systems should be used, 

consistent with public and employee safety. The natural 

ambient sound level—that is, the environment of sound 

that exists in the absence of human-caused noise—is the 

baseline condition, and the standard against which current 

conditions in a soundscape will be measured and evaluated. 

To meet its responsibilities under Executive Order 13149 

(Greening the Government through Federal Fleet and 

Transportation Effi ciency), the Service will develop and 

implement a strategy to reduce its vehicle fl eet’s annual 

petroleum consumption. 

(See Soundscape Management 4.9; Chemical Information and 

Odors 4.11) 

8.2.3.1 Motorized Off-road Vehicle Use 

Off -road motor vehicle use in national park units is governed 

by Executive Order 11644 (Use of Off -road Vehicles on 

Public Lands, as amended by Executive Order 11989), which 

defi nes off -road vehicles as “any motorized vehicle designed 

for or capable of cross-country travel on or immediately 

over land, water, sand, snow, ice, marsh, swampland, or 

other natural terrain” (except any registered motorboat or 

any vehicle used for emergency purposes). Unless otherwise 

provided by statute, any time there is a proposal to allow a 

motor vehicle meeting this description to be used in a park, 

the provisions of the executive order must be applied. 

In accordance with 36 CFR 4.10(b), routes and areas may 

be designated only in national recreation areas, national 

seashores, national lakeshores, and national preserves, and 

only by special regulation. In accordance with the executive 

order, they may be allowed only in locations where there 

will be no adverse impacts on the area’s natural, cultural, 

scenic, and esthetic values, and in consideration of other 

existing or proposed recreational uses. The criteria for new 

uses, appropriate uses, and unacceptable impacts listed 

in sections 8.1 and 8.2 must also be applied to determine 

whether off -road vehicle use may be allowed. As required by 

the executive order and the Organic Act, superintendents 

must immediately close a designated off -road vehicle route 

whenever the use is causing or will cause unacceptable 

impacts on the soil, vegetation, wildlife, wildlife habitat, or 

cultural and historic resources.

NPS administrative off -road motor vehicle use will be 

limited to what is necessary to manage the public use of 

designated off -road vehicle routes and areas; to conduct 

emergency operations; and to accomplish essential 

maintenance, construction, and resource protection 

activities that cannot be accomplished reasonably by other 

means. 

(See Park Management 1.4; Minimum Requirement 6.3.5. Also 

see 36 CFR 4.10) 

8.2.3.2 Snowmobiles 

Snowmobile use is a form of off -road vehicle use governed by 

Executive Order 11644 (Use of Off -road Vehicles on Public 

Lands, as amended by Executive Order 11989), and in Alaska 

also by provisions of the Alaska National Interest Lands 

Conservation Act (16 USC 3121 and 3170). Implementing 

regulations are published at 36 CFR 2.18, 36 CFR Part 13, 

and 43 CFR Part 36. Outside Alaska, routes and areas may 

be designated for snowmobile and oversnow vehicle use 

only by special regulation after it has fi rst been determined 

through park planning to be an appropriate use that will 

meet the requirements of 36 CFR 2.18 and not otherwise 

result in unacceptable impacts. Such designations can occur 

only on routes and water surfaces that are used by motor 

vehicles or motorboats during other seasons. In Alaska, 

the Alaska National Interest Lands Conservation Act 

provides additional authorities and requirements governing 

snowmobile use.

NPS administrative use of snowmobiles will be limited to 

what is necessary (1) to manage public use of snowmobile 

or oversnow vehicles routes and areas; (2) to conduct 

emergency operations; and (3) to accomplish essential 

maintenance, construction, and resource protection 

activities that cannot be accomplished reasonably by other 

means. 

(See Unacceptable Impacts 1.4.7.1; Minimum Requirement 

6.3.5; Management Facilities 6.3.10; General Policy 6.4.1; 

Process for Determining New Appropriate Uses 8.1.2; Visitor 

Use 8.2; Recreational Activities 8.2.2 ) 

8.2.3.3 Personal Watercraft Use

Personal watercraft use is generally prohibited by 36 CFR 

3.24. However, it may be allowed within a park by special 

regulation if it has fi rst been determined through park 

planning to be an appropriate use that will not result in 

unacceptable impacts. 

(See Unacceptable Impacts 1.4.7.1; Process for Determining 

New Appropriate Uses 8.1.2; Visitor Use 8.2; Recreational 

Activities 8.2.2. Also see 36 CFR Part 3: Boating and Water 

Use) 

8.2.4 Accessibility for Persons with Disabilities 

All reasonable eff orts will be undertaken to make NPS 

facilities, programs, and services accessible to and usable 

by all people, including those with disabilities. This policy 

refl ects the commitment to provide access to the widest 

cross section of the public, and to ensure compliance with 

the intent of the Architectural Barriers Act of 1968 and the 

Rehabilitation Act of 1973. The Service will also comply 

with section 507 of the Americans with Disabilities Act 
USE OF THE PARKS 8.2

(42 USC 12207), which relates specifi cally to the operation 105

 and management of federal wilderness areas. Specifi c 

guidance for implementing these laws is found in 

the Secretary of the Interior’s regulations regarding 

enforcement of nondiscrimination on the basis of disability 

in Department of the Interior programs (43 CFR Part 17, 

Subpart E), and General Service Administration regulations 

adopting accessibility standards for the Architectural 

Barriers Act (41 CFR Part 102-76, Subpart C).

One primary tenet of accessibility is that, to the highest 

degree reasonable, people with disabilities should be able 

to participate in the same programs and activities available 

to everyone else. In choosing among methods for providing 

accessibility, higher priority will be given to those methods 

that off er programs and activities in the most integrated 

setting appropriate. Special, separate, or alternative 

facilities, programs, or services will be provided only when 

existing ones cannot reasonably be made accessible. The 

determination of what is reasonable will be made only 

after careful consultation with persons with disabilities 

or their representatives. Any decision that would result 

in less than equal opportunity is subject to the fi ling of an 

offi cial disability rights complaint under the departmental 

regulations cited above. 

(See Accessibility for Persons with Disabilities 1.9.4; Physical 

Access for Persons with Disabilities 5.3.2; Accessibility for 

Persons with Disabilities 6.4.10; Accessibility for Persons with 

Disabilities 9.1.2. Also see Director’s Order #16A: Reasonable 

Accommodation for Applicants and Employees with 

Disabilities; Director’s Order #42: Accessibility for Visitors 

with Disabilities in National Park Service Programs and 

Services; Americans with Disabilities Act and Architectural 

Barriers Act Accessibility Standards) 

8.2.5 Visitor Safety and Emergency Response 

8.2.5.1 Visitor Safety 

The saving of human life will take precedence over all other 

management actions as the Park Service strives to protect 

human life and provide for injury-free visits. The Service 

will do this within the constraints of the 1916 Organic Act. 

The primary—and very substantial—constraint imposed by 

the Organic Act is that discretionary management activities 

may be undertaken only to the extent that they will not 

impair park resources and values. 

While recognizing that there are limitations on its 

capability to totally eliminate all hazards, the Service and 

its concessioners, contractors, and cooperators will seek to 

provide a safe and healthful environment for visitors and 

employees. The Service will work cooperatively with other 

federal, tribal, state, and local agencies; organizations; and 

individuals to carry out this responsibility. The Service will 

strive to identify and prevent injuries from recognizable 

threats to the safety and health of persons and to the 

protection of property by applying nationally accepted 

codes, standards, engineering principles, and the guidance 

contained in Director’s Orders #50B, #50C, #58, and #83 

and their associated reference manuals. When practicable 

and consistent with congressionally designated purposes 

and mandates, the Service will reduce or remove known 

hazards and apply other appropriate measures, including 

closures, guarding, signing, or other forms of education. In 

doing so, the Service’s preferred actions will be those that 

have the least impact on park resources and values. 

The Service recognizes that the park resources it protects 

are not only visitor attractions, but that they may also 

be potentially hazardous. In addition, the recreational 

activities of some visitors may be of especially high-risk, 

high-adventure types, which pose a signifi cant personal 

risk to participants and which the Service cannot totally 

control. Park visitors must assume a substantial degree of 

risk and responsibility for their own safety when visiting 

areas that are managed and maintained as natural, cultural, 

or recreational environments. 

These management policies do not impose park-specifi c 

visitor safety prescriptions. The means by which public 

safety concerns are to be addressed is left to the discretion 

of superintendents and other decision-makers at the 

park level who must work within the limits of funding 

and staffi ng. Examples include decisions about whether 

to install warning signs or artifi cial lighting, distribute 

weather warnings or advisories, initiate search-and-rescue 

operations or render emergency aid, eliminate potentially 

dangerous animals, close roads and trails or install 

guardrails and fences, and grant or deny backcountry or 

climbing permits. Some forms of visitor safeguards typically 

found in other public venues—such as fences, railings, 

and paved walking surfaces—may not be appropriate or 

practicable in a national park setting. 

(See Air Quality 4.7.1; Lightscape Management 4.10; General 

Policy 6.4.1; Siting Facilities to Avoid Natural Hazards 

9.1.1.5; Waste Management and Contaminant Issues 9.1.6; 

Risk Management Program 10.2.4.8; Food Service Sanitation 

Inspections 10.2.4.14) 

8.2.5.2 Emergency Preparedness and 

 Emergency Operations 

The National Park Service will develop a program of 

emergency preparedness in accordance with title VI of 

the Robert T. Staff ord Disaster Relief and Emergency 

Assistance Act (42 USC 5195-5197g); National Security 

Decision Directive 259 (February 4, 1987); Department 

of the Interior policy; and other considerations at the 

Washington headquarters, regional, and park levels. The 

program will (1) provide guidance for incident management 

at the park level and management and relief for emergency 

incidents and events beyond park capabilities; (2) ensure the 

agency complies with the Presidential Homeland Security 

Directives, the National Emergency Response Plan, and 

the National Incident Management System standards; and 

(3) support interagency and national response to major 

incidents. The purpose of the program will be to provide for 

visitor and employee safety and the protection of resources 

and property to the extent possible. This program will 

include a systematic method for alerting visitors about 

potential disasters and evacuation procedures. 
MANAGEMENT POLICIES 2006

106 Superintendents may assist other agencies with emergencies 

outside of parks, as authorized by 16 USC 1b(1). To the 

extent practicable and in accordance with Director’s Order 

#20, written agreements with other agencies must fi rst be 

in eff ect. NPS employees who are outside the area of their 

jurisdiction and who are directed by their supervisors 

to provide emergency assistance to other agencies will 

be considered to be acting within the scope of their 

employment. 

NPS emergency operations will be conducted using the 

Incident Command System of the National Interagency 

Incident Management System (NIIMS). The Unifi ed 

Command System (within the Incident Command System) 

will be used when other agencies are involved. Each park 

superintendent will develop and maintain an emergency 

operations plan to ensure an eff ective response to all types 

of emergencies that can be reasonably anticipated. 

As one element of the emergency operations plan, or as a 

separate document, each park must have an oil and chemical 

spill response management plan for spills that result from 

NPS activities or from activities that are beyond NPS 

control (such as commercial through-traffi c on roads that 

pass through a park). The plans will place fi rst priority on 

responder and public safety. 

Employees will not be permitted to respond to hazardous 

material spills unless they are properly qualifi ed and 

certifi ed in accordance with Director’s Order #30B: 

Hazardous Spill Response. The Service will seek to recover 

all allowable direct and indirect costs for responding to oil 

or hazardous materials spills. 

Parks that have their own aircraft or contract for the use of 

aircraft must have an aircraft crash rescue response plan or 

other planning document in place.

(See Compensation for Injuries to Natural Resources 4.1.6; 

Emergency Management 5.3.1.1. Also see Director’s Order 

#55: Incident Management Program; Director’s Order #60: 

Aviation Management) 

8.2.5.3 Search and Rescue 

To provide for the protection and safety of park visitors, 

the Service will make reasonable eff orts to search for lost 

persons and rescue sick, injured, or stranded persons. 

This responsibility may be fulfi lled by NPS staff or by 

qualifi ed search-and-rescue organizations or agencies that 

are capable of responding to life-threatening emergencies 

pursuant to the terms of a formal agreement. Deceased 

persons will be evacuated unless the level of risk to the 

rescue party is found to be unacceptably high. Search 

managers and superintendents will jointly determine when 

to terminate a search. The Service will not charge visitors 

for search-and-rescue operations. Search-and-rescue 

operations will be conducted using the Incident Command 

System.

(See Management Facilities 6.3.10; General Policy 6.4.1. Also 

see Director’s Order #59: Search and Rescue) 

8.2.5.4 Dive Operations

NPS dive operations in rivers, lakes, reservoirs, and oceans 

will be used to support other park operations, including 

scientifi c inquiry, search and rescue, law enforcement, 

public education, and resource and facility management. 

The level of service provided within a park will be 

determined through a dive program needs assessment. 

Personal safety of those engaged in diving activities is of 

primary importance and will not be compromised for any 

reason. NPS diving activities will not be permitted in any 

park that does not have an approved safe practices manual 

(dive safety plan).

(See Director’s Order #4: Diving Management. Also see 29 

CFR 1910, subpart T, 485 DM 28) 

8.2.5.5 Public Health Program

The Service will work to identify public health issues 

and disease transmission potential in the parks and to 

conduct park operations in ways that reduce or eliminate 

these hazards. Park managers will pursue these goals 

with technical assistance provided under the auspices of 

a Service-wide public health program. The public health 

program will use the consultation services of commissioned 

offi cers of the U.S. Public Health Service. 

(See Pest Management 4.4.5. Also see Director’s Order #83: 

Public Health)

8.2.5.6 Emergency Medical Services 

The Service will make reasonable eff orts to provide 

appropriate emergency medical services for persons who 

become ill or injured. An emergency medical services 

program will be maintained, where appropriate, to provide 

transportation and prehospital care of the sick and injured, 

which may range from minor fi rst aid to advanced life 

support in various environmental settings. Transportation 

may include everything from patrol cars and ambulances to 

fi xed-wing planes and helicopter air ambulances, consistent 

with departmental policies regarding aircraft use. 

Qualifi ed emergency medical services in local communities 

may be used if such services can respond rapidly enough in 

life-threatening emergencies. When such services are not 

available, the Park Service will make a reasonable eff ort to 

provide a level of emergency medical service commensurate 

with park needs and in response to an emergency medical 

needs assessment. Each superintendent will develop and 

implement a program to meet those needs in accordance 

with Director’s Order #51: Emergency Medical Services. 

Extended emergency medical services operations will be 

conducted using the Incident Command System. 

(Also see Director’s Order #55: Incident Management 

Program)

8.2.6 Recreation Fees and Reservations 

The National Park Service may charge a recreation entrance 

or expanded amenity recreation (use) fee at parks when 

authorized by law. Although these fees may provide for 

the support of the overall management and operation 
USE OF THE PARKS 8.2

of parks, as set forth in the Federal Lands Recreation 107

Enhancement Act and other relevant statutes, they are 

not intended to off set the operational costs associated 

with a park. Such services include protection; resource 

management; information and orientation; maintenance of 

park facilities; and interpretation to foster an understanding 

and appreciation of each park’s resources, management 

procedures, regulations, and programs. Fees may be 

instituted for secondary or special services that the 

Service cannot or elects not to off er because of economic 

constraints or the need for special skills or equipment 

or because they are purely supplemental programs. The 

Service may also contract or enter into an agreement for 

the collection of recreational fees if there is a demonstrated 

benefi t to the collecting park unit. In all cases, fee programs 

will support park purposes and comply with appropriate 

Service policies and standards and federal law. 

(See Commercial Use Authorizations 10.3. Also see Director’s 

Order #22: Fee Program) 

8.2.6.1 Recreation Fees 

Visitors who use federal facilities and services for recreation 

may be required to pay a greater share of the cost of 

providing those opportunities than the population as a 

whole. Under the guidelines and criteria established by law 

and regulation, the Service will collect recreation fees of the 

appropriate type for its parks, facilities, and programs. No 

fees will be collected in circumstances in which the costs 

of collection would exceed revenue or where fee collection 

is prohibited by law or regulation. Fees charged for 

recreational activities will be collected only in accordance 

with the applicable authority, and recreation fee revenues 

will be managed according to law and policy. Fee rates will 

be reasonable and equitable and consistent with criteria and 

procedures contained in law and NPS guidance documents. 

Those who lawfully enter or use a park for activities not 

related to recreation will not be charged an entrance fee, 

expanded amenity recreation use fee, or special recreation 

permit fee. Examples of nonrecreation exemptions include 

persons entering parks for 

First Amendment activities, which are exempt from 

 all fees; 

special park uses such as agricultural, grazing, and 

commercial fi lming activities (all of which are subject to 

special park use fees); 

NPS-authorized research activities; 

federal, state, tribal, and local government business; 

hospital in-patients involved in medical treatment or 

therapy;

a leaseholder or property owner accessing their 

property; 

outings conducted for noncommercial educational 

purposes by schools and other bona fi de academic 

institutions.

Current law (the Federal Lands Recreation Enhancement 

Act) prohibits charging entrance fees to persons 15 years 

of age and younger. In Alaska, the Alaska National Interest 

Lands Conservation Act prohibits charging entrance fees to 

all national parks except Denali National Park.

(See Fees 8.6.1.2; First Amendment Activities 8.6.3) 

8.2.6.2 National Recreation Reservation Service 

Superintendents are encouraged to participate in a 

reservation service for campgrounds and other facilities, 

and for tours or other services operated or provided by the 

Park Service for visitors when doing so will

better serve park visitors, or

ensure the protection of park resources, or 

increase public awareness of lesser-known parks, or

improve the effi ciency of park operations or 

administration. 

To avoid duplicative costs and confusion, if a reservation 

service will be employed in a park, the Service-wide 

recreation reservation vendor will be the preferred provider 

of that service. The vendor’s services may be expanded 

or new services may be developed based on NPS needs 

and the vendor’s capacity to accommodate the needs. 

If a superintendent wishes to participate in a diff erent 

reservation system, a determination must fi rst be made 

that the Service-wide vendor will not accommodate the 

park’s reservation needs. Authorization must be obtained 

from the Director before participating in a diff erent 

reservation system. Concessioners who manage lodging 

and camping services are not required to transfer their 

existing reservation services to the NPS reservation 

system. However, they are encouraged to do so when it is 

administratively, operationally, and fi nancially feasible, 

in order to provide more seamless reservation services to 

the public. 

(See Chapter 7: Interpretation and Education) 

8.2.7 Tourism 

The Service will support and promote appropriate visitor 

use through cooperation and coordination with the tourism 

industry. As part of this eff ort, the Service will

develop and maintain a constructive dialogue and 

outreach eff ort with public and private organizations 

and businesses, including state and local tourism and 

travel offi ces;

establish positive and eff ective working relationships 

with park concessioners and others in the tourism 

industry to ensure a high quality of service to park 

visitors;

collaborate with industry professionals to promote 

sustainable and informed tourism that incorporates 

socioeconomic and ecological concerns and supports 

long-term preservation of park resources and quality 

visitor experiences; and

use this collaboration as an opportunity to encourage 

and showcase environmental leadership by the 

Service and by the tourism industry, including park 

concessioners.

(Also see Director’s Order #17: National Park Service 

Tourism)
MANAGEMENT POLICIES 2006

108 8.3 Law Enforcement Program 

8.3.1 General 

The law enforcement program is an important tool in 

carrying out the NPS mission. The objectives of the NPS 

law enforcement program are (1) the prevention of criminal 

activities through resource education, public safety eff orts, 

and deterrence; and (2) the detection and investigation 

of criminal activity and the apprehension and successful 

prosecution of criminal violators. In carrying out the law 

enforcement program, the Service will make reasonable 

eff orts to protect the natural and cultural resources 

entrusted to its care and to provide for the protection, safety, 

and security of park visitors, employees, concessioners, and 

public and private property.

Law enforcement is characterized by high risks and 

inherent dangers to enforcement offi cers, and by high 

public expectations that law enforcement activities will 

be performed in a lawful and professional manner. It is 

therefore essential that the Service issue clear policies and 

procedures to guide the law enforcement program, and 

that commissioned employees receive the training and 

equipment necessary to perform their duties successfully. 

The NPS law enforcement program will be managed and 

supervised in accordance with all applicable laws and 

regulations; Part 446 of the Department of the Interior 

Manual; all applicable Secretarial directives, these 

Management Policies; and Director’s Order #9: Law 

Enforcement Program and Reference Manual #9 (or U. S. 

Park Police General Orders, as appropriate). To help sustain 

the high level of public trust necessary for an eff ective law 

enforcement program, commissioned employees will adhere 

to the Department of the Interior’s law enforcement code 

of conduct and the standards of ethical conduct found in 

Reference Manual 9. 

All necessary and appropriate steps will be taken to 

ensure that the Park Service maintains a professional law 

enforcement program. The authority and responsibility to 

manage the NPS Commissioned Park Ranger program and 

U.S. Park Police operations will fl ow in a logical order from 

the Director and in accordance with departmental policy.

8.3.2 The Context for Law Enforcement 

Park law enforcement activities will be managed by superintendents as part of a comprehensive, interdisciplinary 

eff ort to protect resources, manage public use, and promote 

public safety and appropriate enjoyment. This is in keeping 

with guidance provided by Congress in 1976 when it 

amended the General Authorities Act (16 USC 1a-6): 

 The Committee intends that the clear and specifi c 

enforcement authority contained in this subsection, 

while necessary for the protection of the Federal 

employees so involved, will be implemented by the 

Secretary to ensure that law enforcement activities in 

our National Park System will continue to be viewed 

 as one function of a broad program of visitor and 

resource protection. (House Report No. 94-1569, 

September 16, 1976) 

8.3.3 Shared Responsibilities 

Congress has authorized the designation of certain 

employees as law enforcement offi cers, with the 

responsibility to “maintain law and order and protect 

persons and property within areas of the National Park 

System” (16 USC 1a 6(b)). Only employees who meet the 

standards prescribed by and who are designated by the 

Secretary of the Interior may perform law enforcement 

duties. The duties of these commissioned employees will not 

be limited to just law enforcement; they will also continue 

to incorporate a diversity of other protection concerns, as 

stipulated in House Report No. 94-1569. 

The Service recognizes that eff ective enforcement requires 

a cooperative community eff ort. Therefore, employees 

without law enforcement commissions will continue to 

share responsibility for the protection of park resources and 

visitors, and they will be expected to report any apparent 

violations or suspicious activities. All park employees will be 

trained to recognize, observe, and record criminal acts and 

illegal activities. The Service will also encourage and assist 

park neighbors in the development of cooperative crime 

prevention and detection programs. 

Extended law enforcement operations will be conducted 

using the Incident Command System of the National 

Interagency Incident Management System. 

8.3.4 Enforcement Authority 

Within national park system boundaries, the Service 

will fulfi ll its law enforcement responsibilities using NPS 

employees. However, the Park Service is authorized by 16 

USC 1a-6(c) to appoint (deputize) another agency’s qualifi ed 

law enforcement personnel as special police when it will 

benefi t the administration of a park area. Deputations may 

be issued for the purpose of obtaining supplemental law 

enforcement assistance when deemed economical and in 

the public interest, and with the concurrence of the other 

agency. All such appointments must be approved by the 

senior NPS law enforcement offi cial or his/her designee and 

supported by a written agreement with the other agency at 

the park or national level, except when there is insuffi cient 

time because of an emergency law enforcement situation. 

While deputations may be used to supplement NPS law 

enforcement capabilities, they may not be used to transfer 

NPS law enforcement responsibilities to state or local 

governments.

The Service is authorized to use appropriated funds for 

“rendering of emergency rescue, fi re fi ghting, and [other] 

cooperative assistance to nearby law enforcement and fi re 

prevention agencies and for related purposes outside of the 

National Park System”(16 USC 1b(1)). Further, insofar as 16 

USC 1b(1) does not confer arrest authority to NPS personnel 

who act outside park boundaries, state arrest authority is 

fi rst needed before NPS personnel can enforce state law or 

engage in law enforcement activity outside national park 

system boundaries.

This authority will be used in emergency situations, only 

after fi rst determining that such actions will facilitate the 
administration of the park or be an eff ective management 

tool for obtaining mutual assistance from other agencies. 

Furthermore, the authority is intended for use only in 

response to an unexpected occurrence that requires 

immediate action, which may include one or more of the 

following: 

emergency responses such as life-or-death incidents, 

serious injury/fatality accident/incident scenes, crime 

scenes involving the protection of human life, offi cer 

needs assistance, threats to health or safety of the 

public;

emergency or law enforcement incidents directly 

aff ecting visitor safety or resource protection;

probable-cause felonies and felonies committed in the 

presence of and observed by U.S. Park Rangers, Special 

Agents, or U.S. Park Police; 

misdemeanors committed in the presence of U.S. Park 

Rangers, Special Agents, or U.S. Park Police that present 

an immediate threat to the health and safety of the 

public.

Except where specifi cally provided by acts of Congress 

codifi ed in the District of Columbia Code, sections 5-201 to 

5-208 (2001), the Service may not assume law enforcement 

responsibility outside of a park in lieu of the legitimate 

responsibilities of nearby agencies. Cooperative assistance 

rendered to nearby law enforcement agencies outside park 

boundaries should be limited to only those actions or eff orts 

that support or assist those agencies.

8.3.5 Jurisdiction 

The term jurisdiction defi nes the sphere of authority and 

outlines the boundaries or territorial limits within which 

any particular authority may be exercised. Jurisdiction 

may be either exclusive, partial, concurrent, or proprietary. 

Insofar as is practicable, the Service will seek to acquire 

concurrent legislative jurisdiction for all units of the 

national park system, as required by the 1976 amendment to 

the General Authorities Act. Concurrent jurisdiction allows 

the Service to enforce federal criminal statutes and also to 

assimilate state law under 18 USC 13 when no applicable 

federal law or regulation exists. Concurrent jurisdiction will 

allow for the more effi cient conduct of both state and federal 

law enforcement functions within the parks. 

8.3.6 Use of Force

Commissioned employees may use a wide variety of 

defensive equipment and force options in response to 

various threats and other enforcement situations. The 

primary consideration is the timely and eff ective application 

of the appropriate level of force required to establish and 

maintain lawful control.

8.3.7 Law Enforcement Public Information 

 and Media Relations

The National Park Service will provide information 

to the public and the news media in accordance with 

applicable laws, departmental policy, and Director’s Order 

#75B: Media Relations. Superintendents should identify 

appropriate opportunities to (1) enhance deterrence by 

publicizing arrests, weapons seizures, and successful 

prosecutions; (2) highlight cooperation and assistance 

activities (e.g., Park Watch); and (3) educate the public about 

the full range of threats to and the diffi culty in protecting 

park resources. 

The right of the public to obtain information about 

government operations and activities is subject to the 

requirements of the Freedom of Information Act and the 

Privacy Act. 

(See Civic Engagement 1.7. Also see Director’s Order #66: 

FOIA and Protected Resource Information; Director’s Order 

#75A: Civic Engagement and Public Involvement)

8.3.8 Homeland Security 

The Park Service will work cooperatively with the 

Department of the Interior; Department of Homeland 

Security; and other federal, state, and local agencies to 

prevent and respond to foreign and domestic attacks on 

American soil. The Park Service will maintain a capacity to 

rapidly move law enforcement personnel to critical asset 

and infrastructure or other identifi ed areas in the event 

of a terrorist attack, elevated threat level, or other major 

emergency incident. 

(See National Emergency Response Plan)

8.4 Overfl ights and Aviation Uses 

A variety of aircraft, including military, commercial, general 

aviation, and aircraft used for NPS administrative purposes, 

fl y in the airspace over national parks. Although there are 

many legitimate aviation uses, overfl ights can adversely 

aff ect park resources and values and interfere with visitor 

enjoyment. The Service will take all necessary steps to avoid 

or mitigate unacceptable impacts from aircraft overfl ights. 

Because the nation’s airspace is managed by the Federal 

Aviation Administration (FAA), the Service will work 

constructively and cooperatively with the Federal Aviation 

Administration and national defense and other agencies to 

ensure that authorized aviation activities aff ecting units of 

the national park system occur in a safe manner and do not 

cause unacceptable impacts on park resources and values 

and visitor experiences. The Service will build and maintain 

a cooperative and problem-solving relationship with 

national defense agencies to address the congressionally 

mandated mission of each agency and prevent or mitigate 

unacceptable impacts of military training or operational 

fl ights on park resources, values and the visitor experience. 

Cooperation is essential because the other agencies involved 

have statutory authorities and responsibilities that must be 

recognized by the Service. 

(See Soundscape Management 4.9. Also see Director’s Orders 

#47: Soundscape Preservation and Noise Management; #60: 

Aviation Management) 

USE OF THE PARKS 8.3-8.4

109
MANAGEMENT POLICIES 2006

110 8.4.1 Alaska and Remote Areas 

Aviation can provide an important, and in some cases the 

preferred, means of access to remote areas in certain parks, 

especially in Alaska. In such cases, access by aircraft may 

make an important contribution to the protection and 

enjoyment of those areas. Dependence on aviation will be 

fully considered and addressed in the planning process 

for those parks. Alaska parks have specifi c regulations 

concerning fi xed-wing aircraft, published at 36 CFR Part 13 

and 43 CFR 36.11(f). 

8.4.2 Education 

For the general public and for aviation interests, the 

Service will develop educational materials describing the 

importance of the natural soundscape and tranquility to 

park visitors, as well as the need for cooperation from the 

aviation community. 

(See Chapter 7: Interpretation and Education; Soundscape 

Management 4.9) 

8.4.3 General Aviation 

The Service will work closely with the Federal Aviation 

Administration and with general aviation organizations to 

ensure that general aviation operations over units of the 

national park system are conducted in accordance with 

applicable FAA advisories and “fl y-friendly” techniques 

and procedures designed to help pilots minimize impacts 

on national parks. The Service will seek the assistance of 

these organizations in problem resolution if general aviation 

concerns arise over national parks. 

8.4.4 Administrative Use 

Aviation is a necessary and acceptable management tool in 

some parks when used in a manner consistent with the NPS 

mission. Aviation activities will comply with all applicable 

policies and regulations issued by the Department of the 

Interior, the Federal Aviation Administration, and the 

National Park Service. In its administrative use of aircraft, 

the Service will

use, to the maximum extent practicable, the quietest 

aircraft available for its aviation operations;

limit offi cial use of fl ights over parks to those needed to 

support or carry out emergency operations or essential 

management activities in cases where there are no 

practical alternatives or when alternative methods 

would be unreasonable;

give full consideration to safety; wilderness 

management implications; impacts on resources, values, 

and opportunity for visitor enjoyment; impacts on other 

administrative activities; and overall cost-eff ectiveness;

plan, schedule, and consolidate fl ights so as to avoid or 

minimize unacceptable impacts on park resources and 

values and visitor enjoyment; 

work cooperatively with other agencies using aircraft 

and airspace over parks to adhere to the above 

standards.

(Also see Director’s Order #60: Aviation Management) 

8.4.5 Military Aviation 

The Service will work cooperatively with agencies of the 

Department of Defense to address the congressionally 

mandated missions of all agencies. In addition, the Service 

will prevent or strive to mitigate any unacceptable impacts 

of overfl ights related to military training or operational 

low-level overfl ights. Superintendents are responsible for 

opening lines of communication with base commanders 

controlling military training routes or military operations 

areas that may aff ect their parks, and for developing formal 

agreements that mitigate identifi ed impacts. 

8.4.6 Commercial Air Tour Management 

The National Parks Air Tour Management Act of 2000 and 

implementing FAA regulations provide for a joint FAA/NPS 

planning process that will lead to the management by the 

Federal Aviation Administration of commercial air tours 

over national parks (with the exception of parks in Alaska 

and Rocky Mountain National Park, which are specifi cally 

excluded from the process). The Service, as a cooperating 

agency, will assist the Federal Aviation Administration in 

developing an air tour management plan (ATMP) for each 

park with existing or proposed air tours. Superintendents 

will work cooperatively with the Federal Aviation 

Administration, air tour operators, and other stakeholders 

in the development of these plans and will determine 

the nature and extent of impacts on natural and cultural 

resources and visitor experience opportunities inside park 

boundaries. The Federal Aviation Administration, with 

responsibility for ensuring the safe and effi cient use of 

the nation’s airspace and protecting the public health and 

welfare from aircraft noise, will implement the air tour 

management plans and regulate commercial air tours in 

accordance with it. 

8.4.7 Permitted Overfl ights 

When issuing permits for activities such as fi lming or 

research in which the use of aircraft is proposed, the 

superintendent will determine whether use is appropriate 

and apply conditions to protect park resources and values 

from unacceptable impacts. Permit requests will be denied 

if the activity will have unacceptable impacts on a park’s 

resources, values, or desired visitor experiences. 

8.4.8 Airports and Landing Sites 

Private or commercial aircraft may be operated in parks 

only on lands or water surfaces designated by the Park 

Service as landing sites through special regulation. (See 

section 8.4.1 regarding Alaska and some remote areas.) 

The Service will evaluate and manage aircraft landing sites 

under its jurisdiction to ensure that the use of the sites will 

have no unacceptable impacts on park resources and values, 

public safety, or visitor enjoyment. Existing sites that meet 

these criteria and that have been designated as a result of 

previously established use may be retained as long as the 

administrative need for them continues. New sites will be 

designated only where essential to provide administrative 

access to remote areas (other than wilderness), and only 

where the site can be established, used, and maintained 

without the need for new construction or major site 

improvements. 
The National Park Service will also work with entities 

having jurisdiction over landing sites and airports adjacent 

to parks for the purpose of preventing, reducing, or 

otherwise mitigating the eff ects of aircraft operations. 

Whether landing sites or airports are situated within or 

adjacent to parks, the objective will be to minimize noise 

and other impacts and confi ne them to the smallest and 

most appropriate portion of the park, consistent with safe 

aircraft operations.

(Also see 36 CFR 2.17; 43 CFR 36.11 (f))

8.5 Use by American Indians and 

 Other Traditionally Associated Groups 

The National Park Service will develop and implement 

its programs in a manner that refl ects knowledge of and 

respect for the cultures of American Indian tribes or groups 

with demonstrated ancestral ties to particular resources 

in parks. Evidence of such ties will be established through 

systematic archeological or anthropological studies, 

including ethnographic oral history and ethnohistory 

studies or a combination of these sources. For purposes of 

these policies, the term American Indian tribe means any 

tribe, band, nation, or other organized group or community 

of Indians, including any Alaska Native Village, which is 

recognized as eligible for the special programs and services 

provided by the United States to Indians because of their 

status as Indians. Other groups of people with traditional 

associations to park lands or resources include native 

peoples of the Caribbean; Native Hawaiians and other 

native Pacifi c islanders; and state-recognized tribes and 

other groups who are defi ned by themselves and known 

to others as members of a named cultural unit that has 

historically shared a set of linguistic, kinship, political, or 

other distinguishing cultural features. 

The Service will regularly and actively consult with 

American Indian tribal governments and other traditionally 

associated groups regarding planning, management, and 

operational decisions that aff ect subsistence activities, 

sacred materials or places, or other resources with which 

they are historically associated. Information about the 

outcome of these consultations will be made available to 

those consulted. 

In developing its plans and carrying out its programs, the 

Service will ensure the following: 

NPS general regulations governing access to and use of 

natural and cultural resources in parks will be applied 

in an informed and balanced manner consistent with 

park purposes that (1) does not unreasonably interfere 

with American Indian tribal use of traditional areas or 

sacred resources, and (2) does not violate the criteria 

listed in section 8.2 for use of the parks. 

Superintendents will establish and maintain consulting 

relationships with potentially aff ected American Indian 

tribes or traditionally associated groups. 

Management decisions will refl ect knowledge about 

and understanding of potentially aff ected American 

Indian cultures and people, gained through research 

and consultations with the potentially aff ected groups. 

