Wilderness Stewardship Division

Wilderness Stewardship Program

January 2014

 Wilderness Stewardship Plan Handbook

planning to preserve Wilderness CharaCter

National Park Service

U.S. Department of the Interior
“Something will have gone out of us as a people if we ever let the remaining 

wilderness be destroyed; if we permit the last virgin forests to be turned into comic books 

and plastic cases; if we drive the few remaining members of the wild species into zoos or 

to extinction; if we pollute the last clear air and dirty the last clean streams and push our 

paved roads through the last of the silence, so that never again will Americans be free in 

their own country from the noise, the exhausts, stinks of human and automotive waste. 

And so that never again can we have the chance to see ourselves single, separate, vertical 

and individual in the world, part of the environment of trees and rocks and soil, brother 

to the other animals, part of the natural world and competent to belong in it. Without 

any remaining wilderness we are committed wholly, without chance for even momentary 

reflection and rest, to a headlong drive into our technology termite-life, the Brave New 

World of a completely man-controlled environment. We need wilderness preserved—as 

much of it as is still left, and as many kinds—because it was the challenge against which our 

character as a people was formed. The reminder and the reassurance that it is still there is 

good for our spiritual health even if we never once in ten years set foot in it. It is good for 

us when we are young, because of the incomparable sanity it can bring briefly, as vacation 

and rest, into our insane lives. It is important to us when we are old simply because it is 

there—important, that is, simply as an idea....These are some of the things wilderness can 

do for us. That is the reason we need to put into effect, for its preservation, some other 

principle than the principles of exploitation or ‘usefulness’ or even recreation. We simply 

need that wild country available to us, even if we never do more than drive to its edge and 

look in. For it can be a means of reassuring ourselves of our sanity as creatures, part of the 

geography of hope.”

 Wallace Stegner

Coda: Wilderness Letter (1960)
Wilderness Stewardship Plan Handbook

Planning to Preserve Wilderness Character

Developed by the

NPS Wilderness Character Integration Team with funding and support from the

NPS Office of Park Planning and Special Studies and the

Wilderness Stewardship Division

A Companion Document to the 2014

Keeping It Wild in the National Park Service: 

A User Guide to Integrating Wilderness Character into 

Park Planning, Management, and Monitoring

WASO 909 122875; January 2014
ii

Executive Summary

This handbook is an update to the original Wilderness Stewardship Plan Handbook 2004. The 

purpose of the Wilderness Stewardship Plan Handbook 2014 is to provide direction for creating 

wilderness stewardship plans, driven by the concept of preserving wilderness character. The 

Handbook focuses on how to incorporate wilderness policy and wilderness character into a 

wilderness stewardship plan and also offers a general overview of planning and compliance to 

be useful for those with and without a professional background in planning.

I. Wilderness Stewardship Planning Process

Internal scoping involves compiling basic wilderness information and developing a wilderness 

character narrative that describes the wilderness. Anticipated issues and opportunities are 

identified, as well as who should be included in the process: National Park Service (NPS) staff, 

tribes, agencies, and the public. Should the wilderness stewardship plan be combined with 

another type of plan? What other data or expertise are needed? An environmental screening 

form needs to be completed and a project agreement developed with all parties to be involved.

External scoping opens the process to tribes, agencies, and the public to identify issues and 

opportunities and set goals and objectives for the wilderness stewardship plan.

Gathering and analyzing data are integral to the planning effort. Data are used to improve 

understanding of existing wilderness character conditions and issues to be addressed in 

planning, and provide a sound basis for decision making.

Develop the plan is the next step, which at its heart identifies desired conditions, indicators, 

measures, standards, and management actions in a framework for making decisions. The 

measures need to fit with the wilderness character framework, Keeping It Wild: An Interagency 

Strategy to Monitor Trends in Wilderness Character Across the National Wilderness Preservation 

System. Management zone types are developed with desired conditions. A range of alternatives 

that meet goals and objectives are identified, including a no-action alternative and a preferred 

alternative and impacts for each, and shared with the public, tribes, and other agencies.

The draft plan includes the appropriate level of compliance (an environmental assessment or 

environmental impact statement), and depending on the compliance document and results 

of public involvement, either a Finding of No Significant Impact or a Final Plan and Record of 

Decision is prepared.

Implementation includes monitoring the selected wilderness character measures, comparing 

them with standards, and implementing the identified actions to bring conditions within 

standard, in an ongoing cycle.

II. Wilderness Stewardship Plan Content

The content of a wilderness stewardship plan is not unlike other planning documents. This part 

of the Handbook offers wilderness-specific advice on developing the sections of the plan.

Summary and Table of Contents

Chapter 1: Purpose and Need

Chapter 2: Alternatives

Chapter 3: Affected Environment

Chapter 4: Environmental Consequences

Chapter 5: Consultation and Coordination

Appendixes to Plan
iii

Appendixes to Wilderness Stewardship Plan Handbook

Appendix 1—Wilderness Stewardship Plan Checklist—a concise checklist for quality and 

completeness, adequacy of consultation and coordination, a check on content, and 

assurance of appropriate compliance.

Appendix 2.1—Where to Go for More Information: References and Examples—lists 

topics and sources, links, key planning references, and where to find training.

Appendix 2.2—Examples of Wilderness Stewardship Planning—lists current wilderness 

stewardship plans, some combined with other types of plans, and offers comments on 

notable parts of the plan.

Appendix 3—Emerging Ideas in Analysis: Tools for Teams—includes a description of a 

wilderness character mapping tool, ideas on combining multiple planning tasks in team 

workshops, and an arrow exercise for group discussion of wilderness character qualities.

Appendix 4—Action Topics to Consider in Developing a Wilderness Stewardship Plan—

offers a wealth of information about very specific topics that are commonly found in 

wilderness stewardship plans. For each action topic there is a suggested list of specific 

wilderness issues for that topic, their relationship to wilderness character, and a relevant 

section in the wilderness stewardship plan where the topic could be included.

Appendix 5—Indicators, Measures, and NPS Data Sources for the Qualities of Wilderness 

Character—a summary from Keeping It Wild of wilderness character qualities, 

monitoring questions, indicators, and possible measures. In addition, a list of likely data 

sources for each of the measures is provided.

Relationship to Keeping It Wild in the National Park Service: A User Guide to Integrating 

Wilderness Character into Park Planning, Management, and Monitoring

The User Guide offers practical strategies and tools to integrate wilderness character into park 

planning, management, and monitoring. The User Guide is not prescriptive but instead offers a 

wide range of tools and guidance that may be used by park staff in any order. The User Guide

is a stand-alone document not included within the Wilderness Stewardship Plan Handbook, but 

directly associated with it.

The User Guide and Handbook were developed by the NPS Wilderness Character Integration 

Team, established in 2010 by the NPS Office of Park Planning and Special Studies and WASO 

Wilderness Stewardship Division. These documents are part of NPS Reference Manual 41: 

Wilderness Stewardship. It is intended that they will evolve over time as park and program area 

staff work with and improve them. They also create the structure for park-to-park sharing of 

experiences, ideas, and best practices to reach the goal as quickly and efficiently as possible.
iv

Acknowledgments

Development of the 2014 Wilderness Stewardship Plan Handbook would not have been 

possible without the vision, funding, and support of Patrick Gregerson, NPS Office of Park 

Planning and Special Studies, and Garry Oye, NPS Wilderness Stewardship Division.

Principal authors of the 2014 Handbook were Suzy Stutzman, former Intermountain 

Regional Wilderness Coordinator; Sandee Dingman, Biologist, Lake Mead National 

Recreation Area; and Ruth Scott, Wilderness Specialist, Olympic National Park. All worked on 

the Handbook as members of the NPS Wilderness Character Integration Team.

Other members of the Wilderness Character Integration Team provided invaluable direction, 

review, and support for the update of the Handbook: Michael Bilecki, Carol Cook, Sarah 

Craighead, Jeremy Curtis, Tim Devine, Michael Haynie, Chris Holbeck, Chip Jenkins, Peter 

Landres, Adrienne Lindholm, Melissa Memory, Christina Mills, Ray O’Neil, Miki Steube, Karen 

Trevino, Frank Turina, and Wade Vagias.

Many National Park Service employees reviewed drafts of the Handbook and provided 

insightful comments, improving its substance and clarity: Judy Alderson, Kerri Cahill, Dale 

Coker, Kayci Cook Collins, Jill Cowley, Gregg Fauth, Ericka Pilcher, Larissa Reed, Michael 

Rees, Ken Stahlnecker, Dave Trevino, Teri Tucker, and the Intermountain Region’s Wilderness 

Executive Committee. The final production of the document was a result of the outstanding 

work of Erin Drake and Ángel López.

The 2014 Handbook is an update of the original Wilderness Stewardship Plan Handbook 

2004 developed by a National Wilderness Steering Committee task group with the ongoing 

funding and support of Wes Henry, former NPS National Wilderness Program Manager. 

Principal authors of the 2004 edition were Judy Alderson, former Alaska Regional Wilderness 

Coordinator; Ruth Scott, Wilderness Specialist, Olympic National Park; Steve Ulvi, former 

Management Assistant, Gates of the Arctic National Park and Preserve; and Jim Walters, 

former Deputy National Wilderness Program Manager. Without their foundational work the 

current 2014 Handbook would not have been possible.
v

Brief Table of Contents

Executive Summary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . ii

Acknowledgements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .iv

Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1

Preserving Wilderness Character

Building Blocks for Integrating Wilderness Character

Wilderness Stewardship Plan

How to Use the Handbook

Part I—Wilderness Stewardship Planning Process . . . . . . . . . . . . . 15

Internal Scoping

Civic Engagement and Consultation

Data Gathering and Analysis

Management Framework

Alternatives

Environmental Analysis

Administration and Implementation

Part II—Wilderness Stewardship Plan Content . . . . . . . . . . . . . . . 51

Chapter 1: Purpose and Need

Chapter 2: Alternatives

Chapter 3: Affected Environment

Chapter 4: Environmental Consequences

Chapter 5: Consultation and Coordination

References and Appendixes . . . . . . . . . . . . . . . . . . . . . . . . 71
vi

Detailed Table Of Contents

Executive Summary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . ii

I. Wilderness Stewardship Planning Process . . . . . . . . . . . . . . . . . ii

II. Wilderness Stewardship Plan Content . . . . . . . . . . . . . . . . . . ii

Acknowledgements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .iv

List of Tables . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . viii

List of Figures . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . viii

Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1

Preserving Wilderness Character . . . . . . . . . . . . . . . . . . . . . . 5

Indicators Associated with Each Quality of Wilderness Character . . . . 8

Building Blocks for Integrating Wilderness Character . . . . . . . . . . . . 9

Wilderness Stewardship Plan . . . . . . . . . . . . . . . . . . . . . . . .11

How to Use the Handbook . . . . . . . . . . . . . . . . . . . . . . . . .14

Part I—Wilderness Stewardship Planning Process . . . . . . . . . . . . . . . 15

Internal Scoping . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .19

Combining Wilderness Stewardship and 

Backcountry Management Plans . . . . . . . . . . . . . . . . . . . .21

Combining Wilderness Stewardship with Other Plans . . . . . . . . .25

Civic Engagement and Consultation . . . . . . . . . . . . . . . . . . . .26

Public Involvement . . . . . . . . . . . . . . . . . . . . . . . . . . .26

Agency Consultation . . . . . . . . . . . . . . . . . . . . . . . . . 27

Tribal Consultation . . . . . . . . . . . . . . . . . . . . . . . . . . 27

Data Gathering and Analysis . . . . . . . . . . . . . . . . . . . . . . . .29

Management Framework . . . . . . . . . . . . . . . . . . . . . . . . . 30

Selecting Measures and Establishing Baselines . . . . . . . . . . . . .32

Selecting Standards . . . . . . . . . . . . . . . . . . . . . . . . . .34

Management Actions If Standards Exceeded . . . . . . . . . . . . . .37

More About Measures, Standards, and Management Actions . . . . .39

Alternatives . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 41

Developing Alternatives . . . . . . . . . . . . . . . . . . . . . . . .41

Management Zones . . . . . . . . . . . . . . . . . . . . . . . . . .42

Developing Alternatives—Specific Guidance . . . . . . . . . . . . . .45

Environmental Analysis . . . . . . . . . . . . . . . . . . . . . . . . . . 47

Affected Environment . . . . . . . . . . . . . . . . . . . . . . . . .47

Environmental Consequences . . . . . . . . . . . . . . . . . . . . .47

Identifying a Preferred Alternative . . . . . . . . . . . . . . . . . . .48

Administration and Implementation . . . . . . . . . . . . . . . . . . . .48

Minimum Requirements Concept . . . . . . . . . . . . . . . . . . .48

Scientific Activities . . . . . . . . . . . . . . . . . . . . . . . . . . .49

Other Operational Procedures . . . . . . . . . . . . . . . . . . . . .50

Project Closure . . . . . . . . . . . . . . . . . . . . . . . . . . . . 50

Implementation . . . . . . . . . . . . . . . . . . . . . . . . . . . .50
vii

PART II—Wilderness Stewardship Plan Content . . . . . . . . . . . . . . . . 51

Summary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 53

Table of Contents . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 53

Chapter 1: Purpose and Need . . . . . . . . . . . . . . . . . . . . . . .54

Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .54

Purpose and Need . . . . . . . . . . . . . . . . . . . . . . . . . . .54

Goals and Objectives . . . . . . . . . . . . . . . . . . . . . . . . . 55

Background . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .57

Scope of the Plan . . . . . . . . . . . . . . . . . . . . . . . . . . .59

Impact Topics . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 61

Chapter 2: Alternatives . . . . . . . . . . . . . . . . . . . . . . . . . . 62

No Action . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .62

Action Alternatives, Including the Proposed Alternative . . . . . . . .62

Administration and Implementation . . . . . . . . . . . . . . . . . .63

Alternatives Considered But Dismissed . . . . . . . . . . . . . . . . .63

Mitigation Measures . . . . . . . . . . . . . . . . . . . . . . . . . .64

Environmentally Preferable Alternative . . . . . . . . . . . . . . . . .65

Summary and Comparison of Alternatives and Impacts . . . . . . . . 65

Chapter 3: Affected Environment . . . . . . . . . . . . . . . . . . . . . 65

Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .65

Impact Topics . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 66

Chapter 4: Environmental Consequences . . . . . . . . . . . . . . . . . 67

Chapter 5: Consultation and Coordination . . . . . . . . . . . . . . . . .69

References . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .69

Appendixes to Plan . . . . . . . . . . . . . . . . . . . . . . . . . . . . 69

Index . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 70

References and Appendixes . . . . . . . . . . . . . . . . . . . . . . . . . . 71

Selected References . . . . . . . . . . . . . . . . . . . . . . . . . . . .73

Appendix 1–Wilderness Stewardship Plan Checklist . . . . . . . . . . . . 74

Appendix 2.1–Where To Go For More Information: 

References And Examples . . . . . . . . . . . . . . . . . . . . . . . . .76

Appendix 2.2–Examples Of Wilderness Stewardship Planning . . . . . . . 79

Appendix 3–Emerging Ideas In Analysis: Tools For Teams . . . . . . . . . .81

Appendix 4–Action Topics To Consider In Developing A 

Wilderness Stewardship Plan . . . . . . . . . . . . . . . . . . . . . . . .87

Appendix 4.1—Resource Management Action Topics To 

Consider In Developing A Wilderness Stewardship Plan . . . . . . . . . . 90

Appendix 4.2—Visitor Experience Action Topics To Consider In 

Developing A Wilderness Stewardship Plan . . . . . . . . . . . . . . . 100

Appendix 4.3—Administrative Actions And Facilities Action Topics 

To Consider In Developing A Wilderness Stewardship Plan . . . . . . . . 106

Appendix 5—Indicators, Measures, And NPS Data Sources For 

The Qualities Of Wilderness Character . . . . . . . . . . . . . . . . . . 116
viii

List of Tables

Table 1. Relationship of Handbook 2014 to NPS policy and guidance. . . . . . . . . .4

Table 2. The qualities of wilderness character and their associated indicators. . . . . .8

Table 3. Building blocks for integrating wilderness character 

into wilderness stewardship. . . . . . . . . . . . . . . . . . . . . . . . . . 10

Table 4. Relationship between building blocks and a wilderness stewardship plan. . 14

Table 5. Typical wilderness stewardship planning process. . . . . . . . . . . . . . . 18

Table 6. Comparison of terms. . . . . . . . . . . . . . . . . . . . . . . . . . . . . 32

Table 7. Potential planning issues and topics arranged by quality 

of wilderness character. . . . . . . . . . . . . . . . . . . . . . . . . . . . 60

Table 8. Where to go for more information about Handbook topics. . . . . . . . . . 76

Table 9. Examples of wilderness stewardship planning. . . . . . . . . . . . . . . . 79

Table 10. Indicators, measures, and NPS data sources for the qualities 

of wilderness character. . . . . . . . . . . . . . . . . . . . . . . . . . . 116

List of Figures

Figure 1. Wilderness stewardship planning framework. . . . . . . . . . . . . . . . . 13

Figure 2. Wilderness character at Death Valley Wilderness from 

the combined four qualities. . . . . . . . . . . . . . . . . . . . . . . . . . 82

Figure 3. Quantifying the effect of different plan alternatives 

on wilderness character. . . . . . . . . . . . . . . . . . . . . . . . . . . . 83

Figure 4. Grouping workshop and team meeting topics. . . . . . . . . . . . . . . . 84

Figure 5. Arrow diagrams for wilderness character qualities. . . . . . . . . . . . . . 86
I am glad I shall never be young 

without wild country to be 

young in. Of what avail are forty 

freedoms without a blank spot 

on the map? 

—Aldo Leopold

Photo: NPS/William Baccus, 

Olympic Wilderness, 

Olympic National Park

Introduction
Wilderness Stewardship Division | Wilderness Stewardship Program

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Photo: NPS, Olympic Wilderness, 

Olympic National Park

Introduction

3

Introduction

Planning is essential to ensure sound wilderness 

stewardship and the preservation of wilderness 

character through the process of setting goals, 

developing strategies, and determining a course 

of action. Planning is a collaboration process: it 

brings together a variety of expertise; is based on 

the best available information; engages the public; 

and involves consultation with tribes and other 

stakeholders to develop a dynamic framework 

for decision making and adaptive management. 

This process makes wilderness stewardship more 

effective and accountable, and the planning product 

provides a solid foundation for future management 

and preservation efforts. Planning also fulfills 

National Park Service (NPS) Management Policies 

2006, chapter 6, “Wilderness Preservation and 

Management” (see below), directing each park 

superintendent in charge of wilderness resources 

to develop and maintain a wilderness management 

(stewardship) plan to guide the preservation, 

management, and use of those resources.

A Wilderness Stewardship Plan 

for Every NPS Wilderness

NPS Management Policies 2006:

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 specified 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 specific, 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.
Wilderness Stewardship Division | Wilderness Stewardship Program

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The purpose of the Wilderness Stewardship Plan Handbook 2014 (Handbook) 

is to provide direction for creating wilderness stewardship plans, driven by the 

concept of preserving wilderness character. The Handbook is organized into two 

main sections:

•  Part I: Wilderness Stewardship Planning Process – HOW to go about 

developing a plan

•  Part II: Wilderness Stewardship Plan Content – WHAT is contained in a plan

The intended audience is NPS staff involved in wilderness stewardship 

planning, including personnel in parks, regions, Denver Service Center, as well 

as contractors, cooperators, and partners. Those involved may or may not have a 

professional background in planning and compliance processes. The Handbook

focuses primarily on how to incorporate wilderness management policies and 

wilderness character into a wilderness stewardship plan (WSP), but also provides 

a general overview of planning and compliance. Details on the authority of the 

Handbook and its relationship to other NPS policy and guidance are provided 

in table 1.

Table 1. Relationship of Handbook 2014 to NPS policy and guidance.

NPS Policy and Guidance NPS Wilderness Stewardship Plan Handbook 2014

NPS Management 

Policies 2006, chapter 6, 

“Wilderness Preservation and 

Management,”

section 6.3.4.2, “Wilderness 

Management Planning”

Handbook provides supplemental guidance to Management Policies 2006, chapter 6, 

about wilderness management (stewardship) planning, and also provides guidance for 

incorporating wilderness management policies into the plan.

Director’s Order 41: 

Wilderness Stewardship

Handbook provides supplemental guidance to Director’s Order 41 about wilderness 

management (stewardship) planning, and also provides guidance for incorporating other 

parts of the director’s order into the wilderness stewardship plan.

Reference Manual 41: 

Wilderness Stewardship

Handbook replaces previous RM-41, section IV.C.1. 

“Wilderness Management Plan Requirements.”

Wilderness Stewardship Plan 

Handbook 2004, prepared 

by the National Wilderness 

Steering Committee

2014 Handbook updates and replaces the 2004 Handbook. The update was triggered by 

the NPS commitment to adopt the wilderness character framework in Keeping It Wild: 

An Interagency Strategy to Monitor Trends in Wilderness Character Across the National 

Wilderness Preservation System (Landres and others 2008) and to integrate wilderness 

character into planning, monitoring, and management.

The Handbook uses the term “wilderness” for designated and all other 

categories of wilderness (eligible, proposed, recommended, and potential) in 

accordance with NPS Management Policies 2006 (see below).

“Wilderness” Includes Designated and All Other Categories

NPS Management Policies 2006:

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 five categories. The policies apply regardless of category 

except as otherwise provided herein.
Introduction

5

Preserving Wilderness Character

Wilderness stewardship planning is ultimately focused on the preservation of 

wilderness character, the primary mandate of the 1964 Wilderness Act. Until 

recently however, wilderness character was not formally defined nor integrated 

into the park planning process. Two key documents have been developed that 

help clarify the meaning of wilderness character and provide guidance for 

wilderness character integration into agency wilderness stewardship: Keeping 

It Wild: An Interagency Strategy to Monitor Trends in Wilderness Character 

Across the National Wilderness Preservation System (Landres and others, 2008) 

(Keeping It Wild) and Keeping It Wild in the National Park Service: A User Guide 

to Integrating Wilderness Character into Park Planning, Management, and 

Monitoring (User Guide).

The interagency publication Keeping It Wild defined wilderness character as “the 

combination of biophysical, experiential, and symbolic ideals that distinguishes 

wilderness from other lands.” Furthermore, this publication identified distinct 

and necessary “qualities” of wilderness character. These qualities are tangible, 

link conditions in the wilderness and its management directly to the statutory 

language of the Wilderness Act, and apply to every wilderness regardless of size, 

location, agency administration, or other attribute. Building on Keeping It Wild

and several years of agency experience applying these ideas, the User Guide is 

based on the use of five qualities of wilderness character, all equally important 

in understanding and describing wilderness character and all based on the 

Wilderness Act’s section 2(c), “Definition of Wilderness”:

•  Natural—Wilderness ecological systems are substantially free from the 

effects of modern civilization. This quality is preserved or improved, for 

example, by controlling or removing nonindigenous species or restoring 

ecological processes. This quality is degraded by the loss of indigenous 

species, occurrence of nonindigenous species, alteration of ecological 

processes such as water flow or fire regimes, effects of climate change, and 

many others.

•  Untrammeled—Wilderness is essentially unhindered and free from the 

intentional actions of modern human control or manipulation. This 

quality is influenced by any activity or action that intentionally controls 

or manipulates the components or processes of ecological systems inside 

wilderness. It is supported or preserved when such management actions are 

not taken. It is degraded when such management actions are taken, even 

when these actions are intended to protect resources, such as spraying 

herbicides to eradicate or control nonindigenous species, or reducing fuels 

accumulated from decades of fire exclusion.

•  Solitude or a Primitive and Unconfined Type of Recreation—Wilderness 

provides outstanding opportunities for solitude or primitive and 

unconfined recreation. This quality is primarily about the opportunity for 

people to experience wilderness, and is influenced by settings that affect 

these opportunities. This quality is preserved or improved by management 

actions that reduce visitor encounters, signs of modern civilization inside 

wilderness, agency-provided recreation facilities, and management 

restrictions on visitor behavior. In contrast, this quality is degraded by 

management actions that increase these.
Photo: NPS/Peter Landres, 

Gates of the Arctic 

Wilderness, Gates of the 

Arctic National 

Park & Preserve 

Wilderness Stewardship Division | Wilderness Stewardship Program

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•  Undeveloped—Wilderness retains its primeval character and influence, 

and is essentially without permanent improvement or modern human 

occupation. This quality is influenced by what are commonly called the 

“Section 4(c) prohibited uses” or “nonconforming” uses, which are the 

presence of modern structures, installations, habitations, and the use 

of motor vehicles, motorized equipment, or mechanical transport. This 

quality is preserved by the absence of structures and installations, and 

refraining from these prohibited uses. It is degraded by the presence of 

structures and by prohibited uses, whether by the agency for administrative 

purposes, by others authorized by the agency, or unauthorized uses. (Note 

that structures and installations related to visitor use and recreation are 

included in the Solitude Quality rather than the Undeveloped Quality.)

•  Other Features of Value—Wilderness preserves other tangible features that 

are of scientific, educational, scenic, or historical value. This quality is based 

on the last clause of section 2(c) of the Wilderness Act which states that 

a wilderness “may also contain ecological, geological, or other features 

of scientific, educational, scenic, or historical value.” This quality captures 

important elements of the wilderness that may not be covered in the other 

four qualities, such as cultural or paleontological resources. This quality is 

preserved or improved when these resources are preserved and their loss or 

impacts to such features degrade this quality of wilderness character.
Introduction

7

Together, these five qualities comprise the tangible or physical setting of 

the wilderness and its wilderness character. The first four qualities (natural, 

untrammeled, solitude or primitive and unconfined recreation, and 

undeveloped) are only summarized above and described in detail in the Keeping 

It Wild publication. The other features of value quality is different from the 

other four qualities in two ways. First, from the wording in the Wilderness Act 

this quality may or may not be present in a wilderness, whereas the other four 

qualities apply to every single wilderness. When present, this quality is of equal 

stature and importance to understanding wilderness character as all the other 

qualities. Second, from the wording in the Wilderness Act this quality focuses on 

“features” and features typically occur in specific locations, whereas the other 

four qualities apply throughout an entire wilderness. Such features could include 

cultural resources, paleontological resources, or any features not covered under 

the other four qualities that have scientific, educational, scenic, or historical 

value. In some cases it may be difficult to assign a feature to one quality or 

another. For example, National Natural Landmark sites may be assigned to either 

the natural quality or the other features of value quality and park staffs will 

need to determine which is most appropriate for the park. Features mentioned in 

park or wilderness enabling legislation, such as the historic sites in Death Valley 

Wilderness and the volcanoes in Katmai Wilderness, would be likely candidates 

for the other features of value quality. While many different types of features 

could be included, the intent is to include those that significantly contribute to 

the setting of the wilderness and understanding its wilderness character.