The American Indian Religious Freedom Act (42 USC 1996) 

states that 

 Henceforth it shall be the policy of the United States 

to protect and preserve for American Indians their 

inherent right to freedom to believe, express, and 

exercise the traditional religions of the American 

Indians, Eskimo, Aleut, and Native Hawaiians, 

including but not limited to access to sites, use and 

possession of sacred objects, and the freedom to 

worship through ceremonials and traditional rites.

The National Park Service recognizes that site-specifi c 

worship is vital to Native American religious practices. As 

a matter of policy and in keeping with the spirit of the law, 

and provided the criteria listed in section 8.2 for use of the 

parks are not violated, the Service will be as unrestrictive 

as possible in permitting Native American tribes access to 

park areas to perform traditional religious, ceremonial, 

or other customary activities at places that have been 

used historically for such purposes. In allowing religious 

access by other entities, including nonrecognized Indian 

groups, the Service will consider requests individually, 

being mindful not to take actions that will either advance or 

inhibit religion. The Service will not direct visitor attention 

to the performance of religious observances unless the 

Native American group so wishes. 

With regard to consumptive use of park resources, current 

NPS policy is refl ected in regulations published at 36 

CFR 2.1 and 36 CFR Part 13. These regulations allow 

superintendents to designate certain fruits, berries, nuts, 

or unoccupied seashells that may be gathered by hand 

for personal use or consumption if it will not adversely 

aff ect park wildlife, the reproductive potential of a plant 

species, or otherwise adversely aff ect park resources. The 

regulations do not authorize the taking, use, or possession 

of fi sh, wildlife, or plants for ceremonial or religious 

purposes, except where specifi cally authorized by federal 

statute or treaty rights or where hunting, trapping, or fi shing 

are otherwise allowed. 

When authorized under National Historic Preservation 

Act, the Archeological Resources Protection Act or other 

provisions of law, the Service will protect sacred resources 

to the extent practicable and in a manner consistent with 

the goals of American Indian tribes or other traditionally 

associated groups. The location and character of sacred 

sites will be withheld from public disclosure if disclosure 

will cause signifi cant invasion of privacy, risk harm to the 

historic resource, or impede the use of a traditional religious 

site by practitioners. 

Members of American Indian tribes or traditionally 

associated groups may enter parks for traditional 

nonrecreational activities without paying an entrance fee. 

The ceremonial use of peyote will be limited to members of 

the Native American Church during religious ceremonies, 

USE OF THE PARKS 8.4-8.5

111
MANAGEMENT POLICIES 2006

112 in accordance with regulations of the Department of Justice, 

Drug Enforcement Administration (“Special Exempt 

Persons, Native American Church,” 21 CFR 1307. 31). 

(See Relationship with American Indian Tribes 1.11; 

Consultation 5.2.1; Ethnographic Resources 5.3.5.3; fi rst 

Amendment Activities 8.6.3; Consumptive Uses 8.9. Also 

see Executive Order 13007 (Indian Sacred Sites); Director’s 

Orders #71A: Government-to-government Relationships 

with Tribal Governments, and #71B: Indian Sacred Sites) 

8.6 Special Park Uses

8.6.1 General 

A special park use is defi ned as an activity that takes place in 

a park area, and that

provides a benefi t to an individual, group, or 

organization rather than the public at large; 

requires written authorization and some degree of 

management control from the Service in order to 

protect park resources and the public interest; 

is not prohibited by law or regulation; 

is not initiated, sponsored, or conducted by the Service; 

and 

is not managed under a concession contract (see chapter 

10), a recreation activity for which the NPS charges a 

fee, or a lease (see chapter 5). 

8.6.1.1 Requests for Permits 

Using criteria and procedures outlined in Director’s Order 

#53: Special Park Uses, each request to permit a special 

park use or renew authorization of an existing use will be 

reviewed and evaluated by the superintendent according 

to the terms of applicable legislation, regulations, and 

management planning documents. When considering 

permit requests, superintendents will take into account 

the Service-wide implications of their decisions. A 

superintendent must deny initial requests or requests for 

renewal upon fi nding that the proposed activity would cause 

unacceptable impacts. The superintendent likewise must 

terminate previously authorized special park uses based on 

such a fi nding. 

(See Appropriate Use of the Parks 1.5; Unacceptable Impacts 

1.4.7.1; Process for Determining New Appropriate Uses 8.1.2)

8.6.1.2 Fees 

Cost recovery and performance bond and liability insurance 

requirements will be imposed, consistent with applicable 

statutory authorities and regulations. All costs incurred by 

the Service in receiving, writing, and issuing the permit, 

monitoring the permitted use, restoring park areas, or 

otherwise supporting a special park use may be paid by 

the permittee. The money will be retained by the park as 

reimbursement.

When appropriate, the Service will also collect a fee for the 

use of the land or facility based on a market evaluation. Fees 

collected for use of the land or facility will be deposited into 

the U.S. Treasury.

Based on the published schedule, commercial fi lming and 

still photography activities requiring a permit are subject 

to a location fee. The money will be retained by the Park 

Service in accordance with the fee demonstration program.

(See Park Management 1.4; Recreation Fees and Reservations 

8.2.6.; Special Events 8.6.2) 

8.6.2 Special Events 

8.6.2.1 General 

Special events—such as sports, pageants, regattas, public 

spectator attractions, entertainment, ceremonies, and 

encampments—may be permitted by the superintendent 

when (1) there is a meaningful association between the park 

area and the event, and (2) the event will contribute to visitor 

understanding of the signifi cance of the park area. However, 

a permit must be denied if the event would be disallowed 

under the criteria listed for unacceptable impacts in sections 

1.4.7.1 and 8.2. 

Superintendents must ensure that appropriate permit 

conditions are imposed for special events. Permit 

conditions are intended to mitigate damage to park 

resources and values while ensuring that any necessary 

resource restoration and rehabilitation is completed. 

Permit conditions should include conditions on resource 

protection as well as requirements for cost recovery and 

fees, a hold-harmless clause, liability insurance, and 

bonding. 

The Park Service will not permit the staging of an event in 

an area that is open to the public, or the closure of an area 

that is open to the public, when the event 

is conducted primarily for the material or fi nancial 

benefi t of a for-profi t entity; or 

awards participants an appearance fee or prizes of more 

than nominal value; or 

requires in-park advertising or publicity (unless the 

event is co-sponsored by the Service); or

charges a separate public admission fee. 

However, park buildings or specially designated locations 

that are suitable and appropriate may be made available for 

private, invitation-only events. Admission fees or any other 

monies associated with the event will not be collected by the 

permittee on park premises.

Large-scale events will be managed using the Incident 

Command System. Donor recognition associated with 

special events is addressed in Director’s Order #21: 

Donations and Fundraising.

(See Special Events 6.4.5; Personal Services 7.3.1; Cultural 

Demonstrators 7.5.7; Facilities for Arts and Culture 9.3.1.7. 

Also see Director’s Order #55: Incident Management Program; 

36 CFR 2.50; 36 CFR 7.96) 
8.6.2.2 Helium-fi lled Balloons 

Helium-fi lled balloons pose a danger to the health and 

safety of marine wildlife (such as sea turtles and sperm 

whales) and create a litter problem. Therefore, no releases 

of helium-fi lled balloons into the atmosphere within a 

park will be authorized, except for research or planning 

purposes. Releasing balloons indoors where they can be 

retrieved may be authorized under permit.

8.6.2.3 Fireworks Displays 

Fireworks displays will be considered unless they pose 

an unacceptable risk of wildland or structural fi re or 

will cause unacceptable impacts on park resources or 

values or jeopardize public safety. In all instances, the 

decision to approve or deny a request will be made by the 

superintendent following consultation with the regional 

safety offi cer. Fireworks displays will be conducted in 

compliance with the National Fire Protection Association 

Code for the Display of Fireworks (NFPA 1123).

8.6.2.4 Sale of Food or Merchandise 

The sale of food and merchandise in the parks may 

be allowed when managed under a commercial use 

authorization that does not confl ict with a concession 

contract and that complies with applicable public health 

codes and Director’s Order #83: Public Health. The sale of 

printed matter as defi ned in 36 CFR 2.52, 36 CFR 7.96(k) and 

Reference Manual 53 is allowed under a special use permit. 

The sale of products produced as part of living exhibits, 

interpretive demonstrations, or park programs is addressed 

in section 7.5.7. 

(See Commercial Use Authorizations 10.3)

8.6.3 First Amendment Activities 

The National Park Service will authorize the use of park 

land for public assemblies, meetings, demonstrations, 

religious activities, and other public expressions of 

views protected under the First Amendment of the U. S. 

Constitution, in accordance with 36 CFR 2.51 or 36 CFR 

7.96. To ensure public safety and the protection of park 

resources and values, and to avoid assigning the same 

location and time to two or more activities, the Service may 

manage these activities by issuing a permit to regulate the 

time, location, number of participants, use of the facilities, 

and number and type of equipment used, but not the content 

of the message presented. 

For all parks except those within designated portions of 

the National Capital Region, locations that are available for 

public assemblies and other First Amendment activities, 

including the sale and distribution of printed matter, will be 

so designated by the superintendent on a map in accordance 

with procedures and criteria found in NPS regulations (36 

CFR 1.5, 1.7, 2.51, and 2.52), unless the sites are otherwise 

protected from public disclosure, such as sites sacred to 

American Indians or sites with vulnerable natural and 

cultural resources. Selected National Capital Region parks 

are subject to special demonstration regulations found at 36 

CFR 7.96(g)(4)(iii) and do not have such areas designated by 

the superintendent. 

When the Service allows one group to use an area or facility 

for expressing views, it must provide other groups with 

a similar opportunity, if requested. No group wishing to 

assemble lawfully may be discriminated against or denied 

the right of assembly provided that all permit conditions are 

met. Whenever religious activities are conducted in parks, 

any NPS actions pertaining to them must refl ect a clearly 

secular purpose, must have a primary eff ect that neither 

advances nor inhibits religion, and must avoid “excessive 

governmental entanglement with religion.” 

NPS staff on duty in an area in which a First Amendment 

activity is being conducted will be neutral toward the 

activity, but will remain responsible for the protection of 

participants, spectators, private property, public property, 

and park resources. On-duty staff may not participate in a 

First Amendment activity. NPS employees exercising their 

First Amendment rights when off -duty must not in any way 

imply any offi cial NPS endorsement of the activity. 

When a permit is requested for the exercise of First 

Amendment rights, including freedom of assembly, speech, 

religion, and the press, the superintendent will issue the 

permit without any requirement for fees, cost recovery, 

bonding, or insurance. The superintendent will issue or 

deny a First Amendment permit request under 36 CFR 

2.51 within two (2) business days after receiving a proper 

application. In National Capital Parks subject to special 

demonstration regulations found at 36 CFR 7.96(g)(3), 

permits are deemed granted subject to all applicable 

limitations and restrictions, unless denied within 24 hours 

of receipt. 

(See Confi dentiality 5.2.3. Also see Reference Manual 53) 

8.6.4 Rights-of-Way for Utilities and Roads 

8.6.4.1 General 

A right-of-way is a special park use allowing a utility to pass 

over, under, or through NPS property. It may be issued only 

pursuant to specifi c statutory authority, and generally only if 

there is no practicable alternative to such use of NPS lands. 

The criteria listed in section 8.2 must also be met. New 

roads may not be permitted with a right-of-way permit, but 

require specifi c statutory authority. Procedures for roads are 

addressed in section 8.6.4.4.

Before a written application is submitted to the park, 

potential applicants for a right-of-way permit should meet 

with the staff to discuss the proposed project. Once an 

application for a right-of-way is submitted, a compliance 

analysis must be conducted according to NEPA, NHPA, and 

other statutory compliance requirements as appropriate. 

Due to the potentially high costs and values associated 

with rights-of-way, special attention will be paid to charges 

and a fair market value for use of the land. Permits will 

be drafted by park staff and should include terms and 

conditions necessary to protect park resources and values. 

New right-of-way permits will be executed by the regional 

director; conversions from other authorizing documents, 

amendments, and renewals of existing permits may be 

signed by the superintendent. A right-of-way permit issued 

USE OF THE PARKS 8.5-8.6

113
MANAGEMENT POLICIES 2006

114 by the Park Service is considered a temporary document and 

does not convey an interest in the land. The permit is subject 

to termination for cause or at the discretion of the regional 

director. 

NPS regulations pertaining to the issuance of rights-ofway are in 36 CFR Part 14; Department of the Interior 

regulations pertaining to rights-of-way in Alaska are found 

in 43 CFR Part 36. Additional guidance can be found in 

Director’s Order #53 and Reference Manual 53: Special 

Park Uses. A utility or road right-of-way proposed for a 

park in Alaska is subject to the authorities and procedural 

requirements of title XI of the Alaska National Interest 

Lands Conservation Act. 

(See Park Management 1.4, Rights-of-way 6.4.8. Also see 

Director’s Order #53) 

8.6.4.2 Utilities 

Utility rights-of-way over lands administered by the Park 

Service are governed by statutory authorities in 16 USC 5 

(electrical power transmission and distribution, radio and 

TV, and other forms of communication facilities) and 16 

USC 79 (electrical power, telephone, and water conduits). 

If not incompatible with the public interest, rights-ofway issued under 16 USC 5 or 79 are discretionary and 

conditional upon a fi nding by the Service that the proposed 

use will not cause unacceptable impacts on park resources, 

values, or purposes.

8.6.4.3 Telecommunication Sites

Requests to site non-NPS telecommunication antennas 

and related facilities on NPS lands will be considered in 

accordance with the Telecommunications Act of 1996 (47 

USC 332 note), which authorizes but does not mandate 

a presumption that such requests be granted absent 

unavoidable confl ict with the agency mission, or the current 

or planned use of the property or access to that property. 

The currently applicable government-wide procedures are 

contained in GSA Bulletin FPMR D-242. 

Superintendents will accept an application for 

a telecommunications site only from a Federal 

Communications Commission licensee or from an agency 

regulated by the Department of Commerce through 

the National Telecommunications and Information 

Administration. In recognition of the growing prevalence of 

wireless telecommunications, the manner in which the park 

will manage the technology and related facilities should be 

addressed in an appropriate planning document. 

As with other special park uses, telecommunication 

proposals must meet the criteria listed in sections 1.4.7.1 

and 8.2 to prevent unacceptable impacts. In addition, when 

considering whether to approve, deny, or renew permits, 

superintendents will 

hold preliminary meetings with telecommunication 

facility applicants to discuss pending applications and 

policy and procedural issues (such as the application 

process, impact analysis, estimated cost recovery 

charges and fees) and other NPS concerns. Similar 

meetings should be held during the decision-making 

process, as necessary, particularly if the superintendent 

is considering denying the application; 

conduct NEPA and NHPA analysis expeditiously and 

consistent with all applicable statutes and Director’s 

Order #12, and within timetables established pursuant 

to Director’s Order #53; 

consider the potential benefi t of having telephone 

access to emergency law enforcement and public safety 

services; 

consider whether the proposal would cause unavoidable 

confl ict with the park’s mission, in which case the 

permit will be denied. 

New facilities frequently require the installation of new 

electrical and telephone lines and vehicular access to the 

site. Superintendents will therefore evaluate the entire 

footprint of the new facilities when evaluating requests. 

Superintendents will avoid or minimize potential impacts 

of current and future telecommunications facilities 

by ensuring that the facilities and their supporting 

infrastructure

are located where they would have the least impact on 

park resources and values;

are not located in scenic, historic, and/or sensitive areas 

integral to the park’s mission;

include maximum potential for future co-location.

Superintendents will require the best technology 

available. For example, consideration should be given 

fi rst to co-locating new facilities, constructing towers 

that are camoufl aged to blend in with their surroundings, 

and installing micro-sites. New traditional towers (i.e., 

monopole or lattice) should be approved only after all 

other options have been explored. If a traditional tower is 

necessary, it should not be visible from any signifi cant public 

vantage point. 

As appropriate, superintendents should consider making 

use of available interpretive media to caution park users 

of the limited (or nonexistent) cellular service and their 

personal responsibility to plan accordingly.

When construction of telecommunication facilities on 

nonpark lands might adversely impact park resources and 

values, superintendents will actively participate in the 

applicable planning and regulatory processes and seek to 

prevent or mitigate the adverse impacts. 

(See Decision-making Requirements to Identify and Avoid 

Impairments 1.4.7; Cooperative Conservation Beyond 

Park Boundaries 1.6; Integration of Facilities into the Park 

Environment 9.1.1.2; Signs 9.3.1.1) 
8.6.4.4 Roads and Highways and 

 Petroleum-based Pipelines

There are no general NPS statutory authorities for non-NPS 

roads or for gas pipelines. However, such authorization is 

sometimes contained in park-specifi c enabling legislation. 

Roads and highways within the federal aid highway system 

are generally authorized by statutes found at 23 USC 107(d) 

or 317. The Service will generally object to proposals for 

the use of park lands for highway purposes that do not 

directly benefi t a park. A request for lands for road or 

highway purposes is subject to compliance with 23 USC 

138—commonly referred to as 4(f). The 4(f) evaluation is 

completed by the Secretary of Transportation and requires 

the concurrence of the Secretary of the Interior. Approved 

road or highway requests are authorized by a highway 

easement deed (not a right-of-way permit). 

(See Fees 8.6.1.2; Non-NPS Roads 9.2.1.2, Construction and 

Expansion Proposals 9.2.1.2.2. Also see Director’s Order 

#87D: Non-NPS Roads) 

8.6.5 Access to Private Property 

The Park Service will allow access to the private property 

of adjacent landowners and property of landowners within 

park boundaries, when 

it would contribute in a material way to the park’s 

mission without causing unacceptable impacts on park 

resources or values or the purposes for which the park 

was established; or 

access is the landowner’s right by law or by deed 

reservation. 

When one of these circumstances exists, commercial 

vehicles will be allowed access to private property only in 

accordance with 36 CFR 5.6, “Commercial Vehicles.” Access 

to nonfederal lands in Alaska that requires access across 

NPS-administered lands will be provided in accordance 

with the applicable regulations implementing title 11 of the 

Alaska National Interest Lands Conservation Act.

8.6.6 Filming and Photography 

8.6.6.1 General

The Service’s policies and procedures governing fi lming and 

photography are governed by Public Law 106-206 (16 USC 

460l-6d), which distinguishes fi lming from photography in 

that fi lming involves movement or motion of the subject, 

whereas photography does not (thus still photography is 

simply photography). Filming and photography activities—

whether commercial or noncommercial—will be allowed in 

parks provided that the activities do not cause unacceptable 

impacts under sections 1.4.7.1 or 8.2. For the purposes 

of NPS policy, fi lming and photography encompass any 

technology that may be used for recording images or the 

sound tracks associated with them. 

8.6.6.2 Permits and Fees 

A permit will not be required for a visitor’s personal, 

noncommercial fi lming and photography activities within 

normal visitation areas and hours. (Outside normal 

visitation areas and hours, a permit may be required.) 

However, all commercial fi lming activities will require a 

permit. Commercial fi lming means fi lming that involves 

the digital or fi lm recording of a visual image or sound 

recording by a person, business, or other entity for a market 

audience. This includes recordings such as those used for a 

documentary, television or feature fi lm, advertisement, or 

similar project. 

In accordance with Public Law 106-206, still photography 

(whether commercial or noncommercial) will not require a 

permit unless

it takes place at a location(s) where or when members of 

the public are generally not allowed, or 

it uses model(s) or prop(s) that are not a part of 

the location’s natural or cultural resources or 

administrative facilities, or 

the Park Service would need to provide management 

and oversight to prevent unacceptable impacts. 

Notwithstanding the above policies, commercial media 

coverage of breaking news never requires a permit. 

However, it is subject to the restrictions and conditions 

necessary to protect park resources from unacceptable 

impacts. 

Performance bond and liability insurance requirements 

must be met, and all costs incurred by the Service in writing 

the permit, monitoring, providing protection services, or 

otherwise supporting fi lming or photography activities 

will be reimbursed by the permittee as a condition of the 

permit. A location fee will also be required as a condition 

of the permit. The amount of the fee will be based on the 

fee schedule current at the time the permit is approved. 

Neither the location fee nor the cost recovery charges may 

be waived. 

8.6.6.3 NPS Participation 

The Service’s participation is governed by the following: 

The Service will encourage and may actively assist 

fi lming and photography activities that promote public 

understanding and appreciation of the national park 

system, and the Director may authorize use of the 

arrowhead symbol for such fi lming projects. 

A superintendent may request a credit line, provided 

that the content or subject matter of the fi lming project 

would not refl ect adversely on the National Park 

Service. 

NPS employees, while on duty or in uniform, will not be 

employed by fi lming permittees. 

Identifi able NPS equipment, uniforms, or insignia must 

not be portrayed in any way that would imply Service 

endorsement of a product or service. 

The Service will not censor the content of any 

fi lming project, or require fi nished fi lm products for 

review, fi les, or documentation purposes. However, 

a superintendent may review a story board or other 

material if requested by the applicant to help determine 

whether (1) the information about the park is accurate, 

USE OF THE PARKS 8.6

115
MANAGEMENT POLICIES 2006

116 (2) a credit line would be appropriate, or (3) it would be 

appropriate for the Service to actively assist a fi lming 

activity or authorize use of the arrowhead symbol. 

Additional guidance is provided by Director’s Order #53: 

Special Park Uses; and by Reference Manual 53. 

(Also see Director’s Order #52D: Use of the Arrowhead 

Symbol)

8.6.7 Agricultural Uses 

Agricultural uses and activities are authorized in parks in 

accordance with the direction provided by a park’s enabling 

legislation and general management plan. Agricultural 

practices and techniques, including the use of pesticides 

and other biocontrol agents such as genetically modifi ed or 

engineered organisms, should be specifi ed in an approved 

resource stewardship strategy, and are subject to review 

and approval by the NPS integrated pest management 

(IPM) program manager. These practices and techniques 

are also subject to the provisions of federal and state laws, 

NPS regulations and policies, and Director’s Orders #53: 

Special Park Uses and #77-7: Integrated Pest Management. 

In general, agricultural activities should be conducted in 

accordance with accepted best management practices. 

Agricultural activities, including demonstration farms, 

prescribed to meet a park’s management objectives will be 

allowed if (1) they do not result in unacceptable impacts 

on park resources, values, or purposes; (2) they conform to 

activities that occurred during the historic period; and (3) 

they support the park’s interpretive themes. Agricultural 

uses that do not conform to those in practice during the 

historic period may be allowed if (1) they are authorized 

by the park’s enabling legislation, (2) they are retained as a 

right subsequent to NPS land acquisition, (3) they contribute 

to the maintenance of a cultural landscape, or (4) they 

are carried out as part of a living exhibit or interpretive 

demonstration. 

The Service may issue leases or special use permits to 

individuals or organizations to conduct agricultural 

activities that are allowed on park lands under the criteria 

listed in the preceding paragraph. The use of a lease (versus 

a special use permit) is appropriate only when (1) specifi cally 

authorized by the park’s enabling legislation, or (2) it is part 

of an historic leasing program authorized by 16 USC 470h-3, 

or (3) it is associated with a building that is leased pursuant 

to 16 USC 1a-2( k). NPS and concession employees living 

in parks may cultivate gardens for personal use under the 

terms and conditions established by the superintendent. 

Such use will not be permitted if it would have unacceptable 

impacts on park resources, values, or purposes or visitor 

enjoyment thereof. In urban parks, areas may be designated 

for community recreational gardening under the same 

conditions. 

(See Levels of Park Planning 2.3; Biological Resource 

Management 4.4; Pest Management 4.4.5; Cultural 

Landscapes 5.3.5.2; Personal Services 7.3.1; Process for 

Determining New Appropriate Uses 8.1.2. Also see Director’s 

Order #77-7: Integrated Pest Management)

8.6.8 Domestic and Feral Livestock 

8.6.8.1 General 

Livestock uses in parks fall into four categories: (1) 

recreational pack and saddle stock use, (2) administrative 

stock use, (3) agricultural (commercial and administrative) 

grazing, and (4) trespass and feral stock. Grazing that is 

incidental to the recreational use of stock is regulated by 

the horse and pack stock regulations at 36 CFR 2.16, and the 

policy direction for such use is discussed in section 8.2.2.8. 

Agricultural stock use regulations are found at 36 CFR 2.60. 

8.6.8.2 Managing Agricultural Grazing

Agricultural (commercial and administrative) grazing 

occurs in some parks. The Park Service will only allow 

agricultural grazing in parks where it is

specifi cally authorized by federal law, or

required under a reserved right of use arising from the 

acquisition of a tract of land, or

required to maintain an historic scene, or

carried out as part of a living exhibit or interpretive 

demonstration; or

used to achieve resource conditions (e.g., using sheep to 

remove leafy spurge) as part of an IPM plan, and

does not cause unacceptable impacts on park resources 

and values.

The National Park Service must manage its resources in a 

manner that conserves them for future generations. Parks 

with agricultural livestock use, including parks where such 

use is administered by another agency, must address this 

use in an appropriate planning document. Agricultural 

livestock grazing will use best management practices to 

protect park resources, with particular attention being 

given to protecting wetland and riparian areas, sensitive 

species and their habitats, water quality, and cultural 

resources. Managers must regulate livestock so that (1) 

ecosystem dynamics and the composition, condition, and 

distribution of native plants and animal communities are 

not signifi cantly altered or otherwise threatened; and (2) 

cultural values are protected. A comprehensive monitoring 

program must be implemented, and adaptive management 

practices must be used to protect park resources. 

Integrated pest management methods must conform to NPS 

pest management policy in section 4.4.5.

8.6.8.2.1 Permitting Agricultural Grazing

Agricultural livestock activities by parties other than the 

Park Service will be conducted only pursuant to the terms 

and conditions of a special use permit or lease. The use of a 

lease is appropriate only when (1) specifi cally authorized by 

the park’s enabling legislation, or (2) it is part of an historic 

preservation program authorized by 16 USC 470h-3, or (3) 

the livestock use is associated with a building that is leased 

pursuant to 16 USC 1a-2(k).

In addition to any other penalty provisions, violation of 

the terms and conditions of the permitting instrument 

may result in revocation of the livestock use privilege. In 
parks where the Park Service shares livestock allotment 

management with another government agency, or where 

through legislation another government agency administers 

the use, a general agreement between agencies is necessary 

to describe the relationship and responsibilities.

8.6.8.2.2 Structures for Agricultural Grazing

Appropriate structures may be approved by the National 

Park Service and may be allowed in parks when the 

structures

are consistent with a livestock management plan or 

another appropriate management plan; 

are consistent with park purposes and other applicable 

laws, regulations, or policies; and 

will not cause unacceptable impacts on park resources 

and values. 

The Service will not expend funds to construct or maintain 

livestock structures unless there is a direct benefi t to the 

protection of park resources. The permittee will generally 

be required to remove structures when livestock activities 

are no longer authorized.

(See Chapter 2: Park System Planning; Management of Exotic 

Species 4.4.4; Water Resource Management 4.6; Identifi cation 

and Designation of the Wilderness Resource 6.2; Grazing 

and Livestock Driveways 6.4.7; Equestrian Trails 9.2.2.3; 

Miscellaneous Management Facilities 9.4.5. Also see Director’s 

Order #77-3: Domestic and Feral Livestock Management, 

and Reference Manual 77-3; Director’s Order #53: Special 

Park Uses, and Reference Manual 53; Director’s Order #77-7: 

Integrated Pest Management)

8.6.8.3 Trespass and Feral Livestock

Livestock trespassing on park lands may be impounded and 

disposed of pursuant to the provisions of 36 CFR 2.60, with 

the owner charged for expenses incurred. Wild living or 

feral livestock having no known owner may also be disposed 

of in accordance with 36 CFR 2.60.

Parks having shared jurisdiction with state fi sh and wildlife 

agencies should coordinate with their counterparts in the 

determination of how a particular animal is classifi ed in that 

state. Good communication with state and other offi cials 

will be fostered to minimize confl icts.

8.6.9 Military Operations 

In general, military activities are discouraged in parks, 

except for study of military history at related NPS sites. 

Periodically, an armed services unit may request the use 

of park areas for noncombat exercises such as search-andrescue and outdoor survival. Determining when and where 

military units may conduct such activities is a discretionary 

decision of the superintendent. 

A permitted military activity must conform to the following 

conditions: 

A permit will be issued that clearly states all necessary 

conditions or stipulations to protect park resources and 

visitor safety. 

All applicable park rules and regulations will be 

followed. 

No weaponry will be carried, displayed, or used, 

except for ceremonial purposes or authorized public 

demonstrations.

The activity will be conducted away from visitor use 

locations and out of public view (except where a public 

demonstration is specifi cally authorized). 

The military organization will designate a liaison offi cer 

who will be available to the superintendent throughout 

the exercise.

Permittees will be educated about how the purpose, 

mission, and regulations of the park diff er from 

their own missions, especially in regard to resource 

protection and visitor use and enjoyment. 

National security and law enforcement agencies, such 

as the Central Intelligence Agency, Federal Bureau of 

Investigation, Secret Service, Department of Homeland 

Security, and state police, may wish to conduct similar 

exercises. These requests should be evaluated in the same 

way as military special use requests. 

8.6.10 Cemeteries and Burials 

8.6.10.1 National Cemeteries 

All NPS-administered national cemeteries will be managed 

as historically signifi cant resources and as integral parts of 

larger historical parks. Burials in national cemeteries will be 

permitted, pursuant to applicable regulations, until available 

space has been fi lled. The management and preservation 

of national cemeteries are subject to the provisions of the 

National Cemeteries Act of 1973; NPS “National Cemetery 

Regulations” (36 CFR Part 12); and Director’s Order #61: 

National Cemeteries. 

The enlargement of a national cemetery for additional 

burials constitutes a modern intrusion, compromising the 

historical character of both the cemetery and the historical 

park, and will not be permitted. 

8.6.10.2 Family Cemeteries 

The burial of family members in family cemeteries that 

have been acquired by the Park Service in the course of 

establishment of parks will be permitted to the extent 

practicable, pursuant to applicable regulations, until space 

allotted to the cemeteries has been fi lled. Family members 

(or their designees) will be allowed access for purposes of 

upkeep and commemoration (such as wreath-laying and 

religious rituals) that do not jeopardize safety or resource 

protection. Whenever applicable, park managers will keep 

active fi les on cemeteries for the purpose of responding to 

requests and inquiries. 

(Also see Director’s Order #19: Records Management) 

8.6.10.3 Other Burials and the Scattering of Ashes 

Other burials or reinterments outside established cemeteries 

in parks will be prohibited except where permitted by 

cultural resource policies. The scattering of ashes from 

cremation may be permitted by a superintendent, in 

USE OF THE PARKS 8.6

117
MANAGEMENT POLICIES 2006

118 accordance with NPS general regulations in 36 CFR 2.62 

and applicable state laws. Authorization to scatter ashes 

must take into account potential confl icts with the spiritual 

or cultural practices of the indigenous people associated 

with the area. 

(See Stewardship of Human Remains and Burials 5.3.4; 

Cultural Resources 6.3.8, Consultation 7.5.6) 

8.6.11 Other Special Park Uses 

Other special park uses that may be allowed under permit or 

special regulations include the use of explosives and the use 

of portable power equipment. Specifi c guidance is provided 

in 36 CFR Part 2; Director’s Order #53: Special Park Uses; 

and Reference Manual 53. 

8.7 Mineral Exploration and Development

Mineral exploration and development include exploration, 

extraction, production, storage, and transportation 

of minerals. Mineral exploration or development may 

be allowed in parks only when prospective operators 

demonstrate that they hold rights to valid mining claims, 

federal mineral leases, or nonfederally owned minerals. If 

this right is not clearly demonstrated, the National Park 

Service will inform the prospective operator that, until 

proof of a property right is documented, the Service will not 

further consider the proposed activity. Unless otherwise 

directed by Congress, if the Service determines that the 

proposed mineral development would impair park resources 

or values, or that such development is not consistent with 

park purposes or does not meet approval standards under 

applicable NPS regulations and cannot be suffi ciently 

modifi ed to meet those standards, the Service will seek to 

extinguish the associated mineral right through acquisition. 

In some parks, all or certain types of mineral development 

are specifi cally prohibited by law. 

All persons who conduct mineral development within 

parks will do so only in conformance with applicable 

statutes, regulations, and NPS policies. These statutes 

include the Mining in the Parks Act, the Mineral Leasing 

Act, the Acquired Lands Mineral Leasing Act, the Surface 

Mining Control and Reclamation Act of 1977, the National 

Park System General Authorities Act, the Alaska National 

Interest Lands Conservation Act, and enabling statutes for 

individual parks. Applicable regulations include 36 CFR 

Part 9, Subpart A and Subpart B; 43 CFR Parts 3100-3500; 

and special use regulations. 

Persons may not use or occupy surface lands in a park for 

purposes of removing minerals outside the park unless 

provided for in law. General management plans, land 

protection plans, and other planning documents for parks 

with mining claims, federal mineral leases, or nonfederally 

owned mineral interests will address these nonfederal 

property interests as appropriate. Lands with mineral 

interests will be zoned according to their anticipated 

management and use—based on their resource values, 

park management objectives, and park-specifi c legislative 

provisions relating to mineral interests. 

(See Levels of Park Planning 2.3; Land Protection Plans 3.3; 

Identifi cation and Designation of the Wilderness Resource 6.2; 

Mineral Development 6.4.9) 

8.7.1 Mining Claims 

The location of new mining claims pursuant to the General 

Mining Act of 1872 is prohibited in all park areas. Under 

the Mining in the Parks Act, the National Park Service may 

permit mineral development only on existing patented and 

valid unpatented mining claims in conformance with the 

park’s enabling legislation and the regulations for mining 

claims in 36 CFR Part 9, Subpart A. The Service may initiate 

a validity examination on unpatented mining claims at 

any time. The Service will require a validity examination 

of all unpatented mining claims before approving any 

operations on such claims in accordance with 36 CFR Part 9, 

Subpart A. However, a validity examination is not required 

before NPS authorization of activities that are conducted 

only to reclaim a site. All mineral development and use of 

resources in connection with a claim will be confi ned to 

the boundaries of the claim itself, except for the access and 

transport that are permitted under 36 CFR Part 9, Subpart 

A; or, for Alaska, 43 CFR Part 36. 

8.7.2 Federal Mineral Leases 

All parks are closed to new federal mineral leasing except for 

three national recreation areas (Lake Mead, Whiskeytown, 

and Glen Canyon) where Congress has explicitly authorized 

federal mineral leasing in each area’s enabling legislation. 

Through park planning documents, the National Park 

Service has closed portions of these areas to federal mineral 

leasing because of the presence of sensitive resources. No 

person may explore for federal minerals in any of these 

areas except under a lease issued pursuant to regulations 

in 43 CFR Part 3100 or a prospecting permit pursuant 

to 43 CFR 3500. Before consenting to a federal mineral 

lease or subsequent mineral development connected with 

a lease, the regional director must fi nd, in writing, that 

leasing and subsequent mineral development will not 

result in a signifi cant adverse eff ect on park resources or 

administration. 

Some park areas contain leases that existed at the time 

the park was created or expanded. These leases are valid 

existing rights and will continue to exist until they expire 

under the regulations that govern federal mineral leasing (43 

CFR Parts 3100 and 3500). 

8.7.3 Nonfederally Owned Minerals 

Nonfederal mineral interests in park units consist of oil 

and gas interests, rights to mineral interests other than oil 

and gas (such as private outstanding mineral rights, mineral 

rights through general land grant patents, homestead 

patents, or other private mineral rights that did not derive 

from the General Mining Act). The Park Service governs 

activities associated with these two categories of nonfederal 

mineral rights under separate regulatory schemes. 

The Park Service may approve operations associated with 

nonfederal oil and gas interests under the standards and 

procedures in 36 CFR Part 9, Subpart B. If an operator’s plan 
fails to meet the approved standards of these regulations, 

the Park Service generally has authority to deny the 

operation and may initiate acquisition. Absent a decision to 

acquire the property, application of the regulations is not 

intended to result in a taking of the property interest, but 

rather to impose reasonable regulation of the activity. 