These five qualities interact in direct and subtle ways that may complement 

or conflict with the others. For example, allowing a natural fire ignition to 

burn preserves both the natural and untrammeled qualities of a wilderness. In 

contrast, suppressing a natural ignition degrades the untrammeled quality, the 

use of helicopters or other motorized equipment degrades the undeveloped 

and solitude qualities, and the long-term effects of suppression may degrade 

the natural quality. A decision to protect or improve one quality of wilderness 

character may directly degrade another quality. For example, designated 

campsites may be necessary to protect solitude or prevent vegetation trampling, 

but degrades other elements of the solitude quality by requiring visitors to 

camp only in designated sites. In all cases, using the framework of wilderness 

character does not drive a particular decision or management action—it is a tool 

to help staff be comprehensive, systematic, and consistent in evaluating potential 

benefits and impacts to make an informed and transparent decision.

Like a violin composed of separate pieces that interact to form something 

greater than the sum of its parts (music and the feeling this music evokes), 

these five qualities together form a complex set of relationships between the 

land, its stewardship, its users, and the values and benefits that society derives 

from wilderness. These five qualities form both the physical and stewardship 

setting of a wilderness. This setting in turn provides tangible scientific, cultural, 

educational, and economic values to society (Cordell, Bergstrom, and Bowker 

2005). For example, this setting allows the scientific value of wilderness as a 

reference baseline to assess and understand the effects of climate change. The 

setting of cultural resources in a wilderness provides a connection to the place 

by the artifacts and relics that a visitor can “discover,” provides insight into the 

history of the area, and enhances connection to past generations and ancestors. 

Spiritual (Ashley 2007; Moore 2007), ethical (Cafaro 2001), and other intangible 

values and benefits to society also derive from this wilderness setting.
Photo: NPS/Lori Wilkinson, 

Recommended wilderness in 

Yellowstone National Park

Wilderness Stewardship Division | Wilderness Stewardship Program

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Indicators Associated with Each Quality of Wilderness Character

Each quality of wilderness character has associated indicators that describe 

different major elements or components of that quality. Indicators for the 

qualities that apply nationwide and throughout a wilderness are derived from 

Keeping It Wild; these indicators are intended to apply to every wilderness 

(table 1). In contrast, indicators for the other features of value quality must be 

identified locally because they are unique to each park, although an indicator 

for cultural resources is provided in this table because these occur in every 

NPS wilderness.

Table 2. The qualities of wilderness character and their associated indicators.

Quality Indicator

Natural Plant and animal species and communities

Physical resources

Biophysical properties

Untrammeled Actions authorized by the federal land manager that manipulate the biophysical 

environment

Actions not authorized by the federal land manager that manipulate the biophysical 

environment

Solitude or primitive and 

unconfined recreation

Remoteness from sights and sounds of people inside the wilderness

Remoteness from occupied and modified areas outside the wilderness

Facilities that decrease self-reliant recreation

Management restrictions on visitor behavior

Undeveloped Nonrecreational structures, installations, and developments

Inholdings

Use of motor vehicles, motorized equipment, or mechanical transport

Other features of value Deterioration or loss of cultural or paleontological resources integral to wilderness character

Other locally identified indicators
Introduction

9

Building Blocks for Integrating Wilderness Character

Building blocks provide the foundation for effectively integrating wilderness 

character into planning, management, and monitoring. They break down 

the components of outstanding wilderness stewardship into achievable and 

meaningful steps. Building blocks establish a shared understanding of what 

is most important about each wilderness area and articulate those values for 

inclusion in a wilderness character framework. Each park containing 

wilderness is probably at a different stage in developing wilderness-related 

plans, monitoring programs, and operational guidelines. This approach 

provides maximum flexibility for staff to begin building this foundation in the 

order that works best for them, resulting in greater efficiency and effectiveness 

in wilderness stewardship.

The first building block, “Wilderness Basics,” groups together three elements 

that serve both wilderness stewardship and development of a park foundation 

document: (1) background wilderness information, (2) wilderness character 

narrative, and (3) issue identification for future wilderness stewardship 

planning. This building block provides a good starting point by making sure 

basic wilderness data and maps are current, accurate, and available to staff and 

the public. This information can inform development of a wilderness character 

narrative that identifies what is special and significant about a particular 

wilderness. The second building block, “Wilderness Character Assessment,” 

involves selecting relevant measures, determining baseline conditions, entering 

baseline information into a wilderness character database, and regularly 

monitoring each measure at specified intervals to identify trends in wilderness 

character. The last building block, “Integrate Wilderness Character into 

Management and Operations,” establishes park guidance for using wilderness 

character in routine decisions and actions. The building blocks would probably 

not propose any management actions that would be subject to National 

Environmental Policy Act (NEPA) or National Historical Preservation Act (NHPA) 

compliance; however, management actions proposed within the wilderness 

stewardship plan probably would.

Building Blocks 

for Wilderness 

Stewardship

•  Are key elements 

of the wilderness 

stewardship plan.

•  Give parks the 

flexibility to start 

building the 

foundation where it 

makes the most sense 

to them.
Wilderness Stewardship Division | Wilderness Stewardship Program

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Table 3. Building blocks for integrating wilderness character into wilderness stewardship.

Achievable Steps Toward Wilderness Stewardship

Wilderness Basics

•  Gather background wilderness information.

£ Park-specific wilderness legislation and legislative history, or if not designated, the history of wilderness study and 

current status.

£ An accurate geographic information system (GIS) map of the wilderness.

£ Park purpose, significance, and fundamental resources and values should embrace the wilderness character of 

this wilderness in the park foundation document.

£ The relationship of wilderness planning to other park plans, or general management plan.

•  Develop a wilderness character narrative.

£ A qualitative description of what is unique and special about the wilderness using the five qualities of wilderness 

character.

•  Identify issues for future wilderness stewardship planning.

£ Identify preliminary wilderness issues to inform the scope of additional data and planning needs.

If a park is developing a park foundation document, the wilderness elements in this building block should be developed 

concurrently, resulting in efficiency and better products.

Wilderness Character Assessment

•  Select measures.

£ Select a suite of measures, at least one for each of the 13 indicators, to describe the current condition of 

wilderness character. These measures are largely based on information that has already been collected. Measures 

may be revisited during a planning effort.

•  Collect baseline data.

£ Collect baseline data and enter into a national database, which will allow park managers to track trends in 

wilderness character over time.

•  Monitor on an ongoing basis.

£ Collect data at an interval of at least every five years and report at park, region, and national levels.

Integrate Wilderness Character into Management and Operations

•  Use minimum requirements analysis (MRA).

£ Establish how the park incorporates the MRA process into decision making.

•  Consider wilderness character in operations.

£ Focus on developing the internal guidance and processes to direct routine park staff decisions and actions based 

on wilderness character.

£ Additional management guidance could include a framework based on wilderness character for evaluating 

scientific activities, evaluating commercial services (e.g. extent necessary determination) and special park 

use permit requests, developing standard operating procedures for activities in wilderness, establishing an 

interdisciplinary wilderness committee, and other actions specific to the park. 

For more information about developing the content of these building blocks, 

see chapter 2 of the User Guide. For more information about developing 

wilderness basics in tandem with a park foundation document, see chapter 3 

of the User Guide.
Photo: NPS/Todd Esque,

Joshua Tree Wilderness, 

Joshua Tree National Park

Introduction

11

Wilderness Stewardship Plan

Completion of the building blocks can provide interim guidance for managing 

wilderness areas and tracking trends in wilderness conditions, but this 

foundation is not a substitute for a complete wilderness stewardship plan. A 

wilderness stewardship plan is a decision-making document completed with 

an appropriate level of NEPA and NHPA compliance, and includes participation 

from the public, other agencies, and associated tribes. A wilderness stewardship 

plan sets long term goals and objectives, identifies issues and opportunities, and 

provides a decision-making framework and appropriate actions to preserve and, 

if necessary, improve wilderness character now and into the future. A wilderness 

stewardship plan identifies desired future conditions, and establishes measures 

and standards to guide wilderness character preservation.

For a wilderness stewardship plan to be relevant and useful upon release the 

planning process should incorporate an adaptive management approach, 

reinforcing the connection between the monitoring of wilderness character 

and the strategy for adapting management actions to preserve wilderness 

character in the face of rapid environmental and social change. The process 

begins by setting goals, selecting indicators and measures, setting standards, 

and identifying a range of management actions. Conditions are monitored, 

and if conditions or trends are unacceptable, appropriate management actions 

are implemented. Conditions are then monitored in the future to determine 

if the actions were effective in restoring acceptable conditions. This cycle of 

implementing management actions and monitoring continues in order to 

achieve desired outcomes. Monitoring may show that in some situations the 

measures may need to be adjusted. The process for developing the plan through 

an adaptive management approach, also known as the wilderness stewardship 

planning framework, is illustrated in figure 1.
Wilderness Stewardship Division | Wilderness Stewardship Program

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A wilderness stewardship plan must contain the following major components:

•  Purpose and need—Basic information about the wilderness, including 

goals, objectives, issues, and opportunities.

•  Alternatives, including a proposed action—A range of alternatives that 

address different ways to achieve goals and objectives, address identified 

issues and opportunities, and that ultimately preserve wilderness character. 

This range of alternatives must include a “no action” alternative. The 

preferred alternative must identify desired conditions along with 

appropriate measures, standards, and strategies to successfully attain 

these goals. If warranted, geographic zones within the wilderness may be 

identified for the purpose of establishing zone-specific desired conditions, 

measures, standards, and actions that preserve wilderness character to the 

highest degree across a varied and complex wilderness.

•  Appropriate environmental compliance—An environmental assessment 

(EA) or environmental impact statement (EIS) will include a description 

of the “affected environment” for each of the impact topics that 

are identified and retained. The plan will also contain a section on 

environmental consequences that meets the requirements of Director’s 

Order 12: Conservation Planning, Environmental Impact Analysis, and 

Decision-making and DO-12 Handbook and other current guidance.

•  Consultation and coordination—A valid planning process must 

meaningfully engage the public and include consultation with other 

relevant agencies and traditionally associated American Indian tribes. 

Public involvement should be documented in the plan.

•  Administrative guidance—Guidance for applying the minimum 

requirements concept should always be included. Guidance for 

evaluation of scientific activities, commercial services (e.g. extent 

necessary determination), and special park uses should also be 

included if appropriate, as well as for facilities management and 

other park operations.
Introduction

13

Figure 1. Wilderness Stewardship Planning Framework.

Goals

•  What are we trying to 

preserve?

•  What is significant 

about the area?

•  What are the desired 

conditions?

Building Blocks 

for Wilderness Character

A Wilderness Basics

•  Background wilderness 

information

•  Wilderness character narrative

•  Issues for wilderness planning

B Wilderness Character Assessment

•  Selection of measures

•  Collection of baseline data

•  Ongoing monitoring

C Integration of Wilderness Character 

into Management

•  Minimum requirements

•  Operations

Most of these building block elements become part of 

the wilderness stewardship plan.

Indicators and 

Measures

•  What indicators and 

measures provide 

holistic representation 

of wilderness 

character?

•  What measures 

are practical and 

repeatable?

Standards

•  What is acceptable 

versus unacceptable 

impact?

•  What conditions 

or trends would 

trigger corrective 

management action?

Management Actions

•  What will be done to 

maintain acceptable 

conditions and 

correct unacceptable 

conditions?

Wilderness basics 

inform goals and 

become the first 

chapter of a plan.

ADAPT

Adaptive Management

•  Measures are monitored and compared to standards.

•  If conditions or trends are unacceptable, appropriate management actions identified in the plan are implemented.

•  This cycle of monitoring and adjustment continues in order to achieve desired outcomes.

•  Measures may be adjusted.

Monitoring

•  What is the status and 

trend of conditions?

•  How do the conditions 

compare to standards?

If a park has 

previously 

selected 

measures, they 

are brought in 

here. Measures 

may be adjusted 

during planning.
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Table 4 identifies links between the building blocks and a wilderness stewardship 

plan. Part II of the Handbook provides more detail on wilderness stewardship 

plan contents, and appendix 1 contains a complete checklist for a wilderness 

stewardship plan while appendix 4 provides ideas for what might be covered in 

the plan related to a breadth of action topics. Appendix 2.1 contains additional 

references for more information about Handbook topics, and appendix 2.2 

includes a list of wilderness stewardship plans that provide helpful examples of 

plan components.

Table 4. Relationship between building blocks and a wilderness stewardship plan.

Building Blocks for 

Wilderness Character Wilderness Stewardship Plan

Wilderness Basics—Gather 

background wilderness 

information

•  Basic information can be incorporated into the first chapter of the plan.

Wilderness Basics—Develop a 

wilderness character narrative

•  Incorporate wilderness character narrative into the first chapter of the plan.

•  Incorporate wilderness character narrative into the “Affected Environment” section of 

the plan.

Wilderness Basics—Identify 

issues for future wilderness 

stewardship planning efforts

•  Conduct initial internal scoping for the plan.

•  Focus the plan on the most important wilderness stewardship needs.

•  Identify data to be gathered before planning begins.

•  Gather information needed for securing funds and staff to undertake the plan.

Wilderness Character 

Assessment

•  Use measures selected for the baseline in establishing a wilderness stewardship 

planning framework.

•  Adjust measures if necessary to fit goals and actions in the plan.

•  Identify standards for the measures and management actions that will be taken if 

standards are exceeded.

Integrate Wilderness 

Character into Management 

and Operations

•  Adopt minimum requirements analysis (MRA) procedures and other management/

operational guidance into the plan.

How to Use the Handbook

The Handbook provides a wide range of tools and guidance for incorporating 

wilderness character into wilderness stewardship planning. It is a companion 

document to Keeping It Wild in the National Park Service: A User Guide to 

Integrating Wilderness Character into Park Planning, Management, and 

Monitoring. The Handbook is intended to be a dynamic document that is 

refined over time as experience is gained in incorporating wilderness character 

into planning. Many of the documents, worksheets, and examples referenced 

in this Handbook can be found on the “Wilderness Character” tab of the NPS 

Wilderness Stewardship Program SharePoint site at 

http://share.inside.nps.gov/sites/WASO/WSD/WC.
Part I

There is just one hope of 

repulsing the tyrannical 

ambition of civilization to 

conquer every inch on the 

whole earth. That hope is the 

organization of spirited people 

who will fight for the freedom 

and preservation of wilderness.

—Bob Marshall

Photo: NPS/Liz Gordon, 

Haleakala Wilderness, 

Haleakala National Park 

Wilderness 

Stewardship 

Planning 

Process
Wilderness Stewardship Division | Wilderness Stewardship Program

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Photo: NPS/Liz Gordon, 

Haleakala Wilderness, Haleakala National Park

Part I—Wilderness Stewardship Planning Process

17

Part I—Wilderness Stewardship

Planning Process

Part I of the Handbook provides guidance for 

developing a wilderness stewardship plan that 

integrates the concept of wilderness character 

into the planning process. Wilderness stewardship 

planning is not a unique planning process, and 

guidance used for other planning efforts can also 

be helpful and applicable. Table 5 depicts the flow 

of the planning process for completing a wilderness 

stewardship plan.
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Table 5. Typical wilderness stewardship planning process.

Planning Process Relevant Section in This Handbook

Internal Scoping

NPS staff defines the project

•  Compile basic wilderness information and develop a wilderness 

character narrative

Building Blocks

•  Identify anticipated issues and opportunities Internal Scoping

•  Identify public / agencies / tribes to be included in the process Internal Scoping; Civic Engagement

•  Combine with other plans? Combining with Other Plans

•  Complete an environmental screening form to determine if environmental 

assessment or environmental impact statement is appropriate; determine 

NHPA requirements

Internal Scoping

•  Identify data and expertise needs Internal Scoping; Data Gathering

•  Identify preliminary purpose and need for planning, goals, and objectives 

(may be adjusted after public involvement)

Internal Scoping

•  Establish who, what, when, where, why, how (project agreement) Internal Scoping

External Scoping

Identify issues and opportunities with public / agencies / tribes; set 

goals and objectives

Civic Engagement and Consultation

•  Appropriate meetings, newsletters, or other communication

•  Federal Register notice if environmental impact statement

Data Gathering and Analysis

•  Gather relevant data (e.g., visitor use statistics, resource conditions, 

number and status of facilities, administrative actions in wilderness)

Data Gathering and Analysis

•  Analyze data to improve understanding of existing wilderness character 

conditions and issues to be addressed in planning

Alternatives

•  Develop measures, standards, and management actions framework Management Framework

•  Develop zone types, descriptions, and allocations if appropriate Alternatives

•  Identify desired conditions in alternatives and zones Alternatives

•  Develop a range of alternatives that meets park purpose, goals, and 

objectives; include a “no action” alternative

Alternatives

•  Share conceptual alternatives with the public, if appropriate Civic Engagement and Consultation

•  Identify impacts (environmental assessment and environmental 

impact statement)

Environmental Analysis

•  Identify a preferred alternative that best meets goals and objectives Environmental Analysis

Draft Plan

•  Write draft plan Part II

•  Share draft with public / agencies / tribes

•  Analyze and summarize comments

•  Federal Register notice if environmental impact statement

Finalize Plan

•  If environmental assessment, prepare a Finding of No Significant Impact Administration and Implementation

•  If environmental impact statement, prepare a final plan, conduct public 

review, and prepare a Record of Decision (ROD); Federal Register notices 

for final plan and Record of Decision

Implementation

•  Monitor, compare conditions with standards, implement actions, continue 

monitor-implementation cycle, adapt Administration and Implementation
Part I—Wilderness Stewardship Planning Process

19

Internal Scoping

The success of any planning process depends on the strong commitment and 

combined effort of an interdisciplinary team throughout the entire project. 

Producing a wilderness stewardship plan is more than a writing exercise; it is 

a journey that involves diverse expertise, civic engagement, consultation, and 

opportunities for honest and informed discussion and that results in decisions 

and guidance for future wilderness stewardship. The written plan is the 

product of this journey. Internal scoping should begin by assembling a strong 

interdisciplinary team (IDT) composed of park staff and other relevant 

partners, including region staff, Denver Service Center staff, contractors, 

cooperating agencies, or other land managers. A park superintendent’s 

commitment to empower the team throughout the planning process is 

essential. Success depends on a strong understanding of wilderness character, 

good communication among the IDT members, and a willingness to listen to 

others and share diverse perspectives.

If the wilderness basics building block (see “Introduction”) has been prepared 

for the park, internal scoping may have already begun as part of that process. 

Otherwise, the IDT should gather and compile basic wilderness information 

to better understand the extent, status, and context of wilderness resources, 

and develop a wilderness character narrative that articulates the four qualities 

of wilderness character, and the other features of value quality, if applicable. 

Internal scoping results in an initial assessment of significant wilderness issues 

and opportunities that the wilderness stewardship plan should address. A list of 

possible issues and action topics can be found in appendix 4. The team should 

determine whether or not to combine a wilderness stewardship plan with other 

types of plans, such as a backcountry management plan, commercial services 

plan, or general management plan (GMP). A section on combining wilderness 

stewardship planning with backcountry management plans and other types of 

plans is included below.

During internal scoping, the IDT should identify and contact potentially 

interested stakeholders, and identify possible participatory mechanisms for 

them. More information about public involvement and consultation can be 

found in part I of the Handbook under the “Civic Engagement and Consultation” 

section. The IDT should also discuss and complete an environmental screening 

form to make a preliminary decision on the level of compliance and whether 

an environmental assessment or an environmental impact statement is 

appropriate. Many wilderness stewardship plans can be developed using an EA 

process; however, plans such as those amending a general management plan 

or potentially controversial plans have been developed using an EIS process. 

A project site should be established in the NPS Planning, Environment, and 

Public Comment website (PEPC) to identify the IDT, complete the environmental 

screening form, and document the planning process.
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Once these preliminary steps have been completed, staff can make an assessment 

of the data requirements necessary to begin the decision making process. Data 

may already be available, but if there are significant gaps the team must make 

a judgment about whether or not collecting additional data is essential to 

completing a successful and effective plan. Wilderness stewardship planning 

must be based on sound science and data; however, staff can never have 

enough data to completely answer every question for decision making. 

Avoid analysis paralysis.

When identifying data needs, also identify any special expertise that may 

be needed in addition to that found within the interdisciplinary team (e.g., 

facilitation, impact analysis, selecting measures, wilderness character, visitor 

use, commercial services, soundscapes, night skies, external stresses and threats). 

Sources of outside expertise include personnel in regional offices, the Denver 

Service Center, the Natural Resource Stewardship and Science Directorate, 

universities, and other agencies, as well as former park staff. Also consider 

the use of peer reviewers—experienced staff and managers from parks with 

similar wilderness resources, to contribute in the planning process. Contractors 

are another source of expertise and can also assist with writing the plan and 

environmental document.

To strengthen commitment from all parties involved, a project agreement 

or project charter should be developed. Whether required or not, it is a good 

idea to have an agreement in writing about who will be involved, what the 

product will be, when it will be completed, where the work will take place, 

why the product is needed, and how it will be accomplished. Typically, a 

project agreement includes:

•  Cover page with project title, PEPC and Project Management Information 

System (PMIS) numbers, and signature approval lines

•  Purpose of agreement

•  Background

•  Project scope

•  Data needs and availability

•  Strategies for public involvement

•  Deliverables

•  Roles and responsibilities

•  Schedule

•  Budget

More information on project agreements can be found in the National Park 

Service General Management Planning Dynamic Sourcebook. Regional offices 

and the Denver Service Center may have specific requirements, so check with 

appropriate entities.
Photo: NPS/Margaret 

Tyler, Cumberland Island 

Wilderness, Cumberland 

Island National Seashore

Part I—Wilderness Stewardship Planning Process

21

Combining Wilderness Stewardship and Backcountry Management Plans

Wilderness and backcountry may appear to be similarly wild and natural 

landscapes; however, there are important distinctions in how these lands 

are managed. The term “backcountry” is a generic descriptor for primitive, 

undeveloped portions of a park unit, as distinct from highly developed 

frontcountry areas. Lands designated by Congress as “wilderness” represent 

the highest standard for wild lands management. In addition to other laws and 

policies affecting park resources, wilderness has supplemental and permanent 

protection under the Wilderness Act beyond that which is normally afforded 

to park backcountry resources. Wilderness and backcountry may require 

different administrative practices because the Wilderness Act imposes additional 

conditions and constraints.
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Distinctions between Wilderness and Backcountry

BACKCOUNTRY. The National Park Service uses the term backcountry to refer to primitive, 

more natural and relatively undeveloped portions of parks. Lands that are NOT highly 

developed with roads, parking lots, overlooks, vehicle campgrounds, and visitor centers 

are considered the backcountry. The backcountry is managed under the NPS Organic Act 

to provide for the use and enjoyment of people while preserving resources unimpaired, 

and managed to achieve NPS policies and the intent of a park’s general management plan. 

While there are similarities between backcountry and wilderness, backcountry has more 

management discretion than the unparalleled level of legal protection of wilderness. For 

example, on backcountry lands without wilderness designation, decisions could be made in 

the future to construct roads or build lodges or other facilities within these areas.

WILDERNESS. Key excerpts from The Wilderness Act:

Wilderness System Established Statement of Policy

Sec. 2(a) “ ... For this purpose there is hereby established a National Wilderness 

Preservation System...for the use and enjoyment of the American people in such manner 

as will leave them unimpaired for future use and enjoyment as wilderness, and so as 

to provide for the protection of these areas, [and] the preservation of their wilderness 

character...”

Definition of Wilderness

Sec. 2(c) “A wilderness, in contrast with those areas where man and his own works 

dominate the landscape, is hereby recognized as an area where the earth and its 

community of life are untrammeled by man, where man himself is a visitor who does 

not remain. An area of wilderness is further defined to mean in this Act an area of 

undeveloped Federal land retaining its primeval character and influence, without 

permanent improvements or human habitation, which is protected and managed so as to 

preserve its natural conditions and which

(1) generally appears to have been affected primarily by the forces of nature, with the 

imprint of man’s work substantially unnoticeable;

(2) has outstanding opportunities for solitude or a primitive and unconfined type of 

recreation;

(3) has at least five thousand acres of land or is of sufficient size as to make practicable its 

preservation and use in an unimpaired condition; and

(4) may also contain ecological, geological, or other features of scientific, educational, 

scenic, or historical value.”

Prohibition of Certain Uses

Sec. 4(c) “Except as specifically provided for in this Act, and subject to existing private 

rights, there shall be no commercial enterprise and no permanent road within any 

wilderness area designated by this Act and, except as necessary to meet minimum 

requirements for the administration of the area for the purpose of this Act (including 

measures required in emergencies involving the health and safety of persons within the 

area), there shall be no temporary road, no use of motor vehicles, motorized equipment 

or motorboats, no landing of aircraft, no other form of mechanical transport, and no 

structure or installation within any such area.”
Part I—Wilderness Stewardship Planning Process

23

Additional information about the distinctions between wilderness and 

backcountry may be found in Guidance Paper #4, Embracing the Distinction 

between Wilderness and Backcountry in the National Park System, issued in 2005 

by the National Wilderness Steering Committee.

When initiating development of a wilderness stewardship plan, a decision needs 

to be made during initial project scoping about whether or not to combine 

the plan with a backcountry management plan. If wilderness and backcountry 

stewardship planning are combined it is extremely important that wilderness 

standards are in no way diluted in the wilderness area. Backcountry could be 

managed to the high standard of wilderness, but not the other way around. 

Wilderness areas within the National Park Service have the protection of both

the Organic Act and the Wilderness Act. The Wilderness Act charges agencies 

managing wilderness—in this case the National Park Service—to preserve 

wilderness character. Further, section 4(c) of the Wilderness Act explicitly 

prohibits certain uses and significantly constrains many administrative activities 

that would otherwise be considered appropriate for park backcountry areas. 

It is important to clearly communicate the differences between wilderness and 

backcountry with the public during the planning process and in the written 

plan. Zoning is a planning tool that can be used to make distinctions in desired 

conditions and management actions between wilderness and backcountry areas. 