Operations associated with nonfederal mineral interests, 

other than oil and gas, are subject to the requirements of 36 

CFR Part 5, “Commercial and Private Operations,” and 36 

CFR 1.6. 

The Service must determine that operations associated with 

these mineral interests would not adversely impact “public 

health and safety, environmental or scenic values, natural 

or cultural resources, scientifi c research, implementation 

or management responsibilities, proper allocation and 

use of facilities, or the avoidance of confl ict among visitor 

use activities ....” If the impacts from the operation on 

the resource cannot be suffi ciently mitigated to meet this 

standard, the Park Service may seek to acquire the mineral 

interest. 

8.8 Collecting Natural Products

The collection of natural products for personal use or 

consumption is governed by NPS general regulations 

contained in 36 CFR 2.1 and 36 CFR Part 13. A 

superintendent may designate certain fruits, berries, nuts, 

or unoccupied seashells that can be gathered by hand for 

personal use or consumption upon a written determination 

by the superintendent that such an activity will not adversely 

aff ect park wildlife or the reproductive potential of a plant 

species or otherwise adversely aff ect park resources. In 

some cases, peer-reviewed scientifi c information may be 

needed to support the determination. The regulations do 

not authorize the taking, use, or possession of fi sh, wildlife, 

or plants for ceremonial or religious purposes, except where 

specifi cally authorized by federal statute or treaty rights or 

where hunting, trapping, or fi shing are otherwise allowed. 

The collection of minerals or rocks for personal use will be 

allowed only when specifi cally authorized by federal law or 

treaty rights. 

The gathering of fi rewood will be allowed only where 

subsistence use is authorized by federal law, or in specifi c 

areas designated by a superintendent in which dead and 

down wood may be collected for campfi res or in small 

quantities for other uses within the park. Natural resource 

products that accumulate as a result of site clearing for 

development, hazard tree removal, vista clearing, or other 

management actions will be recycled through the ecosystem 

when practicable. When recycling is not practicable, the 

products may be disposed of by other means. Disposal may 

be accomplished by contract, if the result of the work done 

under contract and the value are calculated in the contract 

cost, or by sale at fair market value in accordance with 

applicable laws and regulations. Wood that accumulates as a 

result of the management actions described above may also 

be used for park purposes, such as heating public buildings 

or offi ces or for interpretive campfi re programs. 

(See Consumptive Uses 8.9, Natural and Cultural Studies, 

Research, and Collection Activities 8.10. Also see Director’s 

Order #18: Wildland Fire Management) 

8.9 Consumptive Uses

Consumptive uses of park resources may be allowed only 

when they are

specifi cally authorized by federal law or treaty rights 

(such as hunting, trapping, or mining, or subsistence 

use in specifi cally identifi ed parks); 

specifi cally authorized pursuant to other existing rights 

(such as a right retained by a donor of the land on which 

the use would occur); 

grazing activities authorized in accordance with section 

8.6.8.1; or 

traditional visitor activities, such as fi shing or berry 

picking, that are authorized in accordance with NPS 

general regulations. 

As a matter of policy, the Service generally supports the 

limited and controlled consumption of natural resources for 

traditional religious and ceremonial purposes and is moving 

toward a goal of greater access and accommodation. As a 

general matter, a superintendent may not allow consumptive 

use of park resources by any particular group to the 

exclusion of others. 

Current NPS policy is refl ected in regulations published 

at 36 CFR Part 13. The general regulations at 36 CFR 2.1 

allow superintendents to designate certain fruits, berries, 

nuts, or unoccupied seashells that may be gathered by hand 

for personal use or consumption if it will not adversely 

aff ect park wildlife, the reproductive potential of a plant 

species, or otherwise adversely aff ect park resources. The 

regulations do not authorize the taking, use, or possession 

of fi sh, wildlife, or plants for ceremonial or religious 

purposes, except where specifi cally authorized by federal 

statute or treaty rights or where hunting, trapping, or fi shing 

are otherwise allowed.

The 36 CFR Part 13 regulations address the consumptive 

use of park resources for subsistence purposes in Alaska, 

where it is allowed in the 10 parks and “expanded areas” 

established by the Alaska National Interest Lands 

Conservation Act. Some park-specifi c enabling acts (e.g., 

Big Cypress National Preserve and Kaloko-Honokohau 

National Historical Park) also allow subsistence or other 

traditional uses of park resources. 

(See Park Management 1.4; Harvest of Plants and Animals by 

the Public 4.4.3; Resource Issue Interpretation and Education 

7.5.3; General 8.; Use by American Indians and Other 

Traditionally Associated Groups 8.5. Also see 36 CFR Part 13, 

Subpart B) 

USE OF THE PARKS 8.6-8.9

119
MANAGEMENT POLICIES 2006

120 8.10 Natural and Cultural Studies, Research, 

 and Collection Activities

Studies, research, and collection activities by non-NPS 

personnel involving natural and cultural resources will be 

encouraged and facilitated when they otherwise comport 

with NPS policies. Scientifi c activities that involve fi eld 

work or specimen collection, or that have the potential 

to disturb resources, the visitor experience, or park 

operations, require a permit issued by the superintendent 

that prescribes appropriate conditions for protecting park 

resources, visitors, and operations. Such studies may require 

additional permits from other jurisdictions.

(See Studies and Collections 4.2; Independent Research 5.1.2; 

Independent and Commercial Studies 8.11.3) 

8.11 Social Science Studies

8.11.1 General

Understanding the changing demographics of our nation is 

critical to the future of the National Park Service. The Park 

Service will actively seek to better understand the values 

and connections the changing U.S. population has, or does 

not have, for our natural and cultural heritage so that the 

Service can be responsive and relevant to public needs and 

desires. This includes understanding why people do or do 

not visit national parks.

The National Park Service will facilitate social science 

studies that support the NPS mission by providing 

an understanding of park visitors, the nonvisiting 

public, gateway communities and regions, and human 

interactions with park resources. This approach will 

provide a scientifi c basis for park planning, development, 

operations, management, education, and interpretive 

activities. Investigators will be encouraged to use the parks 

for scientifi c studies whenever such use is consistent with 

NPS policies that recognize the scientifi c value of parks as 

laboratories. Specifi c guidance is provided in Director’s 

Orders #75A: Civic Engagement and Public Involvement, 

and #78: Social Science. 

Studies include short- or long-term scientifi c investigations 

in NPS areas that may involve social science surveys and 

research. The data and information acquired through 

scientifi c activities conducted in the parks will be 

made broadly available to park managers, the scientifi c 

community, and the public, except where legal restrictions 

apply. Studies may include both internally and externally 

conducted projects by researchers and scholars with 

universities; foundations and other nongovernmental 

organizations; federal, state and local agencies; chambers 

of commerce; industry organizations; and NPS staff . 

The Park Service will promote cooperative relationships 

with educational and scientifi c institutions and qualifi ed 

individuals (1) when specialized expertise exists that can 

be of signifi cant assistance to the Service in obtaining 

information, and (2) when the opportunity for research and 

study in the parks off ers institutions a signifi cant benefi t 

to their programs. NPS facilities and assistance may be 

made available to qualifi ed researchers conducting NPSauthorized studies. NPS or other federally funded studies 

that rely on survey instruments or focus groups are strictly 

regulated and must be approved by the Park Service, the 

Department of the Interior, and the Offi ce of Management 

and Budget before they can be used to gather information 

directly from visitors or the general public. 

(See Managing Information 1.9.2; Studies and Collections 

4.2; Research 5.1, Planning 5.2; Appropriate Use 8.1.1; Special 

Park Uses 8.6; NPS-supported Studies 8.11.2; Independent 

and Commercial Studies 8.11.3; Department of the Interior 

Interim Guidelines for Collection of Information from the 

Public. Also see Director’s Order #17: Tourism)) 

8.11.2 NPS-supported Studies 

The National Park Service is responsible for the 

identifi cation and acquisition of needed inventory, 

monitoring, and research, as well as for the interpretation 

of the management and operational implications of such 

studies. The Service will use the best available science to 

assist park managers in addressing management needs 

and objectives that have been identifi ed in legislation and 

planning documents. 

The Service will support studies to 

reach a level of understanding that will minimize 

“crisis” management; 

ensure a systematic and fully adequate park information 

base; 

provide a sound basis for policy, planning, and 

decision-making; 

develop eff ective strategies, methods, and technologies 

to predict, avoid, or minimize unacceptable impacts on 

resources, visitors, and related activities; 

determine causes of resource management problems; 

further understand park ecosystems and related human 

social systems, and document their components, 

condition, and signifi cance; 

evaluate visitor satisfaction with services, facilities, and 

recreational opportunities; 

ensure that the interpretation of park resources and 

issues refl ects current standards of scholarship for the 

history, science, and condition of the resources; 

evaluate performance measures in support of strategic 

plan goals;

establish economic measures and impact indicators of 

interest or importance;

improve understanding of local, regional, and national 

demographics and trends. 

Superintendents may authorize park staff to carry out 

routine duties without requiring a research/collecting 

permit. NPS-supported research will rely on high-quality 

methods and undergo peer review. NPS-supported scientists 

will be expected to publish their fi ndings in refereed 

journals, among other outlets. 
8.11.3 Independent and Commercial Studies 

Non-NPS social science studies conducted in parks are not 

required to address specifi cally identifi ed NPS management 

issues or information needs. However, these studies 

(excluding research in museum collections) require an 

NPS research/collecting permit. Pursuant to the terms and 

conditions of the permit, the studies must conform to NPS 

policies and other guidance regarding activities such as 

the collection and publication of data, conduct of studies, 

and wilderness restrictions. NPS research/collecting 

permits may also include requirements that permittees 

provide parks, within reasonable time-frames, with the 

appropriate fi eld notes (subject to ethical guidelines of the 

appropriate discipline), data, information about the data, 

catalog data, progress reports, interim and fi nal reports, 

and publications derived from the permitted activities. 

Projects will be administered and conducted only by fully 

qualifi ed personnel, and will conform to current standards 

of scholarship. 

The collection of data from the public and employees 

to support the research, development, and marketing of 

commercial products or services may be permitted only in 

limited circumstances. Such activity will not be permitted 

when the superintendent determines that it would impose 

an undue burden on visitors and/or employees, and/or when 

it has the potential to adversely impact park resources or 

detract from visitors’ experiences in the park. All necessary 

data collection permits must be obtained, including a 

scientifi c research and collecting permit and the permission 

of the superintendent. Names and addresses and any other 

unique identifying information collected from park visitors 

and/or employees cannot be distributed, shared, or sold for 

commercial purposes. 

(Also see Director’s Order #84: Library Management) 

8.11.4 Management and Conduct of Studies 

All studies in parks will employ nondestructive methods 

to the maximum extent possible to avoid the irretrievable 

commitment of park resources. Studies will be preceded 

by an approved scope of work, proposal, or other detailed 

written description of the work to be performed. 

(See Studies and Collections 4.2. Also see Director’s Order #74: 

Studies and Collecting) 

8.12 Leases 

In accordance with 36 CFR Part 18, the National Park 

Service may enter into a lease for the use of any park 

property—historic or nonhistoric (except nonhistoric 

land)—if the following determinations are fi rst made by 

the appropriate regional director (who may redelegate this 

authority to superintendents):

(1) The lease will not result in degradation of the purposes 

and values of the park area.

(2) The lease will not deprive the park area of property 

necessary for appropriate park protection, 

interpretation, visitor enjoyment, or administration.

(3) The lease contains such terms and conditions as will 

ensure that the leased property will be used for an 

activity and in a manner that are consistent with the 

purposes established by law for the park area in which 

the property is located.

(4) The lease is compatible with NPS programs.

(5) The lease is for rent at least equal to the fair market 

value rent of the leased property.

(6) The proposed activities under the lease are not subject 

to authorization through a concession contract, 

commercial use authorization, or similar instrument. 

(7) If the lease includes historic property, the lease will 

adequately ensure the preservation of the historic 

property. (In addition, a lease that includes historic 

property may be executed by the Park Service only after 

compliance with the CFR Part 800, the commenting 

procedures of the Advisory Council on Historic 

Preservation).

It is likely that lease uses will be permissible under 

paragraph (6) if

the leased property where the proposed services are to 

be provided is not near a particular visitor destination 

of the park area, and 

the patrons of the lessee are expected to be primarily 

persons who come to the park area only to use the 

lessee’s services. 

8.12.1 Additional Criteria

All leases must be at fair market value. 

The term of the lease will be the shortest time needed 

for the proposed use, taking into account required 

lessee investments and other factors related to 

determining an appropriate lease term. 

No lease will exceed 60 years. 

Lease terms may not be extended except that leases 

with a term of one (1) year or more may be extended 

once for a period not to exceed one (1) additional year if 

it is determined that an extension is necessary because 

of circumstances beyond NPS control.

8.12.2 Prior Approval

No lease instrument may be awarded or amended without 

prior written approval by the Solicitor’s Offi ce.

Prior to their execution by a regional director or 

superintendent, the Director must approve—

proposed leases with terms of more than ten (10) years;

proposed leases or lease amendments that provide for a 

leasehold mortgage or similar encumbrance; and

proposed amendments of existing leases that required 

the Director’s approval prior to execution. 

USE OF THE PARKS 8.10-8.12

121
MANAGEMENT POLICIES 2006

122 8.12.3 Noncompetitive Awards

The Service generally may not enter into a Part 18 lease 

without issuing a Request for Bids or a Request for 

Proposals. The Service may, however, enter into Part 18 

leases on a noncompetitive basis in two circumstances:

(1) The Part 18 lease is with a nonprofi t organization or 

a unit of government and the Service determines that 

the nonprofi t or governmental use of the property will 

contribute to the purposes and programs of the park 

area; or 

(2) The lease is short-term (sixty (60) continuous days 

or less) and the Service determines that to award 

the lease noncompetitively is in the best interests of 

the administration of the park area. This authority 

is not limited to nonprofi t organizations or units of 

government; any qualifi ed person or entity may be 

awarded a lease with a term of sixty (60) days or less. 

These leases cannot require any rehabilitation or 

improvements to the applicable property.

Noncompetitive leases must in all other ways meet the 

requirements of 36 CFR Part 18 and Director’s Order #38: 

Real Property Leasing. 

8.12.4 Historic Properties

If a lease agreement requires or allows the lessee to 

maintain, repair, rehabilitate, restore, or build upon historic 

property, the work must be done in accordance with the 

Secretary of the Interior’s Standards and Guidelines for 

Archeology and Historic Preservation and other NPS 

policies, guidelines, and standards.
9

Park Facilities

The National Park Service will provide visitor and administrative 

facilities that are necessary, appropriate, and consistent with the 

conservation of park resources and values. Facilities will be harmonious 

with park resources, compatible with natural processes, esthetically 

pleasing, functional, energy- and water-effi cient, cost-eff ective, 

universally designed, and as welcoming as possible to all segments 

of the population. NPS facilities and operations will demonstrate 

environmental leadership by incorporating sustainable practices to the 

maximum extent practicable in planning, design, siting, construction, 

and maintenance.

More people are able to 

enjoy their visit when

park facilities are 

designed and constructed 

to meet universal design 

standards.
MANAGEMENT POLICIES 2006

124 9.1 General 

The Organic Act, which created the National Park Service 

in 1916, directs the Service to conserve park resources 

“unimpaired” for the enjoyment of future generations. 

The 1970 National Park System General Authorities Act, as 

amended in 1978, prohibits the Service from allowing any 

activities that would cause derogation of the values and 

purposes for which the park units have been established. 

Taken together, these two laws impose on NPS managers 

a strict mandate to protect park resources and values. 

(Throughout Management Policies, “impairment” is 

construed to also encompass “derogation.”) In protecting 

park resources and values, the Service will demonstrate 

environmental leadership and a commitment to the 

principles of sustainability and asset management in all 

facility developments and operations. This commitment will 

be made obvious to the public in the choices and decisions 

that are made, and through appropriate educational 

opportunities. 

Support facilities necessary to house, transport, inform, 

and serve visitors and staff require proper planning, design, 

programming, construction, operation, and maintenance. 

The Service must avoid the construction of buildings, roads, 

and other development that will cause unacceptable impacts 

on park resources values. The Service must also avoid the 

future operation and maintenance costs of unnecessary or 

ineff ective facilities, regardless of how the asset investment 

is funded. The Service must also recognize the ongoing 

operations and maintenance costs of its facilities and be 

able to sustain them over time. Therefore, the Service will 

not develop or redevelop a facility within a park until a 

determination has been made that the facility is necessary 

and appropriate, and that it would not be practicable for the 

facility to be developed or the service to be provided outside 

the park. This policy recognizes, for example, that a gas 

station or a grocery store may be necessary to park use and 

enjoyment, but that it may not need to be located within the 

park. Special considerations may be necessary in Alaska, 

given section 1306 of the Alaska National Interest Lands 

Conservation Act (16 USC 3196).

Partnership construction projects will be held to the same 

standards articulated above. In addition, where donated 

funds are used, the Service will follow the requirements of 

Director’s Order #21: Donations and Fundraising.

(See Park Management 1.4; Decision-making Requirements 

to Identify and Avoid Impairments 1.4.7; Evaluating Impacts 

on Natural Resources 4.1.3; Planning 5.2; Commercial 

Visitor Services Planning 10.2.2; Director’s Order #80: 

Asset Management; Director’s Order #21: Donations and 

Fundraising) 

9.1.1 Facility Planning and Design 

The protection of each park’s resources and values will be 

the primary consideration in facility development decisions. 

Facilities for visitor use and park management will be 

consistent with each park’s authorizing legislation, and 

with approved general management plans, development 

concept plans, and associated planning documents. The 

planning and design of park facilities will be accomplished 

by interdisciplinary teams constituted to meet the resource 

stewardship, programmatic, and technical requirements of 

the project. Public input will be sought at the earliest stage 

of planning and design, particularly in those cases where 

controversy is likely. 

The Park Service will meet its facility development needs 

in a cost-eff ective manner, ensuring that value is returned 

for every decision made. Only development projects 

that are shown to be an appropriate use of funds and 

economically feasible will be approved. Value analysis and 

value engineering techniques, such as functional analysis 

and cost evaluation, will be applied to achieve the lowest 

life-cycle cost that is consistent with environmental, energy 

performance, reliability, quality, safety, and resource 

protection requirements. Construction and operational 

cost estimates will be continually reviewed throughout the 

planning and development processes to avoid excessive, 

unwarranted, or unnecessary costs. Development projects 

will also be continually reviewed for opportunities to add 

value and benefi ts that will help achieve the NPS mission. 

Designs for park facilities, regardless of their origin (NPS, 

contractor, concessioner, or other), will use NPS facility 

models for space and function requirement and will be 

harmonious with and integrated into the park environment. 

They will also be subject throughout all phases of design 

and construction to the same code compliance; the same 

high standards of sustainable design, universal design, and 

functionality; and the same review and approval processes. 

NPS requirements for sustainable design and functionality 

include protection of the natural and cultural environments, 

resource conservation, energy conservation, pollution 

prevention, defensible space for fi re safety, and fostering 

education about sustainable design and practices. 

The Service will issue, and update as necessary, guiding 

principles for sustainable design to be applied throughout 

the national park system, consistent with federal 

regulations such as Executive Order 13123 (Greening the 

Government through Effi cient Energy Management), 

Executive Order 13101 (Greening the Government through 

Waste Prevention, Recycling and Federal Acquisition), 

and Executive Order 13327 (Federal Real Property Asset 

Management).

(See Levels of Park Planning 2.3; General Management 

Concepts 4.1; Lightscape Management 4.10. Also see Director’s 

Orders #13A: Environmental Management Systems; and #90: 

Value Analysis; NPS Guiding Principles of Sustainable Design) 

9.1.1.1 Life-cycle Costs 

The total cost of a system, facility, or other product will be 

considered in its planning, design, and construction. Total 

cost will be computed over a product’s or system’s useful life 

or other specifi ed period of time using economic analysis. 

Life-cycle costs include acquisition, shipping, initial 

construction or installation, operation and maintenance, 

environmental and energy consumption, water, wastewater, 
PARK FACILITIES 9.1

and the costs of eventual disposal or deconstruction of the 125

system, facility, and/or product. To the extent practicable, 

the waste implications of materials, products, and byproducts (including product life-cycle pollution) should 

be considered as part of life-cycle costs. When the cost of 

facility deconstruction is included in the life-cycle cost 

analysis, deductions may be factored in for the salvage value 

of the recyclable materials. 

(Also see Director’s Orders #13A: Environmental 

Management Systems; and #90: Value Analysis) 

9.1.1.2 Integration of Facilities 

 into the Park Environment

Whenever feasible and authorized by Congress, major park 

facilities—especially those that can be shared with other 

entities—should be developed outside park boundaries. The 

Service will encourage the private sector to meet facility 

needs in gateway communities and thus contribute to local 

economic development, encourage competition, increase 

choices for visitors, and minimize the need for in-park 

construction. Where possible, appropriate, and authorized, 

the Park Service will cooperatively establish and maintain 

administration/information facilities with other federal, 

state, or local entities. 

If facilities must be located inside park boundaries, the 

preferred locations will be those that minimize impacts 

on park resources and are situated to stimulate the use 

of alternative transportation systems, bicycle routes, 

and pedestrian walkways. Major facilities within park 

boundaries will be placed only in locations identifi ed in 

an approved general management plan or implementation 

planning document as being suitable and appropriate. 

Facility siting will take into account the need for protection 

from fi res and take maximum advantage of factors such as 

solar energy, wind direction and speed, natural landscaping, 

and other natural features. 

When structures are no longer functional in their present 

locations or are determined to be inappropriately placed in 

important resource areas, they will be removed subject to 

appropriate compliance.

When the determination has been made through a planning 

process that it is appropriate for a facility to be constructed 

within park boundaries, all facilities will be integrated 

into the park landscape and environs with sustainable 

designs and systems to minimize environmental impact. 

Development will not compete with or dominate park 

features or interfere with natural processes, such as the 

seasonal migration of wildlife or hydrologic activity 

associated with wetlands. 

If a cohesive design theme is desired, recommended, 

or required, the theme will refl ect the purpose and 

character of the park, or in a large park the theme will 

refl ect an individual developed area. Standard designs 

and components may be used, but they will be adapted as 

appropriate to the specifi c site and conditions as part of the 

design process. 

The full integration of facilities into the park environment 

will involve 

sensitivity to cultural, regional, esthetic, and 

environmental factors (e.g., solar orientation, prevailing 

winds, landscaping, vulnerability to wildfi re and other 

natural hazards) in the selection of site, construction 

materials, and forms; 

innovative concepts for grouping facilities and 

activities, both in the design of new development and 

in the redesign of existing complexes while building 

on the architectural and landscape elements already 

present; 

thorough interdisciplinary resource, user, and shortand long-term structure maintenance analyses; 

the long-term need for and sustainable use of water, 

energy, and waste disposal resources; 

assessment of the transportation and mobility needs of 

park visitors and concessioner and NPS employees, and 

of access to the park from gateway communities; and 

knowledge about the values and sociocultural interests 

of American Indians and other groups traditionally 

associated with the park.

(See Environmental Leadership 1.8; General Management 

Planning 2.3.1; Lightscape Management 4.10; Historic and 

Prehistoric Structures 5.3.5.4; Protection of Cultural Values 

9.1.1.3; Siting Facilities to Avoid Natural Hazards 9.1.1.5; 

Visitor Centers 9.3.1.3; Commercial Visitor Services Planning 

10.2.2) 

9.1.1.3 Protection of Cultural Values 

When important cultural resources are present, eff orts will 

be made to use existing contributing structures. New visitor 

or administration structures will harmonize with the area 

and the cultural resources in proportion, color, and texture. 

No attempt will be made to duplicate or mimic a historic 

design, nor will any modern construction be portrayed to 

the public as being historic. However, vernacular styles 

of architecture are appropriate when they provide visual 

compatibility with the cultural landscape. Application of 

the criteria of eff ect promulgated by the Advisory Council 

on Historic Preservation and compliance with the council’s 

regulations on “Protection of Historic Properties” (36 CFR 

Part 800) will precede any development. These criteria apply 

to all historic properties. 

(See Identifi cation and Evaluation of Resources 5.1.3; Planning 

5.2; Treatment of Cultural Resources 5.3.5. Also see Secretary 

of the Interior’s Standards and Guidelines for Archeology and 

Historic Preservation) 

9.1.1.4 Adaptive Use 

The National Historic Preservation Act and Executive 

Order 13006 (Locating Federal Facilities on Historic 

Properties) require each federal agency— before acquiring, 

constructing, or leasing buildings— to use, to the maximum 

extent feasible, historic properties available to it whenever 

operationally appropriate and economically prudent. 

(16 USC 470h-2(a)(1)). The act also requires each agency 
MANAGEMENT POLICIES 2006

126 to implement alternatives for the adaptive use of historic 

properties it owns if that will help ensure the properties’ 

preservation. Therefore, the adaptive use of historic and 

nonhistoric buildings for operations such as visitor centers, 

hostels, and administrative offi ces will be considered fi rst, 

before new construction, provided that (1) it can meet park 

objectives and current code requirements, (2) its use will not 

be an intrusion on signifi cant natural or cultural resources, 

and (3) a cost savings will be realized. Even when the cost of 

adaptive use is greater than new construction, it may still be 

justifi ed. Use of historic buildings will comply with all laws, 

regulations, and policies regarding the treatment and use of 

cultural resources.

(See Physical Access for Persons with Disabilities 5.3.2; Use of 

Historic Structures 5.3.5.4.7; Leases 8.12)) 

9.1.1.5 Siting Facilities to Avoid Natural Hazards 

The Service will strive to site facilities where they will not 

be damaged or destroyed by natural physical processes. 

Natural hazard areas include sites with unstable soils and 

geologic conditions, fault zones, thermal areas, fl oodplains, 

fl ash-fl ood zones, fi re-prone vegetation, and coastal 

high-hazard areas. Park development that is damaged or 

destroyed by a hazardous or catastrophic natural event 

will be thoroughly evaluated for relocation or replacement 

by new construction at a diff erent location. If a decision 

is made to relocate or replace a severely damaged or 

destroyed facility, it will be placed, if practicable, in an area 

that is believed to be free from natural hazards. In areas 

where dynamic natural processes cannot be avoided, such 

as seashores, developed facilities should be sustainably 

designed (e.g., removable in advance of hazardous storms 

or other conditions). When it has been determined that 

facilities must be located in such areas, their design and 

siting will be based on 

a thorough understanding of the nature of the physical 

processes; and 

avoiding or mitigating (1) the risks to human life and 

property, and (2) the eff ect of the facility on natural 

physical processes and the ecosystem. 

Requirements for development in fl oodplains and wetlands 

are contained in Executive Order 11988 (Floodplain 

Management); Executive Order 11990 (Protection of 

Wetlands); Director’s Orders #77-1: Wetland Protection and 

#77-10: Natural Resource Inventorying and Monitoring; and 

other NPS guidance documents. 

(See Levels of Park Planning 2.3; Floodplains 4.6.4; Wetlands 

4.6.5; Shorelines and Barrier Islands 4.8.1.1; Geologic 

Hazards 4.8.1.3; Visitor Safety and Emergency Response 

8.2.5; Concession Facilities 10.2.6) 

9.1.1.6 Sustainable Energy Design 

Any facility development, whether it is a new building, a 

renovation, or an adaptive reuse of an existing facility, must 

include improvements in energy effi ciency and reduction 

in greenhouse gas emissions for both the building envelope 

and the mechanical systems that support the facility. 

Maximum energy effi ciency should be achieved using 

solar thermal and photovoltaic applications, appropriate 

insulation and glazing strategies, energy-effi cient lighting 

and appliances, and renewable energy technologies. 

Energy-effi cient construction projects should be used as an 

educational opportunity for the visiting public.

All projects that include visitor centers or major visitor 

services facilities must incorporate LEED (Leadership in 

Energy and Environmental Design) standards to achieve a 

silver rating. 

9.1.2 Accessibility for Persons with Disabilities 

The Service will design, construct, and operate all buildings 

and facilities so they are accessible to and usable by persons 

with disabilities to the greatest extent reasonable, in accord 

with all applicable laws, regulations, and standards. This 

means that all new and altered buildings and facilities 

will comply with the General Services Administration’s 

regulations adopting accessibility standards for the 

Architectural Barriers Act of 1968 (41 CFR Part 102-76, 

Subpart C), and 43 CFR, Part 17, Subpart E, Enforcement of 

Nondiscrimination on the Basis of Handicap in Programs or 

Activities Conducted by the Department of Interior. It also 

means that some buildings and facilities will be modifi ed 

to ensure that programs can be provided in an accessible 

location. 

Accessibility will be provided consistent with preserving 

park resources and providing visitor safety and highquality visitor experiences. In most instances, the degree 

of accessibility provided will be proportionately related 

to the degree of human-made modifi cations in the area 

surrounding the facility and the importance of the facility 

to people visiting or working in the park. Accordingly, 

most administrative offi ces, some overnight visitor 

accommodations, some employee housing, and most 

interpretive and visitor service facilities will be accessible. 

Undeveloped areas, such as those outside the immediate 

infl uence of buildings and roads, will not normally be 

modifi ed, nor will special facilities be provided for the 

sole purpose of providing access to all segments of the 

population. Accessibility to facilities in threshold areas will 

be determined on the basis of topography, the signifi cance 

of the attraction, the number of physical modifi cations 

being made to the environment, and the modifi cations 

necessary to ensure programmatic accessibility. 

Transportation systems in parks, including water 

transportation, will have a suffi cient percentage of fully 

accessible vehicles or watercraft to provide eff ective services 

to persons with disabilities. In the case of existing systems, 

the necessary vehicles will be provided on a replacement 

or retrofi t basis. Until the transportation system has been 

made fully accessible, a separate accessible vehicle will be 

provided, or disabled persons will be allowed to drive their 

personal vehicles on otherwise-restricted roadways. In 

meeting the goal of accessibility, emphasis will be placed 

on ensuring that persons with disabilities are aff orded 
PARK FACILITIES 9.1

experiences and opportunities along with other visitors to 127

the greatest extent reasonable. Separate facilities for people 

with disabilities are not a substitute for full accessibility to 

other park facilities, but they may be allowed where the need 

for specialized services is clearly demonstrated. 

(See Physical Access for Persons with Disabilities 5.3.2; 

Accessibility for Persons with Disabilities 8.2.4; Accessibility of 

Commercial Services 10.2.6.2. Also see Director’s Order #42: 

Accessibility for Visitors with Disabilities in National Park 

Service Programs and Services) 

9.1.3 Construction 

The Service will incorporate sustainable principles and 

practices into design, siting, construction, building 

materials, utility systems, recycling of all unusable materials, 

and waste management. Best management practices will 

be used for all phases of construction activity, including 

preconstruction, actual construction, and postconstruction. 

Although construction of new assets is often a viable 

alternative for meeting visitor needs or protecting resources, 

the Service will consider nonbuild alternatives to meet its 

needs. The nonbuild alternative is developed and evaluated 

as part of the early facility planning and design process.

9.1.3.1 Construction Sites 

Construction sites will be limited to the smallest feasible 

area. The selection of construction sites will consider 

opportunities for taking advantage of natural sources of 

lighting, heating, and cooling (e.g., near an existing or 

potential stand of deciduous trees) to maximize energy 

conservation. Ground disturbance and site management 

will be carefully controlled to prevent undue damage 

to vegetation, soils, and archeological resources and to 

minimize air, water, soil, and noise pollution. Protective 

fencing and barricades will be provided for safety and to 

preserve natural and cultural resources. Eff ective storm 

water management measures specifi c to the site will be 

implemented, and appropriate erosion and sedimentation 

control measures will be in place at all times. Solid, volatile, 

and hazardous wastes will be avoided when possible. 

When they cannot be avoided, they will be properly stored, 

transported, and disposed of in compliance with federal, 

state, and local laws and regulations. All materials will be 

recycled whenever possible. 

A review and approval of any “hot work” (e.g., welding, 

use of open fl ame, grinding) will be done to ensure fi re 

safety at the construction site. Visual intrusions will be 

kept to a minimum. Construction equipment will be 

in satisfactory condition; i.e., it will be equipped with 

required safety components and not be leaking hazardous 

liquids or emitting hazardous or undesirable fumes above 

allowable legal limits. Care will be exercised to ensure that 

construction equipment and all construction materials 

imported into the park are free of undesirable species. The 

cost of restoring areas impacted by construction will be 

considered part of the cost of construction, and funding for 

restoration will be included in construction budgets. 

(See Air Resource Management 4.7; Water Resource 

Management 4.6; Soil Resource Management 4.8.2.4. Also see 

Denver Service Center specifi cations section 01570) 

9.1.3.2 Revegetation and Landscaping 

The selection of plant materials and cultivation practices 

will be guided by the policies for management of plant 

materials in section 4.4 and the need for fi re-resistant 

vegetation for defensible space. To the maximum extent 

possible, plantings will consist of species that are native 

to the park or that are historically appropriate for the 

period or event commemorated. The use of exotic plant 

species is restricted to situations that conform to the exotic 

species policy in section 4.4.4. Irrigation to maintain exotic 

plantings will be avoided, except when it is part of an 

approved management program essential to achieve park 

objectives and when adequate and dependable supplies of 

water are available. Low water use practices that measure 

soil moisture content and other technologies (such as drip 

irrigation and appropriate timing of water applications) 

should be employed. 

Prior to using soil fertilizers or other soil amendments in 

park natural or altered landscapes, parks must develop 

a prescription to ensure that the amendments will not 

unacceptably alter the physical, chemical, or biological 

characteristics of the soil, biological community, or surface 

or groundwaters. 

Wherever practicable, soils and plants aff ected by 

construction will be salvaged for use in site restoration. 

Any surplus soils and plants may be used, as appropriate, 

for the restoration of other degraded areas in the park. 

Surplus soils not used in this way should be stockpiled for 

future use. If additional soil and plants are needed to restore 

disturbed sites, they may be obtained from other sites in 

the park if it is determined that the use of an in-park source 

will not signifi cantly aff ect cultural or natural resources or 

ecological processes. In any case, imported soils must (1) be 

compatible with existing soils, (2) be free of undesired seeds 

and organisms, and (3) fulfi ll the horticultural requirements 

of plants used for restoration. 

(See Management of Native Plants and Animals 4.4.2; Genetic 

Resource Management Principles 4.4.1.2; Management 

of Exotic Species 4.4.4; Water Resource Management 4.6; 

Soil Resource Management 4.8.2.4; Cultural Landscapes 

5.3.5.2; Water Supply Systems 9.1.5.1; Wastewater Treatment 

Systems 9.1.5.2. Also see Executive Order 13148 (Greening 

the Government through Leadership in Environmental 

Management) section 207, “Environmentally and 

Economically Benefi cial Landscaping”) 

9.1.3.3 Borrow Pits and Spoil Areas 

Materials from borrow pits, quarries, and other clay, stone, 

gravel, or sand sources on NPS lands, including submerged 

lands, will be extracted and used only 

by the Park Service or its agents or contractors; 

for in-park administrative uses;
MANAGEMENT POLICIES 2006

128 after compliance with the National Environmental 

Policy Act and National Historic Preservation Act, 

including written fi ndings that 

 extraction and use of in-park borrow materials 

does not or will not impair park resources or 

values; and 

 it is the park’s most reasonable alternative based 

on economic, environmental, and ecological 

considerations; and 

 no outside sources are reasonably available;

after compliance with other applicable federal, state, 

and local requirements. 

Parks should use existing pits, quarries, or sources, or 

create new pits, quarries, or sources in the park only 

after developing and implementing a parkwide borrow 

management plan that addresses the cumulative eff ects 

of borrow site extraction, restoration, and importation. 

NPS guidance documents, as well as natural and cultural 

resources and facilities management staff , should be 

consulted during plan development and the review of 

specifi c proposals. 

In designated wild and scenic rivers, no new sources may 

be established, and existing sources should be closed and 

reclaimed. Borrow material may be extracted in proposed 

or designated wilderness areas only in small quantities for 

trail use and in accordance with an approved wilderness 

management plan. 

Spoil may be used for beach nourishment or another 

resource management activity only if the superintendent 

fi rst fi nds that the proposed nourishment or activity will 

not impair park resources and values and that the proposed 

activity is consistent with park planning documents. 

All existing spoil areas within park units that meet the 

defi nition of “solid waste disposal site” (36 CFR Part 6) 

will be brought into compliance with NPS solid waste 

regulations in 36 CFR 6.5. The development of new spoil 

areas or borrow pits, or the expansion of existing ones, will 

be analyzed through the NEPA and NHPA processes. In 

addition, superintendents will comply with NPS solid waste 

regulations and other specifi c NPS requirements. 

Proposed borrow pits and spoil areas outside parks will 

also be evaluated to ensure that use by the Service or its 

contractors does not impair resources or values inside 

the park, and that extraction operations comply with 

all applicable statutes and regulations, including the 

National Environmental Policy Act and National Historic 

Preservation Act. 

(See Decision-making Requirements to Identify and Avoid 

Impairments 1.4.7; Geologic Resource Management 4.8; 

Nonfederally Owned Minerals 8.7.3; Revegetation and 

Landscaping 9.1.3.2) 

9.1.4 Maintenance 

9.1.4.1 General 

There is a maintenance responsibility and cost for every 

asset that is administered by the National Park Service. A 

regular, periodic inventory and condition assessment of 

park assets will be performed to identify defi ciencies and 

to ensure the cost-eff ective maintenance of all facilities. 

The costs of operation and the useful life of facilities and 

equipment are directly related to the type and level of 

maintenance provided. Therefore, the Service will conduct 

a program of preventive and rehabilitative maintenance and 

preservation to (1) provide a safe, sanitary, environmentally 

protective, and esthetically pleasing environment for park 

visitors and employees; (2) protect the physical integrity 

of facilities; and (3) preserve or maintain facilities in their 

optimum sustainable condition to the greatest extent 

possible. Preventive and rehabilitative maintenance 

programs will incorporate sustainable design elements 

and practices to ensure that water and energy effi ciency, 

pollution prevention, and waste prevention and reduction 

are standard practice. 

(Also see NPS Solid Waste Management Handbook; Executive 

Order 13101 (Greening the Government through Waste 

Prevention, Recycling, and Federal Acquisition); Executive 

Order 13148 (Greening the Government through Leadership 

in Environmental Management); Executive Order 13149 

(Greening the Government through Federal Fleet and 

Transportation Effi ciency); Executive Order 13327 (Federal 

Real Property Asset Management); and Director’s Order #80: 

Asset Management) 

9.1.4.2 Acquisition of Environmentally Preferable 

and Energy-Effi cient Products

In carrying out its maintenance responsibilities, the Park 

Service will acquire environmentally preferable and energyeffi cient products, as required by the Solid Waste Disposal 

Act, federal regulations, and executive orders, and will 

strive to meet and exceed any Department of the Interior 

affi rmative acquisition goals that are established. The 

Service will consider a variety of attributes when purchasing 

products, including cost, energy effi ciency, biodegradability, 

toxicity, recovered material content, packaging, transport 

cost, and other life-cycle environmental impacts, such as 

disposal. The Service will actively pursue opportunities 

to test and demonstrate environmentally preferable and 

energy-effi cient products, consistent with its goal of 

demonstrating sustainable practices that avoid or minimize 

environmental impacts. 

(See Environmental Leadership 1.8; Concession Operations 

10.2.4. Also see Director’s Order #13A: Environmental 

Management Systems) 

9.1.5 Utilities 

Energy, water, and wastewater systems will be sited outside 

park boundaries whenever possible. In-park utilities will 

be as unobtrusive as possible and have the least possible 

resource impact. The Service will use municipal or other 

utility systems outside parks whenever economically and 
PARK FACILITIES 9.1

environmentally practicable, and it may participate, when 129

authorized, in cost-sharing with municipalities and others 

in meeting new, expanded, or replacement park utility 

needs. The Service will use the least polluting power supply 

options, either through on-site generation or through power 

purchases, where appropriate, available, and cost-eff ective, 

or where such purchase helps meet federal or state emissions 

goals or alternative energy goals. 

(See Utilities and Services 10.2.6.4. Also see Director’s Order 

#35A: Sale or Lease of Park Services, Resources, or Water 

in Support of Activities Outside the Boundaries of National 

Park Areas; and Director’s Order #35B: Sale of National Park 

Service-produced Utilities) 

9.1.5.1 Water Supply Systems 

The National Park Service will use water effi ciently and 

sustainably. Water systems will be designed to maximally 

conserve water and the energy used in its treatment and 

distribution. Water supply and delivery systems will be 

designed and maintained to provide suffi cient water to 

operate fi re sprinkler systems and fi re hydrants. Water 

effi cient devices will be installed in retrofi tting structures 

and building new structures. New water systems, or 

extensions to existing systems, will be constructed only 

if reasonable conservation measures will not be suffi cient 

to cover park needs. Where a new system or an expansion 

is justifi ed, the system must be properly sized, and the 

available or projected water supply must be suffi cient for 

expected needs. Where feasible and appropriate, and given 

resource availability, groundwater sources will generally be 

developed rather than surface water diversions in parks. 

Water supply systems and their operators must comply with 

all applicable state and federal health standards. Outdoor 

use of water will be limited to those applications deemed 

essential to park operations or to protect park values. 

Consistent with native plant policies, the Service will use 

effi cient methods for outdoor irrigation. Where appropriate, 

rainwater should be collected for uses such as maintenance 

of landscape features and general cleaning. 

(See Water Resource Management 4.6; Campgrounds 9.3.2.1; 

Comfort Stations 9.3.3. Also see Director’s Order #83: Public 

Health) 

9.1.5.2 Wastewater Treatment Systems 

New wastewater systems, or extensions or expansions of 

existing systems, will be constructed only if a determination 

has fi rst been made that reasonable conservation measures 

will not be suffi cient to cover park needs. In the selection 

of an appropriate method of wastewater treatment, factors 

such as all-season reliability, regulatory and public health 

issues, cost-eff ectiveness, and minimum adverse impact 

on the environment will all be considered. Alternatives 

to traditional methods may be used, especially in 

environmentally sensitive regions or in areas where water 

is in short supply. Where alternative technologies are used, 

such as composting toilets, there should be interpretation 

for visitors regarding the value of recycling organic solid 

waste. Wastewater will be adequately treated so that on its 

return to water courses or when recycled it meets or exceeds 

applicable state and federal water quality standards. 

Water and wastewater systems and their operators 

are subject to state and federal health standards. 

Superintendents must ensure that operators are certifi ed 

and that operations are inspected and conducted in 

accordance with all laws, regulations, and policies. 

(See Water Resource Management 4.6; Campgrounds 9.3.2.1; 

Comfort Stations 9.3.3; Miscellaneous Management Facilities 

9.4.5. Also see Director’s Order #83: Public Health) 

9.1.5.3 Utility Lines 

Where feasible, NPS utility lines will be placed 

underground, except where such placement would cause 

signifi cant damage to natural or cultural resources (such 

as historic structures or cultural landscapes). When placed 

aboveground, utility lines and appurtenant structures 

will be located and designed to minimize their impact on 

park resources and values. Whenever possible and visually 

acceptable, all utilities will share a common corridor and be 

combined with transportation corridors. Cost-eff ectiveness, 

reliability of service, and visual impact will be considered 

when deciding whether to install utility lines aboveground 

or underground. To minimize the impact of on-grid utility 

lines, consideration will be given to long-term, costeff ective, renewable-energy applications, such as the use of 

photovoltaic, wind, fuel cell, and/or bio-fuel technologies 

(either as stand-alones or as hybrid systems), particularly in 

remote areas. 

(See Potential Wilderness 6.2.2.1) 

9.1.5.4 Historic Utilities 

Utilities that were present during the historic period will 

be managed as cultural resources and governed by the 

same policies as other cultural resources. Where current 

aboveground needs require upgraded lines and facilities, 

they will conform insofar as possible to the appearance and 

location of the historic utilities. 

(See Treatment of Cultural Resources 5.3.5; Utility Lines 

9.1.5.3) 

9.1.6 Waste Management and Contaminant Issues 

The National Park Service recognizes the far-reaching 

impacts that waste products, contaminants, and wasteful 

practices have, not only on national park resources, but also 

on biotic and abiotic resources elsewhere in the nation and 

around the world. The Service will therefore demonstrate 

environmental leadership and serve as a model for others to 

follow in managing wastes and contaminants. 

9.1.6.1 Waste Management 

The Service will implement solid and hazardous waste 

management practices that integrate waste reduction, reuse, 

and recycling programs to minimize the generation and 

disposal of solid and hazardous waste at and from NPS sites. 
MANAGEMENT POLICIES 2006

130 For purposes of this section, solid and hazardous wastes 

include any materials that are so defi ned in the Solid Waste 

Disposal Act, as amended. The Service will require the 

use of biodegradable materials, the reuse and recycling of 

materials, and other appropriate measures to minimize solid 

waste and conserve natural resources to the fullest extent 

possible. Innovation in the use of recyclable or reusable 

materials is encouraged. For example, the Service may 

encourage the remanufacturing of recyclable materials into 

acceptable sales items for willing markets, including the 

Park Service.

The disposal in parks of solid wastes generated by nonNPS activities is, in most cases, incompatible with national 

park values. All disposal of solid waste on lands and waters 

within the boundaries of a unit of the park system, whether 

federally or nonfederally owned, must comply with NPS 

regulations in 36 CFR Part 6, which implement Public Law 

98-506 (16 USC 460l-22(c)). These regulations are designed 

to ensure that all activities associated with the operation of 

solid waste disposal sites within the boundaries of national 

park units are conducted in a manner that will (1) prevent 

the deterioration of air and water quality; (2) prevent the 

degradation of natural and cultural resources; and (3) 

reduce adverse eff ects on visitor enjoyment. In accordance 

with the spirit and intent of these requirements, the Park 

Service will, to the extent practicable, avoid the use of park 

lands for landfi lls by such means as (1) implementing waste 

minimization and substitution practices, (2) diverting 

material to recycling facilities or other appropriate 

locations, and (3) using storage or treatment facilities that 

meet or exceed DOI and all legal and regulatory standards 

for any generated waste that is not diverted. 

The Park Service will remove landfi ll operations and 

associated impacts from parks where feasible. Cooperative 

waste management solutions that minimize adverse impacts 

on park resources are also encouraged for areas where 

alternatives to landfi lling are scarce for both parks and 

adjacent communities. 

Open burning for solid waste disposal will not be permitted 

in parks, except in the very limited circumstances described 

in Director’s Order #18: Wildland Fire Management. 

Any hazardous waste that the Service generates will be 

disposed of separately from solid waste, in full accord with 

all applicable legal requirements. 

(See Air Quality 4.7.1; River Use 8.2.2.3; Backcountry Use 

8.2.2.4; Miscellaneous Management Facilities 9.4.5. Also see 

Director’s Order #18: Wildland Fire Management; Director’s 

Order #30A: Damage Assessments) 

9.1.6.2 NPS Response to Contaminants 

The Service will make every reasonable eff ort to prevent 

or minimize the release of contaminants on or that will 

aff ect NPS lands or resources, and the Service will take 

all necessary actions to control or minimize such releases 

when they occur. For purposes of this section, contaminants 

include any substance that may pose a risk to NPS resources 

or is regulated or governed by statutes referenced in this 

subsection. Prevention and minimization will include, but 

not be limited to, (1) the acquisition, use, and selection of 

non-toxic or less toxic materials; (2) implementation of 

safe use, storage, and disposal practices; (3) recycling of 

spent materials; (4) implementation of eff ective hazard 

communication programs for employees, contractors, 

concessioners, and visitors; (5) development and extension 

of appropriate emergency response programs; and (6) 

ensuring that parties responsible for contamination or 

threatened contamination of NPS property bear the 

responsibility for addressing such contamination. 

Activities pertaining to contaminants, including response 

actions or handling, acquisition, storage, transportation, 

and disposal of such substances, will comply with federal, 

state, and local laws and regulations including, but not 

limited to, (1) the Solid Waste Disposal Act, including the 

Resource Conservation and Recovery Act of 1976 and 

the Hazardous and Solid Waste Amendments of 1984, as 

amended; (2) the Comprehensive Environmental Response, 

Compensation and Liability Act of 1980; (3) the Oil Pollution 

Act of 1990; (4) the Clean Water Act; (4) the Hazardous 

Materials Transportation Act; and (5) the Toxic Substances 

Control Act. Such activities will also comply with the NPS 

integrated pest management program. 

The Service will identify, assess, and take response actions 

as promptly as possible to address releases and threatened 

releases of contaminants into the environment. Each park 

will have an oil and chemical spill response management 

plan for spills that result from NPS activities or from 

activities that are beyond NPS control (such as commercial 

through-traffi c on roads that pass through a park). The 

plans will place fi rst priority on responder and public 

safety. Employees will not be permitted to respond to 

hazardous materials spills unless they are properly qualifi ed 

and certifi ed in accordance with Director’s Order #30B: 

Hazardous Spill Response. 

The Service will take affi rmative and aggressive action to 

ensure that all NPS costs and damages associated with the 

release of contaminants are borne by those responsible 

for the contamination of NPS property. In addition, when 

lands are proposed for acquisition by the Park Service, 

the Service will take steps to avoid or minimize its liability 

for the contamination of NPS property caused by other 

parties. The Service will include in the preacquisition 

environmental assessment process the identifi cation of 

recognizable environmental conditions, such as those 

associated with prior or existing commercial facilities, 

mining sites, and landfi lls. Any recognizable existing or 

potential environmental contamination of lands proposed 

for inclusion in a park will be brought to the attention of the 

regional director as soon as they are identifi ed. 

(See Criteria for Inclusion 1.3; Chapter 3: Land Protection; 

Pest Management 4.4.5; Emergency Preparedness and 

Emergency Operations 8.2.5.2. Also see Director’s Orders 

#25: Land Protection; #30A: Damage Assessments; #30B: 

Hazardous Spill Response) 
9.1.7 Energy Management 

The National Park Service will conduct its activities 

in ways that use energy wisely and economically. Park 

resources and values will not be degraded to provide energy 

for NPS purposes. The Service will adhere to all federal 

policies governing energy and water effi ciency, renewable 

resources, use of alternative fuels, and federal fl eet goals as 

established in the Energy Policy Act of 1992. The Service 

will also comply with applicable executive orders, including 

Executive Order 13123 (Greening the Government through 

Effi cient Energy Management), and Executive Order 13149 

(Greening the Government through Federal Fleet and 

Transportation Effi ciency). 

All facilities, vehicles, and equipment will be operated and 

managed to minimize the consumption of energy, water, 

and nonrenewable fuels. Full consideration will be given 

to the use of alternative fuels. Alternative transportation 

programs and the use of bio-based fuels will be encouraged, 

where appropriate. Renewable sources of energy and new 

developments in energy-effi ciency technology, including 

products from the recycling of materials and waste, will be 

used where appropriate and cost-eff ective over the life cycle. 

However, energy effi ciencies will not be pursued if they will 

cause adverse impacts on park resources and values. 

To conserve energy, park personnel and visitors may 

be provided with opportunities for in-park public 

transportation or trails and walks for nonmotorized 

transport. As an environmental leader, the Service will 

interpret for the public the overall resource protection 

benefi ts from the effi cient use of energy, and will actively 

educate and motivate park personnel and visitors to use 

sustainable practices in conserving energy. The Service 

will also pursue partnership eff orts with the Department of 

Energy and others to further develop and meet NPS energy 

conservation goals. 

(See Air Quality 4.7.1; Lightscape Management 4.10; Resource 

Issue Interpretation and Education 7.5.3; Maintenance 9.1.4; 

Transportation Systems and Alternative Transportation 9.2; 

Trails and Walks 9.2.2; Sustainable Energy Design 9.1.1.6. 

Also see Director’s Order #13A: Environmental Management 

Systems) 

9.1.8 Structural Fire Protection and Suppression 

Superintendents will manage structural fi re activities as 

part of a comprehensive interdisciplinary eff ort to protect 

resources and promote the safe and appropriate public 

enjoyment of those resources. Fire prevention, protection, 

and suppression will be primary considerations in the 

design, construction, rehabilitation, maintenance, and 

operation of all facilities. Structural fi res will be suppressed 

to prevent the loss of human life and minimize damage 

to property and resources. The Service’s structural fi re 

protection and suppression program will provide, through 

Director’s Order #58: Structural Fire Management and 

Reference Manual 58, additional policy, standards, 

operational procedures, and accountability to meet the 

diverse needs and complexities of individual park units. 

The goal is to ensure that all national park areas receive an 

appropriate level of fi re protection that is provided in a safe 

and cost-eff ective manner by qualifi ed personnel. 

Each superintendent will complete a structural fi re 

assessment and develop a structural fi re plan to meet 

park needs. Structural fi re protection and suppression 

capabilities will be maintained in accordance with those 

plans. Prevention priorities will focus on occupied 

structures and cultural resources, with emphasis placed 

evenly on code compliance, early warning detection, 

suppression systems, and employee training and awareness. 

Fire prevention through code-compliant new construction, 

upgrading of existing structures, standardized and regularly 

scheduled fi re inspections, and properly installed and 

maintained detection and suppression systems will be the 

primary means of addressing and correcting NPS structural 

fi re defi ciencies. Where these measures are not suffi cient to 

meet park needs, agreements will be entered into with nonNPS entities capable of providing requisite fi re suppression 

assistance. Support from neighboring fi re protection 

organizations is encouraged, and superintendents should 

enter into appropriate agreements whenever possible to 

enhance fi re-fi ghting capabilities. Development of a park 

fi re brigade will be considered only when all other options 

have been explored and found unacceptable. 

(See Fire Management 4.5; Fire Detection, Suppression, and 

Postfi re Rehabilitation and Protection 5.3.1.2; Water Supply 

Systems 9.1.5.1. Also see Director’s Order #58: Structural Fire 

Management) 

9.2 Transportation Systems and 

 Alternative Transportation

The location, type, and design of transportation systems and 

their components (e.g., roads, bridges, trails, and parking 

areas), and the use of alternative transportation systems, 

all strongly infl uence the quality of the visitor experience. 

These systems also aff ect, to a great degree, how and 

where park resources will be impacted. For these reasons, 

management decisions regarding transportation facilities 

require a full, interdisciplinary consideration of alternatives 

and a full understanding of their consequences. Traditional 

practices of building wider roads and larger parking areas to 

accommodate more motor vehicles are not necessarily the 

answer. The Service must fi nd transportation solutions that 

will preserve the natural and cultural resources in its care 

while providing a high-quality visitor experience. 

Early NPS participation in transportation studies and 

planning processes is crucial to the long-term strategy 

of working closely with other federal agencies; tribal, 

state and local governments; regional planning bodies; 

citizen groups; and others to enhance partnering and 

funding opportunities. The Service will participate in all 

transportation planning forums that may result in links to 

parks or impacts on park resources. Working with federal, 

tribal, state, and local agencies on transportation issues, the 

Service will seek reasonable access to parks and connections 

to external transportation systems. The Service will also 

PARK FACILITIES 9.1-9.2

131
MANAGEMENT POLICIES 2006

132 advocate corridor crossings for terrestrial and aquatic 

wildlife and other accommodations to promote biodiversity 

and avoid or mitigate (1) harm to individual animals, (2) 

the fragmentation of plant and animal habitats, and (3) the 

disruption of natural systems. 

Depending on a park unit’s size, location, resources, and 

level of use, the Service will, where appropriate, emphasize 

and encourage alternative transportation systems, 

which may include a mix of buses, trains, ferries, trams, 

and—preferably—nonmotorized modes of access to and 

moving within parks. In general, the preferred modes of 

transportation will be those that contribute to maximum 

visitor enjoyment of, and minimum adverse impacts on, park 

resources and values. 

Before a decision is made to design, construct, expand, 

or upgrade access to or within a park, nonconstruction 

alternatives—such as distributing visitors to alternative 

locations—must be fully explored. If nonconstruction 

alternatives will not achieve satisfactory results, then a 

development solution should consider whether the project

is appropriate and necessary to meet park management 

needs or to provide for visitor use and enjoyment; 

is designed with extreme care and sensitivity to the 

landscape through which it passes; 

will not cause unacceptable impacts on natural and 

cultural resources and will minimize or mitigate those 

impacts that cannot be avoided;

will reduce traffi c congestion, noise, air pollution, and 

adverse eff ects on park resources and values; 

will not cause use in the areas it serves to exceed the 

areas’ visitor carrying capacities; 

will incorporate the principles of energy conservation 

and sustainability; 

is able to demonstrate fi nancial and operational 

sustainability;

will incorporate universal design principles to provide 

for accessibility for all people, including those with 

disabilities; 

will take maximum advantage of interpretive 

opportunities and scenic values; 

will not violate federal, state, or local air pollution 

control plans or regulations;

is based on a comprehensive and multidisciplinary 

approach that is fully consistent with the park’s general 

management plan and asset management plan;

will enhance the visitor experience by off ering new or 

improved interpretive or recreational opportunities, by 

simplifying travel within the park, or by making it easier 

or safer to see park features.

All transportation systems may be considered conceptually. 

Before advancing beyond the conceptual stage, appropriate 

approvals must be obtained from the Director. 

If a decision is made to construct, expand, or reconstruct 

a park transportation system, the Service will address the 

need for terrestrial and aquatic wildlife corridor crossings 

and other accommodations to avoid or mitigate harm to 

individual animals, the fragmentation of plant and animal 

habitats, and the disruption of natural systems. 

(See Environmental Leadership 1.8; General Management 

Planning 2.3.1; Implementation Planning 2.3.4; Air Quality 

4.7.1; General 9.1; Accessibility for Persons with Disabilities 

9.1.2; Energy Management 9.1.7. Also see Director’s Orders 

#87A: Park Roads and Parkways; #87B: Alternative 

Transportation Systems; #87C: Transportation System 

Funding; #87D: Non-NPS Roads) 

9.2.1 Road Systems

9.2.1.1 Park Roads 

Park roads will be well constructed, sensitive to natural 

and cultural resources, refl ect the highest principles of 

park design, and enhance the visitor experience. Park roads 

are generally not intended to provide fast and convenient 

transportation; rather, they are intended to enhance the 

quality of a visit while providing for safe and effi cient 

travel with minimal or no impacts on natural and cultural 

resources. For most parks, a road system is already in 

place. When plans for meeting the transportation needs 

of these parks are updated, a determination must be made 

as to whether the road system should be maintained as is, 

reduced, expanded, reoriented, eliminated, or supplemented 

by other means of travel. Before roads are chronically at 

or near capacity, the use of alternative destination points 

or transportation systems or limitations on use will be 

considered as alternatives to road expansion. 

Park road designs are subject to NPS Park Road Standards, 

which are adaptable to each park’s unique character and 

resource limitations. Although some existing roads do 

not meet current engineering standards, they may be 

important cultural resources whose values can and should 

be preserved with attention to visitor safety. 

(Also see Director’s Order #87A: Park Roads and Parkways) 

9.2.1.2 Non-NPS Roads 

Many parks contain roads that were not constructed by 

the Park Service and may not be under NPS jurisdiction. 

Most often, these roads existed before the areas became 

part of the national park system, and the Park Service 

must rely heavily on tribal, state, or local authorities to 

maintain the roads consistent with park management goals. 

These other government authorities sometimes propose 

to expand an existing road or construct a new road within 

a park, with signifi cant potential for adversely aff ecting 

park resources and values. Superintendents must consider 

road proposals in strict accordance with section 9.2.1.2.2, 

and Director’s Order #87D: Non-NPS Federal Aid Roads. 

Where practicable, and after concurrence of the entity with 

road jurisdiction, non-NPS roads that are no longer needed 

will be closed or removed, and the area will be restored to a 

natural condition. The Service will not permit the public or 
private construction of new roads for access to inholdings 

unless specifi cally authorized by law.

Access to inholdings in Alaska will be managed in 

accordance with the provisions of section 1110(b) of the 

Alaska National Interest Lands Conservation Act (16 USC 

3170 (b)) and 43 CFR Part 36.

(See General 8.6.4.1) 

9.2.1.2.1 Existing Commercial and 

 Other Through-Traffi c 

The Service will work with appropriate governments and 

private organizations and individuals to minimize the 

impacts of traffi c on park resources and values. Whenever 

possible, commercial traffi c will be prohibited on roads 

within parks, except for the purpose of serving park visitors 

and park operations. However, in accordance with section 

8.6.5 and applicable NPS regulations (36 CFR 5.6) 

superintendents will permit commercial vehicles to use 

park roads when necessary for access to private lands 

within or adjacent to a park area to which access is 

otherwise not available; and 

superintendents may issue permits for commercial 

vehicle traffi c to pass through the park in emergencies. 

When a determination is made that existing through-traffi c 

routes have adverse impacts on park resources and values, 

the Service will work with the appropriate government 

authorities to minimize these impacts, or to have the traffi c 

fl ow rerouted over an alternative route. Where feasible 

and practicable, roads that are no longer needed will be 

closed or removed, and the area will be restored to a natural 

condition. 

9.2.1.2.2 Construction and Expansion Proposals

Superintendents must take an active role in overall 

community and transportation planning activities to 

educate all parties about the NPS mandate to protect park 

resources. The Park Service will work closely with the U. 

S. Department of Transportation and state departments of 

transportation when new highways or roads or expansions 

of existing road corridors that may impact park lands are 

proposed. In accordance with 23 USC 138 and the Organic 

Act, the Service will object to any proposal to route a state 

or local road through national park lands, or to increase the 

size of a right-of-way for an existing road, unless the Service 

fi rst determines (or concurs with a DOT determination) the 

following: 

There is no feasible and prudent alternative. 

All possible planning has taken place to minimize and 

mitigate harm to the park. 

It will not be contrary to the public interest, or 

inconsistent with the purposes for which the park was 

established. 

It will not cause health and safety risks to visitors or 

park staff .

It will conform to NPS standards and practices for road 

design, engineering, and construction. 

In making these determinations, the Service will take into 

account the factors listed in section 9.2. 

Responsibility for future maintenance—meeting NPS 

standards—must be identifi ed before NPS approval of a 

proposal. 

(Also see Director’s Order #87D: Non-NPS Roads) 

9.2.2 Trails and Walks 

Trails and walks provide the only means of access into many 

areas within parks. These facilities will be planned and 

developed as integral parts of each park’s transportation 

system and incorporate principles of universal design. Trails 

and walks will serve as management tools to help control the 

distribution and intensity of use. All trails and walks will be 

carefully situated, designed, and managed to 

reduce confl icts with automobiles and incompatible 

uses; 

allow for a satisfying park experience; 

allow accessibility by the greatest number of people; 

and 

protect park resources. 

Heavily used trails and walks in developed areas may be 

surfaced as necessary for visitor safety, accessibility for 

persons with impaired mobility, resource protection, and/or 

erosion control. Surface materials should be carefully 

selected, taking into account factors such as the purpose 

and location of a trail or walk and the potential for erosion 

and other environmental impacts. 

The visitor use and management aspects of trails and walks 

are addressed in section 8.2.2, “Recreational Activities.” 

In addition, trail planning will take into account NPS 

interest in cooperating with federal, state, local, and tribal 

governments, as well as individuals and organizations, to 

advance the goal of a seamless networks of parks. These 

partnership activities are intended to establish corridors 

that link together, both physically and with a common sense 

of purpose, open spaces such as those found in parks, other 

protected areas, and compatibly managed private lands. 

(See Cooperative Conservation Beyond Park Boundaries 1.6; 

Chapter 7: Interpretation and Education; Accessibility for 

Persons with Disabilities 9.1.2. Also see Director’s Order #42: 

Accessibility for Visitors with Disabilities in National Park 

Service Programs and Services) 

9.2.2.1 Cooperative Trail Planning 

The Park Service will cooperate with other land managers, 

nonprofi t organizations, and user groups to facilitate local 

and regional trail access to parks. When parks abut other 

public lands, the Service will participate in interagency, 

multi-jurisdictional trail planning. When an eff ective trail 

system exists, and when otherwise permitted, hostels or 

PARK FACILITIES 9.2

133
MANAGEMENT POLICIES 2006

134 similar low-cost overnight facilities may be provided if they 

are consistent with the park’s general management plan and 

harmonize with the natural and/or cultural resources. 

(See Hostels and Shelters 9.3.2.3) 

9.2.2.2 Hiking Trails 

Trail design will vary to accommodate a wide range of users 

and be appropriate to user patterns and site conditions. 

Wetlands will generally be avoided, and where possible 

they will be spanned by a boardwalk or other means, using 

sustainable materials that will not disturb hydrologic or 

ecological processes. Backcountry trails will off er visitors 

a primitive outdoor experience, and these trails will be 

unsurfaced and modest in character except where a more 

durable surface is needed. The use of nonnative materials is 

generally not permitted on backcountry trails. 

(See Trails in Wilderness 6.3.10.2; General Policy 6.4.1; 

Backcountry Use 8.2.2.4) 

9.2.2.3 Equestrian Trails 

Equestrian trails and related support facilities, such as 

feed boxes and hitch rails, may be provided when they are 

consistent with park objectives and when site conditions are 

suitable. Horse camps should be designed with user interest 

in mind and consistency with NPS policy. Photovoltaic 

systems should be evaluated to power any necessary water 

systems. Ramps for mounting the animals must be provided 

for persons with disabilities. 

(See Grazing and Livestock Driveways 6.4.7; Domestic and 

Feral Livestock 8.6.8; Accessibility of Commercial Services 

10.2.6.2) 

9.2.2.4 Bicycle Trails 

Bicycle routes may be considered as an alternative to motor 

vehicle access. Bicycle travel may be integrated with park 

roads when determined to be safe and feasible. Bicycle 

trails may be paved or stabilized for the protection of 

resources and for the safety and convenience of travelers. 

In accordance with 36 CFR 4.30, bicycle use is allowed on 

park roads, in parking areas, and on routes designated for 

bicycle use. The designation of bicycle routes is allowed 

in developed areas and in special use zones based on a 

written determination that such use is (1) consistent with 

the protection of a park’s natural, cultural, scenic, and 

esthetic values; (2) consistent with safety considerations; 

(3) consistent with management objectives; and (4) will 

not disturb wildlife or other park resources. A similar 

determination may be made to designate routes outside 

developed areas and special use zones; however, the 

designation must be made by promulgating a special 

regulation. 

(See General Policy 6.4.1; Backcountry Use 8.2.2.4. Also see 36 

CFR 4.30) 

9.2.2.5 Water Trails 

Water access and use may be provided when consistent with 

resource protection needs. Appropriate locations and levels 

of use will be determined in the park’s general management 

plan. The Park Service will work with other agencies and 

organizations, as appropriate, to develop and provide 

education and interpretation for water trails that access 

parks; to promote understanding and enjoyment; and to 

protect waterways and adjacent lands. 

9.2.2.6 Interpretive Trails 

Interpretive trails and walks, both guided and self-guiding, 

may be used for purposes of visitor appreciation and 

understanding of park values. 

9.2.2.7 National Trails 

Several components of the National Trails System which 

are administered by the Service, have been designated 

as units of the national park system. These trails are 

therefore managed as national park areas and are subject 

to all the policies contained herein, as well as to any other 

requirements specifi ed in the National Trails System Act.

Other scenic, historic, connecting/side, and recreational 

trails designated under the National Trails System Act 

are in or adjacent to park units. Some of these may also 

be administered by the Service, though not as units of the 

national park system. In all cases, the Service will cooperate 

with other land managers, nonprofi t organizations, and 

user groups to facilitate appropriate trail use in accordance 

with the laws and policies applicable to such trails, and to 

the extent that trail management and use would not cause 

unacceptable impacts. 

(See Cooperative Conservation Beyond Park Boundaries 1.6. 

Also see Director’s Order #45-1: National Scenic and Historic 

Trails; National Trails System Act) 

9.2.2.8 Trailheads 

Trailheads, and trail access points from which trail use can 

begin, will be carefully tied into other elements of the park 

development and circulation system to facilitate safe and 

enjoyable trail use and effi cient management. 

9.2.2.9 Trail Bridges 

Trail bridges may be used for crossing swift waters areas 

prone to fl ash-fl ooding, and other places that present 

potential safety hazards. Less obtrusive alternatives 

to bridges (such as, fords) and trail relocation will be 

considered before a decision is made to build a bridge. A 

bridge may be the preferred alternative when necessary 

to prevent stream bank erosion or protect wetlands or 

fi sheries. If a bridge is determined to be appropriate, it will 

be kept to the minimum size needed to serve trail users, 

and it will be designed to harmonize with the surrounding 

natural scene and be as unobtrusive as possible. 

(See Water Resource Management 4.6) 
9.2.3 Traffi c Signs and Markings 

Signs will be limited to the minimum necessary to meet 

information, warning, and regulatory needs and to avoid 

confusion and visual intrusion. Signs should be planned to 

provide a pleasing, uniform appearance. Traffi c signs and 

pavement markings on park roads will be consistent with 

the standards contained in the Manual on Uniform Traffi c 

Control Devices, as supplemented by the NPS Sign Manual. 

All roadside signs and markings will conform to good traffi c 

engineering practices. Park signs—especially those that 

display the NPS arrowhead—are an important part of the 

total identity system for the Park Service and must conform 

to the standards contained in Director’s Order #52C: Park 

Signs. 

(See Navigation Aids 9.2.5; Signs 9.3.1.1) 

9.2.4 Parking Areas 

Parking areas and overlooks will be located to not 

unacceptably intrude, by sight, sound, or other impact, 

on park resources or values. When parking areas are 

deemed necessary, they will be limited to the smallest size 

appropriate, and they will be designed to harmoniously 

accommodate motor vehicles and other appropriate 

users. When large parking areas are needed, appropriate 

plantings and other design elements will be used to reduce 

negative visual and environmental impacts. When overfl ow 

parking is provided to meet peak visitation, it should be in 

areas that have been stabilized or are otherwise capable of 

withstanding the temporary impacts of parking without 

causing unacceptable impacts on park resources. Permanent 

parking areas will not normally be sized for the peak 

use day, but rather for the use anticipated on the average 

weekend day during the peak season of use. 

(See Management of Native Plants and Animals 4.4.2; General 

9.1; Transportation Systems and Alternative Transportation 

9.2) 

9.2.5 Navigation Aids 

Necessary aircraft and water navigation aids will be planned 

in collaboration with the Federal Aviation Administration 

and U. S. Coast Guard, respectively, and will be installed, 

maintained, and used in conformance with the standards 

established by these agencies only if there are no appropriate 

alternatives outside park boundaries. Exceptions to 

the standards may be authorized when necessary to 

meet specifi c park and public safety needs, provided the 

exceptions are jointly agreed to by the Park Service and the 

agency having primary jurisdiction. 

(See Overfl ights and Aviation Uses 8.4; Traffi c Signs and 

Markings 9.2.3) 

9.3 Visitor Facilities 

While striving for excellence in visitor services, the Park 

Service will limit visitor facility development to that which 

is necessary and appropriate. Facilities like gas stations and 

grocery stores may be necessary to park use and enjoyment, 

but it does not necessarily follow that these facilities must 

be located inside a park. The Park Service will encourage 

the development of private sector visitor services in gateway 

communities to contribute to local economic development, 

encourage competition, increase choices for visitors, and 

minimize the need for in-park facilities. When visitor 

facilities are found to be necessary and appropriate within 

a park, they will be designed, built, and maintained in 

accordance with accepted NPS standards for quality and the 

NPS commitment to visitor satisfaction. 