More information about zoning can be found in Part I of this Handbook under 

the “Alternatives” section.
Photo: NPS/Yasunori Matsui, 

Eligible wilderness in 

Yukon-Charley Rivers 

National Preserve

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Possible reasons to combine wilderness and backcountry stewardship 

planning include:

•  Economies of scale—Adding backcountry to a wilderness stewardship 

plan may not cost significantly more in time or dollars and will probably 

be significantly less expensive than two separate plans. This is particularly 

true if undeveloped lands in the park are predominantly wilderness and 

nonwilderness backcountry areas are relatively small and scattered, or if 

the backcountry and wilderness lands are geographically interwoven. In 

addition, NPS Management Policies 2006, section 8.2.2.4, requires that 

“backcountry use will be managed in accordance with a backcountry 

management plan (or other plan addressing backcountry uses),” therefore 

combining the two plans will fulfill both mandates.

•  Address a range of visitor activities—A combined plan would allow 

planning for a wide range of visitor activities. Activities that may not be 

appropriate in wilderness could be redirected to nonwilderness areas. This 

can serve as a valuable tool in resolving conflicts between adjacent uses 

and promoting cohesive and compatible visitor opportunities.

•  Respond to a broad spectrum of public concerns—With the opportunity to 

plan for a wider spectrum of visitor activities, a greater number of public 

concerns could be addressed. For example, if only planning for wilderness, 

people interested in bicycle opportunities (prohibited in wilderness) would 

not see their concerns addressed. Also, members of the public may request 

to address both wilderness and backcountry issues during scoping.

•  Holistic management—Planning for both wilderness and backcountry can 

result in clear management direction for all undeveloped land. Zoning 

can be developed to articulate distinctions and guide management 

actions. Complete planning for undeveloped lands can also complement 

frontcountry planning and may be a valuable planning piece that updates 

and fulfills general management planning requirements for a park. 

Wilderness boundaries may be legislatively-designated specified distances 

from developed areas (i.e., roads, parking lots), making the distinction 

between backcountry and wilderness unclear and separate management 

planning difficult (for example, trails may begin in backcountry and 

cross the wilderness boundary some distance in with little change in 

management objectives).
Part I—Wilderness Stewardship Planning Process

25

Possible reasons not to combine wilderness and backcountry stewardship 

planning:

•  Already covered—Backcountry land may be adequately addressed in other 

planning, such as a general management plan with current and relevant 

zoning. (However, if quantitative standards for backcountry conditions 

were not established in the other plans, combining wilderness and 

backcountry planning could provide this opportunity if appropriate).

•  Scope and level of controversy—The scope of backcountry planning may 

make a combined plan too broad in scope, or make the level of controversy 

too high to address issues in a timely and efficient manner. A combined 

plan may also trigger a higher level of compliance (scoped through an 

environmental screening form) that the park is not ready to undertake.

•  Mandate—Specific legislation or a court decision may direct wilderness 

planning to occur independent of other planning efforts.

•  Limited resources—Available funding may not be sufficient to cover 

the cost of simultaneously developing both wilderness and backcountry 

management plans.

•  Public focus—Public scoping may influence a decision to focus only on 

wilderness.

Combining Wilderness Stewardship with Other Plans

Other types of plans may also be combined with wilderness stewardship plans. 

These plans include but are not limited to general management plans and 

amendments, commercial services plans, climbing management plans, wild 

and scenic river plans, and soundscape preservation and noise management 

plans. Combining with these plans requires many of the same considerations 

for backcountry plans: economies of scale, interrelationship of resources, public 

interest and clarity, holistic management, and managing controversy.

Incorporating a wilderness stewardship plan into a general management plan 

can be done, but requires some additional considerations:

•  The level of detail in a general management plan and a wilderness 

stewardship plan is usually very different. A general management plan 

provides broad zoning and overarching direction, while a wilderness 

stewardship plan has some very specific requirements at a level of detail 

not usually included and analyzed in a general management plan and 

environmental document. As long as expectations about the level of 

detail are identified and agreed upon at the beginning of the project, the 

combination can work.

•  Management zones developed to serve both a general management plan 

and a wilderness stewardship plan should be compatible.

•  A wilderness stewardship plan could be undertaken as a general 

management plan amendment if guidance for wilderness and backcountry 

is one of the primary needs for amending a general management plan.

Examples of plans with wilderness and backcountry management combined, and 

with wilderness management combined with other types of plans, can be found 

in appendix 2.2.
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Civic Engagement and Consultation

Public Involvement

Public involvement is essential to the planning process, particularly during 

external scoping and review of the public review document. During external 

scoping the National Park Service is seeking to learn the public’s ideas and 

concerns, and also to identify public goals and objectives for the future, which 

may differ from those identified by internal staff. During the review of the plan, 

which includes a proposed action, encourage and solicit public comments to 

inform the final plan or EA.

All public input is important, whether from small local communities and sparse 

populations near wilderness areas, people who may not be familiar with or 

frequently visit wilderness, or national constituents who have a stake in the 

National Wilderness Preservation System. International audiences may be 

interested in those wilderness lands that also have worldwide designations such 

as a World Heritage Site or International Biosphere Reserve. It is essential to fully 

identify the range of interested stakeholders and plan appropriate methods 

of engagement, which may include newsletters, meetings, forums, field trips, 

websites, and creative incorporation of social media.

Consider the use of social media to invite participation from a broader 

audience than is typically reached with park press releases and legal notices 

in the newspaper of record. Wilderness.net offers a “blogging” option for 

each designated wilderness area that can be used to post information about 

how to get involved in the planning effort. These technology-based tools are 

especially useful in reaching interested publics from outside the local area, such 

as international visitors. Post messages to direct people to the PEPC site to read 

planning newsletters, conceptual draft alternatives, or public review document, 

in addition to providing information via the normal channels. Similarly, it can be 

informative to monitor locally relevant internet chatrooms to see how the park’s 

planning outreach messages are being received and to determine the level of 

success in communicating the proper information. In the case of 

obvious misunderstanding, consider posting clarifying information in 

PEPC and other venues.

Civic engagement may also be improved through interactive mapping 

technology. There are several interactive mapping platforms available and the 

technology is evolving rapidly. However, most software programs allow users to 

interact with an online map using simple tools to zoom in on areas of interest, 

and to access ancillary information via pop-up text boxes and tables. These 

programs provide for much more geospatially relevant content than can be 

provided in static maps (examples can be found in PEPC for Black Canyon of the 

Gunnison [PEPC# 16726] and Death Valley [PEPC# 23311] national parks). Early 

in the planning process, consult local and/or regional GIS staff to investigate the 

possible value of publishing interactive maps via links on the PEPC site. Assess 

whether the organizational capacity exists to produce and host such maps 

in-house, or whether this approach will require contracted assistance. More 

information on civic engagement can be found in Director’s Order 75A: Civic 

Engagement and Public Involvement.
Photo: NPS, Organ Pipe 

Cactus Wilderness, 

Organ Pipe Cactus 

National Monument

Part I—Wilderness Stewardship Planning Process

27

Agency Consultation

Consulting with neighboring and relevant local, state, and federal agencies 

is an important part of any planning process. As part of the environmental 

compliance process, consultation may be required to comply with section 7 of the 

Endangered Species Act, or section 106 of the National Historic Preservation Act. 

Relevant agencies should be identified during internal scoping, consulted during 

external scoping, and involved throughout the process to the extent agreed 

upon in scoping.

If the NPS wilderness area adjoins a wilderness area managed by another agency, 

or a single wilderness is split between managing agencies, building a strong 

relationship with the other agency is critical for successful wilderness stewardship 

planning. In these cases, it may be appropriate to consider a more substantial 

and formalized working relationship. Options include:

•  Establish a cooperating agency agreement with an NPS lead and the 

neighboring agency formally involved in an agreed-upon role (see DO-12 

Handbook).

•  Prepare a joint wilderness stewardship plan for a wilderness area managed 

by multiple agencies; a cooperating agency agreement with one agency as 

the lead, or joint leads, will probably be necessary.

The joint wilderness management plan / environmental impact statement for 

eight wilderness units in Clark County, Nevada, within and adjacent to Lake 

Mead National Recreation Area, serves as an example. Three of the areas 

have portions located on public lands administered by the Bureau of Land 

Management. The National Park Service took the lead in the collaborative 

planning process as the majority of the wilderness areas are located within Lake 

Mead National Recreation Area.

Tribal Consultation

Many areas identified as wilderness have been, and 

continue to be, important to the traditional beliefs 

and lifeways of American Indian tribes, serving as 

plant gathering areas, hunting areas, and places 

associated with ceremony and spiritual sustenance. 

The definition of wilderness from the Wilderness 

Act as a place “where the earth and its community 

of life are untrammeled by man” may be viewed 

by some as denying the human history of American 

Indians. In reality, wilderness has been shaped by 

thousands of years of active resource management 

by indigenous people. Wilderness areas are often 

ethnographic landscapes with long and rich 

human histories. Denying traditional meanings 

and uses of wilderness may reinforce dispossession 

of tribal lands; this can be exacerbated by a lack 

of tribal involvement in wilderness planning and 

management decisions.
Wilderness Stewardship Division | Wilderness Stewardship Program

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The role of current wilderness areas in tribal traditions is, however, becoming 

more known and appreciated. The 8th World Wilderness Congress in 2005 

heavily emphasized the role of native peoples in wilderness preservation. Many 

park staffs are aware that tribes have extensive knowledge of wilderness areas 

that has been gathered over hundreds and thousands of years, and that this 

knowledge can help parks better manage wilderness today. Park staffs can also 

learn from existing, sophisticated tribal wilderness programs (e.g., the Intertribal 

Sinkyone Wilderness Council, California).

The key to respecting and incorporating tribal perspectives in wilderness 

planning and management is consultation—communicating with tribes early 

and often, separately from and prior to stakeholder and public meetings if 

necessary, and throughout the duration of the planning process. It is important 

to recognize that government-to-government consultation is required with 

federally recognized tribes that are traditionally associated with parks. Tribal 

members who do not represent the tribe in official capacities can also be 

valuable members of stakeholder groups. However, consultation with tribal 

members does not fulfill the requirement for government-to-government 

consultation.

Through consultation, tribal representatives can share their knowledge and their 

concerns, which may include maintaining access to traditional cultural properties 

and reburials within wilderness, and the collection of specific plant and other 

materials within wilderness for cultural purposes. An example of this intimate 

relationship is the Timbisha Shoshone at Death Valley National Park where the 

Timbisha Shoshone Homeland Act of 2000 created a 2.6-million-acre overlay 

on park wilderness and nonwilderness lands to be managed as the “Timbisha 

Shoshone Natural and Cultural Preservation Area.” To learn more about tribal 

perspectives and tribal consultations on wilderness areas, go to the Wilderness.

net, State/Tribal Wilderness Toolbox, at http://www.wilderness.net/index.

cfm?fuse=toolboxes&sec=IFST.
Part I—Wilderness Stewardship Planning Process

29

Data Gathering and Analysis

Decision making must be based on sound data and analysis. There are many 

places to look for data, much of which is likely to exist at the park already; 

however, there may be a need to gather additional data. Here are examples of 

sources and types of data that may inform wilderness stewardship planning.

Park data sources and types:

•  Wilderness/backcountry permit data—number of permits; issuing station 

information; type of use (e.g., hiker, stock, watercraft); number of people 

in a party; trip duration; overall use numbers and site-specific use numbers.

•  Wilderness/backcountry campsite condition monitoring—formal reports 

and informal/anecdotal comments.

•  Park rangers—visitor contact information (e.g., numbers, location, law 

enforcement actions, complaints, compliments); resource actions (e.g., 

rehabilitation, cleanup, nonnative species removal); impacts noted; bear 

encounters; search and rescue actions (e.g., type, duration); commercial 

service authorizations and special use permits.

•  Natural resource management—resource actions by staff (e.g., nonnative 

plant/animal removal); number of approved 4(c) actions (e.g., minimum 

requirements decisions) from all divisions; numbers of staff performing 

work (both National Park Service and researchers); a variety of data on 

resource trends (e.g., water quality, wildlife surveys, plant surveys, sensitive 

species, air quality, snow/water data, location and types of research 

equipment in wilderness*).

•  Inventory and monitoring—variety of data on resources and trends.

•  Cultural resource management—status of cultural resource inventories, 

location; National Register of Historic Places status or determination of 

eligibility; condition of cultural resources.*

•  Geographic information systems—spatial natural and cultural resource 

data; park and wilderness boundaries; spatial mapping of trails and 

facilities.

•  Emergency services—aircraft and helicopter use frequency; types (e.g., 

landings or overflights); locations.

•  Maintenance—location, description, and condition of developments (e.g., 

trails, signs, restrooms, radio repeaters, administrative facilities); use of 

mechanized equipment or motorized transport.

•  Commercial services—number of commercial use authorizations; trip 

information (e.g., locations, number of clients, use [e.g., backpacking, 

stock, fishing, photography]).

*Note that some natural and cultural resource data may be sensitive, and 

therefore, better left out of the plan.
Wilderness Stewardship Division | Wilderness Stewardship Program

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Types of studies by parks, program centers, partners, universities, or others that 

may have been completed or may be sought:

•  Direct surveys of visitors—perceptions of crowding, conflicts, and 

opportunities for solitude; preferences for conditions and management 

actions; visitor motivations and values; demographics; trip characteristics 

such as duration, group size, and primary activities.

•  Indirect surveys of visitors—visitor counts, visitor activities, visitor use 

patterns, people at one time by location, trailhead registers, photo counts.

•  Assessment of visitor impacts on specific resources—assessment of campsite 

and trail conditions; inventory of social trails; assessment of impacts to soils, 

water quality, soundscapes, and wildlife.

•  Resource conditions—night sky; air quality; soundscapes; invasive plants.

•  Climate change—scenario planning, vulnerability assessments, adaptation 

strategies, documented effects of climate change.

•  Socioeconomic environment—NPS money generation model, census data, 

nonmarket value of wilderness.

•  Scientific literature—visitor use research, visitor capacity, user impacts, 

impact mitigation, and fire in wilderness, such as that found at the Aldo 

Leopold Wilderness Research Institute (http://leopold.wilderness.net/resprg.

htm).

•  On-line resources; articles in newspapers, magazines (e.g., Outside, 

Backpacker).

For new and emerging ideas on data analysis, see appendix 3. For additional 

detailed information about data sources related to specific wilderness character 

qualities and measures, see appendix 5.1 of the User Guide.

Management Framework

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.

 —NPS Management Policies 2006, section 6.3.4.2, 

 “Wilderness Management Planning”

The heart of a wilderness stewardship plan is a management framework that 

provides for consistent application of the Wilderness Act to preserve wilderness 

character while allowing some room for managers to adapt actions as trends 

change. Rather than trying to anticipate every possible future issue in a plan, 

the wilderness stewardship planning framework (as illustrated in figure 1 in the 

Handbook “Introduction”) provides a basis for future decisions and actions as 

conditions change. Consistent monitoring keeps track of conditions and trends 

and identifies changes in conditions that will trigger management actions to 

preserve or improve wilderness character.

Desired Conditions

Indicators

Measures

Standards

Actions
Photo: NPS, Stephen 

Mather Wilderness, North 

Cascades National Park

Part I—Wilderness Stewardship Planning Process

31

This framework is not unique to wilderness stewardship planning. It is drawn 

from well-used processes including the NPS Visitor Experience and Resource 

Protection (VERP) framework (NPS 1997), and the Limits of Acceptable Change 

(LAC) system (Stankey et al. 1985) developed by the U.S. Forest Service (USFS). 

The VERP framework and the LAC system serve a common purpose by providing 

guidance for addressing visitor use management and visitor capacity in order 

to protect resources and visitor experiences. These two plus the wilderness 

stewardship planning framework all share a common focus on identifying 

measurable objectives to achieve desired future conditions. What is new about 

the wilderness stewardship planning framework is that unlike the other two, 

which largely focus on planning and managing for visitor use, the wilderness 

stewardship framework incorporates wilderness character into planning, 

monitoring, and management.

To avoid confusion over the terminology used in the Handbook, below are 

definitions for wilderness stewardship planning consistent with the terminology 

used in Keeping It Wild. Table 6 provides a comparison between the Handbook,

the VERP framework, and the LAC system:

•  Desired conditions—qualitatively describe an ideal condition of wilderness 

character. This is both a holistic condition, as well as the desired 

condition for all qualities of wilderness character: untrammeled, natural, 

undeveloped, and opportunities for solitude or primitive and unconfined 

recreation, and if applicable, the other features of value quality.

•  Indicators—are distinct and important elements within each quality of 

wilderness character, which have measurable attributes that can be the 

focus of wilderness character monitoring efforts. There are 13 standard 

indicators in Keeping It Wild that fit within the four wilderness character 

qualities. The other features of value quality would have unique indicators.

•  Measures—are a specific, tangible aspect of an indicator that can be 

measured to gain insight into the status of the indicator and assess trends 

over time. Baseline data are the first set of data collected after which 

systematic monitoring begins.

•  Standards—are the minimum acceptable condition for measures and they 

serve as triggers for management action.

•  Management actions—are implemented following a problem analysis to 

maintain or restore desired conditions.
Wilderness Stewardship Division | Wilderness Stewardship Program

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Table 6. Comparison of terms.

Term WSP Handbook and 

KIW: Wilderness 

Character

VERP (NPS) LAC (USFS)

Indicators Categories for measures Specific measurable 

physical, ecological, or social 

variables that reflect the 

overall condition of a zone

Specific variables that are 

indicative of condition

Measures Specific aspect of wilderness 

on which data are collected to 

assess trends

(not used) (not used)

Standards Minimum acceptable 

condition for each measure, 

serve as triggers for 

management action (part of 

Handbook but not covered in 

Keeping It Wild)

Minimum acceptable 

condition for each indicator, 

serve as triggers for 

management action

Measurable aspects of the 

indicator that provide a 

basis for judging whether 

a particular condition is 

acceptable, or not

The arrow in table 6 indicates one of the most critical clarifications of terms: 

“measures” in wilderness stewardship planning and Keeping It Wild are 

analogous to “indicators” in VERP and LAC.

Selecting Measures and Establishing Baselines

The overall strategy for selecting measures is to choose those that provide the 

best overall assessment of an area’s wilderness character, while also remaining 

quantifiable, reliable, and reasonable. Park staff should only use the minimum 

number of measures necessary to monitor the status of wilderness character, but 

they should use at least one measure for each of the 13 indicators. Data may 

already have been collected for some or many of the measures, providing a kickstart to the program. Monitoring should occur at least every five years, and more 

frequently if necessary for a particular measure. Baseline data for the measures 

are ideally collected at the date of designation or study but a baseline can be 

established at a later date when confidence in the data is more assured.

A national Wilderness Character Database has been developed in Microsoft 

Access to house all wilderness character baseline data and subsequent 

monitoring data. Park staff will enter information on selected measures in 

the database. Selecting measures from the Keeping It Wild framework, and 

instructions on how to use the Wilderness Character Database, are more fully 

explained in the User Guide. Examples and tools can be found at the 

http://share.inside.nps.gov/sites/WASO/WSD/WC.

MEASURE in KIW and 

WSP Handbook = 

INDICATOR in 

VERP and LAC
Photo: NPS/Ray O’Neil, 

Zion Wilderness, 

Zion National Park

Part I—Wilderness Stewardship Planning Process

33

If a park has prepared wilderness building blocks (described in the Introduction 

to the Handbook) or has existing data for potential measures, these may be 

adopted directly into the wilderness stewardship plan or may be revisited for 

adjustment. Here are a few examples:

•  A wilderness stewardship plan may set a desired condition to increase the 

overall natural quality of wilderness character. To achieve that desired 

condition, a decision has been made to actively remove nonnative invasive 

plants, which will result in short-term degradation to the untrammeled 

quality in exchange for a long-term increase in the natural quality. If the 

abundance, distribution, or number of invasive nonnative species is not one 

of the previously selected measures, it may be appropriate to add it.

•  A plan proposes specific management of climbing activities, in particular 

to manage or reduce the number of fixed anchors in wilderness. It may 

therefore be appropriate to add a measure regarding fixed anchors under 

the undeveloped quality.

•  A plan sets a desired condition for high levels of solitude and natural 

soundscapes. There should be measures in place to help ensure those 

conditions are maintained or improved over time, such as soundscape 

data, visitor use data for that zone, encounter rates, or other such 

measures. Select measures that are most important for representing the 

condition of wilderness character, and are easy to collect and reliable for 

tracking conditions under the opportunities for solitude or primitive and 

unconfined recreation quality.

•  It is important to keep the number of measures relatively small to ensure 

that there is capability to monitor the full breadth of indicators.

Examine the main goals of the plan and the desired conditions within each 

management zone to select measures that will help managers assess their 

progress toward those goals and allow for adjustments when necessary. The 

same measures may be used across all zones or may be uniquely distributed, 

especially if monitoring the other features of value quality of wilderness 

character. Regardless of the selected measures, they are useless unless they are 

consistently monitored.
Wilderness Stewardship Division | Wilderness Stewardship Program

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Selecting Standards

Standards are the minimum acceptable condition of wilderness character 

measures, and they serve as triggers for management action. Standards are very 

different from objectives or desired conditions in that they identify the limits of 

an acceptable condition rather than a condition to strive for. Standards are set by 

understanding the social and biophysical consequences of inaction and the costs 

required for action. Developing standards involves both professional expertise 

and consideration of public input. Standards may vary by planning alternative or 

management zone.

Monitor each measure to assess whether acceptable conditions currently exist 

or whether standards have been exceeded. Management actions would be 

triggered if the condition of a measure is trending downward to near or below 

a selected standard. For example, if data show that conditions for either of the 

two measures, “number of group encounters” or “number of campsites within 

sight or sound of each other,” fails to meet established standards, management 

action must be taken to bring conditions back above the standard. Characteristics 

of good standards include:

•  Quantitative—Standards must relate quantitatively to a measure. For 

example, if a measure is “number of group encounters per day,” a standard 

may be “no more than three groups encountered per day.” A standard of 

“low numbers of encounters” contains no specific figure and requires an 

inherently arbitrary management decision. “Two percent ground cover 

for nonnative species” would be a good standard as it is quantitative, 

while “low cover of nonnative plants” would be a poor standard as it is 

qualitative.

•  Temporal or spatial qualifiers—Express how much and how often an 

impact is or is not acceptable. The previous example of group encounters 

is qualified by “per day.” Other temporal qualifiers might include “per 

night,” “per trip,” “per hour,” or “at one time.” Spatial qualifiers might 

include distance, such as “four informal trails per mile.”

•  Probability—In many cases, it may be helpful to include a percentage of 

tolerance for a condition. For example, “no more than three encounters 

per day for 80% of the time.” This allows for some of the complexities and 

randomness inherent in fluctuating periods of visitation.

•  Relevant to issues and concerns—Stay focused on the desired condition. For 

example, “no more than 20 groups per day on the trail” may not address 

a desired condition of “moderate solitude.” The primary concern may be 

the number of encounters, not the total number of people on a trail. Either 

scenario requires a different managerial approach.

•  Achieve desired conditions—In some cases, such as with a high level of 

resource impacts near campsites, the existing condition may be far below a 

standard. Even though the standard may not be reached until many years 

in the future, it is still used to measure progress toward improving longterm conditions.

•  Realistic—A standard should reflect conditions that are attainable.
Photo: NPS, Marjory 

Stoneman Douglas 

Wilderness, Everglades 

National Park

Part I—Wilderness Stewardship Planning Process

35

While it is ideal to set quantitative standards for all measures in the wilderness 

stewardship plan, it may not always be possible. In some cases it may be more 

practical to identify trends in a measure that could trigger management actions. 

For example, in cases where quantitative data on the condition of a resource 

are unavailable, quantitative standards may be difficult to establish. In those 

situations standards that reflect the overall trend in the measure may be more 

useful to managers. The use of qualitative standards should be temporary and a 

wilderness character monitoring strategy should be developed that focuses on 

collecting data necessary to establish the quantitative standards. Examples of 

both approaches are shown on the next page.
Photo: NPS/Kraig Snure, 

Mount Rainier Wilderness, 

Mount Rainier National Park

Wilderness Stewardship Division | Wilderness Stewardship Program

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Example 1. Quantitative standard approach.

Indicator Measure Topic 

(as developed in 

workshop)

Specific 

Measures

What 

Does It 

Evaluate?

Assigned 

Zone

Recommended 

Standard

Appropriate 

Management 

Strategies

Remoteness 

from 

occupied 

and 

modified 

areas 

outside the 

wilderness

Night sky visibility 

(light pollution) 

averaged over the 

wilderness

Light 

pollution 

averaged 

over the 

wilderness 

(using 

established 

methods 

from NPS 

Night Skies 

Program)

Intrusion 

of human 

influence

Zone X Increase in 

measured light 

pollution of 

< A% above 

baseline

•  Educate and 

increase outreach 

on low impact 

lighting

•  Establish 

partnerships with 

external entities 

to encourage lowimpact lighting

Example 2. Qualitative standard for trend in measure.

Indicator Measure Topic 

(as developed in 

workshop)

Specific 

Measures

What 

Does It 

Evaluate?

Assigned 

Zone

Recommended 

Standard

Appropriate 

Management 

Strategies

Remoteness 

from 

occupied 

and 

modified 

areas 

outside the 

wilderness

Night sky visibility 

(light pollution) 

averaged over the 

wilderness

Light 

pollution 

averaged 

over the 

wilderness 

(using 

established 

methods 

from NPS 

Night Skies 

Program)

Intrusion 

of human 

influence

Zone X If trends in 

light pollution 

increase, then 

management 

strategies will be 

initiated

•  Educate and 

increase outreach 

on low-impact 

lighting

•  Establish 

partnerships with 

external entities 

to encourage low 

impact lighting
Part I—Wilderness Stewardship Planning Process

37

Management Actions If Standards Exceeded

When developing the wilderness stewardship planning framework of desired 

conditions, measures, and standards, identify specific management actions 

to take if standards are exceeded or trends are showing increasing impacts. 