9.3.1 Informational and Interpretive Facilities 

Informational and interpretive facilities may be provided to 

assist park visitors in appreciating and enjoying the park and 

understanding its signifi cance, provided that the facilities 

can be developed without impairing the park’s natural or 

cultural resources. 

(See Chapter 7: Interpretation and Education; Accessibility for 

Persons with Disabilities 9.1.2) 

9.3.1.1 Signs 

Signs will be carefully planned and designed to fulfi ll their 

important roles of conveying an appropriate NPS and park 

image and providing information and orientation to visitors. 

Each park should have an approved parkwide sign plan 

based on Service-wide design criteria and tailored to meet 

individual park needs. Entrance and other key signs will be 

distinctively designed to refl ect the character of the park 

while meeting Service-wide standards for consistency. 

Signs will be held to the minimum number, size, and 

wording required to serve their intended functions and to 

minimally intrude upon the natural and historic settings. 

They will be placed where they do not interfere with park 

visitors’ enjoyment and appreciation of park resources. 

Roadside information signs are subject to the standards 

established in the National Park Service Sign Manual. 

Interpretive signs will be guided by sign and wayside exhibit 

plans. 

(See Signs 6.3.10.4; Visitor Safety 8.2.5.1; Traffi c Signs and 

Markings 9.2.3; Navigation Aids 9.2.5. Also see Director’s 

Order #52C: Park Signs) 

9.3.1.2 Entrance Stations 

Entrance and fee collection stations will be harmonious 

with the park environment, and these stations should refl ect 

the architectural character of the park. Entrance and fee 

collection stations should (1) reasonably accommodate 

the average peak season visitor traffi c, (2) incorporate best 

available technology, and (3) use best management practices 

to minimize delays—thus reducing vehicle emissions at the 

entrance station and enhancing the visitor experience. 

PARK FACILITIES 9.2-9.3

135
MANAGEMENT POLICIES 2006

136 9.3.1.3 Visitor Centers 

When necessary to provide visitor information and 

interpretive services, visitor centers may be constructed at 

locations identifi ed in approved plans. To minimize visual 

intrusions and impacts on major park features, visitor 

centers will generally not be located near such features. 

Where an in-park location would create unacceptable 

environmental impacts, authorization should be obtained to 

place a visitor center outside the park. 

Visitor centers are not substitutes for personal or selfguiding on-site interpretation. They will be constructed 

only when it has been determined that indoor media are 

the most eff ective means of communicating major elements 

of the park story and that a central public contact point is 

needed. 

As appropriate, a visitor center may include information 

services, sales of educational materials and theme-related 

items, audiovisual programs, museums, museum collections 

storage, exhibits, and other staff ed or self-help programs 

and spaces necessary for a high-quality visitor experience. 

Additionally, the need for restrooms, drinking fountains, 

and other basic visitor requirements will be considered 

during the planning and design stage. The size and scope of 

all visitor centers will be evaluated using the Visitor Center 

Planning Model or similar tool before submitting any visitor 

center project to the Director for approval. 

(See Park Management 1.4; Environmental Leadership 1.8; 

Nonpersonal Services 7.3.2; Integration of Facilities into 

the Park Environment 9.1.1.2; Accessibility for Persons with 

Disabilities 9.1.2; Museum Collections Management Facilities 

9.4.2) 

9.3.1.4 Amphitheaters 

Amphitheaters may be provided in campgrounds and in 

other locations where formal interpretive programs are 

desirable. Campfi re circles may be provided in campgrounds 

to accommodate evening programs and informal social 

gatherings. Artifi cial lighting must be carefully directed and 

kept to a minimum, with due regard for natural night sky 

conditions. 

(See Lightscape Management 4.10; Campgrounds 9.3.2.1) 

9.3.1.5 Wayside Exhibits 

Wayside exhibits may be provided along roads and heavily 

used walks and trails to interpret on-site resources. 

(See Nonpersonal Services 7.3.2) 

9.3.1.6 Viewing Devices 

Viewing devices, such as pedestal binoculars or telescopes, 

may be provided at appropriate locations when the 

superintendent determines that such devices are desirable 

for the meaningful interpretation or understanding of park 

resources. Such devices may be provided by the Service or 

by others under a concession contract or commercial use 

authorization. 

9.3.1.7 Facilities for Arts and Culture 

Various cultural events (such as concerts, fi lms, lectures, 

plays, craft shows, and art exhibits) are permitted when they 

will support a park’s purposes and objectives. However, 

permanent facilities may be built specifi cally for cultural 

activities only when all of the following criteria are met: 

The permanent facility is required for programs of 

major importance in conveying the park story. 

It would be impossible or impractical to use 

demountable or temporary facilities. 

It would be impossible to adaptively use other park 

facilities. 

Neither the facility nor its operation would impair 

cultural or natural resources or hinder the use of the 

park for its intended purposes.

It would not be feasible for others outside the park to 

provide the facility. 

(See Use of Historic Structures 5.3.5.4.7; Special Events 8.6.2) 

9.3.2 Overnight Accommodations 

 and Food Services 

Overnight facilities and food services will be restricted 

to the kinds and levels necessary and appropriate to 

achieve each park’s purposes. In many cases, overnight 

accommodations and food services are not needed within 

a park. In general, they should be provided only when the 

private sector or other public agencies cannot adequately 

provide them in the park vicinity. However, in-park facilities 

or services may be justifi ed when the distance and travel 

time to accommodations and services outside the park are 

too great to permit reasonable use, or when leaving the park 

to obtain incidental services would substantially detract 

from the quality of the visitor experience. Certain activities, 

such as backcountry use, may require overnight stays. Types 

of overnight accommodations may vary from unimproved 

backcountry campsites to motel- or hotel-type lodging, as 

appropriate. Commercial facilities run by concessioners are 

addressed in greater detail in chapter 10. 

(See Accessibility for Persons with Disabilities 9.1.2; 

Commercial Visitor Services Planning 10.2.2) 

9.3.2.1 Campgrounds 

When campgrounds are determined to be necessary, 

their design will accommodate the diff erences between 

recreation-vehicle camping and tent camping, and cultural 

landscapes, terrain, soils, vegetation, wildlife, climate, 

special needs of users, visual and auditory privacy, and other 

relevant factors will be considered. 

The Service will determine the range of amenities and 

utility hookups that are appropriate to each campground 

based on the park’s mission, campground location and size, 

availability of commercial campgrounds in the area, cost of 

installing and maintaining the amenities and utilities, and 

other considerations. To eliminate the need for generators, 
electric utilities may be provided on a limited basis. Shower 

facilities may be provided where feasible. Modestly sized 

play areas for small children are permissible, as are informal 

areas for fi eld sports associated with organized group 

camps. Wood fi res in fi re rings are generally permissible; 

however, whenever it is necessary to restrict such fi res at 

individual campsites because of fi re danger, air pollution, 

or other hazards, alternatives may be provided or allowed—

such as facilities for the use of charcoal or other fuels or 

central cook sheds. When a need exists, sanitary dump 

stations will be provided in or near campgrounds that 

accommodate recreation vehicles. 

When necessary for basic safety requirements, pathways 

and the exteriors of buildings and structures may be lighted. 

Such lighting will be energy effi cient and shielded as much as 

possible so that visitors have the opportunity to experience 

the natural darkness and night skies.

Campgrounds intended to accommodate large recreation 

vehicles or buses will be located only where existing roads 

can safely accommodate such vehicles and the resulting 

increased traffi c load. 

No campground will exceed 250 sites unless a larger number 

of sites has been approved by the Director. 

When desirable for purposes of management, tent camping 

may be accommodated in separate campgrounds or in 

separately designated areas within campgrounds. Provision 

may also be made for accommodating organized groups in 

separate campgrounds or in separately designated areas. 

Boating campgrounds may be provided in parks with waters 

used for recreational boating. The need for campgrounds—

and their sizes, locations, and numbers—will be determined 

by (1) the type of water body (for example, river, lake, 

reservoir, saltwater); (2) the availability and resiliency of 

potential campsites; (3) the feasibility of providing and 

maintaining docking, beaching, mooring, camping, and 

sanitary facilities; and (4) the potential for unacceptable 

impacts on park resources or values. 

(See Soundscape Management 4.9; Lightscape Management 

4.10; Recreation Fees 8.2.6.1; National Recreation Reservation 

Service 8.2.6.2; Collecting Natural Products 8.8; Water Supply 

Systems 9.1.5.1; Wastewater Treatment Systems 9.1.5.2; 

Concession Facilities 10.2.6. Also see Director’s Order #47: 

Soundscape Preservation and Noise Management; Director’s 

Order #83: Public Health) 

9.3.2.2 Backcountry Campsites 

Backcountry and wilderness campsites may be permitted, 

but only within the acceptable limits of use determined 

by the park’s wilderness management plan, resource 

management plan, or other pertinent planning document. 

(See Wilderness Use Management 6.4; Backcountry Use 

8.2.2.4) 

9.3.2.3 Hostels and Shelters 

Hostels are low-cost, supervised accommodations that 

encourage and facilitate the energy-effi cient, nonmotorized 

enjoyment of parks and their surrounding regions by 

individuals and families. Such facilities, along with hostellike accommodations such as huts and shelters, will be 

considered in the planning process if overnight use is 

determined to be an appropriate use of the park, particularly 

as a means of encouraging and facilitating the use of trails 

and backcountry areas. The Service will cooperate with 

other agencies, nonprofi t organizations, park concessioners, 

and others to plan and develop hostels, where appropriate. 

If a decision is reached to develop a hostel accommodation, 

it will be managed by others under the provisions of 

concession policies and procedures. 

Hostels will, at a minimum, contain sheltered overnight 

accommodations and sanitary facilities, and they will 

usually contain cooking, eating, and recreation spaces. 

Hostels may be used for other park programs, such as 

environmental education or interpretation. Although 

nonmotorized access to hostels is emphasized, motorized 

transportation may also be available. 

(See Facility Planning and Design 9.1.1; Chapter 10: 

Commercial Visitor Services) 

9.3.3 Comfort Stations 

Comfort facilities will have waste disposal systems that 

meet Public Health Service standards. Levels of use 

will determine the size and nature of the utility systems 

provided. Low-water use or waterless (oil and composting) 

toilets will be considered in locations where there are 

water-supply and wastewater-disposal problems. Chemical 

toilets in portable enclosures may be used for temporary 

purposes when necessary. Vault toilets and composting 

toilets that meet public health standards may be used 

where development or expansion of utilities may not be 

practical or cost-eff ective. Pit privies that meet public health 

standards may suffi ce in areas of infrequent use and when 

utility services are not readily available. 

(See General Policy 6.4.1; Backcountry Use 8.2.2.4; 

Accessibility for Persons with Disabilities 8.2.4; Water Supply 

Systems 9.1.5.1; Wastewater Treatment Systems 9.1.5.2; 

Campgrounds 9.3.2.1. Also see Director’s Order #83: Public 

Health) 

9.3.4 Other Visitor Facilities 

Other visitor facilities may be provided when necessary 

for visitor enjoyment of the area and when consistent with 

the protection of park values. Visitor facilities determined 

to be detrimental to park resources or values will not be 

permitted. 

9.3.4.1 Picnic and Other Day Use Areas 

Picnic areas and other day use areas to be used for specifi c 

purposes (such as play areas) may be provided on a limited 

basis as appropriate to meet existing visitor needs. 

PARK FACILITIES 9.3

137
MANAGEMENT POLICIES 2006

138 9.3.4.2 Facilities for Water Recreation 

Boating facilities (such as access points, courtesy docks, 

boat ramps, fl oating sewage pump-out stations, navigational 

aids, and marinas), breakwaters, and fi sh cleaning stations 

may be provided as appropriate for the safe enjoyment 

by visitors of water recreation resources, when (1) they 

are consistent with the purposes for which the park was 

established, and (2) there is no possibility that adequate 

private facilities will be developed. Facilities must be 

carefully sited and designed to avoid unacceptable adverse 

eff ects on aquatic and riparian habitats and minimize 

confl icts between boaters and other visitors who enjoy use 

of the park. A decision to develop water-based facilities must 

take into account not only the primary impacts (such as 

noise, air, and water pollution) of the development, but also 

the secondary impacts (including cumulative eff ects over 

time) that recreational use associated with the development 

may have on park resources and visitor enjoyment. 

(See Park Management 1.4; Soundscape Management 

4.9; Visitor Use 8.2; River Use 8.2.2.3; Fishing 8.2.2.5; 

Campgrounds 9.3.2.1; Water Trails 9.2.2.5. Also see Director’s 

Order #47: Soundscape Preservation and Noise Management) 

9.3.4.3 Skiing Facilities 

The Park Service will not permit new downhill skiing 

facilities or associated structures in any unit of the 

national park system. Downhill skiing is an activity that 

requires extensive development with resulting signifi cant 

environmental impacts, and it should only be provided 

outside park areas. When such facilities have been provided 

based on previous policy, their use may continue unless 

the development and use have caused or may cause 

impairment of park resources or values. Any proposal to 

eliminate or change the capacity of existing facilities will 

be accomplished through the NPS planning process, and 

will involve public participation and an environmental 

assessment of impacts. 

(See Decision-making Requirements to Identify and Avoid 

Impairments 1.4.7; Recreational Activities 8.2.2) 

9.3.5 Advertising 

Commercial notices or advertisements will generally not 

be displayed, posted, or distributed on the federally owned 

or federally controlled land, water, or airspace of a park. A 

superintendent may permit advertising only if the notice or 

advertisement is for goods, services, or facilities available 

within the park, and if such notices and advertisements are 

found to be desirable and necessary for the convenience 

and guidance of the public. Acceptable forms of advertising 

will be addressed, as necessary, in concession contracts and 

cooperating association agreements. 

Billboard advertising will in no case be permitted within a 

park and, in general, will be discouraged on approach roads 

outside of parks when it would adversely aff ect a park’s 

scenic values. 

NPS policy allows donor recognition, which occurs 

when the Park Service publicly thanks an individual, 

corporation, or some other entity for their gift or service 

to the Park Service. Such recognition must be consistent 

with the provisions of Director’s Order #21: Donations and 

Fundraising. 

In accordance with Part 470 of the DOI manual, the 

Service will not use paid advertising in any publication 

in connection with its programs and activities, except 

where special legal requirements and authority exist. If 

a superintendent believes paid advertising is necessary 

because of the signifi cant benefi ts it aff ords in enhancing 

public participation, prior approval must be obtained from 

the Washington Offi ce of Public Aff airs. 

(See Cooperating Associations 7.6.2; Concession Contracting 

10.2.3. Also see Director’s Order #21: Donations and 

Fundraising, 36 CFR 5.1) 

9.4 Management Facilities 

Where authorized by Congress, management facilities 

will be located outside park boundaries whenever the 

management functions being served can be adequately 

supported from such a location. When management 

facilities must be located inside the park, they will be located 

away from primary resources and features of the park and 

sited so as to not adversely aff ect park resources or values or 

detract from the visitor experience. Historic properties will 

be used to the maximum extent practicable, provided that 

the use will not aff ect their signifi cance. 

Modular, precut, or prefabricated structures may be 

used for management facilities, including administrative 

offi ces, employee housing, and maintenance structures, 

when products meeting design requirements are available. 

Standard plans will be modifi ed to (1) refl ect regional 

and park design themes and harmonize with the natural 

surroundings; (2) preserve the natural and cultural 

environments; (3) provide for resource conservation; 

(4) provide for energy effi ciency or the use of renewable 

energy sources; (5) limit chemical emissions; and (6) foster 

education about sustainable design. 

(See Park Management 1.4; Environmental Leadership 

1.8; Use of Historic Structures 5.3.5.4.7; Accessibility for 

Persons with Disabilities 8.2.4; Facility Planning and Design 

9.1.1; Accessibility for Persons with Disabilities 9.1.2. Also 

see Director’s Orders #89: Acquisition and Management of 

Leased Space; and #90: Value Analysis) 

9.4.1 Administrative Offi ces 

The location of administrative offi ces will be determined 

by conditions specifi c to each park, including impacts on 

park resources, availability and adequacy of leasable space 

outside the park, relationship to adjacent communities, 

convenience to visitors, weather, energy consumption, 

comparative costs, commuting distance for employees, and 

management eff ectiveness. 

(See Facility Planning and Design 9.1.1; Energy Management 

9.1.7) 
9.4.2 Museum Collections Management Facilities 

Park curatorial facilities should be adapted to the needs 

of each park. They may share space in visitor centers or 

administrative offi ce buildings, or be housed in completely 

separate buildings. Incorporation with facilities in which 

there would be a heightened danger of fi re, chemical spills, 

and similar accidents should be avoided. Curatorial facilities 

will meet each collection’s special requirements for security, 

fi re suppression, and environmental controls. 

The operation of environmental control systems to meet 

the temperature, relative humidity, particulate, and, as 

necessary, pollutant control specifi cations for museum 

collections are typically more energy intensive than those 

for structures with staff and offi ces. To ensure energy 

effi ciency and the correct performance of the systems 

to protect the resource, the thermal performance of the 

building envelope and the effi ciency of the systems must be 

addressed in facility planning and design. Before planning 

a collections management facility, the park, in consultation 

with subject-matter specialists, must complete a value 

analysis that evaluates various options for addressing the 

collections management needs of the park, including on-site 

and off -site locations and joint facilities with other NPS 

units and entities outside the Park Service. 

(See Museum Collections 5.3.5.5; Fire Detection, Suppression, 

and Post-fi re Rehabilitation and Protection 5.3.1.2; 

Environmental Monitoring and Control 5.3.1.4. Also see 

Director’s Order #24: NPS Museum Collections Management) 

9.4.3 Employee Housing 

The Park Service will generally rely on the private sector 

to provide housing for NPS employees. If reasonable price 

and quality housing is not available in the private sector, 

the Service will provide only the number of housing units 

necessary to support the NPS mission. 

Occupancy may be permitted or may be required to provide 

for timely response to park protection needs, to ensure 

reasonable deterrence to prevent threats to resources, and 

to protect the health and safety of visitors and employees. 

Acceptable and appropriate locations for employee housing 

will be determined based on these prevention or response 

services provided for the benefi t of the government in 

meeting the NPS mission. 

9.4.3.1 Housing Management Plan 

A housing management plan will be prepared and updated 

every three to fi ve years to determine the necessary number 

of housing units in a park. Park superintendents are 

accountable to their regional directors for employee housing 

in their parks. Regional directors are responsible for 

approval of park housing management plans and ensuring 

the consistent application of Service-wide housing policy. 

9.4.3.2 Eligible Residents 

Park housing will be provided for persons who are essential 

to the management and operation of the park. These may 

include not only NPS employees, but also concession 

employees, volunteers in the parks, Student Conservation 

Association volunteers, researchers, essential cooperators 

(for example, schoolteachers, health personnel, contractors, 

state or county employees), and employees of another 

federal agency. 

9.4.3.3 Historic Structures 

The use of historic structures for housing is encouraged 

when NPS managers determine that this use contributes to 

the preservation of these structures, and after feasible costeff ective alternatives have been considered. 

(See Use of Historic Structures 5.3.5.4.7; Adaptive Use 9.1.1.4) 

9.4.3.4 Design and Construction 

Because of location, use, and other unique factors, 

special design concerns must be considered for housing 

constructed in parks. Housing must be designed to be as 

much a part of the natural or cultural setting as possible, 

yet it must be well built, functional, energy effi cient, and 

cost-eff ective. The design of park housing will minimize 

impacts on park resources and values, comply with the 

standards for quality design, and consider regional design 

and construction infl uences. Value analysis principles will 

be applied in all NPS housing construction projects. Design 

costs will be kept to a minimum by using designs from the 

NPS Standard Design Catalog and a cost model. 

(See Facility Planning and Design 9.1.1. Also see Director’s 

Orders #36: Housing Management, and #90: Value Analysis) 

9.4.4 Maintenance Structures 

Maintenance structures will be consistent in design, scale, 

texture, and details with other park facilities. Optimally, 

they will be screened or located in areas remote from public 

use. Wherever feasible, NPS and concessioner maintenance 

facilities will be adjacent and integrated in design to 

facilitate operations and reduce impacts on park resources. 

9.4.5 Miscellaneous Management Facilities 

When installations such as landing sites and airstrips, 

security structures, protection devices, fi re towers, weather 

monitors, research stations, communication towers, 

and pump houses are necessary, they will be located and 

designed to minimize their impact on resources and their 

intrusion on the visitor experience. Whenever possible 

and practicable, such installations will be located within 

developed park areas or outside park boundaries. When 

totally utilitarian facilities such as maintenance storage 

yards, sewage lagoons, and solid waste disposal sites 

absolutely must be developed inside a park, they will be 

screened from view, sited to avoid adverse impacts on 

resources, and not detract from the visitor experience. 

Facilities that illustrate technologies important to 

interpretive and educational objectives may be located in 

more visible areas. Examples include alternative energy 

applications and sustainable wastewater treatment facilities, 

such as aquaculture ponds, wetlands, and rootzone beds. 

(See Environmental Leadership 1.8; Studies and Collections 

4.2; General Policy 6.3.1; Airports and Landing Sites 8.4.8; 

Facility Planning and Design 9.1.1; Water Supply Systems 

PARK FACILITIES 9.3-9.4

139
MANAGEMENT POLICIES 2006

140 9.1.5.1; Wastewater Treatment Systems 9.1.5.2; Waste 

Management 9.1.6.1; Maintenance Structures 9.4.4) 

9.5 Dams and Reservoirs 

Dams and reservoirs will not be constructed in parks. The 

National Park Service will not seek to acquire and operate 

dams and will seek to deactivate existing structures unless 

they contribute to the cultural, natural, or recreational 

resource bases of the area or are a necessary part of a park’s 

water supply system. 

All dams will be subject to annual safety inspections. Each 

park with a dam or reservoir will prepare an emergency 

action plan. The emergency action plan will also address 

potential hazards posed by dams outside the park and 

beyond the Service’s control. The National Park Service 

inventory of dams will be used to record all NPS and nonNPS dams and reservoirs, and any other type of stream 

fl ow control structures aff ecting units of the national park 

system, including those that are proposed or have been 

deactivated. 

(See Water Quality 4.6.3; Floodplains 4.6.4; Wetlands 

4.6.5; Watershed and Stream Processes 4.6.6; Emergency 

Preparedness and Emergency Operations 8.2.5.2; Water 

Supply Systems 9.1.5.1; Wastewater Treatment Systems 

9.1.5.2. Also see Director’s Order #40: Dams and Appurtenant 

Works—Maintenance, Operation, and Safety) 

9.6 Commemorative Works and Plaques 

9.6.1 General 

For the purpose of this section, the term “commemorative 

work” means any statue, monument, sculpture, memorial, 

plaque, or other structure or landscape feature, including 

a garden or memorial grove, designed to perpetuate in a 

permanent manner the memory of a person, group, event, 

or other signifi cant element of history. It also includes the 

naming of park structures or other features—including 

features within the interior of buildings. Within the District 

of Columbia and its environs, the Commemorative Works 

Act prohibits the establishment of commemorative works 

unless specifi cally authorized by an act of Congress. 

Outside of the District of Columbia and its environs, 

commemorative works will not be established unless 

authorized by Congress or approved by the Director (36 

CFR 2.62). The consultation process required by section 106 

of the National Historic Preservation Act must be completed 

before the Director will make a decision to approve a 

commemorative work. 

To be permanently commemorated in a national park is a 

high honor, aff ording a degree of recognition that implies 

national importance. At the same time, the excessive or 

inappropriate use of commemorative works—especially 

commemorative naming—diminishes its value as a tool for 

recognizing people or events that are truly noteworthy. 

This situation can also divert attention from the important 

resources and values that park visitors need to learn about. 

Therefore, the National Park Service will discourage and 

curtail the use and proliferation of commemorative works 

except when 

Congress has specifi cally authorized their placement; or 

there is compelling justifi cation for the recognition, and 

the commemorative work is the best way to express the 

association between the park and the person, group, 

event, or other subject being commemorated. 

In general, compelling justifi cation for a commemorative 

work will not be considered unless

the association between the park and the person, group, 

or event is of exceptional importance; and 

in cases where a person or event is proposed for 

commemoration, at least fi ve years have elapsed 

since the death of the person (or the last member of a 

group), or at least 25 years have elapsed since the event. 

(Within the District of Columbia and its environs, refer 

to the Commemorative Works Act for more specifi c 

requirements.) 

Simply having worked in a park, or having made a monetary 

or other type of donation to a park, does not necessarily 

meet the test of compelling justifi cation. In these and similar 

cases other forms of recognition should be pursued. 

With regard to the naming of park structures, names that 

meet the criteria listed above may be approved by the 

Director. Names that do not meet those criteria will require 

legislative action. All donor recognition must be consistent 

with Director’s Order #21: Donations and Fundraising. In 

accordance with Director’s Order #21, the naming of rooms, 

features, or park facilities will not be used to recognize 

monetary or in-kind donations to a park or to the National 

Park Service.

9.6.2 Interpretive Works That Commemorate 

The primary function of some commemorative works—

most often in the form of a plaque presented by an outside 

organization—is to describe, explain, or otherwise attest 

to the signifi cance of a park’s resources. These devices are 

not always the most appropriate medium for their intended 

purpose, and their permanent installation may not be in the 

best long-term interests of the park. Therefore, permanent 

installations of this nature will not be allowed unless it can 

be clearly demonstrated that the work will substantially 

increase visitors’ appreciation of the signifi cance of park 

resources or values, and do so more eff ectively than other 

interpretive media. 

With regard to Civil War parks, new commemorative works 

will not be approved, except where specifi cally authorized 

by legislation. However, consideration may be given to 

proposals that would commemorate groups that were not 

allowed to be recognized during the commemorative period. 

In those parks where there is legislative authorization to 

erect commemorative works, superintendents will prepare 

a plan to control their size, location, materials, and other 

factors necessary to protect the overall integrity of the park. 
The plan may include a requirement for an endowment to 

cover the costs of maintaining the commemorative work. 

9.6.3 Approval of Commemorative Works 

Before being approved, a determination must be made, 

based on consultation with qualifi ed professionals that the 

proposed commemorative work will 

be designed and sited to avoid disturbance of natural 

and cultural resources and values; 

be located in surroundings relevant to its subject; 

be constructed of materials suitable to and compatible 

with the local environment; 

meet NPS design and maintenance standards; 

not encroach on any other preexisting work or be 

esthetically intrusive; 

not interfere signifi cantly with open space and existing 

public use; 

not divert attention from a park’s primary interpretive 

theme; and 

not be affi xed to the historic fabric of a structure. 

The Director may order the removal or modifi cation of 

commemorative works that were installed without proper 

authorization, or that are inconsistent with the policies 

in this section. Temporary forms of in-park recognition, 

and permanent forms that will not be installed within park 

boundaries, do not require the Director’s approval. 

The naming of geographic features is subject to approval 

by the U. S. Board on Geographic Names. NPS proposals 

for naming geographic features will follow the procedures 

described in Director’s Order #63: Geographic Names. 

(Also see Director’s Order #67: Copyright and Trademarks; 

U. S. Board on Geographic Names “Principles, Policies, and 

Procedures: Domestic Geographic Names”) 

9.6.4 Preexisting Commemorative Works 

Many commemorative works have existed in the parks 

long enough to qualify as historic features. A key aspect of 

their historical interest is that they refl ect the knowledge, 

attitudes, and tastes of the persons who designed and placed 

them. These works and their inscriptions will not be altered, 

relocated, obscured, or removed, even when they are 

deemed inaccurate or incompatible with prevailing presentday values. Any exceptions from this policy require specifi c 

approval by the Director. 

9.6.5 Donated Commemorative Works 

Although commemorative works and other forms of 

in-park permanent recognition will not be used to recognize 

monetary contributions or other donations to a park or 

the Service, there may be occasions when an authorized 

or approved commemorative work will be off ered or 

provided by a private donor. Placing donor names on 

commemorative works will be discouraged. If they do 

appear, donor names will be conspicuously subordinate to 

the subjects commemorated. Donations of commemorative 

works should include suffi cient funds to provide for their 

installation, and an endowment for their permanent care. 

(See Nonpersonal Services 7.3.2; Cemeteries and Burials 

8.6.10. Also see Director’s Order #64: Commemorative Works 

and Plaques) 

9.6.6 Commemorative Works in 

 National Cemeteries 

Regulations governing commemorative works associated 

with national cemeteries are found in 36 CFR Part 12; and 

Director’s Order #61: National Cemetery Operations.

PARK FACILITIES 9.4-9.6

141

10

Commercial 

Visitor Services

Through the use of concession contracts or commercial use 

authorizations, the National Park Service will provide commercial 

visitor services that are necessary and appropriate for public use and 

enjoyment. Concession operations will be consistent to the highest 

practicable degree with the preservation and conservation of resources 

and values of the park unit. Concession operations will demonstrate 

sound environmental management and stewardship.

Public accommodations, 

facilities, and services 

must be consistent to 

highest practicable 

degree with the 

preservation and 

conservation of park 

resources and values. 
MANAGEMENT POLICIES 2006

144 10.1 General 

Commercial visitor services will be authorized through 

concession contracts or commercial use authorizations, 

unless otherwise provided by law. Section 10.2 below 

addresses concession authorizations; section 10.3 addresses 

commercial use authorizations. 

(See Leases 8.12. Also see Director’s Orders #48A: Concession 

Management, and #48B: Commercial Use Authorizations) 

10.1.1 Leasing 

See Section 8.12.

10.2 Concessions 

10.2.1 Concession Policies 

Concession operations are subject to the provisions of 

the National Park Service Concessions Management 

Improvement Act of 1998; NPS regulations published at 

36 CFR Part 51; this chapter of NPS Management Policies; 

Director’s Order #48A: Concession Management; and other 

specifi c guidance that may be issued under the Director’s 

authority. In Alaska, concession operations are also subject 

to the provisions of the Alaska National Interest Lands 

Conservation Act and 36 CFR Part 13.

10.2.2 Commercial Visitor Services Planning 

Commercial visitor services planning will identify the 

appropriate role of commercial operators in helping parks 

to provide opportunities for visitor use and enjoyment. This 

planning will be integrated into other plans and planning 

processes and will comply with all Service policies regarding 

planning and environmental analysis. The number, location, 

and sizes of facilities and sites assigned through concession 

authorizations will be the minimum necessary for proper 

and satisfactory operation of the facilities. 

A park commercial services strategy must be in place to 

ensure that concession facilities and services are necessary 

and appropriate, fi nancially viable, and addressed in an 

approved management plan. Commercial services plans 

may be developed to further implement a park’s commercial 

services strategy and to guide decisions on whether to 

authorize or expand concessions. A decision to authorize 

or expand a park concession will consider the eff ect on, 

or need for, additional infrastructure and management of 

operations and be based on a determination that the facility 

or service

is consistent with enabling legislation, and 

is complementary to a park’s mission and visitor service 

objectives, and

is necessary and appropriate for the public use and 

enjoyment of the park in which it is located, and 

is not, and cannot be, provided outside park 

boundaries, and

incorporates sustainable principles and practices 

in planning, design, siting, construction, and 

maintenance, and

adopts appropriate energy and water conservation, 

source reduction, and environmental purchasing 

standards and goals, and

will not cause unacceptable impacts.

Prior to initiating new services authorized under a 

concession contract, a market and fi nancial viability study/

analysis will be completed to ensure the overall contract is 

feasible.

For information about leasing structures for appropriate 

uses, see section 8.12 and Director’s Order #38: Real 

Property Leasing. 

(See Unacceptable Impacts 1.4.7.1)

10.2.3 Concession Contracting 

Approved standard contract language will be used in 

all NPS concession contracts. Any deviations from such 

language must be approved in writing by the Director.

10.2.3.1 Terms and Conditions of Contracts

Concession services will be authorized under concession 

contracts unless otherwise authorized by law. The term 

of a concession contract will generally be 10 years or less. 

However, the Director may award a contract for a term of 

up to 20 years if the Director determines that the contract 

terms and conditions, including the required construction 

of capital improvements, warrant a longer term. In this 

regard, the term of concession contracts should be as short 

as is prudent, taking into account the fi nancial requirements 

of the concession contract, the required construction 

of capital improvements, resource preservation and 

conservation, visitor needs, and other factors that the 

Director may deem appropriate. Proposed concession 

operations must be economically feasible and supported by 

a feasibility study prepared by a qualifi ed individual. 

10.2.3.2 Modifi cations/Amendments

Concession contracts may be modifi ed only by written 

amendment. Amendments developed after the issuance of 

a concession contract must be consistent with current NPS 

policies and orders. Unless otherwise authorized by the 

contract, a concession contract may be amended to provide 

minor additional visitor services that are a reasonable 

extension of the existing services. 

10.2.3.3 Extension 

Concession contracts may be extended only in accordance 

with the requirements of 36 CFR Part 51, subpart D. The 

signature authority for contract extensions or amendments 

must be consistent with delegations of authority from the 

Director. 

10.2.3.4 Competition 

To obtain the best service provider and maximize benefi ts 

to the government, the National Park Service encourages 

competition in the awarding of concession contracts. 

Through outreach, the National Park Service also 

encourages the participation of American Indian, minority, 
and women-owned businesses when new business activities 

occur. 

10.2.3.5 Third-party Agreements and Subconcessions 

Unless specifi ed in the contract, sub-concession or other 

third-party agreements (including management agreements) 

for the provision of visitor services that are required and/or 

authorized under concession contracts are not permitted. 

The Park Service may also advertise for a new concession 

contract to provide these additional services. 

10.2.3.6 Multipark Contracts 

Concessioners operating in more than one park unit must 

have separate contracts for each park unit. When approved 

by the Director, an exception may be made in the case of 

those park units having common NPS management or where 

service is provided in contiguous park areas (for example, a 

pack trip that crosses the boundary of two adjoining parks, 

or where lack of opportunity for profi t, geographic location, 

and type of service is not feasible within a single location).

10.2.3.7 Termination 

The Service may terminate concession contracts for 

default and under any other circumstances specifi ed in the 

concession contract.

10.2.4 Concession Operations 

10.2.4.1 Operating Plans

The operating plan is an exhibit to the concession 

contract; the plan will describe operational responsibilities 

authorized in the contract between the concessioner and 

the Park Service. The plan is reviewed and updated annually 

by the Service in accordance with the terms of the contract. 

Operating plans are considered an integral part of a 

concessioner’s contractual performance compliance. Some 

aspects of a concessioner’s operating requirements may also 

be contained in general or specifi c provisions unique to that 

contract.

10.2.4.2 Service Type and Quality 

It is the objective of the National Park Service that park 

visitors be provided with high-quality facilities and services. 

Where appropriate, the concession contract will specify a 

range of facility, accommodation, and service types that are 

to be provided at reasonable rates and standards to ensure 

optimal facility maintenance and quality services to visitors. 

Concessioners are not permitted to use or encourage 

pseudo-ownership concepts such as time shares or longterm rental agreements.

10.2.4.3 Evaluation of Concession Operations 

Concession operations will be regularly evaluated to ensure 

that park visitors are provided with high-quality services 

and facilities that are safe and sanitary and meet NPS 

environmental, health, safety, and operational standards. 

As outlined in the concessioner operational evaluation 

program, the evaluation results will provide a basis for 

NPS management to determine (1) whether to continue 

or terminate a concession contract, and (2) whether a 

concessioner is eligible to exercise a right of preference in 

the award of a qualifi ed new concession contract for those 

categories of contracts where such a right is available by law. 

10.2.4.4 Interpretation by Concessioners

Concessioners will be required to appropriately train 

their employees and, through their facilities and services, 

to instill in their guests an appreciation of the park, its 

purpose and signifi cance, its proper and sustainable 

management, and the stewardship of its resources. When 

the provision of interpretive services is required by the 

contract, concessioners will provide formal interpretive 

training, approved by the Park Service, for their employees, 

or will participate in formal interpretive training that is 

either off ered by the Park Service or cosponsored by the 

concessioner. 