These specific actions should be informed by the broader strategies identified 

in the various plan alternatives. A useful approach is to identify a suite of 

actions beginning with the easiest to implement or least intensive, followed 

by increasingly complex actions. If conditions or trends did not improve, more 

intensive actions might be taken; however, not all actions will necessarily 

be undertaken. Below are some examples of framework elements for each 

wilderness character quality, with an associated indicator, selected measure, 

related standard, and a menu of options for management action:

Wilderness Character Quality: Untrammeled

Indicator: Actions authorized

Measure: Number of lakes and other water bodies stocked with fish

Standard: 0 fish stocking

Management Actions:

» Focus education on fisheries management

» Coordinate with state and federal hatcheries and fishery managers to 

reduce or eliminate fish stocking

» Continue with fish population research, creel surveys, and impact 

studies

Wilderness Character Quality: Natural

Indicator: Plant and animal resources

Measure: Abundance, distribution, or number of nonnative species

Standard: > 5% decrease in area affected by noxious weed species

Management Actions:

» Increase education that focuses on preventing exotic species invasion

» Perform noxious weed control

» Limit disturbances to habitats to limit invasion by nonnative animals

» Limit invasive species vectors and pathways

Wilderness Character Quality: Undeveloped

Indicator: Nonrecreational structures, installations, and developments

Measure: Index (establish a protocol to calculate) of authorized 

physical development

Standard: < 5 % total increase from established initial baseline

Management Actions:

» Limit and regulate new installations of nonrecreational structures using 

the established MRA process

» Remove structures and rehabilitate areas no longer needed within 

one year
Wilderness Stewardship Division | Wilderness Stewardship Program

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Wilderness Character Quality: Solitude or Primitive and Unconfined Recreation

Indicator: Remoteness from sights and sounds of people inside the 

wilderness

Measure: Number of encounters with individuals from other parties per 

day based on wilderness patrol logs

Standard: Exceed encounter rate of 10 encounters per hour < 15% of 

patrols

Management Actions:

» Increase patrols to measure encounter rates on routes

» Use trail counter to determine overall use

» Adjust trailhead quotas

» Establish use limits if encounter rates are reached

» Require permits for overnight use

Wilderness Character Quality: Other Features of Value

Indicator: Deterioration or loss of cultural resources integral to wilderness 

character

» Measure: Number of unauthorized actions that result in disturbances to 

cultural resources (looting, trespass activities, noncompliance with the 

National Historic Preservation Act)

Standard: No more than two minor incidents per year related to loss / zero 

major incidents

Management Actions:

» Increase education that focuses on the value and significance of 

cultural resources

» Increase law enforcement patrols in certain sensitive areas

» Begin a permitting process to legally access particularly sensitive areas
Photo: NPS/Emily McCuistion, 

Death Valley Wilderness, 

Death Valley National Park

Part I—Wilderness Stewardship Planning Process

39

More About Measures, Standards, and Management Actions

Adopting Keeping It Wild into NPS planning and management is relatively new 

and best practices are still emerging. Here are a few more things to consider:

•  Adopt existing applicable measures / standards—A park may have a 

set of desired conditions, measures, standards, and management actions 

in another plan such as a fire management plan or stock management 

plan. These should be reviewed to see if any of them are relevant to 

wilderness character and could be adopted or adapted into the wilderness 

character framework. The more overlap and reliance on existing measures, 

the more likely a park will be able to achieve sustained wilderness 

character monitoring.

•  Avoid creating new standards and management actions outside of 

a planning process—Keeping It Wild was developed as a tool for 

establishing wilderness character monitoring. It provides guidance for 

selecting measures and developing reports on trends, but it does not 

address standards and management actions. Identifying standards and 

management actions are ideally part of a planning activity, informed by 

the goals and objectives of the plan, issues and opportunities identified 

in internal and external scoping, and management alternatives. While 

measures could be selected and monitored ahead of a planning effort, 

standards and management actions should not be established outside of a 

planning process. If they are, they would not be anchored to any particular 

framework or direction and management actions would also be out of 

compliance with NEPA requirements. Standards that have been developed 

in another planning process such as a general management plan could be 

adopted in the wilderness stewardship plan.

•  There does not necessarily have to be a one-to-one relationship between 

measures and standards / management actions—Guidance from Keeping 

It Wild directs the selection of a minimum of one measure for each of 

13 indicators and discourages selecting too many. Some indicators may 

warrant several dimensions and have easily obtainable data, such as air 

quality, and for other indicators it may be difficult (but still necessary) to 

identify an appropriate measure.
Wilderness Stewardship Division | Wilderness Stewardship Program

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•  Visitor Use Management and Visitor Capacity—According to NPS 

Management Policies 2006 (section 8.2.1, “Visitor Carrying Capacity”) park 

managers need to manage visitor use and address visitor capacity, and “the 

decision-making process should be based on desired resource conditions 

and visitor experiences for the area, quality indicators and standards 

that define the desired resource conditions and visitor experiences, and 

other factors that will lead to logical conclusions and the protection 

of park resources and values.” Further, the 1978 National Parks and 

Recreation Act calls for each unit of the national park system to have a 

plan that identifies and commits to implementing 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 (NPS Management Policies 2006, section 8.2.1). Where does 

visitor use management and visitor capacity (or carrying capacity) fit 

within the wilderness character framework? These concepts are relevant 

to opportunities for solitude or a primitive and unconfined recreation 

experience, and can inform measures and standards selected for that 

quality of wilderness character. An important component of addressing 

visitor use management and visitor capacity is identifying visitor-userelated measures, standards and management strategies, including possible 

regulations on use levels.

» A park may have already established some measures and standards for 

visitor use in a general management plan or other planning document, 

which may also prove useful within a wilderness stewardship plan. If 

a park is preparing a wilderness stewardship plan in order to update 

or replace part of a general management plan, it may be necessary 

to develop specific visitor use measures and standards and visitor 

capacities to fulfill park planning requirements (including the 1978 

National Parks and Recreation Act). Often an interdisciplinary workshop 

is held to develop visitor use management components.

» Based on pilot testing of developing visitor use measures, standards, 

and management actions within the broader wilderness character 

framework, it is possible to do much of the work in a single workshop 

for a medium-sized park such as Black Canyon, while at parks with 

complex visitor use issues such as Sequoia and Kings Canyon it is 

challenging to merge all visitor use work into a single session.

» It remains the goal to find common measures, standards, and 

management actions for wilderness character, visitor use management, 

and resource stewardship strategies.
Photo: NPS, Olympic 

Wilderness, Olympic 

National Park

Part I—Wilderness Stewardship Planning Process

41

Alternatives

Following identification of goals, objectives, issues, and opportunities; civic 

engagement and consultation; and selection of measures and standards, it is time 

to identify action alternatives. What management actions will fulfill the goals of 

the plan? What actions are appropriate for addressing issues and opportunities 

in wilderness? A list of possible issues and actions can be found in appendix 4. 

From a list of alternative actions including a “no action” alternative, the process 

leads to the identification of a preferred alternative.

Developing Alternatives

Potential management action alternatives often arise at various points in the 

planning process. Alternatives can originate internally from the interdisciplinary 

team and park staff, or externally from public stakeholders during public 

scoping, or a combination of both. Different approaches or visions for wilderness 

stewardship should be expressed as alternatives to the team’s proposed action or 

within the proposed action.

Develop a reasonable range of alternatives that feasibly satisfy the park purposes 

and needs that were identified early in the planning process. In wilderness 

stewardship planning, the range of options for alternatives is somewhat 

constrained by the direction of the Wilderness Act. If no real alternatives arise 

during scoping and planning, “no action” may be the only true alternative to 

a proposed action (this should be the exception, not the rule). In this case, the 

interdisciplinary team is encouraged to seek counsel with the regional NEPA 

coordinator to ensure that this alternative will be supported by the regional 

directorate.

Each alternative needs to have an underlying cohesive rationale or philosophy. 

Without a unifying concept, it is difficult to explain and defend an alternative 

to the public. Without this rationale, an alternative would probably prove less 

effective if unanticipated issues or problems should arise once the planning 

effort was complete. Wilderness character should be a primary consideration in 

structuring alternatives and should remain an integral part of the underlying 

concept of appropriate wilderness stewardship. There are some excellent ideas 

for developing various alternatives in the General Management Planning 

Dynamic Sourcebook.

It is important that 

alternatives not 

be contrived, i.e., 

alternatives should not 

follow the “Goldilocks 

Syndrome” of one 

alternative being “too 

hot” and another “too 

cold” with the preferred 

alternative being 

“just right.”
Photo: NPS, Noatak 

Wilderness, Noatak 

National Preserve

Wilderness Stewardship Division | Wilderness Stewardship Program

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Management Zones

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 classifications cannot 

and will not diminish or reduce the maximum protection to be afforded 

lands with wilderness values. Transition zones adjacent to wilderness may 

be identified to help protect wilderness values, but no transitional or 

“buffer” zones are appropriate within wilderness boundaries.

 —NPS Management Policies 2006, section 6.3.4.1, 

 “Zoning for Wilderness”

It is useful to be able to map and describe alternatives based on a zoning system. 

Zones can preserve various combinations of wilderness character qualities, and 

the wilderness stewardship planning framework (i.e., measures, standards, 

management actions) can be applied differently within each zone. Management 

zones articulate desired conditions related to wilderness character.

Desired conditions can be described for the zones both in narrative, using the 

qualities of wilderness character, as well as through measures and standards 

that trigger management action. The desired conditions for the four (or five, 

if applicable) qualities of wilderness character could be developed for each 

zone, or could be developed parkwide for all zones. An example of different 

desired conditions for wilderness character qualities that could be different 

for different zones is when one zone may have desired conditions for a very 

remote opportunity for solitude where a visitor would see only one person per 

day maximum, while another zone may have a desired condition for free and 

unconfined recreation, such as jumping and rolling down the dunes at Great 

Sand Dunes, without as high of a level of expectation for solitude.

A park has considerable leeway in identifying and describing appropriate 

management zones and in determining the total number of zones needed to 

effectively manage the park’s wilderness resource.

Zoning – An 

Accepted Practice In 

Wilderness

•  Some people do 

not think zoning 

is appropriate in 

wilderness because 

wilderness should be 

managed as a whole 

and not subdivided

•  Zoning is a wellestablished planning 

and management 

tool that has been 

effectively used 

in wilderness 

stewardship

•  All zones must 

meet or exceed all 

requirements to 

comply with the 

Wilderness Act

•  Wilderness character 

differs, so can zones

•  Buffer or transitional 

zones are not 

appropriate within 

wilderness boundaries
Part I—Wilderness Stewardship Planning Process

43

Where possible, these zones should remain consistent with a general 

management plan. In some cases, especially where the general management 

plan is lacking or is no longer current, the wilderness stewardship plan may 

be completed as a GMP amendment. Zones may be assigned in a “no action” 

alternative when previous wilderness planning efforts included zoning. Some 

parks may determine that only one or two zones are appropriate, while 

others may determine that multiple zones are the best way to meet particular 

wilderness stewardship objectives. There are two basic ways to address zoning 

within a wilderness stewardship plan, described here as Pathway 1 

and Pathway 2:

•  Pathway 1—The first step is to create a written description of one or more 

wilderness zones; however many are necessary to effectively manage 

the wilderness. For each zone, define the desired conditions, indicators, 

measures, and standards for wilderness character. These zone descriptions 

remain fixed across all alternatives. The second step is to allocate the 

zones to the park land base in order to reflect different overall visions 

or conceptualizations of each alternative. The result is one set of written 

zone descriptions that remains identical for each alternative, but includes 

a different map for each alternative showing the different allocations of 

the zones. The Death Valley National Park Wilderness and Backcountry 

Stewardship Plan and Environmental Assessment (August 2013) referenced 

in appendix 2.2 provides an example of this approach.

•  Pathway 2—The first step is to divide the wilderness land base into logical 

units that encompass relatively homogeneous areas of wilderness character. 

These unit boundaries remain fixed across all alternatives. The second 

step is to describe how each unit is managed—in other words, define the 

desired future conditions, guidelines, indicators, and standards. The zone 

descriptions may vary among alternatives in order to reflect the different 

overall visions or conceptualizations of the alternatives. The result is one 

map showing the same unit boundaries for all alternatives, but the actual 

zone descriptions for the units may change from one alternative to the 

next. The Black Canyon of the Gunnison National Park / Curecanti 

National Recreation Area Draft Backcountry and Wilderness Stewardship 

Plan (August 2011) referenced in appendix 2.2 provides an example 

of this approach.

Pathway Zone Descriptions Distribution of the Zones on the 

Map / On the Ground

Pathway 1 Do not vary by alternative Vary by alternative 

Pathway 2 Vary by alternative Do not vary by alternative 

Because most wilderness areas are not homogeneous in their wilderness 

character, zoning is a way of managing to preserve and enhance a spectrum 

of qualities in a given wilderness, including preserving the most pristine areas. 

Wilderness can also be managed as one single management zone if desired, or if 

the interdisciplinary team decides that an area should be managed differently in 

different seasons, the area could be placed in different seasonal zones.
Wilderness Stewardship Division | Wilderness Stewardship Program

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Management zoning is a prescriptive process that specifies desired conditions. 

In other words, zones do not necessarily reflect existing conditions, but rather 

reflect an ideal state. Wilderness management zones should include the 

following elements:

•  Desired conditions, especially for the qualities of wilderness character

•  Indicators

•  Measures

•  Standards

•  Management actions

The National Park Service does not have a fixed set of zones for general 

management planning or wilderness stewardship planning. All wilderness 

zones must comply with NPS policy for managing wilderness and need to 

reflect the distinction between wilderness resources and other backcountry 

resources. Examples of management zones can be found in various wilderness 

and backcountry management plans, including Rocky Mountain National Park, 

Zion National Park, and Denali National Park and Preserve. Earlier plans and 

those by other agencies can provide examples but probably do not integrate 

wilderness character into the wilderness stewardship planning framework. More 

recent wilderness stewardship plans, such as those for Death Valley National Park 

and Black Canyon of the Gunnison National Park, have integrated wilderness 

character into different management zones (see appendix 2.2).

Teams should develop zoning concepts that embrace all qualities of wilderness 

character. In the past, the National Park Service and other agencies have 

commonly used an approach to identify zones as “primitive,” and “semiprimitive.” These are acceptable terms and concepts but they reflect a traditional 

type of wilderness planning centered on visitor experience and visitor impacts, 

rather than on the more holistic qualities of wilderness character. Further, 

according to policy, zoning should not be used to establish “buffer” or “sacrifice” 

areas within any wilderness area. One approach is to develop zones that are 

based on common wilderness character such as the “inner canyon” and “upland” 

zones in the Black Canyon / Curecanti wilderness and backcountry stewardship 

plan. Another approach is to develop a number of zones with subzones that 

further refine management approaches. This might be appropriate when zones 

developed in the park’s general management plan are too general for the level 

of guidance needed to meet wilderness stewardship objectives. In some parks 

only one zone may be needed for the entire wilderness. Some zone titles can 

create confusion in communicating the zone’s overall concept, so numbers rather 

than titles may be more appropriate (e.g., Management Classes 1–4 are used in 

the Rocky Mountain National Park wilderness and backcountry management 

plan). Each team needs to develop zones that are the most useful for the 

meaningful management of wilderness. Check for emerging, more current 

examples at the http://share.inside.nps.gov/sites/WASO/WSD/WC.
Photo: NPS/John Pritz, 

Denali Wilderness, Denali 

National Park & Preserve

Part I—Wilderness Stewardship Planning Process

45

Developing Alternatives—Specific Guidance

Developing alternatives is frequently an iterative process and may require 

several workshops to complete, particularly if the planning effort is covering 

both broad conceptual details and more tightly focused details of plan 

implementation. Typically, conceptual alternatives are drafted first. These include 

zone descriptions and describe the proposed action from a “thirty-thousand foot 

perspective.” Allocations of the zones to different areas of the wilderness are 

also a part of alternative development (Pathway 1); usually maps are the most 

effective tool for this representation. Zone allocation should be done in harmony 

with the theme or concept of each alternative.

These conceptual alternatives may be shared within the agency (especially 

if there is anticipated controversy), and perhaps with partner agencies and 

the public via the PEPC website and an open comment period. Following the 

review period, the IDT should consider comments received and reevaluate the 

conceptual alternatives. The team may decide to reconfigure certain aspects 

of the alternatives, add new concepts suggested by reviewers, or delete some 

concepts that were generally disliked. Entire alternatives may also be merged 

or split apart at this stage. These types of significant changes are far easier to 

handle at this stage of the planning process than further along after impact 

analysis is done. This point in the process also provides an opportunity to refine 

the alternatives if there is any confusion with the description or any other 

aspect or feature of the alternative, and to incorporate clearer language into 

the public document.

A matrix can be a useful tool for developing alternatives, with each issue and 

action topic listed vertically along the left, and each alternative horizontally 

across the top. A list of possible issues and action topics can be found in appendix 

4. Use workshops to choose where actions should differ by alternative, or where 

they are common to multiple alternatives. After the matrix is completed, use the 

information to write the narrative description of each alternative for chapter 

2 of the completed wilderness stewardship plan, describing the “no action” 

alternative, each action alternative, and actions common to all alternatives or 

all action alternatives. Wherever possible, include a description of estimated 

costs associated with implementing each alternative, including recurring costs 

(e.g., staffing, facilities maintenance) and nonrecurring costs (e.g., capital 

improvements, one-time restoration actions). It may be helpful to work with 

facilities management personnel to develop lifecycle costs for infrastructure.
Photo: NPS, Marjory 

Stoneman Douglas 

Wilderness, Everglades 

National Park

Wilderness Stewardship Division | Wilderness Stewardship Program

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Following development of conceptual alternatives, there may be many 

implementation-level details that also need to be described for each alternative 

and/or each zone. Appendix 4 provides ideas of what implementation-level 

details might be included in a wilderness stewardship plan. These details will 

probably need additional workshops to develop and resolve. It may also be 

helpful for the IDT to form several small working groups of three to five people 

to work together over a series of short meetings to develop the details under a 

specific topic for each alternative. For example, if human waste management is 

an issue, a small working group might be tasked with developing a description 

of those procedures common to all alternatives, and identifying what might vary 

between them under the different alternative concepts. Some decisions may 

require site visits to develop additional details under each alternative. Permitting 

systems (e.g., mandatory vs. voluntary, how permits are obtained) may also vary 

by alternative and need careful description. If a wilderness stewardship plan 

includes nonwilderness backcountry, there may be a need to describe a whole 

variety of facilities for each alternative (e.g., backcountry roads, toilet facilities, 

trailheads, primitive campgrounds). The appropriate level of detail depends 

on whether the NEPA document for the wilderness stewardship plan is also 

meant to serve as the environmental compliance for the actual implementation 

of that aspect of the alternative. For example, if a new trail and trailhead are 

proposed and the intent is that no additional NEPA work will be done prior to 

construction, a lot of detail will be necessary. This may include the location of 

the new trailhead, size and surface of the trail, any associated new facilities, the 

types of cultural and natural resource monitoring required during construction, 

and more. If, however, additional compliance would be done after completing 

the wilderness stewardship plan, then it might be sufficient to simply draw 

a bubble on a map and label it as new trail and trailhead, providing a brief 

description of the trail destination, length, and design capacity.
Part I—Wilderness Stewardship Planning Process

47

Environmental Analysis

Affected Environment

The affected environment section of the environmental assessment or 

environmental impact statement should succinctly describe the existing natural, 

cultural, and socioeconomic resources that would be affected either directly or 

indirectly by implementing any of the alternatives, including the “no action” 

alternative. These resources should have been identified during preparation of 

the environmental screening form and external scoping. Identify impact topics 

for future data collection. The purpose of describing the affected environment 

is to help define the context in which impacts will occur, thus helping frame 

the significance of an impact. More information about developing the affected 

environment section can be found in the DO-12 Handbook.

This section should specifically include wilderness character as an impact topic, 

describing the four qualities of wilderness character, and the other features of 

value quality, if appropriate. The selected measures in the monitoring framework 

can also provide a basis for describing the attributes of wilderness character 

that are unique to this wilderness, under the other features of value quality. 

More information about incorporating wilderness character into the affected 

environment section can be found in chapter 4 of the User Guide.

Environmental Consequences

The role of any NEPA document is to fairly, objectively, and candidly display 

the projected impacts of each alternative. Both decision makers and the public 

should have a clear picture of projected impacts. Environmental assessments and 

environmental impact statements should each routinely inform the public when 

data are lacking, models may be prone to error, or there is insufficient research 

or experience available to accurately predict impacts.

Impact analysis uses the projected context, duration, and intensity of impacts 

to predict the magnitude and extent of the effects of management actions 

on resources. Define and quantify these variables as much as possible. The 

analysis here (whether an EA or EIS format) must adequately discuss direct, 

indirect, and cumulative impacts of the proposed action. Also analyze the 

potential beneficial effects of each alternative. NPS guidance on conservation 

planning and NEPA compliance emphasizes the need for clear statements of 

objectivity, context, mitigation, methodologies employed, applicable regulations 

and policies, cumulative impacts, sustainability, and conclusions reached for each 

impact topic. The impact analysis should specifically address wilderness character 

as an impact topic, identifying effects on each of the qualities of wilderness 

character and on wilderness character as a whole. More information about 

incorporating wilderness character into the environmental analysis section can 

be found in chapter 4 of the User Guide. General guidance for impact analysis 

is available in the DO-12 Handbook and in the General Management Planning 

Dynamic Sourcebook.
Wilderness Stewardship Division | Wilderness Stewardship Program

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Identifying a Preferred Alternative

The IDT should use a process that is logical and well documented to identify 

a preferred alternative. The preferred alternative should be the one that best 

fulfills the goals and objectives of the plan, and best preserves wilderness 

character, with due consideration given to cost and feasibility. A preliminary 

assessment of potential impacts should inform identification of a preferred 

alternative. For general management plans and many other plans, the National 

Park Service conducts a value analysis that focuses on the various advantages and 

trade-offs of each alternative. A value analysis can be adapted to incorporate 

qualities of wilderness character into the factors and attributes used to 

determine advantages. The Choosing by Advantage method of value analysis, 

formerly used in many general management planning projects, is no longer 

an approved approach for identifying the preferred alternative. The NPS Park 

Planning Program should be consulted for further information. Regardless of 

the method used to identify a preferred alternative, it is critical to document the 

rationale behind the selection.

The concept of the preferred alternative is different from the “environmentally 

preferable” alternative required by the National Environmental Policy Act. 

The preferred alternative and the environmentally preferable alternative are 

often the same, but this is not always the case. Different alternatives may be 

identified under the two concepts. More explicit direction for determining the 

environmentally preferable alternative can be found in the DO-12 Handbook.

Administration and Implementation

An important part of plan development includes determining administrative 

procedures to integrate wilderness character into park operations, and designing 

strategies for plan implementation.

Minimum Requirements Concept

All management decisions affecting wilderness must be consistent with 

the minimum requirements concept. This concept is a documented 

process used to determine if administrative actions, projects, or programs 

undertaken by the Service or its agents and affecting wilderness character, 

resources, or the visitor experience are necessary, and if so how to 

minimize impacts. The minimum requirements 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 significant impact to wilderness resources 

and character, in accordance with the Wilderness Act; and 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 

requirements concept in the context of wilderness stewardship planning, 

as well as to all other administrative practices, proposed special uses, 

scientific activities, and equipment use in wilderness.

 —NPS Management Policies 2006, section 6.3.5, 

 “Minimum Requirement”

The preferred alternative 

should be the one that 

best fulfills the goals 

and objectives of the 

plan, and best preserves 

wilderness character
Photo: NPS, Olympic 

Wilderness, Olympic 

National Park

Part I—Wilderness Stewardship Planning Process

49

Effective application of the minimum requirements process is essential to sound 

wilderness stewardship. The wilderness stewardship plan should include a section 

that details how the park will apply minimum requirements analysis for all 

potential actions impacting wilderness character. The section should identify the 

MRA form to be used or guidance to be followed; and describe how the analysis 

will be initiated and evaluated; the approval process; procedures for ensuring 

that actions conform to the decision, and for tracking cumulative effects over 

time. It should also identify possible programmatic minimum requirements 

analyses. More information can be found in chapter 4 of the User Guide.

Scientific Activities

Park staff may elect to include a section on management and approval of 

scientific activities in wilderness within the wilderness stewardship plan. Science 

and research are important and integral parts of wilderness stewardship, 

providing insights into resource preservation, baseline information in a rapidly 

changing world, and a general increase in knowledge. Scientific activities can 

also adversely affect wilderness character by the use of motorized equipment, 

mechanized transport, and installations. Over time these issues can multiply in 

cumulative impacts to wilderness character. This section of the plan could identify 

guidelines for determining what research is necessary or appropriate, document 

existing activities, establish improved communication methods with researchers, 

ensure that the research permit process addresses wilderness character, identify 

a system to monitor permit compliance, track cumulative effects, and ensure the 

dissemination of results. Scientific activities may also be addressed during the 

development of alternatives or zones in the wilderness stewardship plan. More 

information can be found in chapter 4 of the User Guide.
Wilderness Stewardship Division | Wilderness Stewardship Program

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Other Operational Procedures

Staff is encouraged to develop a suite of operational procedures that embody 

the spirit of the Wilderness Act in all park operations. This would encompass not 

only MRA and scientific activities, but all activities related to the administration 

of commercial services, search and rescue, maintenance of structures in 

wilderness, monitoring activities, visitor contacts, ranger activities, interpretation 

and education, safety, and communication. Developing standard operating 

procedures that preserve wilderness character may help all divisions understand 

their role in wilderness stewardship. Additional information on incorporating 

wilderness character into operational procedures can be found in chapter 4 

of the User Guide. Appendix 4 of this Handbook also provides ideas of what 

operational guidelines might be included in a wilderness stewardship plan.

Project Closure

To complete a NEPA process, the appropriate decision document is prepared: 

A Finding of No Significant Impact (FONSI) for an environmental assessment 

(if no significant impacts were found), and a Record of Decision (ROD) for an 

environmental impact statement. Administrative files for the project should be 

properly organized and stored. More guidance for this step can be found in the 

DO-12 Handbook.

Implementation

A wilderness stewardship plan can only be effective if it is implemented. The 

IDT should strive throughout the planning process to develop a plan that is 

feasible to implement, and near the end of the planning process, develop a set 

of strategies to ensure effective implementation of the wilderness stewardship 

plan. Strategies may include:

•  Committing to developing and implementing annual strategic plans to 

meet long range goals and objectives

•  Identifying staff roles and responsibilities for wilderness stewardship

•  Identifying specific schedules and responsibilities for monitoring and 

reporting

•  Incorporating wilderness responsibilities into staff performance plans

•  Developing a strategy for integrating wilderness training into other 

training and including wilderness training in individual employee 

development plans

•  Establishing a new, or refining the composition and charter of an existing, 

park wilderness stewardship committee

•  Identifying priorities and potential funding sources and incorporating 

funding needs into park priorities and work plans

•  Working with partners to achieve goals and objectives; for example, 

establishing a “friends of the wilderness” group or enlisting volunteers for 

collecting monitoring data

For new and emerging ideas in wilderness planning, see appendix 3 and the 

Wilderness Character SharePoint site: http://share.inside.nps.gov/sites/WASO/

WSD/WC.
Part II

Now I see the secret of the 

making of the best persons. It is 

to grow in the open air, and to 

eat and sleep with the earth.