Visitor appreciation of the park can be instilled in many 

ways. For example, it can be accomplished through guided 

activities; the design, architecture, landscape, and decor of 

facilities; educational programs; interpretive menu design 

and menu off erings; and involvement in the park’s overall 

interpretive program. Gift shop merchandise and displays 

also present opportunities to educate visitors about park 

history; natural, cultural, and historical resources; and 

sustainable environmental management. 

Concession contracts will require the concessioner to 

provide all visitor services in a manner that is consistent 

with and supportive of the interpretive themes, goals, and 

objectives articulated in each park’s planning documents, 

mission statement, and/or interpretive prospectus. 

(See Interpretive Competencies and Skills 7.4) 

10.2.4.5 Merchandise 

The National Park Service will approve the nature, type, 

and quality of merchandise to be off ered by concessioners. 

Although there is no Service-wide list of specifi c preferred 

merchandise, priority will be given to sale items that foster 

awareness, understanding, and appreciation of the park 

and its resources and that interprets those resources. 

Merchandise should have interpretive labeling or include 

other information to indicate how the merchandise is 

relevant to the park and its interpretive program and 

themes.

Each concession operation with a gift shop will have a 

mission statement based on the park’s concession service 

plan or general management plan. Concessioners will 

develop and implement a merchandise plan based on the 

park’s gift shop mission statement. The merchandise plan 

must be satisfactory to the Director, and should ensure that 

merchandise sold or provided refl ects the signifi cance of the 

park and promotes the conservation of the park’s geological 

resources, wildlife, plant life, archeological resources, 

local Native American culture, local ethnic and traditional 

culture, historical signifi cance, and other park resources 

and values. The plan should also integrate pollution 

prevention and waste-reduction objectives and strategies for 

merchandise and packaging. 

COMMERCIAL VISITOR SERVICES 10.1-10.2

145
MANAGEMENT POLICIES 2006

146 Merchandise must be available at a range of prices. Themerelated merchandise manufactured or handcrafted in the 

United States—particularly in a park’s geographic vicinity—

will be encouraged. The revenue derived from the sale of 

United States Indian, Alaska Native, native Samoan, and 

Native Hawaiian handicrafts is exempt from any franchise 

fee payments. 

10.2.4.6 Artifacts and Specimens 

Concessioners will not be permitted to sell any merchandise 

in violation of laws, regulations, or NPS policies. The park 

superintendent may prohibit the sale of some items for 

retail sale because the merchandise is locally sensitive or 

inappropriate for sale. The sale of original objects, artifacts, 

or specimens of a historic, archeological, paleontological, 

or biological nature is prohibited. Replicated historic, 

archeological, paleontological, or biological objects, 

artifacts, or specimens may be sold if they are obvious 

replicas and clearly labeled. 

Any geological merchandise approved for sale or exhibit 

by concessioners must be accompanied by appropriate 

educational material and a written disclaimer clearly 

stating that such items were not obtained from inside 

park boundaries. The proposed sale of any replicas, or of 

geological merchandise, must be addressed in the gift shop 

merchandise plan. 

10.2.4.7 Rates 

The National Park Service must approve all rates charged 

to visitors by concessioners. The reasonableness of a 

concessioner’s rates and charges to the public will, unless 

otherwise provided in the contract, be judged primarily 

on the basis of comparison with current rates and charges 

for facilities and services of comparable character under 

similar conditions. Due consideration will be given to length 

of season, provision for peak loads, average percentage of 

occupancy, accessibility, availability and costs of labor and 

materials, type of patronage, and other factors deemed 

signifi cant by the NPS Director.

10.2.4.8 Risk Management Program 

Concession contracts require each concessioner to develop 

a risk management program that is (1) appropriate in scope 

to the size and nature of the operation, (2) in accord with the 

Occupational Safety and Health Act of 1970 and the NPS 

concession risk management program, and (3) approved 

by the superintendent. Concessioners are responsible 

for managing all of their operations to minimize risk and 

control loss due to accident, illness, or injury. To ensure 

compliance, the Service will include a risk management 

evaluation as part of its standard operational review of 

concession operations. 

10.2.4.9 Natural and Cultural Resource 

 Management Requirements

Concessioners are required to comply with applicable 

provisions of all laws, regulations, and policies that 

apply to natural and cultural resource protection. The 

use, maintenance, repair, rehabilitation, restoration, 

or other modifi cation of concession facilities that are 

listed in or eligible for the National Register of Historic 

Places are subject to the applicable provisions of all laws, 

executive orders, regulations, and policies pertaining to 

cultural properties. The National Park Service will assist 

concessioners in understanding and complying with 

regulations for the protection of historic properties (36 CFR 

Part 800) promulgated by the Advisory Council on Historic 

Preservation. Historic structures and their contents and 

museum objects that are in the control of concessioners will 

be treated in accordance with the appropriate standards 

contained in NPS guidance documents. The Service will 

work closely with concessioners to integrate into concession 

activities the policies, procedures, and practices of 

Executive Order 13287 (Preserve America). 

(See Chapter 4: Natural Resource Management; Use of 

Historic Structures 5.3.5.4.7. Also see Reference Manual 

24: the Museum Handbook; Director’s Order #28: Cultural 

Resource Management; #38: Real Property Leasing, and 

#48A: Concession Management) 

10.2.4.10 Environmental Program Requirements 

In the operation of visitor services, concessioners will be 

required by contract to meet environmental compliance 

objectives by

complying with all applicable laws pertaining to the 

protection of human health and the environment; and 

incorporating best management practices in all 

operations, construction, maintenance, acquisition, 

provision of visitor services, and other activities under 

the contract. 

Concessioners will also be required by contract to develop, 

document, implement, and comply fully with—to the 

satisfaction of the Director—a comprehensive, written 

environmental management program (EMP) to achieve 

environmental management objectives. The EMP

should be appropriate to the nature and size of the 

operation; 

must account for all activities with potential 

environmental impacts conducted by the concessioner, 

or to which the concessioner contributes;

must be updated at least annually; and

must be approved by the superintendent.

The scope and complexity of the EMP may vary based 

on the type, size, and number of concessioner activities. 

Exceptions to the requirement for an EMP must be 

approved by the Director. 

The National Park Service will review concessioner 

compliance with the EMP under the contract. The Park 

Service will also 

assist concessioners in understanding environmental 

program requirements; 

conduct environmental compliance audits of all 

commercial visitor services at least every three years 
in accordance with the concessions environmental 

audit program (the concessioner will be responsible for 

corrective actions required by law and identifi ed during 

the environmental compliance audits); and 

include an environmental management evaluation 

as part of its annual standard operational reviews of 

concession operations. 

(See Compensation for Injuries to Natural Resources 4.1.6; 

Integrated Pest Management Program 4.4.5.2; Compensation 

for Injuries to Cultural Resources 5.3.1.3; Overnight 

Accommodations and Food Services 9.3.2. Also see Director’s 

Order #48A: Concession Management; Director’s Order #83: 

Public Health) 

10.2.4.11 Insurance 

Concession contracts will identify the types and minimum 

amounts of insurance coverage required of concessioners to

provide reasonable assurance that concessioners have 

the ability to cover bona fi de claims for bodily injury, 

death, or property damage arising from an action or 

omission of the operator; 

protect the government against potential liability for 

claims based on the negligence of the operators; and 

enable rapid repair or replacement of essential visitor 

facilities located on park lands that are damaged or 

destroyed by fi re or other hazards. 

Concessioners will not be permitted to operate without 

liability insurance. Under limited conditions, concessioners 

may operate without property insurance, as described in 

Director’s Order #48A: Concession Management. 

10.2.4.12 Food Service Sanitation Inspections 

Concessioners who prepare food on or off park lands or 

serve food on park lands will be subject to inspection 

for compliance with all applicable health and sanitation 

requirements of local and state agencies, the U.S. Public 

Health Service, and the Food and Drug Administration. 

(Also see Director’s Order #83: Public Health) 

10.2.4.13 Smoking 

Generally, all NPS concession facilities will be smoke 

free. The only exceptions—which the Service does not 

encourage—will be specifi cally designated smoking areas 

and rooms if allowed by state and local law. The sale of 

tobacco products through vending machines is prohibited. 

(Also see Director’s Order #50D: Smoking Policy; Executive 

Order 13058 (Protecting Federal Employees and the Public 

from Exposure to Tobacco Smoke in the Federal Workplace)) 

10.2.4.14 Wireless Local Area Networks

Concessioners may be authorized to provide wireless local 

area network access for park visitors and for administrative 

and employee use within concessioner assigned facilities. If 

this type of service is found to be necessary and appropriate 

and otherwise in accord with the park’s planning and 

other guidance documents, the concession authorization’s 

operating plan must identify the need for the service and 

the standards for off ering the service. A request to construct 

telecommunications equipment and infrastructure outside 

the concessioner’s assigned facilities must be processed in 

accordance with section 8.6.4.3.

10.2.5 Concessions Financial Management 

Concession contracts must provide for payment to 

the government of a franchise fee, or other monetary 

consideration as determined by the Secretary, upon 

consideration of the probable value to the concessioner of 

the privileges granted by the particular contract involved. 

Such probable value will be based upon a reasonable 

opportunity for net profi t in relation to capital invested 

and the obligations of the contract. Consideration of 

revenue to the United States is subordinate to the objectives 

of protecting and preserving park areas and providing 

necessary and appropriate services for visitors at reasonable 

rates. 

10.2.5.1 Franchise Fees 

The amount of the franchise fee or other monetary 

consideration paid to the United States for the term of the 

concession contract must be specifi ed in the concession 

contract and may only be modifi ed to refl ect extraordinary 

unanticipated changes from the conditions expected 

as of the eff ective date of the contract. Contracts with a 

term of more than fi ve years will include a provision that 

allows reconsideration of the franchise fee at the request 

of the Director or the concessioner in the event of such 

extraordinary unanticipated changes. Such provision 

will provide for binding arbitration in the event that the 

Director and the concessioner are unable to agree upon an 

adjustment to the franchise fee in these circumstances. 

10.2.5.2 Franchise Fee Special Account 

All franchise fees and other monetary considerations 

will be deposited into a Department of the Treasury 

special account. In accordance with the NPS Concessions 

Management Improvement Act of 1998, twenty percent 

(20%) will be available to support activities throughout 

the national park system, and eighty percent (80%) will 

be available to the park unit in which it was generated for 

visitor services and funding high-priority and urgently 

necessary resource management programs and operations. 

10.2.5.3 Record-keeping System 

All concessioners will establish and maintain a system of 

accounts and a record-keeping system that use written 

journals and general ledger accounts to facilitate the 

preparation of annual concessioner fi nancial reports. 

10.2.5.4 Annual Financial Reports 

For each concession contract, concessioners will be 

required to submit a separate annual fi nancial report that 

refl ects only the operations they are authorized to provide 

under that particular contract. 

COMMERCIAL VISITOR SERVICES 10.2

147
MANAGEMENT POLICIES 2006

148 10.2.5.5 Donations to the National Park Service

The National Park Service will not solicit or accept direct 

donations or gifts from entities that have or are seeking to 

obtain a concessions contract. The Park Service will not 

require any concessioner to donate or make contributions 

to the Service under any circumstance, including the 

incorporation of such a requirement in concession 

contracts. Further guidance on donations is available in 

Director’s Order #21: Donations and Fundraising. 

10.2.6 Concession Facilities 

All buildings under a concession contract are U.S. 

government/Service-owned structures and are part of the 

overall facility inventory at each park. Depending on the 

contract, the concessioner may have a contractual right 

of compensation in the form of a leasehold surrender 

interest or possessory interest in one, some, or all of the 

buildings. Responsibilities for maintenance, environmental 

management, and other operational issues must be included 

in each concession contract. Park facility managers will 

work closely with the park’s concession program managers 

to ensure that these government buildings are part of the 

overall park inventory and tracking systems. Park managers 

will ensure that possessory interests and leasehold 

surrender interest valuations conform to the terms and 

conditions of the concession contract.

10.2.6.1 Design 

Concession facilities will be of a size and at a location that 

the Service determines to be necessary and appropriate 

for their intended purposes. All concession facilities 

must comply with applicable federal, state, and local 

construction codes, and meet accessibility requirements 

as set forth in applicable accessibility guidelines. Proposed 

concession facilities must conform to NPS standards for 

sustainable design, universal design, and architectural 

design. Concession development or improvement proposals 

must undergo review for compliance with the National 

Environmental Policy Act of 1969 and section 106 of the 

National Historic Preservation Act (16 USC 470f), and 

proposals must be carried out in a manner consistent 

with applicable provisions of the Secretary of the Interior’s 

Standards and Guidelines for Archeology and Historic 

Preservation and other applicable legal requirements.

In addition to general park design requirements, the Park 

Service will apply value analysis during the design process 

to analyze the functions of facilities, processes, systems, 

equipment, services, and supplies. Value analysis must be 

used to help achieve essential functions at the lowest lifecycle cost, consistent with required performance, reliability, 

environmental quality, and safety criteria and standards. 

(See Facility Planning and Design 9.1.1) 

10.2.6.2 Accessibility of Commercial Services 

Concessioners share the National Park Service’s 

responsibility to provide employees and visitors with the 

greatest degree of access to programs, facilities, and services 

that is reasonable, within the terms of existing contracts 

and agreements. Applicable laws include, but are not limited 

to (1) regulations issued under the authority of section 504 

of the Rehabilitation Act of 1973, as amended (43 CFR Part 

17), which prohibits discrimination on the basis of disability 

in programs or activities conducted by federal executive 

agencies; and (2) the Architectural Barriers Act of 1968, 

which requires physical access to buildings and facilities. 

Where there is no specifi c language identifying applicable 

accessibility laws in an existing concession contract, the 

Park Service will address the issue of compliance in the 

annual concession operating plan. 

(See Physical Access for Persons with Disabilities 5.3.2; 

Accessibility for Persons with Disabilities 1.9.3, 8.2.4 and 9.1.2. 

Also see Director’s Order #42: Accessibility for Visitors with 

Disabilities in National Park Service Programs and Services) 

10.2.6.3 Maintenance 

Concession contracts will require concessioners 

to be responsible for all maintenance and repair of 

facilities, lands, and utility systems assigned for their 

use, in accordance with standards acceptable to the 

Service. Exceptions will be made only in extraordinary 

circumstances, as determined by the Director. All 

concession contracts must include a current maintenance 

plan as specifi ed in the concession contract. Maintenance 

plans are an exhibit to the concession contract and will be 

considered an integral part of a concessioner’s contractual 

performance compliance. 

Maintenance of historic properties and cultural landscapes 

will be carried out in a manner consistent with applicable 

provisions of the Secretary of the Interior’s Standards and 

Guidelines for Archeology and Historic Preservation. 

10.2.6.4 Utilities and Services 

Utilities include, but are not limited to, electricity, fuel, 

natural gas, water, disposal of wastewater and solid 

waste, and communication systems. When available, the 

Service may provide utilities to the concessioner for use 

in connection with the operations required or authorized 

under the contract at rates to be determined in accordance 

with applicable laws. If the Service does not provide utilities 

to the concessioner, the concessioner will, with the written 

approval of the Director and under any requirements 

prescribed by the Director, (1) secure necessary utilities at 

its own expense from sources outside the area; or (2) install 

the utilities within the area, subject to conditions of the 

contract. 

(Also see Director’s Order #35B: Sale of National Park 

Service-produced Utilities) 

10.2.6.5 Closure of Commercial Operations during 

Government Shutdown

The Anti-Defi ciency Act requires federal agencies to 

suspend all nonessential activities whenever there is a 

failure to enact an appropriations bill or adopt a continuing 

resolution. All concessioner-operated programs and 

services must cease, and visitors must be asked to leave 

within 48 hours. All commercial facilities and services in a 

park will be closed to protect the safety of visitors and the 
integrity of park resources. Exceptions to this policy include 

concessions that are required for health and safety purposes 

or protection of the environment, or that are necessary to 

support park operations that are deemed essential, such as 

law enforcement. 

Commercial facilities located on through-roads (roads or 

public highways that begin and end outside of a park, plus 

parkways) and public highways may remain open if doing so 

does not result in additional costs to the park (for example, 

the staffi ng of entrance stations). These commercial facilities 

may include operations such as service stations, food 

services, stores, and lodging, or portions of such operations. 

The commercial facility in question should have access 

directly from the road or highway and not require the 

reopening of park roads having other destinations. More 

specifi c aspects of closures may be guided by a Service-wide 

shutdown plan. 

10.2.7 Concessioner Employees and 

 Employment Conditions 

10.2.7.1 Nondiscrimination 

Concessioners will comply with all applicable laws and 

regulations relating to nondiscrimination in employment 

and the provision of services to the public. As the National 

Park Service strives to achieve workforce diversity, so too 

will concessioners be encouraged to recognize workforce 

diversity as a sound business practice.

10.2.7.2 Substance Abuse 

In compliance with state and federal regulations 

condemning substance abuse, the Park Service prohibits 

the unlawful possession, use, or distribution of illicit 

drugs and alcohol. The Service also prohibits the unlawful 

manufacture, cultivation, processing, or transportation 

of illicit drugs. This policy applies to concessioners and 

their employees, at any facility or in any activity taking 

place on NPS lands. Concessioners are required to provide 

and advise employees about the availability of employee 

assistance programs addressing substance abuse problems. 

10.2.8 NPS Employees 

10.2.8.1 Accepting Gifts and Reduced Rates 

 from Concessioners 

NPS employees may not receive concessioner goods or 

services at a discount unless it is in connection with offi cial 

business, is to the government’s advantage, and is provided 

for under the terms of a concession contract. However, 

employees may accept reduced rates or discounts off ered 

by the concessioner when those same reduced rates or 

discounts are available to the general public.

 NPS employees may not solicit or accept, directly or 

indirectly, any gift, gratuity, favor, entertainment, loan, or 

any other thing of monetary value from a concessioner or 

other person who conducts operations and activities that 

are regulated by the Department of the Interior. Employees 

should consult with their ethics counselor regarding the 

limited exceptions to the general prohibition on accepting 

gifts from outside sources. 

10.2.8.2 Employment of NPS Personnel or

 Family Members by Concessioners 

Federal law prohibits government employees from making 

recommendations, decisions, or approvals relating to 

applications, contracts, controversies, or other matters 

in which the employee or the employee’s spouse or minor 

child has a fi nancial interest. Park employees may not 

make decisions, approvals, or recommendations related 

to concession activities when their spouse or dependent 

child is employed by a park concessioner in that particular 

park. For example, the spouse or dependent child of the 

superintendent, assistant superintendent, concession staff , 

environmental manager, or public health specialist may not 

be employed by a concessioner in the specifi c park in which 

the NPS employee works. 

(Also see Director’s Order #37: Home Businesses in Park 

Housing) 

10.2.8.3 NPS Employee Ownership or 

 Investment in Concession Businesses 

Department of the Interior policy prohibits employees 

and their spouses and minor children from acquiring or 

retaining for commercial purposes any permit, lease, or 

other rights granted by the Department for conducting 

commercial services on federal lands. Therefore, no NPS 

concession contract or commercial use authorization to 

conduct commercial services in a park will be issued to NPS 

employees or their spouses and minor children who are 

owners, partners, corporate offi cers, or general managers 

of any business seeking such a contract in federal land 

managed by the Department of the Interior. Further, to 

avoid the appearance of partiality and confl icts of interest, 

and to comply with ethics laws that apply to all federal 

employees, NPS employees may not work on any matter 

involving a business in which they, their spouse, or their 

minor children have a fi nancial interest. 

10.2.8.4 Concession Management

 Personnel Qualifi cations 

To eff ectively carry out the concession management 

program, managers and supervisors will make every eff ort 

to ensure that personnel selected for positions meet the 

essential competencies established for the position being 

fi lled. When concession management personnel lack the full 

complement of essential competencies or require refresher 

training for their position, managers and supervisors will 

ensure that those employees are trained and certifi ed 

as competent. All personnel vacancy announcements 

issued for concession management must include program 

competencies. 

10.3 Commercial Use Authorizations

Commercial use authorizations (CUAs), which are not 

considered as concession contracts, may be issued pursuant 

to section 418 of the National Park Service Concessions 

Management Improvement Act of 1998 (16 USC 5966). A 

commercial use authorization is a permit that authorizes 

suitable commercial services to park area visitors in limited 

circumstances as described in 10.3.1. A concession contract 

COMMERCIAL VISITOR SERVICES 10.2-10.3

149
MANAGEMENT POLICIES 2006

150 may be issued instead of the commercial use authorization 

when the Director determines that the services are 

necessary and appropriate, and/or provision of the services 

require certain protections such as legal, fi nancial, and 

resource provisions that are more typical of a concession 

contract. A more detailed discussion of commercial use 

authorizations is included in Director’s Order #48B: 

Commercial Use Authorizations.

10.3.1 General

Commercial use authorizations may be issued only 

to authorize services that (1) are determined to be an 

appropriate use of the park; (2) will have minimal impact 

on park resources and values; and (3) are consistent with 

the purpose for which the unit was established, as well as 

all applicable management plans and park policies and 

regulations. 

10.3.2 Requirements

By law, a commercial use authorization must provide for

payment of a reasonable fee, such fees to be used, at 

a minimum, to recover associated management and 

administrative costs;

provision of services in a manner consistent to the 

highest practicable degree with the preservation and 

conservation of park resources and values; and

limitation of liability of the federal government arising 

from the commercial use authorization.

No park may issue commercial use authorizations in a 

quantity inconsistent with the preservation and proper 

management of park resources and values. Each park issuing 

commercial use authorizations will ensure that it contains 

provisions for the protection of visitors and the resources 

and values of the park.

10.3.3 Limitations

By law, commercial use authorizations may be issued only 

for

commercial operations with annual gross receipts 

of not more than $25,000 resulting from services 

originating and provided solely within a unit of the 

national park system pursuant to such authorization;

the incidental use of resources of the unit by 

commercial operations that provide services originating 

and terminating outside of the boundaries of the park 

unit; or 

such uses by organized children’s camps, outdoor clubs, 

nonprofi t institutions (including backcountry use), and 

such other uses as the Secretary of the Interior deems 

appropriate.

Nonprofi t institutions will be required to obtain commercial 

use authorizations only when they generate taxable income 

from the authorized use.

10.3.4 Construction Prohibition

By law, under no circumstances will a commercial use 

authorization provide for or allow construction of any 

structure, fi xture, or improvement on federally owned land 

within any unit of the national park system.

10.3.5 Duration

By law, the maximum term for any commercial use 

authorization is two years in length. No rights of renewal 

are associated with commercial use authorizations.

10.3.6 Other Contracts

Holding or seeking to obtain a commercial use 

authorization does not preclude a person, corporation, or 

other entity from submitting proposals for concessions 

contracts.
Appendix A

Laws Cited in Text

Abandoned Shipwreck Act of 1987

43 USC1

 2101—2106; PL2 100-298

(popularly known as) Acquired Lands 

Mineral Leasing Act

30 USC 301—306; May 21, 1930, 

ch. 307, 46 Stat. 373

Administrative Procedure Act (APA)

5 USC 551 et seq.3

, June 11, 1946, 

ch. 324, 60 Stat. 237

Alaska National Interest Lands 

Conservation Act (ANILCA)

16 USC 3101—3233; PL 96-487

American Indian 

Religious Freedom Act (AIRFA)

42 USC 1996—1996a; PL 95-341, 

103-344

Americans with Disabilities Act 

of 1990 (ADA)

42 USC 12101—12213; PL 101-336

Animal Welfare Act

7 USC 2131—2159; PL 89-544; 94-279

Anti-Defi ciency Act

31 USC 1341; July 12, 1870, ch. 251, 

16 Stat. 251, PL 97-258

Antiquities Act of 1906

16 USC 431—433; June 8, 1906, 

ch. 3060, 34 Stat. 225

Archaeological Resources Protection 

Act of 1979 (ARPA)

16 USC 470aa—470mm; PL 96-95

Architectural Barriers Act of 1968

42 USC 4151—4157; PL 90-480

Clean Air Act (CAA)

42 USC 7401—7671q; PL 88-206

Coastal Zone Management Act 

of 1972 (CZMA)

16 USC 1451—1465; PL 89-454, 92-583

Commemorative Works Act

40 USC 8901—8909; PL 99-652, 107-217

Comprehensive Environmental 

Response, Compensation and Liability 

Act of 1980 (CERCLA)

42 USC 9601—9675; PL 96-510

Endangered Species Act of 1973

16 USC 1531—1544; PL 93-205

Energy Policy Act of 1992

42 USC 13201—13556; PL 102-486

Equal Employment Opportunity Act 

of 1972

42 USC 2000e-16(a)4

; PL 92-261

Federal Advisory Committee Act 

(FACA)

5 USC App. 1—16; PL 92-463

Federal Cave Resources Protection Act 

of 1988 (FCRPA)

16 USC 4301—4310; PL 100-691

Federal Insecticide, Fungicide and 

Rodenticide Act

7 USC 136—136y; PL 92-516

1 The United States Code (USC) can be 

accessed on the Internet, e.g., at <http://

www4.law.cornell.edu/uscode/>, or 

<http://www.gpoaccess.gov/uscode/index.

html>.

2 The text of any Public Law (PL) enacted 

by the 101st or a later Congress (1989 

onward) can be accessed at the Library 

of Congress’s THOMAS website, <http://

thomas.loc.gov/>.

3 Act of June 11, 1946, ch. 324, has been 

codifi ed to 5 USC §§551—559, 701—706, 

1305, 3105, 3344, 4301, 5335, 5372, and 7521.

4 PL 92-261 was codifi ed to 42 USC 

§§2000e—2000e-6, 2000e-8, 2000e-9, 

2000e-13, 2000e-14, 2000e-16 and 2000e-17, 

and 5 USC §§5108 and 5314—5316.

Federal Lands Recreation Enhancement 

Act (FLREA)

16 USC 6801—6814; PL 108-4475

Federal Managers’ Financial Integrity 

Act of 1982

31 USC 3512(d); PL 97-255, 97-4526

Federal Water Pollution Control Act

(commonly known as the Clean Water 

Act)

33 USC 1251—1387; PL 92-500, 95-217

Freedom of Information Act (FOIA)

5 USC 552; PL 89-554, 90-23

General Mining Act of 1872

30 USC 22 et seq.7

; May 10, 1872, ch. 

152, 17 Stat. 91

Geothermal Steam Act of 1970

30 USC 1001—1028; PL 91-581, 

100-443

Government Performance and Results 

Act of 1993 (GPRA)

31 USC 11158

 et seq. ; PL 103-62

Hazardous Materials 

Transportation Act

49 USC 5101—5127; PL 93-633, 101-615, 

103-311

5 The Federal Lands Recreation 

Enhancement Act is division J, title 

VIII of PL 108-447, the Consolidated 

Appropriations Act, 2005. 

6 PL 97-452, the Jan. 12, 1983 revision 

of title 31, in particular section 1(12), 

redesignated 16 USC 3512(b) as 16 USC 

3512(d). 

7 The General Mining Act of 1872 was 

the basis of 30 USC §§22-24, 26-30, 33-35, 

37, 39-43, and 47.

8 PL 103-62 was codifi ed to: 5USC 306; 

31 USC 1105(a)(29); 1115—1119, 9703, 9704; 

and 39 USC 2801—2805.

APPENDIX A Laws Cited in Text

151
(popularly known as) Historic Sites, 

Buildings and Antiquities Act

16 USC 461—467; Aug. 21, 1935, ch. 

593, 49 Stat. 666

Land and Water Conservation Fund 

Act of 1965

16 USC 460l-4—460l-11; PL 88-578

Mineral Leasing Act

30 USC 181—287; Feb. 25, 1920, ch. 85, 

41 Stat. 437

Mining in the Parks Act

16 USC 1901—1912; PL 94-429

(popularly known as) Museum Act

16 USC 18f—18f-3; July 1, 1955, ch. 259, 

69 Stat. 242, PL 104-3339

National Cemeteries Act of 1973

38 USC 2400—2410; PL 93-43

National Environmental Policy Act 

of 1969 (NEPA)

42 USC 4321—4370d; PL 91-190

National Historic Preservation Act 

(NHPA)

16 USC 470—470x-6; PL 89-665, 

96-515

National Parks Air Tour Management 

Act of 2000

114 Stat. 61; PL 106-181 (title VIII)

National Parks Omnibus Management 

Act of 1998

16 USC 5901—601110 ; PL 105-391

National Park Service Concessions 

Management Improvement Act of 

1998

16 USC 5951—5966; PL 105-391 

(title IV)

National Park Service Organic Act

16 USC 1—4; Aug. 25, 1916, ch. 408, 

39 Stat. 53511

National Park System General 

Authorities Act

16 USC 1a-1 et seq.12; PL 91-383, 

94-458, 95-25013

(popularly known as) National Park 

System Resource Protection Act

16 USC 19jj—19jj-4; PL 101-337, 

104-333

National Trails System Act

16 USC 1241—1251; PL 90-543, 98-11

Native American Graves Protection 

and Repatriation Act (NAGPRA)

25 USC 3001—3013; PL 101-601

Occupational Safety and Health Act of 

1970

29 USC 651—678; PL 91-59614

Oil Pollution Act of 1990

33 USC 2701—2761; PL 101-380

(popularly known as) Omnibus 

Consolidated Appropriations Act, 1997

16 USC 1g et seq.15; PL 104-208

Privacy Act of 1974

5 USC 552a; PL 93-579

Rehabilitation Act of 1973

29 USC 701—797b; PL 93-112, 105-220

Rivers and Harbors Appropriation Act 

of 1899

33 USC 401 et seq.16; Mar. 3, 1899, 

ch. 425, 30 Stat. 1121

Robert T. Stafford Disaster Relief and 

Emergency Assistance Act

42 USC 5121—5204c17; PL 93-288, 

100-707, 103-337

Solid Waste Disposal Act

42 USC 6901—6992k; PL 89-272, 

94-58018, 98-61619

Surface Mining Control and 

Reclamation Act of 1977

30 USC 1201—1328; PL 95-87

Telecommunications Act of 1996

47 USC 332 note; PL 104-10420

Toxic Substances Control Act

15 USC 2601—2692; PL 94-469

Volunteers in the Parks Act of 1969

16 USC 18g—18j; PL 91-357

Wild and Scenic Rivers Act

16 USC 1271—1287; PL 90-542

Wilderness Act

16 USC 1131—1136; PL 88-577

9 Section 804 of division 1, title VIII of 

PL 104-333, the Omnibus Parks and Public 

Lands Management Act of 1996, amended 

16 USC 18f, and enacted §§18f-2 and 18f-3 

10 In addition to enacting §§19o and 

5901—6011 of title 16, PL 105-391 amended 

16 USC 1a-2, 1a-5, 1a-7, and 3, and repealed 

16 USC 17b-1, 20, 20a—20g.

11 See also §10(a) of PL 108-352.

12 PL 91-383, as originally enacted, added 

§§1a-1 and 1a-2, and amended §§1b and 1c, 

of title 16.

13 PL 95-250, an act expanding Redwood 

National Park, also amended the National 

Park System General Authorities Act by 

adding the second and third sentences to 

16 USC 1a-1. See also, §10(b) of PL 108-352.

14 PL 91-596 enacted 29 USC 651—678 and 

42 USC 3142-1, and amended 29 USC 553, 5 

USC 5108, 5314, 5315, and 7902, 15 USC 633 

and 636, 18 USC 1114, and §1421 of former 

title 49.

15 The Omnibus Consolidated 

Appropriations Act, 1997 enacted §§1g and 

1011 of title 16, and amended §§773 ,773c, 

917, 917a, 971, 971b, 971d, 971e, 972c, 973a, 

1362, 1371, 1383a, 1387, 1417, 1432, 1445a, 

1827, 2803, 2804, 3125, 3343, 3373, 3377, 

3631, 4120, 5102, 5103, 5106, 5107a, 5107b, 

5503, 5504 and 5609 of the same title.

16 The Rivers and Harbors Appropriation 

Act of 1899 was codifi ed to 33 USC §§401, 

403, 404, 406—409, 411—416, 418, 502, 549 

note, 686, and 687.

17 The Federal Civil Defense Act of 1950, 

50 USC App. 2251—2303, was repealed, and 

restated in title VI (42 USC 5195—5197g) of 

the Robert T. Staff ord Disaster Relief and 

Emergency Assistance Act, by PL 103-337.

18 The Solid Waste Disposal Act was 

amended and essentially re-written by 

PL 94-580, the Resource Conservation and 

Recovery Act of 1976. 

19 PL 98-616, the Hazardous and Solid 

Waste Amendments of 1984, enacted 

§§6917, 6936 to 6939a, 6949a, 6979a, 6979b, 

and 6991 to 6991i of title 42 of the US Code 

(and provisions set out as notes to §§6905, 

6921 and 6926), and amended §§6901, 6902, 

6905, 6912, 6915, 6916, 6921 to 6933, 6935, 

6941 to 6945, 6948, 6956, 6962, 6972, 6973, 

6976, 6982 and 6984 of the same title.

20 The provision of the Telecommunications Act of 1996 dealing with the 

granting of rights-of-way, etc., by federal 

departments and agencies to wireless 

telecommunications providers is §704(c), 

title VII, of PL 104-104.

MANAGEMENT POLICIES 2006

152
Appendix B 

Executive Orders and 

Memoranda Cited in Text

Executive Order No. 11644 (Use of 

Off-road Vehicles on the Public Lands)

February 8, 1972, 37 FR 2877, as 

amended by Ex. Ord. No. 11989, 

May 24, 1977, 42 FR 26959; Ex. Ord. No. 

12608, September 9, 1987, 52 FR 34617 

[42 USC 4321]1

Executive Order No. 11988 (Floodplain 

Management)

May 24,1977, 42 FR 26951, as amended 

by Ex. Ord. No. 12148, July 20, 1979, 44 

FR 43239 [42 USC 4321] 

Executive Order No. 11990 (Protection 

of Wetlands) 

May 24, 1977, 42 FR 26961, as amended 

by Ex. Ord. No. 12608, September 9, 

1987, 52 FR 34617 [42 USC 4321] 

Executive Order No. 12898 

(Federal Actions to Address 

Environmental Justice in Minority 

Populations and Low Income 

Populations) 

February 11, 1994, 59 FR 7629, as 

amended by Ex. Ord. No. 12948, 

January 30, 1995, 60 FR 6381 [42 USC 

4321] 

Memorandum on Government-toGovernment Relations with Native 

American Tribal Governments 

April 29, 1994, 59 FR 22951 [25 USC 

450] 

Executive Order No. 13006 

(Locating Federal Facilities on Historic 

Properties in Our Nation’s Central 

Cities) 

May 21, 1996, 61 FR 26071 [40 USC 

3306] 

Executive Order No. 13007 

(Indian Sacred Sites) 

May 24, 1996, 61 FR 26771 [42 USC 

1996] 

Executive Order No. 13058 (Protecting 

Federal Employees and the Public from 

Exposure to Tobacco Smoke in the 

Federal Workplace) 

August 9, 1997, 62 FR 43451 [5 USC 

7301] 

Executive Order No. 13101 

(Greening the Government Through 

Waste Prevention, Recycling and 

Federal Acquisition) 

September 14, 1998, 63 FR 49643 [42 

USC 6961] 

Executive Order No. 13112 

(Invasive Species)

February 3, 1999, 64 FR 6183, as 

amended by Ex. Ord. No. 13286, 

February 28, 2003, 68 FR 10619 [42 USC 

4321] 

Executive Order No. 13123 

(Greening the Government Through 

Effi cient Energy Management) 

June 3, 1999, 64 FR 30851 [42 USC 8251] 

Executive Order No. 13148 

(Greening the Government Through 

Leadership in Environmental 

Management) 

April 21, 2000, 65 FR 24595 [42 USC 

4321] 

1 The citation in brackets indicates where 

the Executive Order or Memorandum may 

be found in notes to the US Code.