—Walt Whitman

Photo: NPS, Butterfly Orchid, 

Marjory Stoneman Douglas 

Wilderness, Everglades 

National Park

Wilderness 

Stewardship 

Plan Content
Wilderness Stewardship Division | Wilderness Stewarship Program

52
Photo: NPS, Marjory Stoneman Douglas Wilderness, 

Everglades National Park

Part II—Wilderness Stewardship Plan Content

53

Part II—Wilderness

Stewardship Plan Content

Part I of the Handbook described the process, or 

steps to be taken by an interdisciplinary team to 

complete a wilderness stewardship plan. Part II 

outlines the contents of a wilderness stewardship 

plan and provides an overview of what each section 

should include, beginning with the summary and 

table of contents.

Summary

The purpose of this section is to provide an executive 

summary of the environmental assessment or 

environmental impact statement. It should serve 

as an overview of the document summarizing the 

purpose and need, the alternatives, the affected 

environment, and the impacts of the alternatives. 

Wilderness character should be clearly presented as 

an integral component of the document.

Table of Contents

There is no standardized format, other than meeting 

the requirements of the National Environmental 

Policy Act and the DO-12 Handbook; however, the 

ordering of part II that follows provides an example 

of a table of contents format.
Wilderness Stewardship Division | Wilderness Stewarship Program

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Chapter 1: Purpose and Need

The first chapter of the wilderness stewardship plan defines the scope and the 

need for the plan and clearly articulates the purpose and goals of the wilderness 

stewardship plan. The chapter can be organized in several different ways, as long 

as it includes the major components below.

Introduction

Include a brief introduction that will orient the reader to the document. 

State whether the document will include an environmental assessment or an 

environmental impact statement. State whether the wilderness stewardship 

plan will be a GMP amendment or an implementation plan. Briefly define 

the extent or area of land covered by the wilderness stewardship plan—how 

much of the park will be included in the planning effort, how much wilderness 

is designated, or formally eligible, potential, proposed, or recommended as 

wilderness? Will the plan cover areas of park backcountry as well as wilderness? 

Include a brief description of the park and the wilderness including some basic 

facts (e.g., enabling legislation date[s] or wilderness study status, acreages). 

The reader should be able to understand where the park and wilderness areas 

are located, who the neighbors are, and the regional context for the planning 

effort (geographically, politically, economically, and socially). Identify the primary 

purpose(s) of the wilderness. Include a map of the park’s regional location and 

a map of the wilderness area. This section should also include a description of 

the exceptional resources and values for which the wilderness was established 

and why those resources and values are nationally or regionally significant 

or unique, using all of the qualities of wilderness character. If the park has 

completed the wilderness basics building block described in the “Introduction” 

to the Handbook, use the background wilderness information and the wilderness 

character narrative to help develop this section.

Purpose and Need

This section should detail the reasons the wilderness stewardship plan is being 

prepared and should outline the problems and challenges for the management 

and stewardship of the wilderness. This section should provide an adequate 

explanation as to why the park is writing a wilderness stewardship plan and 

should include discussion and explanation of the on-the-ground purposes for the 

plan, not simply a summary of NEPA requirements. There will be some purposes 

that stem from law (including the Wilderness Act and the enabling legislation 

that established the wilderness), purpose and significance statements, and policy 

or previous planning efforts, but the wilderness stewardship plan should identify 

specific goals that are necessary to deem a planning effort successful. A good 

description of the purpose and need will pave the way for developing the range 

of alternatives later in the planning process.

This section will also identify why the park needs to take action at this time. 

Summarize the issues that need to be addressed in order to successfully preserve 

or improve wilderness character. Discuss and explain any problems with existing 

conditions, significant decisions to make, and any policies or mandates to 

implement. Significant decisions may include broadreaching ones (such as the 

appropriate types and levels of management or facilities development within 

management zones) or site-specific issues that need to be addressed in order to 

achieve desired conditions or prevent future degradation of wilderness character.
Part II—Wilderness Stewardship Plan Content

55

Goals and Objectives

Goals and objectives are key elements of a wilderness stewardship plan, as 

they establish and provide the direction for the park’s wilderness management 

program and reflect the purpose and need for planning. Goals should be 

directed toward the outcomes of the wilderness stewardship plan, not the 

planning process. Wilderness goals and objectives flow from law, policies, park 

and wilderness enabling legislation, GMP objectives, resources stewardship 

strategies, public input, and more. Goals and objectives should be guided by 

the direction in the Wilderness Act to preserve wilderness character, and should 

articulate the desired conditions that shape management actions. It is sometimes 

difficult to differentiate between goals and objectives. Goals are usually 

broader and farther reaching, and objectives are usually more specific and have 

measurable outcomes. Although some parks may choose to develop an overall 

goal or multiple goals in addition to objectives, some may not. Do whatever is 

most effective for managing a particular wilderness.

Desired conditions provide further, more detailed descriptions of the conditions a 

park wants to achieve and maintain over time to meet the goals and objectives. 

Desired conditions are an important part of developing alternatives and 

management zones in a wilderness stewardship plan. Describe desired conditions 

by incorporating the different qualities of wilderness character (see Arrows 

Exercise in appendix 3 for a technique to help articulate desired conditions by 

quality). The desired conditions stated in this section should be widely applicable, 

both geographically and temporally, with more-detailed descriptions of desired 

conditions included later in the specific zones and/or alternatives.

Example: Black Canyon of the Gunnison National Park / Curecanti National 

Recreation Area Draft Wilderness and Backcountry Management Plan, 

August 2011

Goal: Restore, protect, and enhance wilderness character in wilderness areas.

Objective: Evaluate existing conditions and management practices and define desired 

resource and social conditions in wilderness and nonwilderness backcountry areas, 

consistent with park purposes.

Desired conditions for one zone – Black Canyon: Inner Canyon Wilderness Zone

The principle desired conditions for the inner canyon wilderness zone would be wild, natural, 

and rugged. The zone is remote and provides for adventure. The experience would be 

challenging and the visitor would need to be self-reliant and equipped with wilderness skills. 

For new and emerging ideas in wilderness planning, see appendix 3 and the NPS Wilderness 

Character SharePoint site.
Photo: NPS/Garry Oye, 

Death Valley Wilderness, 

Death Valley National Park

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Example: Death Valley National Park Wilderness and Backcountry 

Stewardship Plan, August 2013

Goal statements:

•  Preserve the untrammeled quality of wilderness character by refraining from the deliberate 

manipulation or management of wilderness resources except as necessary to promote 

another quality of wilderness character or to preserve human life or to accommodate other 

activities in compliance with applicable laws.

•  Promote the natural quality of wilderness character through the thoughtful restoration 

and / or maintenance of natural processes and features while managing archaeological, 

historical and ethnographic sites in a manner that is compatible with wilderness and historic 

preservation laws.

•  Preserve and enhance the undeveloped quality of wilderness character by judicious review 

and, where appropriate, removal of nonconforming and/or unnecessary installations.

•  Provide for outstanding opportunities for solitude or primitive and unconfined recreation 

as long as such visitor uses can be offered without degradation of significant natural and 

cultural resource values.

•  Preserve ecological, geological, scientific, educational, scenic, and historical values of 

wilderness, including culturally significant resources and paleontological resources within 

wilderness as important and prominent values of the Death Valley National Park Wilderness 

consistent with the California Desert Protection Act and the general management plan.

•  Preserve the intangible aspects of wilderness, including the ethnographic value to the 

Timbisha Shoshone and accommodate ongoing traditional cultural uses by the Timbisha 

Shoshone within their Natural and Cultural Preservation Area and other special use areas.
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Background

This section provides background on the administrative factors (e.g., laws, 

policies, special regulations, plans) that directly apply to the wilderness. These 

will provide the foundation for developing the management actions proposed 

in the plan.

Enabling legislation and/or wilderness study history

For designated wilderness, summarize the reasons the wilderness was established 

as it is described in the enabling legislation and legislative history. Be sure to 

describe all special provisions that may be part of the legislation. These are any 

provisions in enabling legislation that differ from the statutory language of 

the Wilderness Act, in particular, provisions for the section 4(c) prohibited uses. 

Include the wilderness legislation, or selected sections if part of a large omnibus 

bill, in an appendix. Indicate if there are any potential wilderness additions 

included in the enabling legislation, with a list of them included in the appendix. 

See the “Law and Policies” section at http://www.wilderness.net/NWPS/lawPolicy

for the legislative history of all designated wilderness.

For wilderness that is in one of the other categories such as eligible, proposed, or 

recommended, summarize the history of wilderness study and identify the map 

and acreage that comprise the most recent official recommendation (the farthest 

point along in the study process).

Relationship to other plans and programs relevant to wilderness stewardship

The park’s wilderness program needs to be developed in careful coordination 

with other park management programs and initiatives. This section of the 

plan will describe that coordination. Discuss the relationship of the wilderness 

stewardship plan to other existing plans, especially the general management 

plan and the resource stewardship strategy, if they have been completed. 

Reference or include the park’s mission/purpose and significance or foundation 

document. Include a discussion of the management direction for wilderness 

within the general management plan and/or resource stewardship strategy. List 

other plans or programs that have the potential to affect the administration 

and preservation of the wilderness (e.g., air tour management plan, fire 

management plan, exotic plant management plan, river use management plan, 

livestock management plan) and how these relate to the wilderness stewardship 

plan. Summarize how the park is going to consider any potential impacts to 

wilderness described in these plans and vice versa. (See chapter 3 of the User 

Guide for a more detailed discussion about how some of these other plans 

relate to wilderness character). Briefly describe the history of any backcountry or 

wilderness planning that has taken place in the park, including any associated 

NEPA analysis. List previous backcountry or wilderness plans along with approval 

dates and the current plan (if any) the park is using to manage the wilderness.
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Legal and policy requirements related to wilderness stewardship

Briefly explain uses (e.g., grazing rights, inholdings, mines, and other 

nonconforming uses) that are allowed by valid authorities but which may conflict 

with the public’s general understanding of how wilderness areas are to be 

managed. Consider the outline topics below and include only those that apply to 

this wilderness. There may be other topics to add:

•  Other statutes affecting the park wilderness—Only identify specific 

legislation that has a direct effect on the wilderness resource. The point 

is to inform the reader about the existence of these statutes and perhaps 

the specific legislative section that will affect wilderness, not to recite the 

entire law. For Alaska parks, explain the rights authorized by the Alaska 

National Interest Lands Conservation Act as these apply to this wilderness. 

This may guide a considerable part of a wilderness stewardship plan.

•  Other jurisdictional influences—If other federal, state, or county agencies 

have any jurisdictional authority within the wilderness, briefly identify 

these agencies and the nature of this authority. For example, does the 

local sheriff have the authority to conduct search and rescue operations 

within the park? Is this wilderness under a U.S. Coast Guard or military air 

operations zone? Are there any memoranda of understanding with other 

entities that affect wilderness management? If no other agencies have such 

an authority, skip this section.

•  Reference to NPS Management Policies 2006 / Director’s Order 41—Only 

reference the existence of these documents, particularly considering they 

may be updated or revised during the life of the wilderness stewardship 

plan. There is no need to repeat all applicable sections of Management 

Policies 2006 and Director’s Order 41. The point of this section is to inform 

the reader that these documents exist and have a direct effect on how the 

National Park Service is to administer and preserve wilderness.

•  Other preexisting factors affecting the park’s wilderness—If there are 

conditions or situations that affect the park wilderness that were not 

addressed above, briefly describe these conditions here. Remember, 

however, that these conditions must be based on a valid legal authority. 

Do not attempt to justify past illegal (unauthorized) practices. Clearly 

recognize and articulate the established right of an individual or group to 

conduct specific authorized activities within the wilderness, including what 

the individual permittee can and cannot do in exercising that right.

•  Inholdings and retained rights—Describe the number and type of 

inholdings or retained rights that are preexisting and/or authorized by the 

legislation that established the park or wilderness. Explain any legal special 

provisions for exercising these rights. Some common types of retained 

rights in wilderness are described in section 4(d) of the Wilderness Act and 

are described in more detail in the sub-bullets below:

» Grazing permits—Describe the authority that mandates or allows any 

valid, existing grazing leases. For each lease, describe the number of 

livestock involved, the annual grazing period, and any significant terms 

of the permit, regarding for example, equipment left in the wilderness 

or motorized access. Clearly demonstrate the specific authority 

for motorized vehicles or equipment. Describe how leases will be 

monitored and conditions for their renewal.
Photo: NPS/Karin Messaros, 

Joshua Tree Wilderness, 

Joshua Tree National Park

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» Mining claims—List the claims or interests and their specific locations. 

Give any history of use or development of the claims or rights. When 

was the validity exam completed, or if not, what is the status of the 

claims? Has there been a plan of operation applied for or filed? If a 

plan of operation was filed and approved, explain in this section any 

motorized uses within wilderness or any special provisions for access 

that are authorized as conditions of the plan. Also describe all actions 

that have been authorized and taken to extinguish the mineral rights 

within the wilderness, if applicable.

» Native American rights—Describe any specific rights and/or privileges 

authorized for Native Americans within the wilderness. Explain any 

prior agreements requiring renewal or management. If the uses or 

rights were not specifically authorized for this wilderness but are 

authorized under a broader authority, list those uses, their authorities, 

and why and how they will be allowed to occur in wilderness. An 

example might be access to areas of the park for the performance of 

traditional religious ceremonies.

» Rights-of-way—Describe any legal right-of-way that exists in wilderness 

and any legally mandated activities within the right-of-way.

» Other existing rights—Use this section to describe private parcels, 

cabins, airstrips, or other types of preexisting rights under a 

management agreement not already described. It may be helpful to 

map these locations.

Scope of the Plan

Planning issues addressed

The issues and opportunities that were generated during internal and 

public scoping are part of this section. Consider categorizing the issues and 

opportunities list by the qualities of wilderness character, as suggested in table 

7. These are possible topics a plan may address, but the table is neither a list of 

all possible topics nor a checklist of topics that must be included. More detailed 

information about how to address specific topics in a wilderness stewardship 

plan and relate them to the wilderness character framework can be found in 

appendix 4.
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Table 7. Potential planning issues and topics arranged by quality of wilderness character.

Natural – Wilderness ecological systems are substantially free from the effects of modern civilization.

•  Fire management

•  Invasive nonnative plant treatment

•  Other natural resource management (e.g., endangered species, wildlife, aquatic resources, air resources, water quality)

•  Climate change

•  Fragmentation and loss of connectivity to surrounding landscape

Untrammeled – Wilderness is essentially unhindered and free from the intentional actions of modern human control or 

manipulation.

•  Authorized natural resource conservation and restoration activities in wilderness

•  Unauthorized actions such as poaching of plants or animals, stocking or artificially augmenting fish or game species 

(e.g., impoundment of water to attract and concentrate wildlife)

Opportunities for Solitude or a Primitive and Unconfined Recreation – Wilderness provides outstanding 

opportunities for solitude or primitive and unconfined recreation (Note: all issues and developments related to recreational 

uses are included here).

•  Visitor experience (including solitude, risk, and challenge), indicators and standards (may be different than opportunities 

for solitude or primitive and unconfined recreation)

•  Visitor use management through regulations and permits (e.g., group size, reservation systems, campfires, rules)

•  Recreational facilities (e.g., trailheads, campsites, wilderness routes and trails, signs and route markers, toilets)

•  Climbing, canyoneering, and mountaineering management, protocols

•  Commercial services (e.g., necessary and appropriate per NPS Management Policies 2006, chapter 10, “Commercial 

Visitor Services,” extent necessary to realize the purposes for which the wilderness area was established, allocation 

between public and private use)

•  Accessibility for persons with disabilities

•  Interpretation and education within the wilderness

•  Human waste management

•  Food protection systems

•  Stock use (e.g., type, location, conditions)

•  Natural soundscape protection

•  Night sky management

•  Viewshed protection

•  Hunting, trapping, and fishing

•  Special events

•  Emerging uses and technology

•  Overflights

•  Remoteness from sights and sounds of people inside wilderness

•  Remoteness from sights and sounds of people outside wilderness, including viewshed impacts

Undeveloped – Wilderness retains its primeval character and influence, and is essentially without permanent 

improvement or modern human occupation (Note: only developments that are not primarily for a recreation purpose or 

use are included here).

•  NPS administrative facilities (e.g., communication equipment, other equipment, cabins, ranger stations, fire lookouts, 

other structures)

•  NPS administrative activities (e.g., emergency services, law enforcement, staff organization and accountability, trail 

maintenance, tree clearing, risk management and safety, standard operating procedures, application of minimum 

requirements process)

•  Scientific activities and research (e.g., permits, management of activities, equipment)

•  Management of pre-existing factors affecting the wilderness unit (e.g., inholdings and retained rights, mining claims, 

grazing permits and structures, Native American rights and access, rights-of-way)

Other Features of Value – Wilderness preserves other tangible features that are of scientific, educational, scenic, or 

historical value.

•  Cultural resource management (i.e., what is the relationship of cultural resources and this wilderness, including 

archeological sites, cultural landscapes, ethnographic resources, and historic structures?)

•  Paleontological resource management (i.e., management of research and collection techniques, visitor use management 

at sensitive sites)
Photo: Gavin Emmons, 

Pinnacles Wilderness, 

Pinnacles National Park

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61

Other Topics

•  Education and outreach (e.g., programs in schools, universities, communities, virtual communities)

•  Cooperative management of jointly managed areas

•  Relationships with private and public organizations and government agencies

•  Strategies for pursuing designation of eligible, proposed and recommended wilderness

•  Inclusion of wilderness eligibility assessment for lands within park boundary not assessed

•  Strategies for rehabilitation of potential wilderness additions

•  Amendment to eligible, proposed, or recommended wilderness

•  Application of the minimum requirements process to eligible, proposed, and designated wilderness

Planning issues considered but not addressed

If there are certain issues or impact topics identified by the public or the 

interdisciplinary team that will not be affected or for some reason will not be 

addressed in this plan, they should be briefly described here along with the 

reason(s) that they are being dismissed. This is also the section used to describe 

issues that the wilderness stewardship plan will not address because they are 

outside the scope of the planning process (e.g., renegotiating existing grazing 

rights, building new roads). If the park has a controversial site related to 

wilderness that will be addressed in a site-specific plan, state that here. Also, if 

backcountry is not included in this plan, state the reasons why and describe how 

and when the management of those lands has been or will be addressed in a 

separate planning effort.

Impact Topics

Describe the impact topics selected based on in-house and public scoping. 

Describe only those resources that may be impacted if the proposed action 

or the alternatives are implemented. They need no further description in this 

section; this is only a list. Include wilderness character as an impact topic to 

address. If there are certain issues or impact topics identified by the public or 

the interdisciplinary team that will not be affected, or for some reason will not 

be addressed in this plan, they should be briefly described here along with the 

reason(s) they are being dismissed. Generally, anticipated impact levels that are 

minor or negligible may be dismissed from detailed analysis. (See the DO-12 

Handbook for more information).
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Chapter 2: Alternatives

The purpose of chapter 2 is to describe the plan proposal and alternatives that 

will achieve the goals and objectives for wilderness stewardship identified 

in chapter 1. This chapter includes discussion of the range of reasonable 

alternatives, any proposed mitigation measures, and a summary of impacts 

for each alternative. To the greatest extent possible, alternatives should be 

presented in a similar format to facilitate comparison. One format to consider is:

1. Guiding philosophy or theme (e.g., maximize the untrammeled quality, 

restore naturalness, improve opportunities for solitude)

2. Overall actions (regardless of zone and those addressing major issues 

and concerns)

3. Zone descriptions (e.g., desired conditions, especially concerning the 

qualities of wilderness character; indicators; measures; standards; 

management actions)

4. Map of the application of zones and other management actions

No Action

This alternative describes the current wilderness management direction and 

situation. In keeping with the DO-12 Handbook, identify the “no action” 

alternative as the first alternative in the plan environmental assessment or 

environmental impact statement. Describe this alternative using as similar a 

format as possible as that for the other action alternatives to aid in comparison 

across the various alternatives. A park may not have existing management 

zoning for wilderness stewardship, and if not, there is no need to create it for 

the “no action” alternative. If continuing any ongoing management would 

violate laws or policies, this should be noted in this section.

Action Alternatives, Including the Proposed Alternative

As previously noted, a reasonable range of action alternatives that meets goals 

and objectives and addresses issues and opportunities should be developed 

and presented. The preferred or proposed action alternative should be clearly 

identified in the title. Actions can vary by zone or by alternative. Some actions 

may be the same for all zones or for all alternatives. As a result, there are 

different locations where actions can be presented within the environmental 

assessment / environmental impact statement:

•  If an action doesn’t relate to zone descriptions but varies by alternative, it 

can be placed under a section for “Overall Actions” for the alternative.

•  If an action varies by zone, it should be placed in the “Zone Descriptions.”

•  If an action doesn’t vary by zone but is the same for all alternatives, it 

can be placed in a section for “Management Actions Applicable to All 

Alternatives Except the No Action Alternative.”
Photo: NPS/Peter Landres, 

Gates of the Arctic 

Wilderness, Gates of 

the Arctic National Park 

and Preserve

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Determine the best format and location within the environmental assessment / 

environmental impact statement for describing actions so that an understanding 

of each alternative and the differences between alternatives is clear. Find a 

balance between presenting complete information for each alternative and 

excessive repetition. Include maps for zone allocation and proposed changes to 

visitor facilities or opportunities (e.g., adding a new trailhead, removing a trail). 

The complete framework of indicators, measures, standards, and management 

actions should be summarized in a matrix, with more complete information 

included as an appendix.

Administration and Implementation

An important part of the plan is the development of administrative procedures 

to integrate wilderness character into park operations, and a strategy for 

implementation (see Part I of the Handbook for more guidance). Those sections 

could be included in this chapter (especially if they vary by alternative), or 

provided in appendixes. Also include costs for implementing the plan.

Alternatives Considered But Dismissed

The Council on Environmental Quality has defined “reasonable alternatives” to 

mean those that are economically and technically feasible and show evidence 

of common sense. This allows the park to eliminate from further consideration 

those alternatives that could not be implemented if they were chosen, and those 

that did not resolve the need for the proposed action(s) or the stated purpose of 

the wilderness stewardship plan. Environmental assessments and environmental 

impact statements should include a section discussing alternatives that were 

considered but rejected and briefly explain the reasons for this elimination.

Be careful! While it is not appropriate to generate weak or infeasible 

alternatives, the Council on Environmental Quality also cautions that agencies 

should not pare down the list of alternatives to only those that are cheap, 

easy, or simply the park’s favorite way of doing business. Additionally, some 

alternatives may be eliminated as the NEPA process progresses. For example, 

if initial impact analysis shows that a technically or economically feasible 

alternative would have profound adverse environmental impacts, it should be 

eliminated as “environmentally unfeasible.”
Photo: NPS, Issuing a 

wilderness permit, 

Yosemite National Park

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Mitigation Measures

Mitigation measures are practical and appropriate methods that would be used 

under the action alternatives to avoid or minimize harm to wilderness character 

and other impact topics. These measures are developed using existing laws and 

regulations, best management practices, conservation measures, and other 

known techniques. Mitigation measures are different from “Actions Common 

to All Alternatives.” These measures should focus on requirements that are 

specifically implemented to avoid, minimize, or mitigate the negative impacts 

of the alternatives. Note that mitigation measures to avoid adverse effects to 

cultural resources under the National Historic Preservation Act will require a 

memorandum of agreement with the state historic preservation officer and 

possibly the Advisory Council on Historic Preservation, which must be signed 

before the Finding of No Significant Impact can be signed (see 36 CFR 800 for 

more details). Additional consultation with traditionally associated tribes and/

or a tribal historic preservation officer may be needed as well. Similarly, the 

mitigation and conservation measures for the protection of federally listed 

threatened and endangered species is typically identified in a separate but 

parallel process of consultation with the U.S. Fish and Wildlife Service. Their 

biological opinion must be completed prior to the FONSI signing. For more 

information, see the DO-12 Handbook.
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Environmentally Preferable Alternative

The environmentally preferable alternative (as described in the planning process) 

is fully documented in this section. The environmentally preferable alternative 

may not be the optimal alternative for preserving wilderness character. For more 

information, see the DO-12 Handbook.

Summary and Comparison of Alternatives and Impacts

The plan environmental assessment/environmental impact statement should 

include a summary that compares and summarizes:

•  the degree to which each alternative meets the purpose, need and goals of 

the plan

•  the important features of each alternative

•  the impacts of each alternative, including a determination of potential 

improvement to park resources (this is a specific requirement of an 

environmental assessment and environmental impact statement)

•  a description of how each alternative achieves the requirements of Section 

101 and 102 of the National Environmental Policy Act (a required element 

in an environmental impact statement)

•  any trade-offs needed (e.g., natural and untrammeled)

The easiest way to present this information is through the use of matrices, or 

charts, that provide the reader with a clear comparison of each alternative.

Chapter 3: Affected Environment

This chapter describes the existing natural and human components of the 

environment that will be affected by the implementation of any of the 

alternatives. In the National Environmental Policy Act, “affected environment” 

means resources expected to experience environmental impacts, including the 

consequences of not taking action. Describe only those resources that may 

experience or cause impacts if the proposal or alternatives are implemented. 

In an environmental impact statement there are a number of topics that are 

mandatory to consider, such as wetlands / floodplains, prime agricultural lands, 

sacred sites, and others. If these are not affected, they would be addressed in 

chapter 1 of the wilderness stewardship plan under “Impact Topics Considered 

and Dismissed.” For more complete information, see the DO-12 Handbook.

Introduction

Describe what will be discussed in this chapter and if necessary, briefly provide 

some regional context (see Part I of the Handbook for more detail).
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Impact Topics

For each of the identified impact topics, concisely describe the resource and its 

condition based upon accurate and adequate data for analyzing impacts. Keep 

in mind that many of these topics interact and important aspects of natural 

resources, such as disturbance, succession, rare species, etc. are often overlooked.

Some common impact topics for a wilderness stewardship plan are:

•  Wilderness character, including each quality of wilderness character

•  Soils

•  Vegetation

•  Wildlife

•  Threatened and endangered species

•  Water resources

•  Natural soundscapes

•  Night skies

•  Archeological resources

•  Historic structures

•  Ethnographic resources

•  Cultural landscapes

•  Museum collections

•  Visitor use and experience

•  Park operations

•  Socioeconomic environment (in addition to typical analysis of visitor 

spending and economic impact of tourism and commercial services, this 

section should consider including the “nonmarket” value of wilderness, 

ecosystem services, etc.)