Executive Order No. 13149 

(Greening the Government Through 

Federal Fleet and Transportation 

Effi ciency) 

April 21, 2000, 65 FR 24607 [42 USC 

13212] 

Executive Order No. 13175 

(Consultation and Coordination with 

Indian Tribal Governments) 

November 6, 2000, 65 FR 67249 [25 USC 

450] 

Executive Order No. 13266 

(Activities to Promote Personal Fitness) 

June 20, 2002, 67 FR 42467 [42USC 

300u] 

Executive Order No. 13287 

(Preserve America) 

March 3, 2003, 68 FR 10635 [16 USC 

470h-2] 

Executive Order No. 13327 

(Federal Real Property Asset 

Management) 

February 4, 2004, 69 FR 5897 [40 USC 

121] 

Executive Order No. 13352 (Facilitation 

of Cooperative Conservation) 

August 26, 2004, 69 FR 52989 [42 USC 

4332] 

APPENDIX B Executive Orders and Memorada Cited in Text

153
MANAGEMENT POLICIES 2006

154

Appendix C

Director’s Orders

Director’s Orders provide guidance for 

implementing certain aspects of NPS 

Management Policies, and are used as 

a vehicle for updating Management 

Policies between publishing dates. 

In many cases, Director’s Orders are 

further supplemented by handbooks 

or reference manuals.

Director’s Orders marked with an 

asterisk (*) in this list have not been 

completed as of the publication date 

of Management Policies. Copies of 

those that have been completed and 

those that are completed or added 

in the future may be obtained by 

contacting the NPS Offi ce of Policy or 

the appropriate NPS program offi ce, or 

by accessing the NPS World Wide Web 

site at <http://www.nps.gov/policy>.

Please note that the numbers assigned 

to some of the Director’s Orders on 

this list may be revised as the Directives 

system evolves in the future. A status 

chart at the web site should be 

consulted for the most current listing 

of Director’s Orders. 

1. National Park Service 

 Directives System

2. Park Planning

2-1. Resource Stewardship Planning*

3. Delegations of Authority*

4. Diving Management

5. Paper and Electronic 

Communications

6. Interpretation and Education

7. Volunteers in Parks

8. Budget and Programming*

9. Law Enforcement Program

10A. Design and Construction 

Drawings

10B. Drawing and Map Numbers*

11A. Information Technology 

Management*

11B. Ensuring Quality of Information 

Disseminated by the NPS

11C. Web Publishing*

12. Conservation Planning, 

Environmental Impact Analysis, 

and Decision-making

13A. Environmental Management 

Systems

13B. Solid and Hazardous Waste 

Management*

14. Resource Damage Assessment 

and Restoration

15. NPS Wireless Spectrum 

Management

16A. Reasonable Accommodation 

 for Applicants and Employees 

with Disabilities

16B. Diversity in the Workplace*

16C. Discrimination Complaints 

Process*

16D. Equal Employment Opportunity 

and Zero Tolerance for 

Discrimination

16E. Sexual Harassment

17. National Park Service Tourism 

18. Wildland Fire Management

19. Records Management

20. Agreements

21. Donations and Fundraising

22. Fee Program*

23. (reserved)

24. NPS Museum Collections 

Management

25. Land Protection

26. Youth Programs

27. Challenge Cost-share Program*

28. Cultural Resource Management

28A. Archeology

28B. Ethnography Program*

28C. Oral History*

29. (reserved) 

30. (reserved)

31. Travel Procedures*

32. Cooperating Associations

33. (reserved)

34. (reserved)

35A. Sale or Lease of Park Services, 

Resources, or Water in Support 

of Activities Outside the 

Boundaries of National Park 

Areas

35B. Sale of National Park ServiceProduced Utilities*

36. Housing Management*

37. Home Businesses in 

 Park Housing*

38. Real Property Leasing

39. (reserved)

40. Dams and Appurtenant Works—

Maintenance, Operation, and 

Safety*

41. Wilderness Preservation and 

Management
42. Accessibility for Visitors with 

Disabilities in National Park 

Service Programs and Services

43. Uniform Program

44. Personal Property Management

45-1. National Scenic and Historic 

Trails*

46A. Wild and Scenic Rivers Within 

the National Park System*

47. Soundscape Preservation and 

Noise Management

48A. Concession Management*

48B. Commercial Use Authorizations*

49. (reserved)

50A. Worker’s Compensation Case 

Management

50B. Occupational Safety and Health

50C. Public Risk Management 

Program*

50D. Smoking Policy

51. Emergency Medical Services

52A. Communicating the National 

Park Service Mission

52B. Graphic Design Standards*

52C. Park Signs

52D. Use of the Arrowhead Symbol*

53. Special Park Uses

54. Management Accountability*

55. Incident Management Program*

56. International Affairs*

57. Occupational Medical Standards, 

Health and Fitness

58. Structural Fire Management

59. Search and Rescue*

60. Aviation Management

61. National Cemetery Operations*

62. Property Acquisition*

63. Geographic Names*

64. Commemorative Works and 

Plaques*

65. Explosives Use and Blasting 

Safety

66. FOIA and Protected Resource 

Information*

67. Copyright and Trademarks*

68. Notifi cation Protocol for 

Conduct of Employee 

Investigations

69. Serving on Boards of Directors*

70. (See 11 C)

71A. Government-to-Government 

Relationships with Tribal 

Governments*

71B. Indian Sacred Sites*

72. Receiving or Generating 

Individual Indian Trust Data

73. (reserved)

74. Studies and Collecting*

75A. Civic Engagement and Public 

Involvement

75B. Media Relations*

76. Legislative and Congressional 

Affairs

77-1. Wetland Protection

77-2. Floodplain Management

77-3. Domestic and Feral Livestock 

Management*

77-4. Use of Pharmaceuticals for 

Wildlife*

77-5. Bioengineered Organisms*

77-6. Cooperative Research and 

Development Agreements*

77-7. Integrated Pest Management*

77-8. Endangered Species*

77-9. In-park Borrow Material*

77-10. Natural Resource Inventorying 

and Monitoring

78. Social Science

79. Relocation Policies and 

Procedures*

80. Asset Management*

81. (reserved)

82. Public Use Data Collecting and 

Reporting Program*

83. Public Health

84. Library Management*

85. Garnishments and Levies*

86. (reserved)

87A. Park Roads and Parkways*

87B. Alternative Transportation 

Systems*

87C. Transportation System Funding*

87D. Non-NPS Roads

88. Documents Needed for 

Litigation*

89. Acquisition and Management 

 of Leased Space

90. Value Analysis

91. Advisory Committees*

92. Human Resources*

93. Confl ict Resolution

94. Appeals and Hearings*

APPENDIX C Director’s Orders

155
MANAGEMENT POLICIES 2006

156

Glossary

Some of the words, terms, and 

concepts used in these Management 

Policies will have different meanings 

for different readers. For the purposes 

of understanding and applying these 

policies, their meanings are as shown 

below.

Accessibility—occurs when individuals 

with disabilities are able to reach, 

use, understand, or appreciate NPS 

programs, facilities, and services, 

or to enjoy the same benefi ts that 

are available to persons without 

disabilities. See also, “universal 

design.” 

Accession— a transaction whereby a 

museum object or specimen is acquired 

for a museum collection. Accessions 

include gifts, exchanges, purchases, 

fi eld collections, loans, and transfers. 

Adaptive management—a system of 

management practices based on clearly 

identifi ed outcomes, monitoring to 

determine if management actions 

are meeting outcomes, and, if not, 

facilitating management changes that 

will best ensure that outcomes are 

met or to re-evaluate the outcomes. 

Adaptive management recognizes that 

knowledge about natural resource 

systems is sometimes uncertain and is 

the preferred method of management 

in these cases. (Source: Departmental 

Manual 516 DM 4.16)

Administrative record— the “paper 

trail” that documents an agency’s 

decision making process and the basis 

for the agency’s decision. It includes 

all materials directly or indirectly 

considered by persons involved 

in the decision making process, 

including opinions or information 

considered but rejected. These are the 

documents that a judge will review to 

determine whether the process and 

the resulting agency decision were 

proper, and that future managers will 

use to understand the evolution of 

the issue(s) and how decisions were 

reached and made. 

Carrying capacity—the maximum 

population of a particular species 

that a particular region can support 

without hindering future generations’ 

ability to maintain the same 

population. A visitor, or user, carrying 

capacity is the type and level of use 

that can be accommodated while 

sustaining the desired resource and 

visitor experience conditions.

Civic Engagement— as a philosophy, 

a discipline, and a practice, it can 

be viewed as a continuous, dynamic 

conversation with the public on many 

levels that reinforces the commitment 

of the NPS and the public to the 

preservation of park resources and 

strengthens understanding of the 

full meaning and contemporary 

relevance of these resources. Civic 

engagement is the philosophy of 

welcoming people into the parks 

and building relationships around a 

shared stewardship mission, whereas 

public involvement (also called public 

participation) is the specifi c, active 

involvement of the public in NPS 

planning and other decision-making 

processes.

Commemorative work— any statue, 

monument, sculpture, plaque, 

memorial, or other structure or 

landscape feature, including a garden 

or memorial grove, designed to 

perpetuate the memory of a person, 

group, event, or other signifi cant 

element of history. 

Conserve—to protect from loss or 

harm; preserve. Historically, the 

terms conserve, protect, and preserve 

have come collectively to embody the 

fundamental purpose of the NPS—

preserving, protecting and conserving 

the national park system. 

Consultation— a discussion, 

conference, or forum in which advice 

or information is sought or given, or 

information or ideas are exchanged. 

Consultation generally takes place on 

an informal basis; formal consultation 

requirements for compliance with 

section 106 of NHPA are published 

in 36 CFR Part 800. Consultation 

with recognized tribes is done on a 

government-to-government basis.

American Indian tribe— any band, 

nation, or other organized group 

or community of Indians, including 

any Alaska Native Village, which is 

recognized as eligible for the special 

programs and services provided by the 

United States to Indians because of 

their status as Indians. 

Appropriate use—a use that is 

suitable, proper, or fi tting for a 

particular park, or to a particular 

location within a park. 

Archeological resource— any material 

remains or physical evidence of past 

human life or activities which are 

of archeological interest, including 

the record of the effects of human 

activities on the environment. An 

archeological resource is capable 

of revealing scientifi c or humanistic 

information through archeological 

research. 

Asset—a physical structure or 

grouping of structures, land features, 

or other tangible property which has a 

specifi c service or function.

Asset management—a systematic 

process of maintaining, upgrading, and 

operating assets cost-effectively by 

combining engineering principles with 

sound business practices and economic 

theory. 

Backcountry— primitive, undeveloped 

portions of parks, some of which may 

be managed as “wilderness.” 

Best available technology— 

technology that will help achieve 

effi cient and economically viable 

facilities and services, while offering 

the greatest protection and 

environmental benefi t for park visitors, 

employees, resources and values.

Best management practices 

(BMPs)— practices that apply the 

most current means and technologies 

available to not only comply with 

mandatory environmental regulations, 

but also maintain a superior level of 

environmental performance. See also, 

“sustainable practices/principles.” 
Cooperating associations— private, 

nonprofi t corporations established 

under state law which support the 

educational, scientifi c, historical, and 

interpretive activities of the NPS in a 

variety of ways, pursuant to formal 

agreements with the Service. 

Cooperative conservation—as 

defi ned in Executive Order 

13352, actions that relate to use, 

enhancement, and enjoyment of 

natural resources, protection of the 

environment, or both, and that involve 

collaborative activity among federal, 

state, local, and tribal governments, 

private for-profi t and nonprofi t 

institutions, other nongovernmental 

entities and individuals. It is one of 

several “tools” or authorities that 

park managers may employ as they 

use the full scope of NPS authorities 

to protect park resources and values, 

while encouraging others to use 

theirs toward the same purpose. As 

with civic engagement, the Service 

applies the principles of cooperative 

conservation to cultural resources as 

well as natural resources.

Critical habitat— specifi c areas 

within a geographical area occupied 

by a threatened or endangered 

species which contain those physical 

or biological features essential to 

the conservation of the species, 

and which may require special 

management considerations or 

protection; and specifi c areas outside 

the geographical area occupied by the 

species at the time of its listing, upon a 

determination by the Secretary of the 

Interior that such areas are essential 

for the conservation of the species. 

(See 16 USC 1342)

Cultural landscape— a geographic 

area, including both cultural and 

natural resources and the wildlife or 

domestic animals therein, associated 

with a historic event, activity, or 

person, or exhibiting other cultural 

or esthetic values. There are four 

non-mutually exclusive types of 

cultural landscapes: historic sites, 

historic designed landscapes, 

historic vernacular landscapes, and 

ethnographic landscapes. 

Cultural resource— an aspect of 

a cultural system that is valued by 

or signifi cantly representative of a 

culture, or that contains signifi cant 

information about a culture. A cultural 

resource may be a tangible entity or 

a cultural practice. Tangible cultural 

resources are categorized as districts, 

sites, buildings, structures, and objects 

for the National Register of Historic 

Places, and as archeological resources, 

cultural landscapes, structures, 

museum objects, and ethnographic 

resources for NPS management 

purposes. 

Defensible space— the space needed 

for fi refi ghters to adequately defend 

structures from oncoming wildland 

fi res, or to stop a structural fi re 

before it ignites wildland vegetation. 

Defensible space describes the desired 

result of planning, siting, landscaping 

and constructing developed facilities in 

a way that minimizes their vulnerability 

to wildfi re threats and maximizes their 

protection against wildfi re hazards. 

Derogation— see “impairment.”

Decision-maker—the managerial-level 

employee who has been delegated 

authority to make decisions or to 

otherwise take an action that would 

affect park resources or values. 

Most often it refers to the park 

superintendent or regional director, 

but may at times include, for example, 

a resource manager, facility manager, 

or chief ranger to whom authority has 

been re-delegated. 

Desired conditions— a park’s natural 

and cultural resource conditions 

that the NPS aspires to achieve and 

maintain over time, and the conditions 

necessary for visitors to understand, 

enjoy, and appreciate those resources. 

These conditions are identifi ed 

through a park’s planning process.

Developed area— an area managed 

to provide and maintain facilities 

(e.g., roads, campgrounds, housing) 

serving visitors and park management 

functions. Includes areas where 

park development or intensive use 

may have substantially altered the 

natural environment or the setting for 

culturally signifi cant resources. 

Directives system— policy guidance 

system established by Director’s Order 

#1 in 1996. The system replaces and 

updates guidance documents formerly 

known as NPS Guidelines, Special 

Directives, and Staff Directives. The 

system consists of 3 levels: 

Level 1— NPS Management 

Policies— the primary policy 

document for managing the 

national park system. 

 Level 2— Director’s Orders— 

operational policies and 

procedures that supplement 

Level 1. 

 Level 3— Reference Manuals and 

other detailed guidance on how 

to implement Service-wide policies 

and procedures. 

Ecosystem— a system formed by 

the interaction of a community of 

organisms with their physical and 

biological environment, considered as 

a unit. 

Environmental assessment— a brief 

NEPA document that is prepared, 

with public involvement, (a) to help 

determine whether the impact of a 

proposed action or its alternatives 

could be signifi cant; (b) to aid the NPS 

in compliance with NEPA by evaluating 

a proposal that will have no signifi cant 

impacts, but may have measurable 

adverse impacts; or (c) as an evaluation 

of a proposal that is either not 

described on the list of categorically 

excluded actions, or is on the list, but 

exceptional circumstances apply. 

Environmental impact statement— 

a detailed NEPA analysis document 

that is prepared, with extensive public 

involvement, when a proposed action 

or alternatives have the potential 

for signifi cant impact on the human 

environment. 

Environmental leadership— 

advocating, on a personal and 

organizational level, cooperative 

conservation, best management 

practices, best available technology, 

adaptive management, and the 

principles of sustainability, and 

making collaborative decisions that 

demonstrate a commitment to those 

practices and principles. 

Ethnographic landscape— an area 

containing a variety of natural and 

cultural resources that traditionally 

associated people defi ne as heritage 

resources. The area may include plant 

and animal communities, structures, 

and geographic features, each with 

their own special local names. 

Ethnographic resources— objects 

and places, including sites, structures, 

landscapes, and natural resources, with 

traditional cultural meaning and value 

to associated peoples. Research and 

consultation with associated people 

identifi es and explains the places and 

things they fi nd culturally meaningful. 

Ethnographic resources eligible for the 

National Register of Historic Places are 

called traditional cultural properties. 

Foundation statement—a statement 

that begins a park’s planning process 

and sets the stage for all future 

planning and decision-making by 

identifying the park’s mission, purpose, 

signifi cance, special mandates and 

the broad, park-wide mission goals. 

Incorporated into a park’s GMP, but 

may also be produced as a stand-alone 

document for a park.

GLOSSARY A-F 

157
MANAGEMENT POLICIES 2006

158 Gateway community— a community 

that exists in close proximity to a unit 

of the national park system whose 

residents and elected offi cials are 

often affected by the decisions made 

in the course of managing the park, 

and whose decisions may effect 

the resources of the park. Because 

of this, there are shared interests 

and concerns regarding decisions. 

Gateway communities usually offer 

food, lodging, and other services 

to park visitors. They also provide 

opportunities for employee housing, 

and a convenient location to purchase 

goods and services essential to park 

administration. 

Geologic resources— features 

produced from the physical history 

of the earth, or processes such as 

exfoliation, erosion and sedimentation, 

glaciation, karst or shoreline processes, 

seismic, and volcanic activities. 

General management plan (GMP)— 

a plan which clearly defi nes direction 

for resource preservation and visitor 

use in a park, and serves as the basic 

foundation for decision making. GMPs 

are developed with broad public 

involvement. 

Historic property—a district, 

site, building, structure, or object 

signifi cant in the history of American 

archeology, architecture, culture, 

engineering, or politics at the national, 

state, or local level. 

Impact— the likely effect of an action 

or proposed action upon specifi c 

natural, cultural or socioeconomic 

resources. Impacts may be direct, 

indirect, individual, cumulative, 

benefi cial, or adverse. (Also see 

Unacceptable impacts.)

Impairment— An impact that, in the 

professional judgment of a responsible 

NPS manager, would harm the 

integrity of park resources or values 

and violate the 1916 NPS Organic Act’s 

mandate that park resources and 

values remain unimpaired. 

Implementation plan—a plan that 

focuses on how to implement an 

activity or project needed to achieve 

a long-term goal. An implementation 

plan may direct a specifi c project or an 

ongoing activity. 

Integrated pest management—

a decision-making process that 

coordinates knowledge of pest 

biology, the environment, and 

available technology to prevent 

unacceptable levels of pest damage, 

by cost-effective means, while posing 

the least possible hazard to people, 

resources, and the environment. 

Leave-no-trace— principles and 

practices that emphasize the ethic of 

leaving a place clear of the residual 

evidence of human presence; applied 

to all forms of recreational activities 

within wilderness, backcountry, and 

frontcountry areas. 

Life cycle costing (analysis)— an 

accounting method that analyzes the 

total costs of a product or service, 

including construction, maintenance, 

manufacturing, marketing, 

distribution, useful life, salvage, and 

disposal. 

Lightscape management (natural 

ambient)— the effective use of good 

design to appropriately light areas and 

minimize or eliminate light clutter, the 

spill over of light into areas where light 

is not wanted, and light pollution, all 

of which wastes energy and impacts 

park visitors, neighbors and resources. 

Manager— the managerial-level 

employee who has authority to make 

decisions or to otherwise take an 

action that would affect park resources 

or values. Most often it refers to 

the park superintendent or regional 

director, but may at times include, for 

example, a resource manager, facility 

manager, or chief ranger to whom 

authority has been redelegated.

Management prescriptions— 

a planning term referring to 

statements about desired resource 

conditions and visitor experiences, 

along with appropriate kinds and 

levels of management, use, and 

development for each park area. 

Minimum requirement— 

a documented process used by the NPS 

to determine the appropriateness of all 

actions affecting wilderness.

Minimum tool— a use or activity, 

determined to be necessary to 

accomplish an essential task, which 

makes use of the least intrusive tool, 

equipment, device, force, regulation, 

or practice that will achieve the 

wilderness management objective.

Mission-critical— something that is 

essential to the accomplishment of an 

organization’s core responsibilities. 

Mitigation— a modifi cation of a 

proposal to lessen the intensity of its 

impact on a particular resource. 

National park system— the sum total 

of the land and water now or hereafter 

administered by the Secretary of 

the Interior through the National 

Park Service for park, monument, 

historic, parkway, recreational or other 

purposes. 

Native American— of or relating to, a 

tribe, people, or culture that is or was 

indigenous to the United States. 

Native Hawaiian— any individual 

who is a descendant of the aboriginal 

people who, prior to 1778, occupied 

and exercised sovereignty in the area 

that now constitutes the State of 

Hawaii.

NEPA process— the objective analysis 

of a proposed action to determine the 

degree of its impact on the natural, 

physical, and human environment; 

alternatives and mitigation that 

reduce that impact; and the full and 

candid presentation of the analysis 

to, and involvement of, the interested 

and affected public –as required 

of federal agencies by the National 

Environmental Policy Act of 1969. 

New use— a use that has not 

previously taken place within a 

particular park, or that has taken place 

previously and been discontinued due 

to public disinterest or as a result of a 

management action. 

Organic Act (NPS)— the 1916 law 

(and subsequent amendments) that 

created the National Park Service and 

assigned it responsibility to manage 

the national parks. 

Paleontological/paleoecological 

resources— resources such as 

fossilized plants, animals, or their 

traces, including both organic and 

mineralized remains in body or trace 

form. Paleontological resources 

are studied and managed in their 

paleoecological context (that is, the 

geologic data associated with the fossil 

that provides information about the 

ancient environment). 

Park— any one of the hundreds of 

areas of land and water administered 

as part of the national park system. 

The term is used interchangeably in 

this document with “unit,” “park unit,” 

and “park area.” 

Practicable— capable of being done 

or put into practice. Practicable 

refl ects not only what is possible to 

do, but also what is reasonable, after 

considering all of the consequences. 

Prescribed burning— the deliberate 

ignition of fi res to accomplish specifi ed 

resource management objectives and 

under an identifi ed range of conditions 

documented in a prescribed burn plan.

Preserve— to protect from loss or 

harm; conserve. Historically, the 

terms preserve, protect and conserve 

have come collectively to embody the 

fundamental purpose of the NPS—

preserving, protecting and conserving 
the national park system. (See also 

“preservation.”)

Preservation— for the purposes of the 

Secretary of the Interior’s Standards for 

the Treatment of Historic Properties, 

preservation means the act or process 

of applying measures necessary to 

sustain the existing form, integrity and 

materials of an historic property.

Professional judgment— a decision 

or opinion that is shaped by study and 

analysis and full consideration of all 

the relevant facts, and that takes into 

account 

the decision-maker’s education, 

training, and experience; 

advice or insights offered by 

subject matter experts and others 

who have relevant knowledge and 

experience; 

good science and scholarship; and, 

whenever appropriate, 

the results of civic engagement 

and public involvement activities 

relating to the decision. 

Public involvement (also called 

public participation)— the active 

involvement of the public in NPS 

planning and decision-making 

processes. Public involvement occurs 

on a continuum that ranges from 

providing information and building 

awareness, to partnering in decisionmaking.

Record of decision (ROD)—the 

document which is prepared to 

substantiate a decision based on an 

analysis of a range alternatives (e.g., 

an EIS). When applicable, it includes 

a detailed discussion of rationale and 

reasons for not adopting all mitigation 

measures analyzed. 

Sacred sites— certain natural and 

cultural resources treated by American 

Indian tribes and Alaska Natives as 

sacred places having established 

religious meaning, and as locales of 

private ceremonial activities. 

Scholarship— knowledge resulting 

from study and research in a particular 

fi eld, or the mastery of a particular 

area of learning refl ected in a scholar’s 

work. A scholar is a learned person; 

someone who by long study has gained 

mastery in one or more disciplines 

and practices, and whose mastery is 

recognized by a peer group. 

Soundscape (natural)— the 

aggregate of all the natural, 

nonhuman-caused sounds that occur 

in parks, together with the physical 

capacity for transmitting natural 

sounds. 

Special Regulation— a regulation 

that is prescribed for a specifi c park 

area. A special regulation may amend, 

modify, relax or make more stringent 

the “general” regulations that are 

applicable to all areas of the national 

park system. 

Stakeholder— an individual, group or 

other entity that has a strong interest 

in decisions concerning park resources 

and values. Stakeholders may include, 

for example, recreational user groups, 

permittees, and concessioners. In the 

broadest sense, all Americans are 

stakeholders in the national parks. 

Stewardship— the cultural and 

natural resource protection ethic 

of employing the most effective 

concepts, techniques, equipment, 

and technology to prevent, avoid, or 

mitigate unacceptable impacts. 

Strategic plan— a Service-wide, 

5-year plan required by GPRA (5 USC 

306) in which the NPS states (1) how 

it plans to accomplish its mission 

during that time, and (2) the value it 

expects to produce for the tax dollars 

expended. Strategic plans serve as 

“performance agreements” with the 

American people. 

Superintendent— the senior 

on-site NPS offi cial in a park. 

Used interchangeably with “park 

superintendent,” “park manager,” or 

“unit manager.” 

Sustainable design— design that 

applies the principles of ecology, 

economics, and ethics to the business 

of creating necessary and appropriate 

places for people to visit, live in, 

and work. Development that has a 

sustainable design sits lightly upon the 

land, demonstrates resource effi ciency, 

and promotes ecological restoration 

and integrity, thus improving the 

environment, the economy, and 

society. 

Sustainable practices/principles— 

those choices, decisions, actions 

and ethics that will best achieve 

ecological/ biological integrity; 

protect qualities and functions of air, 

water, soil, and other aspects of the 

natural environment; and preserve 

human cultures. Sustainable practices 

allow for use and enjoyment by the 

current generation, while ensuring 

that future generations will have 

the same opportunities. See also, 

“environmental leadership” and “best 

management practices.” 

Traditional— pertains to recognizable, 

but not necessarily identical, cultural 

patterns transmitted by a group across 

at least two generations. Also applies 

to sites, structures, objects, landscapes, 

and natural resources associated with 

those patterns. Popular synonyms 

include “ancestral” and “customary.” 

Traditionally associated peoples— 

social/cultural entities such as tribes, 

communities, and kinship units, as 

well as park neighbors, traditional 

residents, and former residents 

who remain attached to a park 

area despite having relocated, are 

“traditionally associated” with a 

particular park when (1) the entity 

regards park resources as essential 

to its development and continued 

identity as a culturally distinct people; 

(2) the association has endured for 

at least two generations (40 years); 

and (3) the association began prior to 

establishment of the park. 

Traditional cultural property— 

a property associated with cultural 

practices, beliefs, the sense of purpose, 

or existence of a living community 

that is rooted in that community’s 

history or is important in maintaining 

its cultural identity and development 

as an ethnically distinctive people. 

Traditional cultural properties are 

ethnographic resources eligible for 

listing in the National Register. 

Unacceptable impacts— impacts that, 

individually or cumulatively, would 

be inconsistent with a park’s 

purposes or values, or

impede the attainment of a 

park’s desired future conditions 

for natural and cultural resources 

as identifi ed through the park’s 

planning process, or

create an unsafe or unhealthful 

environment for visitors or 

employees, or

diminish opportunities for current 

or future generations to enjoy, 

learn about, or be inspired by park 

resources or values, or

unreasonably interfere with 

 park programs or activities, or

 an appropriate use, or

 the atmosphere of peace and 

tranquility, or the natural 

soundscape maintained 

in wilderness and natural, 

historic, or commemorative 

locations within the park.

 NPS concessioner or 

contractor operations or 

services.

Unit—see “park.”

GLOSSARY G-U 

159
MANAGEMENT POLICIES 2006

160 Universal design— the design of 

products and environments to be 

usable by all people to the greatest 

extent possible, without the need for 

adaptation or specialized design. 

Value analysis/value engineering— 

an organized, multi-disciplined team 

effort that analyzes the functions 

of facilities, processes, systems, 

equipment, services, and supplies for 

the purpose of achieving essential 

functions at the lowest life-cycle cost 

consistent with required performance, 

reliability, quality, and safety. 

Visitor— anyone who physically visits 

a park for recreational, educational 

or scientifi c purposes, or who 

otherwise uses a park’s interpretive 

and educational services, regardless 

of where such use occurs (e.g., via 

Internet access, library, etc.). 

Visitor Experience and Resource 

Protection (VERP) framework—

a visitor carrying capacity planning 

process applied to determine the 

desired resource and visitor experience 

conditions, and used as an aid to 

decision-making. 

Waiver (of policy)— an exemption 

from a particular policy provision. A 

waiver may be granted only by the 

Director of the National Park Service or 

a higher authority (e.g., the Secretary 

of the Interior). 

Wilderness (designated)—federal 

land that has been designated by 

Congress as a component of the 

National Wilderness Preservation 

System. 

Wilderness (eligible, study, proposed 

and recommended)—federal lands 

that have been found to possess 

wilderness character based on the 

criteria specifi ed in the Wilderness 

Act. The four categories refl ect 

different stages of the wilderness 

review process, and all are managed 

to preserve the wilderness resources 

and values that make them eligible for 

wilderness designation. Differences in 

the management of these categories 

are specifi ed in Chapter 6.

Wilderness (potential)— federal 

lands that are surrounded by, or 

adjacent to, lands proposed for 

wilderness designation but that do 

not themselves qualify for designation 

due to temporary, non-conforming 

uses or incompatible conditions. 

Potential wilderness is a subset of 

the other wilderness categories (it 

can be eligible, study, proposed, 

recommended or designated potential 

wilderness).

Wildland fi res— unplanned fi res that 

burn vegetation in parks. Wildland 

fi res occur from both natural and 

human sources of ignition, and 

may contribute to or hinder the 

achievement of park management 

objectives. 

Wildland fi re use— the application 

of an appropriate, prescribed 

management response to naturally 

ignited wildland fi res under prescribed 

circumstances to accomplish resource 

management objectives in predefi ned 

areas outlined in approved fi re 

management plans. 
Index

A

Access and circulation systems

See Transportation

Access to private property 8.6.5

Accessibility for disabled persons 1.9.3;5.3.2; 6.4.7; 7.5.2; 8.2.4; 

9.1.2; 10.2.6.2

to concessions 10.2.6.2

to historic properties 5.3.2

to interpretive programs 7.5.2

to transportation systems 9.1.2; 9.2; 9.3

to undeveloped areas 9.1.2

to visitor and management facilities 9.1.2

to wilderness 6.4.7

Accountability Introduction; 1.9.5

Adaptive use of historic structures 5.3.5.4.6, 5.3.5.4.7; 9.1.1.4; 

 9.4.3.3

Adjacent lands and land protection plans 3.3

donation of 3.6

encouragement of compatible land uses 3.4

managing fi res 4.1.4; 4.5

need for park awareness of land usage 3.4

owners involved in planning 2.1.3; 2.3.1.4; 2.3.1.7

partnerships to improve natural resource management 

4; 4.1.4

Administrative facilities

in wilderness 6.3.10.1

offi ces 9.4.1

Administrative history of the national park system

depositories for 5.3.5.5.6

Advertising 9.3.5

at special events 8.6.2.1

Advisory committees 1.10; 2.3.1.5; 5.2.1

Advisory Council on Historic Preservation

consultation with 5.2.1

Affi liated areas 1.3.4

Agreements 1.9; 4.1.4; 5.2.2;, 8.12 9.1.8

Agriculture

agricultural use of parks 8.6.7

in cultural landscapes 5.3.5.2; 5.3.5.2.6; 

 also see 4.4.2.5

Air quality

air quality related values 4.7.1

effect of fi re management plan on 4.5

management of class I areas 4.7.1

partnerships to improve 4.1.4

review of permits 4.7.1

Aircraft use 8.4

administrative 8.4.4

in Alaska 6.3.10.1; 8.4.1

in wilderness 6.2.1.2

landing sites 8.4.8

military aviation 8.4.5

navigation aids 9.2.5

overfl ights 8.4.7

Airstrips

in wilderness 6.3.10.1

Alaska 

Park Units 2.3.1.10

Alaska National Interest Lands Conservation Act

cultural resources 5.3.5.3

general exceptions to policy Introduction

provisions related to rights-of-way 8.6.4.1

provisions related to snowmobiles 8.2.3.2

provisions related to subsistence 7.5.7

provisions related to wilderness 6.2.1.2; 6.3.10.1; 6.3.10.3; 

6.4.6.1

Alternative transportation systems 9.2

American Indians

Also see Native Americans

access to and activities in wilderness 6.3.12

collection of natural products in parks 5.3.5.3.1; 8.8

confi dentiality of information 5.2.3

consultation regarding burials 5.3.4

consultation regarding cultural interpretation 7.5.6

consultation regarding cultural resources 5.2.1

consultation regarding ethnographicresources see 

5.3.5.3.1

consultation regarding game harvest regulations 4.4.3

consultation regarding government-to-government 

relationship 1.11.2

consultation regarding museum objects 5.3.5.5

cultural demonstrators 7.5.7

defi nition of 8.5

exhibit of sacred objects 5.3.5.5; 7.5.6

fee waivers for 8.5

participation in interpretive programs 7.5.6

repatriation of cultural items or human remains 5.2.1; 

5.3.5.5.4

relationship with American Indian tribes 1.11

resource access and use 5.3.5.3.1; 8.5

trust resources 1.11.3

use of traditional areas or sacred resources 5.3.5.3.2

American Indian Religious Freedom Act 5.3.5.3

Amphitheaters 9.3.1.4

Animals

biological resource management 4.4

corridor crossings 9.2

disposal of carcasses 4.4.2.1

exotic species 4.4.4

harvest of, by the public 4.4.3

livestock 8.6.8

migratory species 4.4.1.1

native species 4.4.1.3; 4.4.2; 4.4.2.1; 4.4.2.2

population management 4.4.1.1

recreational stock use 8.2.2.8

removing 4.4.2.1

threatened and endangered species 4.4.2.3

Appropriate Use 1.5, 8.1.1, 8.1.2, Glossary

Archeological Resource Protection Act 5.3.5.3

Archeological resources

data recovery 5.3.5.1.5

display and storage of collections 5.3.5.5.4

in wilderness 6.3.8

inventory of 5.1.3.1

relocation of 5.3.5.1; 5.3.5.4.5

sale of in concessions 10.2.4.6

treatment of 5.3.5.1.1–5.3.5.1.4

Archives and Manuscripts 5.3, 5.5.6

Art and cultural facilities

See Facilities for arts and culture

Asset management 1.9.5.3; 9.1; 9.4.1

Aviation 8.4

INDEX 

A

161
MANAGEMENT POLICIES 2006

162 B

Backcountry use and management 8.2.2.4

Base Jumping 8.2.2.7

Balloons, use of 8.6.2.2

Best management practices

and agricultural use of parks 8.6.7

and livestock use 8.6.8.2

by concessioners 10.2.4.10

during construction 9.1.3

Bicycles

bicycle trails 9.2.2.4

in wilderness 6.4.3.3

off-road use of 8.2.2

Biodegradable materials 9.1.6.1

Bio-engineered products 4.4.5.4

Biological Resources 4.4.1.0

Biosphere reserves 4.3.6

Black-powder weapons 7.5.7

Boating 8.2.2

navigation aids 9.2.5

support facilities 9.3.4.2

Borrow pits 9.1.3.3

Boundary studies

authority for 1.3.4; 1.5

Burials

historic burial areas and graves 5.3.4

in family cemeteries 8.6.10.2

in national cemeteries 8.6.10.1

other burials and scattering of ashes 8.6.10.3

C

Campfi res 8.8; 9.3.2.1

fi rewood gathering 8.8

Campgrounds 9.3.2.1

reservation systems for 8.2.6.2

Camping 8.2.2

in wilderness 6.3.10.3

Carrying capacity 5.3.1.6; 8.2.1

Caves 4.8.2.2

in wilderness 6.3.11.2

Caving 4.8.2.2

Cemeteries and Burials 8.6.10.