More information about integrating wilderness character and NEPA 

requirements into the planning process, including analyzing impacts, can be 

found in chapter 4 of the User Guide.

Wilderness character should be an impact topic in every wilderness stewardship 

plan. Define the qualities of wilderness character using the definitions in Keeping 

It Wild, and then organize the description of wilderness character according to 

these qualities:

•  Untrammeled

•  Natural

•  Undeveloped

•  Solitude or a Primitive and Unconfined Type of Recreation

•  Other Features of Value

Strive to avoid overlap or redundancies among the descriptions of wilderness 

character qualities and other impact topics. Using the park’s wilderness character 

narrative, one of the foundational building blocks for wilderness planning, 

should be helpful in writing this section.
Photo: NPS, Recommended 

wilderness in Assateague 

Island National Seashore

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Chapter 4: Environmental Consequences

This section describes potential environmental consequences, including beneficial 

and negative effects associated with the “no action” alternative and others. 

For each impact topic, discuss methodologies and assumptions for assessing 

environmental consequences, including consideration of context, intensity, and 

duration of impacts; cumulative impacts; and measures to mitigate impacts. This 

is the typical organization:

Methodology

» Impact Topic 1 – impact intensity thresholds for negligible, minor, 

moderate, and major

» Impact Topic 2 – impact intensity thresholds for negligible, minor, 

moderate, and major

» Impact Topic 3 ...etc.

Alternative 1 – No Action

» Impact Topic 1 – impact analysis, cumulative effects, conclusion

» Impact Topic 2 – impact analysis, cumulative effects, conclusion

» Impact Topic 3 ...etc.

Alternative 2 – Preferred

» Impact Topic 1 – impact analysis, cumulative effects, conclusion

» Impact Topic 2 – impact analysis, cumulative effects, conclusion

» Impact Topic 3 ...etc.

Alternative 3

» Impact Topic 1 – impact analysis, cumulative effects, conclusion

» Impact Topic 2 – impact analysis, cumulative effects, conclusion

» Impact Topic 3 ...etc.
Photo: NPS, Theodore 

Roosevelt Wilderness, 

Theodore Roosevelt 

National Park

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Alternatively, the information can be organized by impact topic, with each 

alternative nested within the impact topic. This allows for more direct 

comparison of impacts between alternatives and the opportunity for the 

description to highlight the differences and reduce redundancy in the text:

Impact Topic 1

» Methodology

» Alternative 1 – impact analysis, cumulative effects, conclusion

» Alternative 2 – impact analysis, cumulative effects, conclusion

» Alternative 3 ...etc.

Impact Topic 2

» Methodology

» Alternative 1 – impact analysis, cumulative effects, conclusion

» Alternative 2 – impact analysis, cumulative effects, conclusion

» Alternative 3 ...etc.

Impact Topic 3

» Methodology

» Alternative 1 – impact analysis, cumulative effects, conclusion

» Alternative 2 – impact analysis, cumulative effects, conclusion

» Alternative 3 ...etc.

An optional organizational format for an environmental assessment (but not for 

an environmental impact statement) is to combine the “Affected Environment” 

section with the environmental consequences, and then follow the second 

format described above. An impairment analysis is only completed for the 

preferred alternative and is included in the Finding of No Significant Impact. 

More complete information about writing environmental consequences can be 

found in the DO-12 Handbook and by consulting with a regional environmental 

coordinator or the WASO Environmental Quality Division. See chapter 4 of the 

User Guide for additional guidance establishing impact thresholds specific to 

wilderness character.
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Chapter 5: Consultation and Coordination

This section of the plan documents and summarizes the consultation and 

coordination that occurred during the planning process. It should include:

•  Public involvement—scoping, meeting dates, locations, number of 

attendees, newsletters, web sites, other contacts, level of participation, and 

a summary of public comments.

•  Consultation with other agencies and organizations—list of contacts, 

meetings, and a summary of agency and organizational concerns. Include 

official consultation letters such as those with the U.S. Fish and Wildlife 

Service and/or the National Oceanic and Atmospheric Administration 

regarding threatened and endangered species, and with the state historic 

preservation office concerning the National Historic Preservation Act in the 

appendixes.

•  Tribal consultation—list of contacts, outreach, meeting dates, locations, 

number of attendees, and a summary of issues and concerns. Tribal 

consultation can be both informal and formal government-to-government 

consultation. Formal government-to-government consultation is between 

the tribal chair / chief and the superintendent (who has delegated 

authority), or other representatives officially delegated by the tribal chair / 

chief. Carefully document this government-to-government consultation 

and correspondence and include it in an appendix. Also consider including 

informal consultation with tribal members who actively use or live on 

wilderness lands, tribal resource managers, or spiritual leaders who may 

have more local knowledge of resources. This does not, however, substitute 

for formal intergovernmental consultation.

An environmental impact statement has additional requirements for listing 

officials, agencies, organizations, and individuals who received a copy of the 

document. An environmental impact statement also requires that comments 

be summarized and responses to substantive comments be included. A list of 

preparers can be included in this section or at the end of the document. For an 

environmental impact statement, include background information about the 

preparers (i.e., number of years of federal and related service, degrees earned).

References

Provide a bibliography of references cited, as well as a glossary of terms and 

acronyms.

Appendixes to Plan

A. Legislation or Study

For designated wilderness, include the wilderness legislation, or selected sections 

if part of a large omnibus bill. For other categories of wilderness, include the 

latest “official” map depicting these areas.

B. Matrix of Indicators, Measures, Standards, and Management Actions to 

Preserve Wilderness Character

Include the matrix with the details of the action alternatives’ elements 

(indicators, measures, standards, management actions) here or in chapter 2 

of the document.
Photo: NPS, Olympic 

Wilderness, Olympic 

National Park

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C. Other Appendixes As Needed

Some of the appendixes that have been included in recent wilderness 

stewardship plans are listed below with the relevant park(s) listed in parentheses:

•  Wilderness minimum requirements decision analysis process (Death Valley, 

Black Canyon, Zion)

•  Wilderness education strategy (Death Valley)

•  Wilderness character monitoring strategy (Death Valley)

•  Framework for evaluating scientific activities in wilderness (Death Valley 

and Black Canyon)

•  Framework for evaluating commercial services and special park uses in 

wilderness (Death Valley, Black Canyon, Zion)

•  Climbing Management Plan (Black Canyon)

•  Floodplains Statement of Findings (Zion)

Index

An index is required for an environmental impact statement.
References and

Appendixes

One touch of nature makes the 

whole world kin. 

—William Shakespeare

Photo: NPS/Barb Stewart, 

Shenandoah Wilderness, 

Shenandoah National Park
Photo: NPS/Daniel Silva, Shenandoah 

Wilderness, Shenandoah National Park
References and Appendix

73

Selected References

Ashley, P.

2007 “Toward an Understanding and Definition of Wilderness Spirituality.” Australian 

Geographer 38:53–69.

Cafaro, P.

2001 “Thoreau, Leopold, and Carson: Toward an Environmental Virtue Ethics.” Environmental 

Ethics 22:3–17.

Cordell, K.H., J.C. Bergstrom, and J.M. Bowker, editors

2005 The Multiple Values of Wilderness. Venture Publishing, State College, PA.

Landres, P., C. Barns, J.G. Dennis, T. Devine, P. Geissler, C.S. McCasland, L. Merigliano, J. Seastrand, and 

R. Swain

2008 Keeping It Wild: An Interagency Strategy to Monitor Trends in Wilderness Character Across 

the National Wilderness Preservation System. General Technical Report RMRS-GTR-212. 

U.S. Forest Service, Rocky Mountain Research Station, Fort Collins, CO.

National Park Service (NPS)

1997 VERP: The Visitor Experience and Resource Protection Framework: A Handbook for 

Planners and Managers. Denver Service Center: Denver, CO.

Stankey, G.H., D.N. Cole, R.C. Lucas, M.E. Petersen, and S.S. Frissell

1985 The Limits of Acceptable Change (LAC) System for Wilderness Planning. General Technical 

Report INT-176. U.S. Forest Service, Intermountain Forest and Range Experiment Station, 

Ogden, UT.
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Appendix 1–Wilderness Stewardship Plan Checklist

Quality and Completeness

£ Identifies and addresses goals, objectives, relevant issues and opportunities

£ Prepared by interdisciplinary team with appropriate expertise

£ Prepared with relevant, current, and accurate data

£ Conforms with wilderness law and policy

£ Fully integrates the concept of wilderness character

Consultation and Coordination

£ Adequate public involvement

£ Adequate agency consultation

£ Adequate tribal consultation

Wilderness Stewardship Plan Content

£ Goals and objectives

£ Issues and opportunities

£ Background, including legislation or study status, special provisions

£ Alternatives that address the goals, objectives, issues, and opportunities

£ Preferred alternative that best achieves the goals, objectives, issues, 

and opportunities

£ Management framework – parkwide or by zone

£ Desired conditions

£ Measures

£ Standards

£ Management actions

£ Process for implementing minimum requirements analysis

£ Implementation strategy
References and Appendix

75

Compliance

£ Summary

£ Purpose and need

£ List of planning issues to be addressed and issues not considered

£ Impact topics retained, dismissed

£ Range of alternatives, including no action and identification of preferred

£ Environmentally preferable alternative

£ Mitigation measures

£ Summary table of alternatives and impacts

£ Affected environment for impact topics, including wilderness character

£ Impact analysis that meets current DO-12 requirements

£ Wilderness character impacts analyzed with the four qualities, and fifth if 

applicable

£ Completed section 7 Endangered Species Act consultation, if appropriate

£ Completed section 106 National Historic Preservation Act consultation, if 

appropriate

£ Completion of other required compliance for specific impact topics (e.g., 

wetlands)

£ Consultation and coordination

£ Substantive comment letters (or a summary) in a final environmental 

impact statement

£ Preparers

£ Bibliography

£ Decision document (Finding of No Significant Impact or Record of Decision)
Wilderness Stewardship Division | Wilderness Stewardship Program 

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Appendix 2.1–Where To Go For More Information: 

References And Examples

Table 8. Where to go for more information about Handbook topics.

Topics Sources

Scoping, project agreements, public involvement, 

consultation, developing alternatives, preparing 

environmental documents, and identifying a preferred 

alternative

•  NPS General Management Planning Dynamic Sourcebook

•  Director’s Order 75A: Civic Engagement and Public 

Involvement

Visitor use measures, standards •  NPS General Management Planning Dynamic Sourcebook

•  Visitor Experience and Resource Planning Handbook

National Environmental Policy Act and preparation of 

environmental documents

•  NPS Director’s Order 12: Conservation Planning, 

Environmental Impact Analysis, and Decision-making and the 

DO-12 Handbook

•  Interim Guidance Director’s Order 12 Categorical Exclusions 

Building blocks: Basic wilderness information, wilderness 

character narrative

•  Chapter 2: Keeping It Wild in the National Park Service: A 

User Guide to Integrating Wilderness Character into Park 

Planning, Management, and Monitoring

Integrating wilderness character into planning: park 

foundation documents, general management plans, 

resource stewardship strategies, long range interpretive 

plans, exotic plant management plans, climbing 

management plans, fire management plans, climate 

change planning

•  Chapter 3: Keeping It Wild in the National Park Service: A 

User Guide to Integrating Wilderness Character into Park 

Planning, Management, and Monitoring

Using wilderness character in management: minimum 

requirements decisions, science and research activities, 

addressing wilderness character in compliance documents, 

commercial services, maintenance activities, search and 

rescue, law enforcement, and wildland fire, interpretation, 

resource management activities, cultural resources, training 

for park staff

•  Chapter 4: Keeping It Wild in the National Park Service: A 

User Guide to Integrating Wilderness Character into Park 

Planning, Management, and Monitoring

Tracking change in wilderness character: identifying and 

prioritizing measures, gathering baseline data, entering 

data into the wilderness character database application

•  Chapter 5: Keeping It Wild in the National Park Service: A 

User Guide to Integrating Wilderness Character into Park 

Planning, Management, and Monitoring

Other tools: Mapping wilderness character, wilderness 

commercial services evaluation

•  Chapter 6: Keeping It Wild in the National Park Service: A 

User Guide to Integrating Wilderness Character into Park 

Planning, Management, and Monitoring
References and Appendix

77

Useful Links

NPS Policies and Reference Manuals

Check online at the NPS Office of Policy for the latest versions of management 

policies, director’s orders, and related documents at http://www.nps.gov/

applications/npspolicy/index.cfm:

NPS Management Policies 2006, chapter 2, “Park System Planning,” and 

chapter 6, “Wilderness Preservation and Management”

•  NPS Director’s Order 41: Wilderness Stewardship, 2013

•  NPS Reference Manual 41: Wilderness Stewardship, 2013

•  NPS-28: Cultural Resource Management Guideline (June 11, 1998)

•  General Management Planning Dynamic Sourcebook, (part of Director’s 

Order 2), version 2.1, March 2008 as revised

•  NPS Director’s Order 12: Conservation Planning, Environmental Impact 

Analysis, and Decision-making and DO-12 Handbook

•  NPS Director’s Order 75A: Civic Engagement and Public Involvement

(August 30, 2007)

Resources at the NPS Wilderness Character SharePoint site

(http://share.inside.nps.gov/sites/WASO/WSD/WC):

•  Keeping It Wild: An Interagency Strategy to Monitor Trends in Wilderness 

Character Across the National Wilderness Preservation System. 2008. 

Landres, P., C. Barns, J.G. Dennis, T. Devine, P. Geissler, C.S. McCasland, L. 

Merigliano, J. Seastrand, and R. Swain. General Technical Report RMRSGTR-212. USDA Forest Service, Rocky Mountain Research Station, 

Fort Collins, CO

•  Keeping It Wild in the National Park Service: A User Guide to

Integrating Wilderness Character into Park Planning, Management, 

and Monitoring (2014)

•  New and emerging examples of wilderness building blocks, 

wilderness stewardship plans

Other Key Publications:

•  VERP: Visitor Experience and Resource Protection Framework: A Handbook 

for Planners and Managers. 1997. Belnap, J., W.A. Freimund, J. Hammett, J. 

Harris, M. Hof, G. Johnson, D.W. Lime, R.E. Manning, S.F. McCool, M. Rees. 

National Park Service, Denver Service Center: Denver, CO
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Training

On-line training for wilderness stewardship planning offered by the Arthur 

Carhart National Wilderness Training Center can be found under “Training” at 

http://wilderness.net/NWPS/training. There is free enrollment for online courses. 

There are a number of courses offered including “The Wilderness Act of 1964,” 

“Minimum Requirements Analysis,” “Cultural Resources,” “Paleontology,” and in 

particular for wilderness stewardship planning, the two courses described below. 

Note that this training was developed before integration of the Keeping It Wild

wilderness character framework, and the Handbook contains the more recent 

material.

•  Wilderness Stewardship Planning Framework—This course contains nine 

modules designed to assist in understanding, developing and selecting 

management action alternatives and in implementing an action plan. 

Prerequisite: The Wilderness Act of 1964. Recommended: Minimum 

Requirements Analysis.

•  Visitor Use Management—This course contains nine modules organized 

in three sessions: fundamentals, strategies, and monitoring impacts and 

uses. Prerequisite: The Wilderness Act of 1964. Recommended: Minimum 

Requirements Analysis.
References and Appendix

79

Appendix 2.2–Examples Of Wilderness Stewardship Planning

The following examples are available at the time of the publication of the 

Handbook. Check for emerging, more current examples at the NPS Wilderness 

Character SharePoint site at http://share.inside.nps.gov/sites/WASO/WSD/WC.

Table 9. Examples of wilderness stewardship planning.

Plan Notes

Apostle Islands

General Management Plan

Wilderness Management Plan

Environmental Impact Statement

August 2009

Example of combined general management plan and 

wilderness stewardship plan.

Black Canyon of the Gunnison National Park/ Curecanti 

National Recreation Area

Draft Wilderness / Backcountry Management Plan

Environmental Assessment

August 2011

Combines backcountry and wilderness stewardship for the two 

park units into one plan; includes a climbing management plan 

and addresses commercial services.

Death Valley National Park

Wilderness and Backcountry Stewardship Plan and 

Environmental Assessment

August 2013

This effort has fully adopted wilderness character throughout 

the process and provides examples of tribal consultation, 

selection of measures, development of alternatives and cost 

estimates, and applying wilderness character mapping to 

planning. The plan also addresses historic structures and 

landscapes.

Denali National Park and Preserve

Final Backcountry Management Plan

General Management Plan Amendment

Environmental Impact Statement

January 2006

The summary notes that this plan also serves as a soundscape 

preservation and noise management plan, wilderness 

management plan, and commercial services plan for the 

backcountry.

Gates of the Arctic National Park and Preserve

Draft General Management Plan Amendment/

Wilderness Study / Environmental Impact Statement

Internal Draft May 2012

This plan includes a wilderness study and wilderness character 

narrative and addresses the integration of wilderness character.

Jimbilnan, Pinto Valley, Black Canyon, Eldorado, Ireteba 

Peaks, Nellis Wash, Spirit Mountain, and Bridge Canyon 

Wilderness Areas, Clark County, Nevada

Draft Wilderness Management Plan

Environmental Assessment

April 2008

This is an interagency plan with the Bureau of Land 

Management and addresses multiple wilderness units.

Joshua Tree National Park

Backcountry and Wilderness Management Plan, General 

Management Plan Amendment

Environmental Assessment

January 2002

This plan combines wilderness and backcountry with a general 

management plan amendment and has a significant climbing 

component.

Lava Beds National Monument

Wilderness Management Plan

Environmental Assessment

November 2006

A straightforward wilderness plan that closely follows the 2004 

Wilderness Stewardship Plan Handbook format and content. It 

generically incorporates the term wilderness character, but not 

the specific qualities.
Wilderness Stewardship Division | Wilderness Stewardship Program 

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Plan Notes

Petrified Forest National Park

Wilderness Stewardship Plan / Environmental Assessment

February 2013

The plan describes the new wilderness stewardship framework 

and states that “Wilderness character is the framework’s 

unifying element and the foundation of all management 

decisions proposed in the plan.” The other features of value 

quality of wilderness character is identified in relation to the 

park’s paleontological resources.

Rocky Mountain National Park

Wilderness and Backcountry Management Plan

Environmental Assessment

2002

One of the first newer generation wilderness stewardship plans 

that was more than a visitor use plan.

Saguaro National Park

Comprehensive Trails Management Plan

Environmental Assessment

2009

This is not a wilderness stewardship plan, but has many aspects 

that are relevant for wilderness planning such as visitor use 

indicators and standards.

Zion National Park

Backcountry Management Plan

Environmental Assessment

2007

Backcountry plan with good examples of visitor use indicators, 

standards and management strategies.
References and Appendix

81

Appendix 3–Emerging Ideas In Analysis: Tools For Teams

There are many new and emerging ideas about gathering, analyzing, and 

interpreting wilderness character data, and interdisciplinary teams at a park are 

encouraged to explore these tools.

As part of the wilderness stewardship planning effort at Death Valley National 

Park, wilderness character indicators and measures were put into a geospatial 

format to create a map of wilderness character (figure 2). Impacts to wilderness 

character from the four different plan alternatives were assessed using the 

wilderness character map. First the data inputs for each wilderness character 

indicator were evaluated and those that would be modified by the actions 

proposed in that alternative were changed to reflect the anticipated outcome 

20 years in the future of implementing that alternative. Then each indicator 

was assessed for possible actions that would cause it to degrade, improve, or 

stay the same under each alternative, recognizing that some indicators would 

not be changed as a result of any of the alternatives identified in this plan (e.g., 

sources of air and light pollution that originate far beyond park boundaries). 

The mapped indicators were then compiled to represent their respective quality 

of wilderness character (untrammeled, natural, undeveloped, and outstanding 

opportunities for solitude or primitive and unconfined recreation) for each of 

the four alternatives. The four maps of the four qualities were then compiled 

into one overall wilderness character map for each alternative. These data input 

changes, indicator maps, maps of each quality of wilderness character for each 

alternative, and the overall maps showing the combined four qualities were used 

to analyze and describe the anticipated impacts to wilderness character posed by 

each alternative, with specific consideration of where proposed actions would 

degrade or improve a quality of wilderness character.

Note that Death Valley wilderness character mapping was done prior to 

identifying the other features of value quality, so the mapping used only four 

qualities of wilderness character. However, during map development the park 

worked with the Timbisha Shoshone Tribe to identify areas of tribal interest 

using a similar mapping technique. While that was useful in gaining insights 

into tribal values of wilderness and place-based importance, it was ultimately 

dropped from the public documents at the request of the tribe. The technical 

report on the mapping process and outcomes is available on wilderness.net 

at http://www.wilderness.net/toolboxes/documents/WC/Spatial%20model%20

of%20wilderness%20character%20in%20Death%20Valley%20NP.pdf.

Analysis of the map products for planning could show, quantitatively, how 

wilderness character changes across different plan alternatives. For example, 

figure 3 shows a small section of Death Valley centered on a grazing allotment 

(the prominent light colored polygon on the left center of figure 2). The top half 

of figure 3 shows the current condition with the existing grazing allotment, and 

the bottom half of figure 3 shows this same area without the grazing allotment. 

The corresponding bar graphs for both scenarios in figure 3 show the number 

of pixels in each of the 10% categories, using the technique described in the 

capture of figure 2. The effect of closing the grazing allotment on wilderness 

character can be quantified by comparing the number of pixels in each of the 

different 10% bars under each of the different plan alternatives, as shown 

in figure 3.
Figure 2. Wilderness Character at Death Valley Wilderness

from the combined four Qualities.

91-100% (optimal wilderness character)

Non wilderness

0-10% (degraded wilderness character)

81-90%

71-80%

61-70%

51-60%

41-50%

31-40%

21-30%

11-20% 10 20 30 40 N

Km

0

Wilderness Stewardship Division | Wilderness Stewardship Program 

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The scale divides all the pixels in this map into 10% categories, with the top 10% of pixels that are the least 

degraded in darkest green, and the bottom 10% of pixels that are the most degraded in darkest brown. The 

other features of value quality of wilderness character is not included as it was developed after Death Valley 

wilderness character mapping was completed.
Figure 3. Quantifying the Effect of Different Plan

Alternatives on Wilderness Character.

20

40

60

80

100

120

0-10

11-20

21-30

31-40

41-50

51-6061-70

71-8081-90

91-100

Pixel Count (thousands)

Classes (percent)

20

40

60

80

100

120

0-10

11-20

21-30

31-40

41-50

51-6061-70

71-8081-90

91-100

Pixel Count (thousands)

Classes (percent)

References and Appendix

83

82

21

200

907

14,054

40,549

83,866 94,522

43,817

82

1644

354

1,449 16,909

104,265

111,012

43,889
Wilderness Stewardship Division | Wilderness Stewardship Program 

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Review of wilderness basics

Introduction to wilderness character

Develop wilderness character narrative

Select preliminary measures

Conduct internal scoping

Complete environmental screening form

Analyze and synthesize public comments and consultation

Create alternatives and management zones

Finalize measures, develop standards, actions

Identify general impacts

Identify preferred alternative

Identify implementation strategies

Workshops and team meeting topics

Gathering and organizing an interdisciplinary team is important and takes time. 

There are a number of steps where it is advisable to bring the team together 

in a meeting or workshop. For efficiency and effectiveness, it is possible to 

group some of these steps into one workshop. The figure below contains a list 

of workshop subjects and some possible combinations for workshops of one or 

more days. There is no single way to organize or group workshops and meetings. 

The circles in the figure illustrate some possible groupings of workshops. Sample 

agendas can be found at the NPS Wilderness Character SharePoint site at 

http://share.inside.nps.gov/sites/WASO/WSD/WC.

Figure 4. Grouping workshop and team meeting topics.
This is a tool to inspire 

robust discussion and is 

not precisely calibrated...

...nor is it a 

mathematical or 

quantitative exercise

References and Appendix

85

Arrows exercise for wilderness character qualities

A technique to facilitate group discussion about wilderness character for 

application to wilderness stewardship plan development is the use of arrows 

to indicate where a park is along a continuum for each quality of wilderness 

character. In this exercise, two-ended arrows are drawn on large paper or a flip 

chart, one for each quality of wilderness character. The left end of the arrow 

represents the least or worst condition of the quality and the right end of the 

arrow represents the best or highest condition of the quality. At the beginning 

of this exercise, the group should review Keeping It Wild’s description of 

the qualities and associated monitoring questions, indicators, and measures. 

The leader of the group facilitates a discussion of the existing condition of 

each quality, records a list of reasons for that condition, and seeks to develop 

consensus among the team to mark a point on the spectrum representative of 

the wilderness. Alternatively, each person in the group can be given a “sticky 

dot” to place on the spectrum. If there is a clustering of the dots, one can reach 

a conclusion that everyone has similar perceptions of the wilderness character 

quality. If the dots are scattered, it is illuminating to have a discussion about why 

there are such differences. Discussion and recording of the results can inform the 

wilderness character narrative and the description of wilderness character in the 

affected environment section of the wilderness stewardship plan. The outcome 

of this exercise is indicated by the dot on figure 5 labeled “Today.”

Another use of this exercise is in determining current and desired future 

conditions. The arrows can be used for a discussion of where the mark is heading 

(trends) under existing management (e.g., no action alternative), and where it 

realistically could be set for desired future outcomes of plan implementation. 

The outcome of this exercise is indicated by the dot on figure 5 labeled “Desired 

Future” and the arrow labeled “Trend.” Another idea is to use this tool in the 

development of zones and their desired future conditions, such that the arrows 

are replicated for each zone.

Still another use of this exercise is in analyzing the likely outcomes of each 

alternative in order to inform the impact analysis and to help clarify the relative 

tradeoffs, costs, and benefits of each alternative relative to each quality of 

wilderness character. While the arrow diagrams themselves are primarily for 

internal use and communication within the IDT based on perception and best 

professional judgment, the discussion that comes from the exercise could be used 

to draft the text for environmental consequences for wilderness character as an 

impact topic. This can inform selection of standards and management actions in 

the plan.
Figure 5. Arrow diagrams for wilderness character qualities.

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Note: Though the other features of value quality is not represented in figure 5, a similar technique could be 

applied to specific features that compose that quality. For example, the better or worse condition of cultural 

resources that contribute to wilderness character could be identified on the spectrum.

Untrammeled

Natural

Undeveloped

Solitude or primitive / unconfined

Today

Today

Today

Today

Trend

Trend

Trend

Trend

Desired Future

Desired Future

Desired Future

Desired Future

More 

Solitude or 

Primitive and 

Unconfined 

Recreation

Less 

Developed

More Natural

Less 

Trammeled

More 

Trammeled

Less Natural

More 

Developed

Less 

Solitude or 

Primitive and 

Unconfined 

Recreation
References and Appendix

87

Appendix 4–Action Topics To Consider In Developing A

Wilderness Stewardship Plan

This appendix provides a direct link between traditional action topics and 

wilderness character. A park can identify the issues and action topics that the 

wilderness stewardship plan should specifically address through setting goals 

and scoping. Many of these topics can be found in sections 6.3 and 6.4 of NPS 

Management Policies 2006 where clear guidance is already established. Some 

of these topics may be addressed in other plans, such as a fire management 

plan or a trails plan. If these topics are adequately addressed by policy or in 

another current plan, there is usually no need to repeat policy or cite sections of 

another plan within the wilderness stewardship plan (provide cross-references if 

appropriate). When there is discretion within the policy or other plans and there 

is a need to state more specifically how the policy or plan will be applied to this 

wilderness and focus on preservation of wilderness character, more guidance may 

be developed in the wilderness stewardship plan.

Many actions related to these issues and topics may be addressed within the 

environmental assessment or environmental impact statement in “Actions 

Common to All Alternatives” where they apply across the board. Actions 

proposed for a park wilderness can also be described in alternative or zone 

descriptions when the action varies by alternative or zone. Within zones, 

some actions may help describe desired conditions, or establish measures 

and standards. Find the appropriate and most logical place in the plan to 

communicate the actions.
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Every wilderness is unique, yet there are many issues or action topics that tend 

to recur in wilderness plans throughout the National Park Service. A list 

of potential action topics is provided here to consider in developing zones 

and alternatives. It is highly unlikely that any one park will need to include 

everything on this list. Further, this list is not all-inclusive and there may 

be additional topics that need to be addressed in a particular wilderness 

(e.g., integrated pest management, or hazardous materials). The wilderness 

stewardship plan needs to stay tightly focused on those topics most important to 

preserving wilderness character. For convenience, these potential action topics 

are divided into three major categories:

•  RESOURCE MANAGEMENT (described in detail in appendix 4.1)

£ Wildlife

£ Fisheries Resources

£ Vegetation Resources

£ Soil Resources

£ Air Resources

£ Aquatic Resources

£ Fire Management

£ Natural Soundscapes

£ Night Skies

£ Viewsheds

£ Archeological Resources

£ Ethnographic Resources

£ Historic or Prehistoric Structures

£ Cultural Landscapes

£ Museum Collections

£ Paleontological Resources

£ Climate Change

•  VISITOR EXPERIENCE (described in detail in appendix 4.2)

£ Visitor Use Management

£ Risk and Challenge

£ Campfires

£ Stock Use

£ Winter Use

£ Access for Persons with Disabilities

£ Hunting and Fishing

£ Climbing, Mountaineering, and Canyoneering

£ Watercraft

£ Special Events

£ Emerging Uses
References and Appendix

89

•  ADMINISTRATIVE ACTIONS AND FACILITIES (described in detail 

in appendix 4.3)

£ Emergency Services (SAR, EMS, LE)

£ Group Size

£ Use Permits and Reservation Systems

£ Administration of Scientific Activities

£ Rehabilitation and Revegetation

£ Interpretation and Education

£ Existing Valid Rights

£ Commercial Services and Special Park Uses

£ Administration of Potential, Proposed, Recommended, and Suitable 

Wilderness and Wilderness Study Areas

£ Interagency Coordination and Partnerships

£ Trails and Trailhead Management

£ Campsite Management

£ Signs and Other Route Markings

£ Ranger Stations, Equipment Caches and Visitor Use Shelters

£ Food Protection Systems

£ Sanitation and Waste Management Facilities

£ Radio Repeaters / Communication Facilities

Appendixes 4.1, 4.2, and 4.3 that follow offer detailed guidance for developing 

these action topics. These appendixes describe the action topic or issue, identify 

the topic’s relationship to wilderness character, and describe how the topic might 

be addressed in the plan. In addition, these appendixes may assist park staff in 

considering what qualitative guidance or quantitative standards are needed 

within a wilderness stewardship plan to address issues of concern.
Wilderness Stewardship Division | Wilderness Stewardship Program 

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Appendix 4.1—Resource management action topics to

consider in developing a wilderness stewardship plan

Wildlife

•  Issue/action topic—Proposed actions related to wildlife that may be 

addressed in a wilderness stewardship plan include those for managing 

human use to protect wildlife and those to protect people from nuisance 

wildlife. You may want to address human disturbance of wildlife, 

prevention of problems, special category wildlife, nonnative species, 

native species reintroductions, river use impacts on wildlife, nuisance 

animals, artificial wildlife habitat enhancements (e.g., guzzlers), and 

special management considerations for species such as grizzly bears. This is 

the place you may want to provide foundational guidance for managing 

wildlife within wilderness that would then be used to develop subsequent 

plans (e.g., bear management plan, species reintroduction plan). List any 

measures and standards that are a part of wilderness-specific wildlife 

monitoring programs and management actions triggered by the standards.

•  Relationship to wilderness character—Wildlife is addressed by several 

indicators under the natural quality, for example, the indicator “Plant and 

animal species and communities” and some aspects of wildlife habitat may 

fit under the “Physical resources” and “Biophysical processes” indicators. 

Many wildlife management actions are also relevant to the untrammeled 

quality under the indicators “Actions authorized by the federal land 

manager that manipulate the biophysical environment” and “Actions not 

authorized by the federal land manager that manipulate the biophysical 

environment.”

•  Relevant wilderness stewardship plan section—If management actions 

are being proposed to address wildlife issues or to resolve wildlife-human 

conflicts, include this topic in your description of zones and/or alternatives. 

If they do not vary by alternative they could be described in the “Actions 

Common to All Alternatives” section.

Fisheries Resources

•  Issue/action topic—Objectives might include the protection and restoration 

of native fisheries and fish species of management concern. Prevention of 

impacts on fish caused by human activities (e.g., shoreline erosion) could 

be addressed. Presence of nonnative fish may be addressed along with 

acceptable methods for removal (based on minimum requirements). Active 

stocking of game fish, either authorized or unauthorized, may also be 

addressed. List any measures and standards that are a part of wildernessspecific fisheries monitoring programs and management actions triggered 

by the standards.
References and Appendix

91

•  Relationship to wilderness character—Fisheries are addressed by several 

indicators under the natural quality, for example the indicator “Plant and 

animal species and communities” and some aspects of fish habitat may 

fit under the “Physical resources” and “Biophysical processes” indicators. 

Many fisheries management actions, particularly stocking, are also relevant 

to the untrammeled quality under the indicator “Actions authorized by 

the federal land manager that manipulate the biophysical environment” 

and if the stocking is illegal it is relevant to the indicator “Actions not 

authorized by the federal land manager that manipulate the biophysical 

environment.”

•  Relevant wilderness stewardship plan section—If management actions are 

being proposed to address fish conservation and/or fisheries management 

issues, include this topic in your description of zones and/or alternatives.

Vegetation Resources

•  Issue/action topic—Management of rare or endemic plant species, special 

plant habitats (e.g., dunes), edge of range species, and ethnobotanical 

resources should be included. Also, changes in vegetative composition 

(particularly those related to altered fire regimes or climate change), 

nonnative plants, extirpated plant species, and collection and consumption 

of plant materials can be discussed here. Provide guidance for protecting 

vegetation from the impacts of visitor and park staff activities and describe 

the level of change in native vegetation that will be allowed. State where 

and how much human-caused bare ground is acceptable (e.g., at campsites, 

day use sites, on social trails, parallel and braided trails). You may find 

that specific bare ground standards for sites are better placed under 

“Campsite Management.” List any measures and standards that are a part 

of wilderness-specific vegetation monitoring programs and management 

actions triggered by the standards.

•  Relationship to wilderness character—Vegetation is addressed by several 

indicators under the natural quality, for example the indicator “Plant 

and animal species and communities” and some aspects of plant habitat 

may fit under the “Physical resources” and “Biophysical processes” 

indicators. Many vegetation management actions are also relevant to 

the untrammeled quality under the indicator “Actions authorized by the 

federal land manager that manipulate the biophysical environment.”

•  Relevant wilderness stewardship plan section—If management actions are 

being proposed to manage plants (e.g., nonnative plant control, vegetation 

monitoring) or monitor natural conditions related to vegetation, include 

this topic in your description of zones and/or alternatives.
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Soil Resources

•  Issue/action topic—Consider the extent and magnitude of disturbance or 

loss of soil or soil crusts and the relevance of such losses to the ecosystem. 

If this is an issue of concern, develop standards and management actions 

aimed at controlling human-caused or indirectly human-related (e.g., 

grazing impacts) soil erosion and/or compaction. You may describe how 

much is acceptable under various circumstances (e.g., along stream banks, 

at campsites, on trails). List any measures and standards that are a part 

of wilderness-specific soil monitoring programs and management actions 

triggered by the standards.

•  Relationship to wilderness character—Soil as a natural resource is 

addressed by the natural quality under the indicator “Physical resources.” 

Management actions directed at soil are addressed by the untrammeled 

quality under the indicator “Actions authorized by the federal land 

manager that manipulate the biophysical environment.” Recreational 

impacts on soil resources are addressed by the solitude or primitive and 

unconfined recreation quality under the indicator “Remoteness from sights 

and sounds of people inside the wilderness.”

•  Relevant wilderness stewardship plan section—If management actions are 

being proposed to manage soil resources (e.g., erosion prevention, soil 

crust protection, etc.) or monitor natural conditions related to soils, include 

this topic in your description of zones and/or alternatives.

Air Resources

•  Issue/action topic—If not mentioned previously, state the class of air shed 

assigned to the park and/or wilderness area. List objectives for protection 

of any air quality-related values associated with the wilderness (e.g., 

vegetation, water quality, cultural landscapes, and scenic vistas). You 

may want to describe how impacts to wilderness air quality from sources 

such as wildland fire, management prescribed fire, and campfires will be 

minimized, or refer to other plans. Keep in mind that guidelines for air 

quality protection related to wilderness that are stated in this document 

can help provide a foundation for protection of wilderness-related values 

discussed in other plans (e.g., fire management plan). List any measures 

and standards that are a part of wilderness-specific air quality monitoring 

programs and management actions triggered by the standards.

•  Relationship to wilderness character—Air resources are addressed by the 

natural quality under the “Physical resources” indicator. Visibility as an 

air quality related value specific to visitor experience is addressed by the 

solitude or primitive and unconfined recreation quality under the indicator 

“Remoteness from occupied and modified areas outside the wilderness.”

•  Relevant wilderness stewardship plan section—Air quality monitoring 

and desired resource conditions may be included in the zones or 

alternatives and prescribed management actions triggered by standards 

should also be included.
References and Appendix

93

Aquatic Resources

•  Issue/action topic—You may want to provide objectives for managing 

aquatic resources including water quality, lakes, rivers and streams, 

springs, wetlands, and the riparian environment. Discuss water quality 

degradation from human activities, impacts from human waste and how 

these will be managed at acceptable levels, and what those acceptable 

levels are. Consideration for inspections of underground fuel tanks and 

sewage treatment facilities that could affect wilderness might be included. 

Consider including required mitigation measures for compliance with 

executive orders on protection of floodplains and wetlands. You may 

wish to propose the establishment of wilderness monitoring programs 

to determine the effects of recreational use and management activities 

on specific aquatic resources. List any measures and standards that are a 

part of wilderness-specific aquatic resources monitoring programs and 

management actions triggered by the standards.

•  Relationship to wilderness character—Aquatic resources are addressed by 

the natural quality under the “Physical resources” indicator.

•  Relevant wilderness stewardship plan section—Aquatic resource 

monitoring and desired resource conditions may be included in the zones 

or alternatives and prescribed management actions triggered by standards 

should also be included.

Fire Management

•  Issue/action topic—If the park’s approved fire management plan already 

addresses fire in wilderness, it can be briefly summarized and referenced. 

If the fire plan does not adequately address the issue, this section can be 

written to update the fire plan. In either case, describe in the wilderness 

stewardship plan how the fire management program will be carried out 

so that wilderness character is preserved. Guidance based on minimum 

requirements for activities related to detection, suppression, and post-fire 

rehabilitation could be described. You might want to describe any specific 

procedures that will be followed within wilderness areas (e.g., minimum 

impact suppression tactics) and the specific minimum tools approved for 

each activity. Parameters for conducting hazard fuel reduction in wilderness 

could be provided. This section should include foundational guidance to 

be used to develop sections of the park’s fire management plan (or fire 

management plan update) that relate to wilderness. List any measures and 

standards that are a part of wilderness-specific fire monitoring programs 

and management actions triggered by the standards.
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•  Relationship to wilderness character—Fire as a natural process (including 

departure from natural fire regimes) is addressed by the natural quality 

under the “Biophysical processes” indicator. Fire management actions, 

including suppression of natural ignitions and use of management ignited 

prescribed fire, are addressed by the untrammeled quality under the 

indicator “Actions authorized by the federal land manager that manipulate 

the biophysical environment.” Arson fire may be included in the “Actions 

not authorized by the federal land manager that manipulate the 

biophysical environment.” Fire management actions that involve the use 

of motorized equipment or mechanical transport (e.g., chainsaws, portable 

pumps, helicopter landings, etc.) are addressed by the undeveloped 

quality under the indicator “Use of motor vehicles, motorized equipment, 

and mechanical transport.” Remote automated weather stations and 

temporary repeaters installed in wilderness during fire incidents affect 

the undeveloped quality under the indicator “Nonrecreational structures, 

installations, and developments.”

•  Relevant wilderness stewardship plan section—Fire management 

opportunities and limitations can be incorporated into zones and/or 

alternatives and should parallel the fire management strategies identified 

for fire management units in the fire management plan. Prescribed 

management actions triggered by standards should also be included.

Natural Soundscapes

•  Issue/action topic—Describe the quality of the natural soundscape 

and where noise intrusions are an issue. Include how the park 

intends to preserve the natural soundscape and reduce noise impacts, 

including impacts from aircraft overflights, adjacent motorized uses, 

and administrative uses that generate noise. If you have an air tour 

management plan, you can cross-reference relevant guidance related to 

flight routes, minimum/maximum flight altitudes, time of day for flights, 

and mitigation measures. Where military or noncommercial overflights are 

a concern, you may include guidance for working with those responsible 

(both agencies and nongovernmental organizations) to reduce or eliminate 

noise and visual impacts. Incorporate appropriate education strategies 

regarding wilderness values and noise impacts. List any measures and 

standards that are a part of wilderness-specific soundscape monitoring 

programs and management actions triggered by the standards.

•  Relationship to wilderness character—Natural soundscapes are addressed 

by the indicator “Remoteness from occupied and modified areas outside 

the wilderness” under the solitude or primitive and unconfined recreation 

quality. It may also relate to the indicator “Use of motor vehicles, 

motorized equipment, or mechanical transport” under the undeveloped 

quality.

•  Relevant wilderness stewardship plan section—If actions are being 

proposed to manage the natural soundscape, include this topic in your 

description of zones and/or alternatives. Standards for noise impacts on 

the natural soundscape may be developed. If soundscape standards can 

readily and appropriately be varied by wilderness zones, this may be 

effective. Alternatively, soundscape standards could vary by alternative, or 

be common to all alternatives.
References and Appendix

95

Night Skies

•  Issue/action topic—Describe how the park might reduce and mitigate 

impacts to the natural lightscape of the wilderness for the protection of 

dark night skies as both a natural resource and an experiential value for 

park visitors. Consider opportunities to reduce or eliminate sources of 

light pollution within the park. You may include guidance for working 

with outside entities to reduce human-caused light impacts on wilderness. 

Incorporate educational strategies about the values of natural night skies. 

List any measures and standards that are a part of wilderness-specific 

night sky monitoring programs and management actions triggered by the 

standards.

•  Relationship to wilderness character—Night skies are addressed by the 

indicator “Remoteness from occupied and modified areas outside the 

wilderness” under the solitude or primitive and unconfined recreation 

quality.

•  Relevant wilderness stewardship plan section—If actions are being 

proposed to manage night skies, include this topic in your description of 

zones and/or alternatives.

Viewsheds

•  Issue/action topic—Describe the quality and contribution of viewsheds 

to opportunities for solitude and the remoteness from the sights and 

sounds of people if there is an issue with threats to important views. 

Examples include energy development, urbanization, logging, etc. GIS is 

an important tool for determining the extent of important viewsheds on 

the ground. Describe the extent to which viewsheds are inside or outside 

of wilderness, and where significant portions of important viewsheds 

are outside of wilderness describe what protections, if any, may be in 

place (other governmental protections, easements, etc.). You may include 

guidance for working with outside entities to eliminate or mitigate 

visual impacts. Incorporate appropriate education strategies regarding 

wilderness values and viewshed impacts. List any measures and standards 

that are a part of wilderness-specific viewshed monitoring programs and 

management actions triggered by the standards.

•  Relationship to wilderness character—Viewsheds are addressed by the 

indicator “Remoteness from occupied and modified areas outside the 

wilderness” under the solitude or primitive and unconfined recreation 

quality.

•  Relevant wilderness stewardship plan section—If actions are being 

proposed to manage viewsheds, include this topic in your description of 

zones and/or alternatives.
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Archeological Resources

•  Issue/action topic—Indicate the National Register of Historic Places 

status of any archeological resource in the park’s wilderness area. If an 

inventory of archeological resources is incomplete, describe how it will be 

completed. You may want to address the management of human use to 

prevent disturbance or propose the establishment of wilderness monitoring 

programs to determine the effects of recreation and management activities 

on archeological resources. Marked and unmarked prehistoric and historic 

burial areas (cemeteries) and reinterments in wilderness may be addressed. 

List any indicators and standards that are a part of wilderness-specific 

archeological resources monitoring programs. Consultation with cultural 

resource professionals is essential.

•  Relationship to wilderness character—Archeological resources may be 

addressed by the indicator “Loss of statutorily protected cultural resources” 

under the other features of value quality.

•  Relevant wilderness stewardship plan section—Proposed actions related 

to archeological resources may not vary by zone and/or alternative so they 

may be best described in “Actions Common to All Alternatives.” If it does 

vary, include it in the zone and/or alternative descriptions.

Ethnographic Resources

•  Issue/action topic—There may be ethnographic resources that are 

wilderness related, and objectives for protecting and managing those 

resources could be addressed here. Traditional access and use of 

ethnographic resources, which can include natural resources, in wilderness 

areas should be considered. Sacred sites having established religious 

meaning could be addressed in this section. The wilderness experience 

aspects of traditionally associated peoples are often overlooked and could 

be addressed here or in the “Visitor Experience” section. If an inventory of 

ethnographic resources is incomplete, describe how it will be completed.

•  Relationship to wilderness character—Ethnographic resources may be 

addressed by the indicator “Loss of statutorily protected cultural resources” 

under the other features of value quality.

•  Relevant wilderness stewardship plan section—Proposed actions related 

to ethnographic resources may not vary by zone and/or alternative so they 

may be best described in “Actions Common to All Alternatives.” If it does 

vary, include it in the zone and/or alternative descriptions.
References and Appendix

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Historic or Prehistoric Structures

•  Issue/action topic—Describe here any guidance related to the management 

of historic or prehistoric structures within wilderness. Objectives might 

be given for survey, protection, restoration, or use of structures or other 

management prescriptions that are wilderness specific. Indicate the 

National Register of Historic Places status of any structure in the park’s 

wilderness areas. You may wish to address any issues related to the 

relationship between management of historic/prehistoric structures and 

protection of other wilderness values (e.g., removal of trees to protect 

historic structures from decay). This could be done through specific 

proposed actions or criteria to consider in decision making. If historic 

structures are also being used for administrative purposes, cross reference 

to the facilities section. If the evaluation for National Register of Historic 

Places eligibility of historic structures is incomplete, describe how it will be 

completed. List any indicators and standards that are a part of wildernessspecific historic/prehistoric structure monitoring programs. Historic trails 

can be covered here or in your “Trail and Trails Management” section.

•  Relationship to wilderness character—Historic or Prehistoric Structures 

may be addressed by the indicator “Loss of statutorily protected 

cultural resources” under the other features of value quality. Proposed 

management activities may relate to the indicator “Use of motor vehicles, 

motorized equipment, or mechanical transport” in the undeveloped 

quality.

•  Relevant wilderness stewardship plan section—If management actions 

related to historic or prehistoric structures are proposed, include this topic 

in your description of zones and/or alternatives.

Cultural Landscapes

•  Issue/action topic—Cultural landscapes may be identified here with 

descriptions of existing conditions and use. If cultural landscapes have not 

been evaluated for National Register of Historic Places eligibility, describe 

how this will be completed. Indicate the National Register of Historic 

Places status of any structure or feature of a cultural landscape in the 

park’s wilderness area. You may wish to address any issues related to the 

relationship between management of cultural landscapes and protection 

of other wilderness values (e.g., evaluation of protection of exotic species 

in the cultural landscape). This could be done through specific proposed 

actions or criteria to consider in decision making. If management actions 

are planned, they should be addressed in this section.

•  Relationship to wilderness character—Cultural Landscapes may be 

addressed by the indicator “Loss of statutorily protected cultural resources” 

under the other features of value quality. This action also may relate to the 

indicator “Actions authorized by the federal land manager that manipulate 

the biophysical environment” under the untrammeled quality or by the 

indicator “Plant and animal species and communities” in the natural 

quality.

•  Relevant wilderness stewardship plan section—If management actions 

related to cultural landscapes are proposed, include this topic in your 

description of zones and/or alternatives.
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Museum Collections

•  Issue/action topic—Some items that are a part of the park museum 

collection may remain in situ within the wilderness on the landscape or 

as historic furnishings in their original arrangement in a historic structure. 

Describe how these items will be protected and monitored. If the park 

already has a collections management plan that addresses collections 

in wilderness, it can be briefly summarized and referenced. If it does 

not adequately address the issue, this section can be written to update 

it including consideration of what museum collections might be left in 

wilderness and why. Describe how periodic museum collection inventories 

and condition assessments will be conducted.

•  Relationship to wilderness character—Museum Collections may be 

addressed under the other features of value quality. Consideration should 

be given to how museum collections management in a wilderness setting 

may affect other qualities of wilderness character.

•  Relevant wilderness stewardship plan section—If management actions 

related to museum collections are proposed, include this topic in your 

description of zones and/or alternatives.

Paleontological Resources

•  Issue/action topic—Describe the extent and significance of paleontological 

resources in the wilderness. If an inventory of paleontological resources is 

incomplete, describe how it will be completed. You may want to address 

the management of human use to prevent disturbance or propose the 

establishment of wilderness monitoring programs to determine the effects 

of recreation and management activities on paleontological resources. 

List any indicators and standards that are a part of wilderness-specific 

paleontological resources monitoring programs. Identify the existing and 

desired extent of research and collection activities, including considerations 

of wilderness character impacts related to collection techniques. There may 

be sensitive location information that should not be publicly shared.

•  Relationship to wilderness character—Paleontological Resources may be 

addressed under the other features of value quality. Consideration should 

be given to how management of paleontological resources in a wilderness 

setting may affect other qualities of wilderness character.

•  Relevant wilderness stewardship plan section—One place this may be 

addressed in the plan is management of scientific activities in wilderness 

and minimum requirements analysis, possibly developing a programatic 

minimum requirements analysis for ongoing programs. Another place 

paleontologial resource management in wilderness may be addressed is in 

measures and standards, and possible actions in visitor use management or 

other strategies to protect them from theft or damage.
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99

Climate Change

•  Issue/action topic—Climate change, particularly to the degree that it is 

human-caused, threatens the values for which these areas were designated. 

It also exacerbates other threats to these areas, such as invasive species 

and habitat fragmentation. As the rate of change increases, wilderness 

stewardship issues will become increasingly complex and difficult, causing 

myriad unanticipated effects to social and ecological dimensions of 

wilderness character. Wilderness management goals traditionally stressed 

preservation of natural conditions—either those that would exist in the 

absence of modern technology, or those representative of historical 

conditions. The reality of climate change suggests that an attempt to 

maintain conditions in an unaffected or historical state is no longer 

feasible, or even desirable, because so-called “natural” conditions will be 

poorly adapted to future climates. Identifying future desirable conditions 

in the face of unprecedented and unpredictable events requires a different 

approach to planning and management.

» Pressure to more actively manage wilderness for resilience, resistance, 

or restoration could result in a significant downward trend in the 

untrammeled quality of wilderness character. Restraint is critical to 

preserving this quality.

» Parks that participate in scenario planning will have a set of 

possible future conditions that can be very informative in wilderness 

stewardship planning.

•  Relationship to wilderness character—Climate change can be reflected 

in multiple qualities of wilderness character. The primary place where it 

is addressed is in the natural quality under the “Biophysical processes” 

indicator: “Extent and magnitude of global climate change.” It also may 

be relevant to indicators for plant and animal species and communities 

and physical resources in the natural quality. Climate change may also 

be addressed in the untrammeled quality under the indicator “Actions 

authorized by the federal land manager that manipulate the biophysical 

environment,” and in the “Actions not authorized by the federal land 

manager that manipulate the biophysical environment.”

•  Relevant wilderness stewardship plan section—Climate change can be 

addressed in a number of parts of the wilderness stewardship plan. 

Climate change may be part of the issues, and may be discussed in the 

affected environment section and should be a part of the impact analysis. 

The inherent tension between natural and untrammeled qualities is an 

important part of developing strategies and analyzing impacts.

» If climate change scenario planning is available, it may be useful to 

include in developing alternatives, such as strategies for invasive 

nonnative plants, trails and other structures, visitor access, visitor 

capacity, etc. For example, the level and type of trail development 

should consider possible increased storm intensities or other scenarios.
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Appendix 4.2—Visitor experience action topics to consider in

developing a wilderness stewardship plan

Visitor Use Management

•  Issue/action topic—The purpose of this section is to describe how the 

park will meet the Wilderness Act mandate for providing opportunities 

for solitude and how it will provide visitors with a high-quality wilderness 

experience. You could describe how the wilderness experience will 

be protected by managing visitor use such as the number of people 

encountered along trails and in campsites. It might describe the type of 

users affected (day vs. overnight) and the techniques used to manage 

visitor use to avoid sensitive resources and protect solitude while still 

providing opportunities for primitive and unconfined recreation. 