Also see Burials

Chemicals 4.11

Civic Engagement 1.7

Closures 8.2

Coastal zone management program 4.8.1.1

Collecting

and development of commercial

products 4.2.4

natural products 8.8

research specimens 4.2; 5.1.2; 8.10

Collections 133

acquisition, management, and

disposition of 5.3.5.5.4

archives and manuscripts 5.3.5.5.6

curatorial facilities 9.4.2

loan of museum objects 5.3.5.5.4

museum catalog records 5.3.5.5.4

museum collections 5.3.5.5

National Catalog of Museum Objects 5.1.3.1

natural products 8.8

of natural resources 4.2.3

of paleontologic resources 4.8.2.1

of submerged archeological resources 5.3.5.1.7

preservation of items in 5.3.5.5.1

repatriation of museum objects 5.3.5.5; 5.3.5.5.4

reproduction of objects in 5.3.5.5.3

restoration of objects in 5.3.5.5.2

specimens 4.2.3

Comfort stations 9.3.3. Also see Toilets

Commemorative works 9.6

Commercial activities 6.4.4; 8.6.2.1

Commercial use authorizations 10.3

Communication towers.

Also see Telecommunications antennas

in wilderness 6.3.10.1

Compensation for damages

to cultural resources 5.3.1.3

to natural resources 4.1.6

Compliance and accountability 7

Concession contracts 10.2.3

extension of 10.2.3.3

length of term 10.2.3.1

modifi cations 10.2.3.2

Concessioners

construction by 10.2.2; 10.2.3.1; 10.2.4.10; 10.2.6.1

donations and contributions 10.2.5.5

employment of NPS personnel 10.2.8.2

fi nancial management 10.2.5

franchise fees 10.2.5; 10.2.5.1; 10.2.5.2

housing 9.4.3.1, 9.4.3.2

insurance 10.2.4.11

interpretation by 7.6; 10.2.4.4

liability insurance requirements 10.2.4.11

minority businesses 10.2.3.4

preference given to satisfactory concessioners10.2.4.3

risk management program 10.2.4.8

subconcessioners 10.2.3.5

Concessions 10.2

accessibility of 10.2.6.2

criteria for 10.2.2

design of 10.2.6.1

environmental compliance 10.2.4.10

facilities 10.2.6

maintenance of 10.2.6.3

rates charged 10.2.4.7

sales merchandise 10.2.4.5

utilities 10.2.6.4

Condemnation of nonfederal lands 3.2; 3.7,3.8

Confi dential information 1.7.1.3; 4.1.2; 5.2.3

Construction 9.1.3

 controls to avoid introduction of

 exotics 9.1.3.2

 project supervision 9.1.1

 roads 9.2.1.2.2

 sites 9.1.3.1

Consultation

See Cooperation and consultation

Consumptive use 8.9

Contaminants 9.1.6.2

Cooperating associations

 interpretation by 7.6.2

 sales by 8.6.2.4

Cooperation and consultation.

Also see American Indians and Native Americans

during planning 2.1.3

conservation 1.6

hunting, trapping, and fi shing 4.4.3, 8.2.2.6

interpretation of ethnographic resources 7.5.6

land protection 3.2; 3.4

law enforcement 8.3.3

management of aircraft overfl ights 8.4; 8.4.6

management of animal populations 4.1.4; 4.4.3

management of cemeteries and burial sites 5.3.4

management of cultural resources 5.2.1

management of ethnographic resources 5.3.5.3

management of museum objects 5.3.5.5

management of natural resources 4

management of submerged resources 5.3.5.1.7

management of threatened or endangered 

species 4.4.2.3

national trails 9.2.2.7

protection of air quality 4.1.4; 4.7.1

protection of water resources 4.6.2; 4.6.3

research 4.2, 4.2.1; 5.1.2; 5.2.1; 8.11

response to emergencies 8.2.5.2

sacred sites 5.3.5.3.2

trail planning 9.2.2.1

transportation planning and services 9.2

visitor safety 8.2.5.1

wilderness preservation 6.3.2

Cooperative management 1.9

Cooperative research 8.11.1

Criteria for affi liated areas 1.3.4
Criteria for national parks 1.3

Cultural events 9.3.1.7

Cultural landscapes 5.3.5.2

biotic cultural resources 5.3.5.2.

construction 5.3.5.2.7

inventory of 5.1.3.1

preservation of 5.3.5.2.1

reconstruction of 5.3.5.2.4

rehabilitation of 5.3.5.2.2

restoration of 5.3.5.2.3

Cultural Landscapes Inventory 5.1.3.1

Cultural resources

Also see individual resource categories, such as Historic 

structures

agreements 5.2.2

carrying capacity 5.3.1.6

categorization 5.1.3.2

conservation of 5.3.1

damaged by natural forces 5.3.5.4.9

designation of National Historic 

 Landmarks 5.1.3.2.2

evaluation of 5.1.3, 5.1.3.2

in wilderness 6.3.8

inventories of 5.1.3.1

movement of 5.3.5.4.5

nominations to Natural Register of Historic

 Places 5.1.3.2.1

planning and proposal formulation 5.2

protection from fi re 5.3.1.1

protection from exotic species 4.4.4.2

protection from pests 5.3.1.5

protection of 5.3.1

rescue of, in event of emergency 5.3.1.1

research 5.1

security for 5.3.5.1.4; 8.3.3

submerged 5.3.5.1.7

treatment of 5.3.5

World Heritage List designation 5.1.3.2.3

Curatorial facilities 9.4.2

D

Damage Assessment and Recovery 4.1.6; 5.3.1.3

Dams and reservoirs 9.5

Demonstrators (cultural) 7.5.7

Derogation 1.4.2

Design

duplication of historic design 9.1.1.3

parkwide themes 9.1.1.2

signs 9.3.1.1

standard plans and designs 9.1.1.2

sustainable energy design 9.1.1.7

Desired Park Conditions 2.1.4, 2.2

Development.

Also see Construction

accessibility for disabled persons 9.1.2

adaptive re-use of historic structures 9.1.1.4

avoiding natural hazards 9.1.1.6

in fl oodplains 4.6.4

in shoreline areas 4.8.1.1

in wetlands 4.6.5

in wilderness 6.2.1.2; 6.3.10.3

life-cycle costs 9.1.1; 9.1.1.1; 10.2.6.1

location of 9.1.1.5

management facilities 9.4

outside park boundaries 3.4; 9.1

planning and design 2.2; 2.3.1.1; 4.4.2.5; 9.1.1

principles 9.1; 9.1.1.2; 9.1.1.3; 9.1.1.4; 9.1.7

replacement/relocation of 4.1.5; 4.4.2.4

soil protection 4.8.2.4

transportation 9.2

utilities 9.1.5

facilities 1.9.5.2; 9.3

Directives system Introduction

Director of the National Park Service

authorities related to policy Introduction

Disabled persons. Also see Accessibility for

disabled persons

interpretive programs for 7.5.2

special facilities for 9.1.2

Disease control

See Pests

Domestic and feral livestock 8.6.8

Donations

from concessioners 10.2.5.5

E

Earthworks 5.3.5.1.6

Education

Also see Interpretation

curriculum-based educational programs 7.1

outreach services 7.3.4

resource issues 7.5.3

wilderness 6.4.2

Emergencies

emergency operations plan 8.2.5.2

emergency preparedness 8.2.5.2

in wilderness see 6.3.5

involving cultural resources 5.3.1.1

medical services 8.2.5.4

outside park boundaries 8.2.5.2

search and rescue 8.2.5.3

temporary access to wilderness 6.3.5; 6.3.10.1

use of off-road vehicles 8.2.3.1

Employees

 employment by a concessioner 10.2.8.2; 10.2.8.3

 gardens 8.6.7

 housing 9.4.3

 participation in First Amendment activities 8.6.3

 safety 8.2.5.1

 training 1.9.1.1

Energy management 9.1.7

 alternative energy 9.1.5; 9.2; 9.4.5

 charges to concessioners 10.2.6.4

 conservation 9.1.1; 9.1.3.1; 9.1.7; 9.2

 effi ciency 9.1.4.1; 9.1.4.2; 9.1.7; 9.3.2.1; 9.3.2.3

 performance 9.1.1

 sustainable design 9.1.7

Endangered species

 See Threatened or endangered species

Entrance stations 9.3.1.2; 10.2.6.5

Environmental Analysis 2.3.1.7, 2.3.4.1

Environmental auditing program 1.6

Environmental monitoring and control 5.3.1.4

Environmental impact statements

for general management plans 2.3.1.5

for natural resources 4.1.3

for wilderness studies 6.2.2

Environmental leadership 1.6; 9.1.6

Equestrian trails 9.2.2.3

Ethnographic resources 5.3.5.3

in exhibits 7.5.6

inventory of 5.1.3.1

resource access and use 5.3.5.3.1

sacred sites 5.3.5.3.2

Executive Order 13007 5.3.5.3

Exhibits 7.3.2

ethnographic resources in 7.5.6

Exotic species

management of 4.4.4

defi nition of 4.4.1.3

fi sh stocking with exotics 4.4.4.1

found in soils 4.8.2.4

introduction of 4.4.4.1

removal of 4.4.4.2

Experimental research areas 4.3.2

External infl uences on parks 1.5.; 3.4

F

Facilities

See Development

Facilities for arts and culture 9.3.1.7

Federal Advisory Committee Act 1.9; 2.3.1.4; 5.2.1

Fees

entrance fees 8.2.6

franchise fees 10.2.5.1

recreation fees 8.2.6.1

INDEX B-F

163
MANAGEMENT POLICIES 2006

164 reimbursement of costs associated with special 

use permits 8.6.1.2

Fertilizer 4.4.2.4; 4.4.2.5; 4.8.2.4; 9.1.3.2

Filming and photography 8.6.6

Financial sustainability 1.9.5.1

Fire management 4.5

cultural resources 5.3.1.2

in wilderness 6.3.9

prescribed fi res 4.5

wildland fi res 4.5

Fire pits, for campers 9.3.2.1

Fire prevention and suppression

agreements with local fi re departments 9.1.8

compliance with fi re codes 5.3.1.2; 9.1.8

in wilderness 6.3.9

special provisions for cultural resources 5.3.1.2

structural fi res 9.1.8

Fire towers 9.4.5

Firewood 8.8

Fireworks 8.6.2.3

First Amendment activities 8.6.3

Fish stocking 4.4.3

Fishing 8.2.2; 8.2.2.5

commercial fi shing 4.4.3; 8.2.2.5

restrictions on 8.2.2.5

sport fi shing 4.4.3; 8.2.2.5

support facilities 9.3.4; 9.3.4.2

Floodplains 4.6.4

Food sales 8.6.2.4

Food services 9.3.2; 10.2.4.12

Foreign-language publications 7.5.2

Fossils

See Paleontologic resources

Franchise fees 10.2.5.1; 10.2.5.2

Future

 Alternative Evaluation 2.3.1.6

Fund raising 7.6.2

Fundamental purpose of NPS 1.4.3

G

Gardens 8.6.7

General Authorities Act 1.4

General management plan

See Plans

Generators

for recreation vehicles 9.3.2.1

Genetic resources 4.2.4; 4.3.1; 4.3.6; 4.4.1.2

Geologic resources 4.8

 hazards 4.8.1.3

 management of 4.8.3

 process, protection of 4.8.1

Geothermal resources 4.8.2.3

Government Performance and Results Act 1.7.4.1; 2.3.3

Graves

See Burials, Cemeteries and burials

Grazing 4.4.4.1; 8.6.8.2

Also see Domestic and feral livestock

commercial 4.4.3

criteria for 8.6.8.1

in wilderness 6.4.6.3

management plans 8.6.8.2

support facilities 8.6.8.2.2

Groundwater

 See Water resources

Guidelines.

 See Directives system

Guides and outfi tters 

operations in wilderness 6.4.4

H

Handcrafts

sale by concessioners 10.2.4.4

sale by cultural demonstrators 7.5.7

Hang-gliding 8.2.2

Harvested species

management of 4.4.3

Hazardous materials 9.1.6.1; 9.1.6.2

Hazards

fl oodplains 4.6.4

geologic 4.8

landscape restoration following 4.1.5

shorelines 4.8.1.1

siting development to avoid 4.8.1.3; 9.1.1.6

Heritage area 1.3.4

Hiking 8.2.2

hiking trails 9.2.2.2

Historic districts

See Cultural landscapes

Historic furnishings 5.3.5.5.5

Historic landscapes 5.3.5.2

Historic objects

See Collections

Historic resources

See Cultural resources

Historic ships

See Historic structures. Also see Shipwrecks

Historic structures 5.3.5.4

accessibility for disabled persons 5.3.2

acquisition of 5.3.5.4.5

adaptive use of 5.3.5.4.7

additions to 5.3.5.4.6

damaged or destroyed 5.3.5.4.9

in shoreline areas 4.8.1.1; 5.3.5.4.5;5.3.5.4.9

in wilderness 6.2.1.2; 6.3.8

leasing of 5.3.3

movement of 5.3.5.4.5; 5.3.5.4.9

new construction in conjunction with 5.3.5.4.6

owned or managed by others 5.3.5.4.8

preservation of 5.3.5.4.1

reconstruction of 5.3.5.4.4

refurnishing of 5.3.5.5.5

rehabilitation of 5.3.5.4.2

restoration of 5.3.5.4.3

use for employee housing 5.3.1.2; 5.3.5.4.7; 9.4.3.3

Historic trails

in wilderness 6.2.1.2

national trails 9.2.2.7

Historic utilities 9.1.5.4

Historic weapons 7.5.8

Homeland Security 8.3.8

Horseback riding 8.2.2

equestrian trails 9.2.2.3

trail stock 8.6.8

Hostels 9.3.2.3

Housing 9.4.3

concessioner 9.4.3.2

eligible residents 9.4.3.2

use of historic structures 5.3.5.4.7; 9.4.3.3

Human health and safety 8.2.5

concessioner responsibilities for 10.2.4.8

removal of hazards 8.2.5.1

Hunting and trapping

cooperative management of 4.4.3

federal regulation of 8.2.2.6

genetic resource management principles 4.4.1.2

I

Impairment pg. 4 1.4, 4.1, 4.1.3

decision-making to avoid 1.4.7

defi nition of 1.4.5

how to treat existing impairment 1.4.7

how to treat potential impairment 1.4.7

prohibition of 1.4.4

versus derogation 1.4.2

Incineration 9.1.6.1

Indians

See American Indians. Also see Native Americans

Information

See Public information

Information base 1.7.1; 2.3.1; 2.3.1.4; 4.1.1; 4.1.2; 4.2.1; 5.1.1; 

5.1.3.1

Insect control.

See Pests

Insurance

for concessions 10.2.4.11
Integrated pest management 4.4.5.2

Interpretation

Also see Education

balance and accuracy 7.5.3; 7.5.6

by concessioners 7.6

by cooperating associations 7.6.2

consultation 7.5.6

cultural demonstrations 7.5.7

electronic 7.3.3

elements of 7.1

exhibit of sacred objects 7.5.6

for special populations 7.5.2

nonpersonal services 7.3.2

of resource issues 7.5.3

outreach programs 7.3.4

personal services 7.3.1

reenactments 7.5.9

research and scholarship 7.5.4

special needs 7.5.2

training 7.4

wilderness 6.4.2

Interpretive competencies and skills 7.4

Interpretive planning 7.2

Invasive species 4.4.1.3

Inventories

of cultural resources 5.1.3.1

of natural resources 4.2.1

Irrigation 4.6.2; 9.1.3.2; 9.1.5.1

Islands 4.8.1.1

K

Karst 4.8.1.2

L

Land acquisition 3.6; 3.7

Land protection 3

addressing external threats 3.4

boundary adjustments 3.5

land acquisition authority 3.6

land acquisition funding 3.7

land protection plans 3.3

land protection methods 3.2

Landfi lls 9.1.6.1; 9.4.5

Landscape management

at construction sites 9.1.3.1; 9.1.3.2

of cultural landscapes 5.3.5.2

of natural landscapes 4.4.2.4

prescribed burns 4.5

Law enforcement 8.3, 8.3.1

 authority 8.3.4

 jurisdiction 8.3.5

 public information 8.3.6

Leasing 8.12

agricultural land 8.6.7

federal mineral leases 8.7.2

for livestock 8.6.8.2

historic structures 5.3.3

Legislative authorized use 1.4.3.1

Legislative exceptions to policy 6; 1.4.4

Life-cycle costs

and value analysis 9.1.1; 10.2.6.1

computation of 9.1.1.1

facility planning and design 9.1.1

Light, artifi cial 4.10

control of light pollution 4.10

List of Classifi ed Structures 5.1.3.1

Livestock 4.4.4.1; 8.6.8

M

Maintenance 9.1.4

in general 9.1.4.1

support facilities 9.4.4; 9.4.5

use of environmentally friendly and energy

effi cient products 9.1.4.2

Man and the Biosphere program 4.3.6

Management 

accountability 1.9.5

facilities 9.4

in wilderness 6.3.10

of parks 1.3.4; 1.4

for resource conservation 1.4.7.1

plans 2.2

zoning 2.3.1.2

for wilderness 6.3.4.1

Management Excellence 1.9

Marina operations 9.3.4.2

controls to avoid water pollution 4.6.3

Medical services 8.2.5.4

Media 1.9.4

Memorials 9.6

Merchandise 10.2.4.5

Meteorological stations

in wilderness 6.3.6.1

Migratory species

management of 4.4.1.1

Military Use and Operation 8.6.9

Mineral development 8.7

Mineral interests

addressed in planning 8.7

federal mineral leases 8.7.2

in wilderness 6.4.6; 6.4.6.2

mining claims 8.7.1

non-federal mineral interests 8.7.3

Minimum requirement 6.3.5

Mining claims 8.7.1

Monuments 9.6

Motion picture fi lming 8.6.6

Motorized equipment and vehicles 8.2.3

Mountain and rock climbing 8.2.2

Museum collections

See Collections

N

National Catalog of Museum Objects 5.1.3.1

National Environmental Policy Act 5.3.5.3

National historic landmarks 5.1.3.2.2

National Historic Preservation Act 5.3.5.3

National Interagency Incident Management System 8.2.5.2

National natural landmarks 4.3.5

National Park Service Organic Act 1.1; 1.4; 4; 4.4.2.3; 4.7.1; 

5.3.5.3; 8.2.5.1

National Park System Resource Protection Act 5.3.1.3

National park system

criteria for additions to 1.3

extent of 1.2

legislation governing management of 1.4

National Register of Historic Places 5.1.3.2.1

National signifi cance criteria for new areas 1.3;1.3.1

National trails 9.2.2.7

National wild and scenic rivers 1.2; 2.3.1.8; 4.3.4

Native Americans

Also see American Indians

consultation regarding natural resource 

management 4.1.4

involvement in planning 2.1.3; 2.3.1.4

participation in interpretive programs 7.5.6

preference given to sales of Native

American handcrafts 10.2.4.5

preference to, in removing animals from parks 4.4.2.1

Native Hawaiians, Pacifi c Islanders, and Caribbean Islanders 1.12

Native plants and animals

defi nition of 4.4.1.3

management of 4.4.2

removal of 4.4.2.1; 5.3.5.3.1

restoration of 4.4.2.2

Natural landmarks 4.3.5

Natural resources 4

change caused by natural phenomena 4.1

compensation for injuries to 4.1.6

disturbance by human activities, and

restoration of natural processes/systems 4.1;4.1.5

management planning 4.1.1

park resources and values 1.4.6

Navigation aids 9.2.5

INDEX F-N

165
MANAGEMENT POLICIES 2006

166 New park units 1.3

Noise 8.2.3

Also see Soundscape management

Nonfederal lands

acquisition of 3.6, 3.7

O

Odors 4.11

Off-road vehicle use 8.2.3.1

Oil and gas development.

See Mineral development, Mineral interests

Outdoor sports 8.2.2

Overfl ights 8.4.7

Overnight accommodations 9.3.2

P

Paleontological resources

management of 4.8.2; 4.8.2.1

protection of 4.1.2; 4.8.2.1

sale of in concessions 10.2.4.6

Park Uses Preferred 1.5

Parking areas 9.2.4

Parkways 9.2.1.1

Partnerships 1.10, 4.1.4, 7.6

Performing arts 7.3.1

Also see Facilities for arts and culture

Permits 8.6.1.1

Personal watercraft 8.2.3.3

Pesticides 4.4.5.3, 4.4.5.5

Pests

management of 4.4.5

and cultural resources 5.3.1.5

defi nition of 4.4.5.1

Photography and fi lming 8.6.6

Picnic areas 9.3.4.1

Picnicking 8.2.2

Planning

assessment of alternatives 2.1.2; 2.3.1.5

consultation with American Indians 5.2; 7.5.6

cooperative planning 2.3.1.8

cooperative trail planning 9.2.2.1

decision making 2.1.1

environmental analysis 2.3.1.7, 2.3.4.1

for concessions 10.2.2

for cultural resource management 5.2

for natural resource management 4.1.1

for park development 9.1.1

general principles 2.1

identifi cation of issues and problems 7.5.3

implementation planning 2.3.4

in a regional context 2.3.1.7

information base 2.3.1

interpretive 7.2

major elements of 2.2

planning team 2.3.1; 2.3.1.3

tiers of 2.2

public participation in 2.1.3; 2.3.1.4

succession 1.9.1.2

workforce 1.9.1.3

Plans

air tour management plan 8.4.6

Alaska units 2.3.1.10

annual performance plan 2.2, 2.3.4, 2.3.4.2

annual performance report 2.2

backcountry management plan 8.2.2.4

cave management plan 4.8.2.2

comprehensive interpretive plan 7.2

concession management plan 10.2.2

development concept plan 9.1.1

emergency plans 5.3.1.1; 8.2.5.2; 9.5

exotic species management plans 4.4.4.2

fi re management plan 4.5; 5.3.1.1; 5.3.1.2; 9.1.8

foundation document 2.2

general management plan 2.2, 2.3.2.1, 2.3.1.11

implementation plan 2.3.3

land protection plan 3.3

livestock management plan 8.6.8.2

park-wide sign plan 9.3.1.1

program management plan 2.2, 2.3.2

relationship between strategic plan and GMP2.3.2.1

river management plan 8.2.2.3

strategic plan 2.2, 2.3.2.1,2.3.3

structural fi re plan 5.3.1.2

visitor use management plans 8.2.2.1

wayside exhibit plan 9.3.1.1

wilderness management plan 6.3.10; 6.3.10.2; 6.4.3.1; 

6.4.3.3; 6.4.4; 6.4.6.1; 6.4.6.3

Plants

altered communities 4.4.2.5

and earthworks 5.3.5.1.6

cultural landscapes 5.3.5.2

disposal of cut vegetation 8.8

exotic species 4.4.4; 5.3.1.5

natural landscapes 4.4.2.4

native species 4.4.1.3

population management 4.4.1.1

revegetation 9.1.3.2

threatened and endangered species 4.4.2.3

Plaques 9.6

Playgrounds 9.3.2.1

Policy Introduction

Predators 4.4.1

Prescribed burning

See fi re management

Private Property 8.6.5

Professional judgment 1.4.7, 1.5, 1.9, Glossary

Public assemblies 8.6.3

Public information

access to museum collections 5.3.5.5.4

and law enforcement 8.3.6

confi dentiality 1.9.2.3

confi dentiality of ethnographic information 5.2.3; 5.3.5.3

confi dentiality of sensitive resource 

information 5.2.3

sharing and management of 1.9.2

Public participation

in developing hunting regulations 8.2.2.6

in facility planning 9.1.1

in land protection planning 2.1.3; 2.3.1.4; 3.3

in planning 2.1.3; 2.3.1.4; 5.2

in wilderness assessment and studies 6.2.1.3; 6.2.2

in wilderness planning 6.3.4.2; 6.3.4.3

Public transportation systems 9.2

Public use 8.2

controls on 5.3.1.6; 8.2

consumptive uses 8.9

management of recreational use 8.2.2.1

special park uses 8.6

Publications 7.3.2

R

Reconstructions and reproductions

identifi cation of 5.3.5

of damaged or destroyed structures 5.3.5.4.9

of earthworks 5.3.5.1.6

of furnishings 5.3.5.5.5

of landscapes 5.3.5.2.3

of museum objects 5.3.5.5.3

of structures 5.3.5.4.4

ruins 5.3.5.4.10

Recreation vehicles

Also see Off-road vehicle use

campgrounds 9.3.2.1

Recreational activities 6.4.3; 8.2.2

management of 8.2.2.1

Recycling 9.1.4.2; 9.1.5.2; 9.1.6.1; 9.1.7

Reenactments 7.5.9

Regional directors

and research permits 5.1.2

authorities related to policy Introduction

Regional planning.

See Planning

Regulations Introduction

Religion

American Indian religious traditions 5.3.5.3.2

religious activities in parks 5.3.5.3.2
Rescue

See Search and rescue

Research

activities in park 8.10

anthropological studies 5.1.1; 5.3.5.3.7; 8.11.1

archeological studies 5.3.5.1

by others 4.2.2; 5.1.2; 8.11.3

by NPS 4.2.1; 5.1.1; 8.11.2

criteria for 4.2.2

cultural studies 5.1

ethnographic studies 5.3.5.3; 5.3.5.3.3

for commercial purposes 4.2.4

in interpretive and educational programs 7.5.4

in wilderness 6.3.6

paleontological studies 4.8.2.1

permits for 4.2.2; 5.1.2; 8.10

publication of data 4.1.2; 5.1.1; 8.11.2; 8.11.3

removal of animals for 4.2; 4.4.2.1

scientifi c and scholarly 2.3.1.4

social science 8.11

sociological studies 8.11

specimen collecting 4.2.3; 4.2.4

Research natural areas 4.3.1

Reservation systems 8.2.6.2

Reservoirs 9.5 fi sheries management 4.4.3

Resource Damage 4.1.6; 5.3.1.3

Resources and values

defi nition of 1.4.6

Restoration

of cultural landscapes 5.3.5.2.3

of degraded areas 9.1.3.2

of historic structures 5.3.5.4.3

of museum objects 5.3.5.5.2

of native plants 4.4.2.2

resource conditions 1.4.7.2

Revegetation 9.1.3.2

Rights-of-way 8.6.4

in wilderness 6.4.6.1

telecommunications antennas 8.6.4.3

roads and highways 8.6.4.4

utilities 8.6.4.2

private property 8.6.5

Riparian Lands 4.6.6, 8.2.2.3, 8.6.8.2, 9.3.4.2

River use 8.2.2.3

Rivers

Also see Water resources

Wild and scenic rivers 2.3.1.9

Roads

Also see Transportation

commercial use of park roads 9.2.1.2.1

criteria for new roads 9.2

design features 9.2.1.1

facility siting 9.1.1.5

in wilderness 6.3.5; 6.3.10.1; 6.4.3.3

non-NPS roads 9.2.1.2

purpose of park roads 9.2.1.1

systems 9.2.1

Ruins 5.3.5.4.10 S

Sacred sites 5.3.5.3.2; 6.3.8

Safety 1.9.1.4; 8.2.5; 

Sales

of concessioner merchandise 8.6.2.4; 10.2.4.5

of handcrafted items by demonstrators 7.5.7

of interpretive items by cooperating 

associations 7.6.2; 8.6.2.4

Sanitary facilities.

See Comfort stations, Toilets

Science

Also see Research

in decision making 1.4.7; 2.3.1.4 8.2.1

in wilderness 6.3.6

Scuba diving 8.2.2

Sculpture

indoor see Collections 5.3.5.5

outdoor see Historic structures 5.3.5.4

Search and rescue 8.2.5.3

Secretary of the Interior

authorities related to policy Introduction

Sewage treatment facilities

use of NPS plants by others 9.1.6.1

Shell collecting 8.8

Shipwrecks

management of 5.3.5.1.7

Shorelines

management of 4.8.1.1

Shower facilities 9.3.2.1

Signs

in wilderness 6.3.10.4

informational signs 9.3.1.1

navigation aids 9.2.5

traffi c signs 9.2.3

Skiing 8.2.2

ski area development 9.3.4.3

Smoking

in concession facilities 10.2.4.13

in historic structures and museums 5.3.1.2

Snowmobiles 8.2.3.2

Soil resources

management of 4.8.2.4

protection of, during construction 9.1.3.1

Solid waste

Also see Waste management

addressed in river management plans 8.2.2.3

backcountry use 8.2.2.4

Soundscape management 4.9

in association with cultural resources 5.3.1.7

in association with recreational activities 8.2.2

Special directives

See Directives system

Special events 8.6.2

in wilderness 6.4.4

Special park uses 8.6

Specimen collecting 4.2.3

Specimen trees 4.4.2.5

State historic preservation offi cers

consultation with 5.2.1; 7.5.6

Statues 9.6.1

Stewardship 

cultural Resources 5.3

human remains and burials 5.3.4

Structural fi res 5.3.1.2; 9.1.8

Studies

See Research

Submerged cultural resources

management of 5.3.5.1.7

Subsistence 7.5.7

Superintendents

authorities related to policy Introduction

authorities related to visitor use 8.2

responsibilities related to policy Introduction

Sustainability 1.8; 8.2; 9.1

Swimming 8.2.2 T

Telecommunications antennas 8.6.4.3

Threatened or endangered species

management of 4.4.2.3

Through-traffi c 9.2.1.2.1

Toilets

in the backcountry 8.2.2.4

in wilderness 6.3.10.3

portable 9.3.3

waterless 9.3.3

Tourism 8.2.7

consultation with industry 7.5.6

partnerships with commissions 7.6

role in providing appropriate use 8.2

commercial air tours 8.4.6

Toxic substances

control to prevent water pollution see 4.6.3

disposal of 9.1.6.1

Traditionally associated peoples

partnerships 4.1.4

INDEX N-T

167
MANAGEMENT POLICIES 2006

168 research 5.1

consultation 5.2.1

stewardship of human remains and burials5.3.4

cultural landscapes 5.3.5.2

ethnographic resources 5.3.5.3

consultation 7.5.6

American Indian uses 8.5

Traffi c signs 9.2.3

Trail stock

 See Domestic and feral livestock, Grazing

Trailheads 9.2.2.8

Trails and walks

 backcountry trails 9.2.2.2

 bicycle trails 9.2.2.4

 bridges 9.2.2.9

 equestrian trails 9.2.2.3

 hiking trails 9.2.2.2

 interpretive trails 9.2.2.6

 in wilderness 6.3.10.2

 national trails 1.2; 9.2.2.7

 surfacing of 9.2.2

 water trails 9.2.2.5

Tramways 9.2

Transportation

accessibility 9.1.2

aircraft 8.4

alternative systems 9.1.7; 9.2

construction 9.2.1.2.2

design 9.2

facilities 9.2

off-road vehicles 8.2.3.1

planning 9.2

public transportation systems 9.2

roads 9.2.1

snowmobiles 8.2.3.2

trails 9.2.2

Trapping 4.4.3; 8.2.2.6

Trash disposal

See Waste management

Treaty rights

authorization of consumptive use 8.9

authorization of fi shing 8.2.2.5

authorization of mineral or rock collection 8.8

authorization of American Indian 

activities 5.3.5.3.1

authorization of subsistence 5.3.5.3.1

Trust resources 1.11.3

U

Unacceptable impacts 1.4.7.1; 8.2, Glossary

Universal design 9.1.1, 9.2, 9.2.2, 10.2.6.1

U.S. Constitution

as source of policy Introduction

Utilities

cost-sharing with municipalities and others 9.1.5

criteria 9.1.5

for concessions 10.2.6.4

historic utilities 9.1.5.4

in campgrounds 9.3.2.1

in wilderness 6.2.1.2

rights-of-way 8.6.4; 8.6.4.2

use of municipal systems 9.1.5

utility lines 9.1.5.3

V

Viewing devices 9.3.1.6

Visitor centers 9.3.1.3

media in 7.3.2

Visitor experience and resource protection framework

See Carrying capacity

Visitor facilities

See Development

Visitor safety

See Human health and safety

Visitor use

See Public use

Volunteers in Parks 1.9.1.6; 7.6.1

W

Waivers of policy.

See Introduction

Waste management 9.1.6.1

Also see Solid waste

Wastewater treatment 9.1.5.2

Watershed and Streams 4.6.6

Water quality 4.6.3

Water resources 4.6

conservation of 4.6.2; 9.1.5.1

withdrawal for consumptive use 4.6.2

sale of water to others 4.6.2

Water rights 4.6.2

Water systems 9.1.5.1

Wayside exhibits 7.3.2

Weather and climate 4.7.2

Weather monitors 9.4.5

Wetlands 4.6.5

Wild and scenic rivers 4.3.4

Wilderness

accessibility in 6.4.6

administrative facilities in 6.3.10.1

airstrips in 6.3.10.1

assessment process 6.2.13

boundaries in 6.3.11

campsites in 6.3.10.3

commercial services in 6.4.3

conditions and status of 6.3.4.2

criteria for 6.2.11

cultural resources in 6.3.8

defi nition of 6.2.11

designated wilderness 6.2.4

education 6.3.12

eligibility for 6.2.1

environmental impacts 6.3.4.3

ethics of 6.4.2.2

facilities 6.3.10; 6.3.10.1

fi re management in 6.3.9

grazing in 6.4.5.3

management of 6.4

mineral development in 6.4.5.2

minimum requirement 6.3.5

minimum tool management concept 6.3.6.1

motorized equipment and vehicles in 6.4.2.3

national wilderness preservation system 6.2

planning 6.3.4

potential wilderness 6.2.2.1

private rights in 6.4.5

proposed wilderness 6.2.2.2

public use shelters in 6.3.10.3

recommended wilderness 6.2.3

recreational use in 6.4.2

resource management 6.3.7

resource and use monitoring 6.3.6.2

review process 6.2

rights-of-way in 6.4.5.1

scientifi c activities/research 6.3.6

signs in 6.3.10.4

special events in 6.4.4

special provisions of ANILCA 6.4.3.3; 6.4.4

structures in 6.2.1.2

toilets in 6.3.10.3

trails and roads in 6.3.10.2

wilderness study process 6.2

zoning for 6.3.4.1

Wildfi res

See fi re management

Wildlife

See Animals

World heritage sites 4.3.7; 5.1.3.2.3

Z

Zones and zoning

See Management zoning
Keep up to date on new or revised policies by visiting 

the National Park Service policy website at

http://www.nps.gov/policy

The NPS Directives System

The NPS Directives System consists of internal instructions and guidance 

documents to ensure that NPS managers and staff have clear information on 

NPS policy and on required and/or recommended actions. It is composed of 

three “levels” of documents: 

Level 1 consists of the policies that appear in the book entitled Management 

Policies, and which set the broad framework, provide direction, and prescribe 

parameters for making management decisions. 

Level 2 is Director’s Orders, which articulate new or revised policy on an 

interim basis between publication dates of NPS Management Policies. 

 They also provide more detailed interpretation of Management Policies and 

outline requirements applicable to NPS functions, programs and activities, 

and are a vehicle by which the Director may delegate specifi c authorities 

and responsibilities. The main target audience for Director’s Orders is park 

superintendents, for whom they serve as an “executive summary” of important 

policies and procedures. 

Level 3 materials include handbooks, reference manuals and other documents 

containing comprehensive information in support of fi eld and programmatic 

operations. A typical handbook or reference manual will include information 

about relevant legislation, regulations, Servicewide policies, and other 

instructions or requirements issued through a Director’s Order, as well as 

examples, illustrations, recommended practices, forms, etc. 

In many cases, Level 3 handbooks and reference manuals will look very similar 

to the old NPS Guidelines. They may serve as a source of “one-stop shopping” for 

comprehensive information about a particular program or function. But they will 

be carefully crafted to clearly distinguish between what is mandatory or required, 

and what is merely recommended. Those who issue Level 3 documents may not 

impose any requirements beyond what has already been issued in Management 

Policies or Director’s Orders, unless they have been authorized by the Director 

to do so.