Details might include where and how a limit would be established and 

administered (e.g., based on trailhead, camp area, or zone). It might also 

describe measures and standards that would be used to establish and 

adjust use limits. If you establish standards for the number of people 

encountered on the trail or the number of people allowed to camp within 

sight or sound of each other, include them here. The density of campsites 

might also be described. List any measures and standards that are a part 

of wilderness-specific visitor use monitoring programs and management 

actions triggered by the standards.

•  Relationship to wilderness character—Visitor use management and visitor 

capacity are most relevant to the solitude or primitive and unconfined 

recreation quality. Use limits and expectations relate to the indicator 

“Remoteness from sights and sounds of people inside wilderness” and 

may relate to “Remoteness from occupied and modified areas outside 

the wilderness.” It also is likely to relate to “Management restrictions on 

visitor behavior” under the solitude or primitive and unconfined recreation 

quality. In many cases agency visitor use management strategies will 

serve to enhance solitude but sometimes at the expense of unconfined 

recreation. Such “tensions” should be explicitly explained where possible.

•  Relevant wilderness stewardship plan section—Use limits and standards 

are a core part of most plans and probably vary by zone and alternative. 

There is also a wide range of visitor use management strategies that should 

be considered before or in addition to use limits, such as education. This 

topic can be expected to be among the most scrutinized and potentially 

controversial topics considered in the plan.

Risk and Challenge

•  Issue/action topic—Discuss how risk and challenge are inherent in the 

wilderness experience. Self-sufficiency and self-reliance are additional 

elements associated with these topics that could be addressed. You may 

want to make a general statement about the level of control over risk that 

the park might take (e.g., the park will not attempt to eliminate or control 

risks that are part of the wilderness environment). Be careful of your 

language here from a legal point of view.
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101

•  Relationship to wilderness character—Risk and challenge relate to three 

indicators under the solitude or primitive and unconfined recreation 

quality: “Remoteness from sights and sounds of people inside the 

wilderness,” “Remoteness from occupied and modified areas outside the 

wilderness,” and “Facilities that decrease self-reliant recreation.”

•  Relevant wilderness stewardship plan section—The appropriate levels of 

risk and challenge that might be expected within each zone or alternative 

should be addressed (e.g., higher risk and challenge available in a more 

pristine zone than a more developed zone).

Campfires

•  Issue/action topic—If no campfires will be permitted in your wilderness, 

briefly state this. If campfires are allowed, outline the criteria used for 

determining where, when, and how they are acceptable (e.g., by elevation, 

by amount of dead and down wood available, by presence of restoration 

areas, with use of a firepan). List any measures and standards that are a 

part of wilderness-specific visitor use compliance monitoring programs and 

management actions triggered by the standards.

•  Relationship to wilderness character—Campfires may relate to “Plant 

and animal species and communities” and “Physical resources” under 

the natural quality. Campfire management is relevant to the solitude or 

primitive and unconfined recreation quality. Under this quality, campfire 

management relates to the indicator “Remoteness from sights and 

sounds of people inside wilderness.” Providing fire pits may be related 

to “Facilities that decrease self-reliant recreation” and may relate to 

“Management restrictions on visitor behavior,” if restrictions are proposed.

•  Relevant wilderness stewardship plan section—If your park’s regulations 

have not gone through a public involvement process or you are proposing 

changes in campfire management, this should be included in your zone 

or alternatives descriptions. Note that due to ecological factors, campfire 

location decisions often will not relate directly to management zones but 

may be discussed in a category called “Other Management Actions Not 

Attributable to Zoning.”

Stock Use

•  Issue/action topic—If stock users represent an important part of your 

wilderness use, a separate livestock management plan might be 

appropriate. The livestock management plan would provide more detailed 

direction based on the foundational guidance contained within the 

wilderness plan. If the park does not anticipate development of such a 

plan, this section in the wilderness stewardship plan should include as much 

detail as is appropriate for managing and mitigating stock use in your 

wilderness.

Topics to discuss could include protection of plant species and composition, 

nonnative plant prevention, soil erosion, water quality, and education of 

stock users and hikers around stock. Include the types of pack and saddle 

stock permitted within the wilderness, locations where stock travel and 

camping are acceptable (these may vary with zone, elevation, on- and 

off-trail use, or season), and types of acceptable stock restraints. Address 
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stock facilities here, or stock camps in “Campsite Management.” Provide 

guidance for noncommercial stock grazing (e.g., specific areas open to 

grazing, establishment of opening dates for trail travel and meadows 

for grazing).

» If Congress has authorized commercial grazing or livestock driving in 

your wilderness, you may want to describe conditions and requirements 

under “Existing Valid Rights” rather than here. Trails proposed as 

open to stock might be better listed under “Trails and Trailhead 

Management.” Evaluate visitor capacity for stock use and determine 

the allocation for commercial uses. List any measures and standards 

that are a part of wilderness-specific stock use monitoring programs 

and management actions triggered by the standards.

•  Relationship to wilderness character—Stock use may relate to a number 

of qualities and indicators: “Plant and animal species and communities” 

and “Biophysical processes” under the natural quality. In the solitude or 

primitive and unconfined recreation quality it may relate to the indicators 

“Remoteness from sights and sounds of people inside the wilderness,” 

“Facilities that decrease self-reliant recreation,” and “Management 

restrictions on visitor behavior.”

•  Relevant wilderness stewardship plan section—If management actions for 

stock vary by zone and/or alternative, include them in those descriptions 

(e.g., locations where stock travel, stock camping and stock restraints would 

be allowed). A list of current stock trails could be listed in the affected 

environment section, the “no action” alternative, or in an appendix of the 

environmental assessment / environmental impact statement.

Winter Use

•  Issue/action topic—This section would describe any differences in how the 

park would manage the wilderness during winter as opposed to other 

seasons. You might address the types of travel and activities permitted 

during winter or any facilities specific to winter use. Consider if visitor 

capacity varies by season or activity and how such variation may affect 

allocation for commercial uses. List any measures and standards that 

are a part of wilderness-specific winter use monitoring programs and 

management actions triggered by the standards.

•  Relationship to wilderness character—Winter use may relate to a number 

of indicators under the solitude or primitive and unconfined recreation 

quality: “Remoteness from sights and sounds of people inside the 

wilderness,” “Remoteness from occupied and modified areas outside the 

wilderness,” and “Management restrictions on visitor behavior.”

•  Relevant wilderness stewardship plan section—If management actions 

related to winter use are being proposed, include this topic in your 

description of zones and/or alternatives.

Access for Persons with Disabilities

•  Issue/action topic—This section should list objectives for facilitating access 

to and in wilderness for people with disabilities while preserving wilderness 

character. Barrier-free trails should be discussed along with barrier-free 

facilities. A statement discussing availability of disability access information 

would also be appropriate here.
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103

•  Relationship to wilderness character—Access for persons with disabilities 

may relate to the indicator “Facilities that decrease self-reliant recreation” 

under the solitude or primitive and unconfined recreation quality.

•  Relevant wilderness stewardship plan section—If management actions 

related to access for persons with disabilities are being proposed, include 

this topic in your description of zones and/or alternatives. A list of barrierfree trails could be listed in the affected environment section of the 

environmental assessment / environmental impact statement.

Hunting and Fishing

•  Issue/action topic—If no hunting or fishing is allowed in the wilderness, 

simply state this fact if it is helpful to do so. If hunting or fishing is allowed, 

objectives for managing this activity in a way that preserves wilderness 

character should be described. You may want to state if hunting camps are 

allowed and describe minimum requirements practices for carcass transport 

and storage and any facilities (e.g., tree stands, lockers) or use restrictions 

(e.g., handling of gut piles) that are specific to hunters or hunting camps. 

Identify any special conditions or circumstances affecting hunting or 

fishing within the park wilderness. List any measures and standards that 

are a part of wilderness-specific hunting/fishing monitoring programs 

and management actions triggered by the standards. Identify any special 

conditions or circumstances, such as treaties with American Indian tribes, 

affecting hunting or fishing within the park wilderness.

•  Relationship to wilderness character—Hunting and fishing may relate 

to the indicators “Plant and animal species and communities,” “Physical 

resources,” and “Biophysical processes” under the natural quality. If 

hunting and fishing are proposed to be regulated they will relate to the 

indicator “Management restrictions on visitor behavior” under the solitude 

or primitive and unconfined recreation quality.

•  Relevant wilderness stewardship plan section—Proposals for hunting/

fishing activities and facilities may vary by zone and/or alternative. If so, 

include them in these sections.
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Climbing, Mountaineering, and Canyoneering

•  Issue/action topic—In some parks, a separate climbing management plan 

may be needed if climbing activities are complex, substantial impacts are 

occurring, and/or climbing-related issues are controversial. Alternatively 

the topic may instead be addressed in the wilderness stewardship plan. 

This section might address access routes / way trails, route erosion, 

plant removal, visual impacts, wildlife closures, bivying, human waste 

management, conditions under which climbing activities would be 

permitted, permit requirements, and the types of and conditions where 

climbing equipment (e.g., fixed anchors, power drills) is acceptable 

(and not acceptable) within wilderness. The placement, presence, and 

removal of summit registers could be addressed here. Available access to 

designated climbing areas could be addressed along with seasonal and 

long-term closures. This section could also be used to outline the criteria 

the park would use to determine closures. List any measures and standards 

that are a part of wilderness-specific climbing monitoring programs and 

management actions triggered by the standards.

•  Relationship to wilderness character—Climbing, mountaineering and 

canyoneering may relate to “Plant and animal species and communities” 

under the natural quality. They may relate to the indicator “Management 

restrictions on visitor behavior” under the solitude or primitive and 

unconfined recreation quality if regulated.

•  Relevant wilderness stewardship plan section—Specific actions for 

managing climbing activities and their potential environmental impacts 

might vary by zone and/or alternative and thus would be addressed in 

these sections.

Watercraft

•  Issue/action topic—Describe what type of watercraft are appropriate in 

specific locations or zones in the park’s wilderness. You may also describe 

designated shoreline access points for landing, launch and/or take out. It 

may be helpful to include guidance on use of rafts and construction of rafts 

from native materials.

•  Relationship to wilderness character—Watercraft use may relate to the 

“Physical resources” indicator under the natural quality, and may also 

relate to a number of indicators under the solitude or primitive and 

unconfined recreation quality: “Remoteness from sights and sounds 

of people inside the wilderness,” “Facilities that decrease self-reliant 

recreation,” and “Management restrictions on visitor behavior.”

•  Relevant wilderness stewardship plan section—If management actions 

related to watercraft use are proposed, include this topic in your 

description of zones and/or alternatives.

Special Events

•  Issue/action topic—Describe criteria for determining the types, terms, and 

conditions of special events that would be acceptable in the wilderness. 

Because new event types may arise, it may be helpful to include specific 

criteria for future evaluation of appropriateness.
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105

•  Relationship to wilderness character—Special events may relate to two 

indicators under the solitude or primitive and unconfined recreation 

quality: “Remoteness from sights and sounds of people inside the 

wilderness,” and “Facilities that decrease self-reliant recreation” if facilities 

may be proposed for such events.

•  Relevant wilderness stewardship plan section—You might want to list the 

specific types of events that are acceptable which may vary by zone and/or 

alternative.

Emerging Uses

•  Issue/action topic—Criteria should be established in the plan for evaluating 

the appropriateness of new and emerging activities (e.g., sandkiting, 

all-terrain skating) within the wilderness. This section might also provide 

direction for educating the public and park staff about the effects of such 

uses on wilderness character.

•  Relationship to wilderness character—Depending on the activity associated 

with the emerging use this topic may relate to a number of indicators 

under the solitude or primitive and unconfined recreation quality: 

“Remoteness from sights and sounds of people inside the wilderness,” 

“Remoteness from occupied and modified areas outside the wilderness,” 

and “Management restrictions on visitor behavior.”

•  Relevant wilderness stewardship plan section—If there are criteria for 

evaluation of new uses or prohibitions throughout the entire wilderness 

related to certain types of emerging uses, they may be described in 

“Actions Common to All Alternatives.” If new uses may be allowed in some 

zones/alternatives and not others, include this in the zone or alternative 

descriptions.
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Appendix 4.3—Administrative actions and

facilities action topics to consider in developing a

wilderness stewardship plan

Emergency Services (Search and Rescue, Emergency Medical Services, 

Law Enforcement)

•  Issue/action topic—Describe how section 4(c) exceptions of the Wilderness 

Act (including minimum requirements policies) will be applied to 

emergency situations (i.e., search and rescue, emergency medical services, 

and law enforcement). This can be done by stating what administrative 

actions will be considered emergencies and briefly outlining the park’s 

emergency response approval process (e.g., case-by-case approval by 

superintendent or incident commander). Criteria should be outlined for 

determining when the section 4(c) exceptions apply (e.g., urgency and 

need for speed beyond that available by primitive means). The minimum 

tools for emergency response can be stated here, or emergency standard 

operating procedures already developed through a minimum requirements 

process can be referenced in the appendix or in other documents. If you 

wish for the public to review the standard operating procedures, 

include them here.

•  Relationship to wilderness character—Emergency services may relate 

to the indicators “Remoteness from sights and sounds of people inside 

the wilderness” and “Remoteness from occupied and modified areas 

outside the wilderness” under the solitude or primitive and unconfined 

recreation quality. It also may relate to the indicator “Use of motor 

vehicles, motorized equipment, or mechanical transport” under the 

undeveloped quality.

•  Relevant wilderness stewardship plan section—Proposed actions related 

to emergency response may not vary by zone and/or alternative so may be 

best described in “Actions Common to All Alternatives.”

Group Size

•  Issue/action topic—This section describes whether or not there is a 

maximum party size and if it varies by user type (day vs. overnight users, 

hikers, stock, commercial users).

•  Relationship to wilderness character—Group size may relate to several 

indicators under the solitude or primitive and unconfined recreation 

quality: “Remoteness from sights and sounds of people inside the 

wilderness” and “Management restrictions on visitor behavior.”

•  Relevant wilderness stewardship plan section—In many parks, proposals 

for group size will vary by zone. Thus this topic would be included under 

the zone descriptions. If proposals vary by alternative it would be described 

there. It can also be discussed in the impact analysis.
References and Appendix

107

Use Permits and Reservation Systems

•  Issue/action topic—This section describes the purpose and objectives of any 

permit and reservation system, including where and how permits are issued 

(e.g., in person, at wilderness centers, via computer), and how reservations 

are administered and applied, including any differences for commercial 

groups.

•  Relationship to wilderness character—Use permits and reservation systems 

relate to the indicator “Management restrictions on visitor behavior” 

under the solitude or primitive and unconfined recreation quality.

•  Relevant wilderness stewardship plan section—Actions related to use 

permits and reservations will probably apply across all zones, but may vary 

by alternative. If so, include the topic under the alternative section, or if it 

applies to all, include in “Actions Common to All Alternatives.”

Administration of Scientific Activities

•  Issue/action topic—Describe how the research program (natural resource, 

cultural resource, and social science) and the inventory and monitoring 

program will be coordinated with the wilderness program. Explain the 

differences in conducting resource research and inventory and monitoring 

in wilderness as opposed to nonwilderness, including application of the 

minimum requirements concept. Guidelines for incorporating wilderness 

management concerns (e.g., minimum requirements) in the research permit 

process should be provided (see: Landres, Peter, ed. 2010. A framework to 

evaluate proposals for scientific activities in wilderness, Gen. Tech. Rep. 

RMRS-GTR-234WWW at http://www.wilderness.net/toolboxes/documents/

resSciAct/Scientific%20Activities%20Evaluation%20Framework.pdf). 

Criteria should be established for evaluating and determining the types 

and level of scientific activities (e.g., manipulative research, collection of 

wilderness resources), the amounts and length of disturbance allowed, and 

research and monitoring devices acceptable in each zone. Site access, and 

transport and placement of equipment could be discussed. Site restoration 

following scientific activities should also be addressed.

•  Relationship to wilderness character—Administration of scientific activities 

may relate to the indicators “Nonrecreational structures, installations, 

and developments” and “Use of motor vehicles, motorized equipment, or 

mechanical transport” under the undeveloped quality. It also may relate 

to the indicator “Remoteness from sights and sounds of people inside the 

wilderness” under the solitude or primitive and unconfined recreation 

quality.

•  Relevant wilderness stewardship plan section—If management actions 

related to scientific activities are proposed, include this topic in your 

description of zones and/or alternatives.
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Rehabilitation and Revegetation

•  Issue/action topic—Describe the objectives for your wilderness revegetation 

program if one exists or is proposed. You might want to outline what 

circumstances trigger rehabilitation and/or revegetation actions and 

the criteria for prioritizing projects. Direction might also be given for 

rehabilitation and revegetation actions following illegal activities (e.g., 

moss poaching, oversize stock group damage, marijuana plots). Guidelines 

based on the minimum requirements process and other policies could 

be listed for project planning, sources of plant materials, site access, 

site preparation (including soils), plant transport, planting, mulching, 

plant aftercare, and monitoring project “success.” List any measures and 

standards that are a part of wilderness-specific revegetation monitoring 

programs and management actions triggered by the standards.

•  Relationship to wilderness character—If rehabilitation / revegetation is 

at a large enough scale it may relate to the indicator “Plant and animal 

species and communities” under the natural quality. It will probably relate 

to the indicator “Actions authorized by the federal land manager that 

manipulate the biophysical environment” under the untrammeled quality. 

Depending on how the work may be implemented, the indicator “Use of 

motor vehicles, motorized equipment, or mechanical transport” under 

the undeveloped quality may apply as well as a number of indicators in 

the solitude or primitive and unconfined recreation quality: “Remoteness 

from sights and sounds of people inside the wilderness” and “Facilities that 

decrease self-reliant recreation.”

•  Relevant wilderness stewardship plan section—The level and management 

strategies for rehabilitation and revegetation work undertaken (i.e., 

passive to more aggressive) may vary based on zone and/or alternatives. It 

can also be discussed in the impact analysis. If so address this topic in those 

sections. If rehabilitation / revegetation actions will be pursued similarly 

throughout the wilderness, describe the topic under “Actions Common 

to All Alternatives.”

Interpretation and Education

•  Issue/action topic—Describe the key wilderness interpretive themes and 

educational messages. Identify the target audiences for your wilderness 

education program. Outline the media and delivery mechanisms that 

would be most effective for reaching target audiences. Include personal 

and nonpersonal services. This section should include foundational 

guidance for wilderness-related interpretation and education that can 

be used in the development of the park’s long-range interpretive plan or 

incorporate elements as appropriate from that plan.

•  Relationship to wilderness character—Wilderness-related interpretation 

and education may relate to several indicators under the solitude or 

primitive and unconfined recreation quality: “Facilities that decrease selfreliant recreation” and “Management restrictions on visitor behavior.”

•  Relevant wilderness stewardship plan section—This topic may not vary by 

zone or by alternative; if not, describe this under “Actions Common to All 

Alternatives.” However, levels of interpretation/education may vary with an 

increased emphasis on staff presence or educational signs in some zones. If 

so, describe in zones and/or alternatives.
References and Appendix

109

Existing Valid Rights

•  Issue/action topic—This section would describe how existing valid rights 

(e.g., inholdings, mining claims, access, rights-of-way, grazing permits) 

might be administered so as to ensure the protection of both the valid 

rights and wilderness character. You may want to describe the legal rights, 

and activities that will be authorized associated with those rights. Describe 

the conditions under which rights-of-way subject to administrative control 

will be administered to protect wilderness character, including how the 

minimum requirements will be met.

•  Relationship to wilderness character—Depending on the nature of 

the rights and how they are executed, this topic may relate to the 

indicators “Inholdings,” “Nonrecreational structures, installations, and 

developments,” and “Use of motor vehicles, motorized equipment, or 

mechanical transport” under the undeveloped quality.

•  Relevant wilderness stewardship plan section—A description of the existing 

valid rights can be presented in the affected environment section of the 

environmental assessment / environmental impact statement. It may be 

that proposed actions related to existing valid rights in wilderness do not 

vary by zone and/or alternative; if so describe this under “Actions Common 

to All Alternatives.” If it does vary, include in the zone and/or alternative 

descriptions.

Commercial Services and Special Park Uses

•  Issue/action topic—This includes the evaluation of the type, amount, 

location, and timing of commercial services (which include concession 

contracts, commercial use authorizations, and leases), and of special park 

uses within wilderness. Commercial services and special park uses are 

governed under distinct authorities and the evaluations are based on 

different criteria. For commercial services, “necessary and appropriate” 

criteria are required for determining types of commercial services. For 

special park uses, the criteria are related to “meaningful association” and 

are driven by the authorities governing such uses. The “necessary and 

appropriate” criteria may have been developed in a park’s commercial 

services strategy and/or a commercial services plan or in the general 

management plan. Chapter 6 of the User Guide offers considerations 

to be used in making decisions affecting commercial services allowed 

within wilderness areas and elements to consider when evaluating 

the “extent necessary” for commercial services in a specific wilderness. 

Potential uses would be evaluated against both sets of criteria, with 

the first consideration being whether the use meets the “necessary and 

appropriate” criteria.

» General requirements, terms, and conditions for commercial operations 

within the wilderness should be presented in the plan environmental 

assessment / environmental impact statement (e.g., facilities allowed, 

guide qualifications, Leave No Trace training requirements). Limits 

on commercial operator numbers might also be addressed here. The 

park may wish to outline the allocation of reservations and quota 

space to commercial operators in this section as well. If the park has a 

commercial services strategy or commercial services plan, the wilderness 

stewardship plan can draw from the objectives and sideboards in these 

documents, and the decisions made in a commercial services plan.
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» General parameters for determining if the special uses of commercial 

photography or filming will be allowed in the wilderness should also 

be described along with the general requirements for conducting these 

types of operations.

•  Relationship to wilderness character—Commercial uses may relate 

to several indicators under the solitude or primitive and unconfined 

recreation quality: “Remoteness from sights and sounds of people inside 

the wilderness,” and “Management restrictions on visitor behavior.”

•  Relevant wilderness stewardship plan section—It is very likely that 

there will be some variation in proposals for commercial uses within the 

wilderness based on differences in zones or alternatives. Include this topic 

in your description of zones and/or alternatives.

Administration of Potential, Proposed, Recommended, and Suitable Wilderness 

and Wilderness Study Areas

•  Issue/action topic—Use this section to describe in general terms how the 

above areas will be managed to ensure the protection and preservation 

of their wilderness values until Congress makes a final decision on their 

dispensation. A park should consider using the wilderness stewardship 

plan environmental assessment / environmental impact statement as the 

vehicle for addressing the nonconforming uses that prevent immediate 

designation of “potential wilderness” areas as wilderness, and may want to 

propose actions to improve wilderness quality so designation can result.

•  Relationship to wilderness character—The wilderness character qualities 

and indicators that would apply depend on the specific factors related to 

proposed management of these areas.

•  Relevant wilderness stewardship plan section—A map showing the 

locations of the wilderness categories is appropriate for the affected 

environment section of the environmental assessment / environmental 

impact statement. A list and map of the potential wilderness additions with 

the reason they are nonconforming would also be helpful. Actions related 

to the potential wilderness additions may vary by zone and/or alternative 

and would be described therein.

Interagency Coordination and Partnerships

•  Issue/action topic—Define objectives for interagency communication, 

coordination, and consistency that will enhance the preservation and 

restoration of wilderness character. You might want to describe proposed 

actions for achieving these objectives here. If the park wilderness 

is adjacent to wilderness managed by a different agency, describe 

consistencies in management.

•  Relationship to wilderness character—The wilderness character qualities 

and indicators that would apply depend on the specific issues related to 

coordination between agencies.

•  Relevant wilderness stewardship plan section—Actions related to 

interagency coordination are unlikely to vary by zone, but may vary by 

alternative and thus would be described there.
References and Appendix

111

Trails and Trailhead Management

•  Issue/action topic—The purpose of this section is to discuss how trails and 

trail-related impacts will be managed within the park wilderness and/or 

backcountry. A number of parks have separate trails management plans 

that provide the details for implementing their trails program. If this is 

the case in your park, this part of the wilderness stewardship plan should 

provide the foundational parameters for administering the trails program 

such as the overall objectives for trails management. If a trails management 

plan does not exist and is not anticipated, more detail should be provided 

here.

» Trail maintenance goals could be described. Trail classifications for 

maintained trails would be listed as well as trail clearing and brushing 

standards and tread width. Types of nonmaintained pathways might 

also be defined (e.g., way trails, social trails) and clarification of which 

types are “legitimate” and which are targeted for removal/recovery. 

If there are proposals for changing a particular trail’s classification 

(e.g., all-purpose stock trail to foot trail closed to stock), it should be 

included in this section.

» The types and materials allowed for tread, water crossings, and other 

trail maintenance facilities (e.g., puncheon, water bars) acceptable in 

each zone should be stated along with any proposed standards. Provide 

parameters for administrative use of on-site native materials (e.g., what 

types can be gathered, how much may be taken without additional 

compliance). Parameters for reroute construction could be listed (e.g., 

lengths of reroute permitted without further compliance). This section 

may include a description of maintenance frequency. The closure of 

any existing trails or the construction of any new trails should also be 

specifically addressed. This might be done with a general statement 

concerning whether this could occur, or you might choose to include 

specific proposals for the new trail(s). You might also want to describe 

parameters for administrative stock use here (or include it as a separate 

heading under “Administrative Actions”).

» This section might also address guidelines for trailhead facilities (type 

and design). It might also be helpful to relate whether or not trailhead 

development will be commensurate with the trail type and use for 

which it provides access. Historic trails can be covered here or in the 

“Historic or Prehistoric Structures” section.

•  Relationship to wilderness character—Trails may relate to a number 

of indicators under the natural quality: “Plant and animal species and 

communities,” “Physical resources,” and “Biophysical resources.” It may 

also relate to the indicator “Use of motor vehicles, motorized equipment, 

or mechanical transport” under the undeveloped quality. Trails may also 

relate to a number of indicators under the solitude or primitive and 

unconfined recreation quality: “Remoteness from sights and sounds of 

people inside the wilderness,” “Remoteness from occupied and modified 

areas outside the wilderness,” “Facilities that decrease self-reliant 

recreation,” and “Management restrictions on visitor behavior.”

•  Relevant wilderness stewardship plan section—A list of current trails could 

be listed/mapped and the existing trail standards listed in the affected 

environment section, the “no action” alternative, or in an appendix of the 

environmental assessment / environmental impact statement.
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» It is likely that management actions related to trails will be one of the 

key elements of the zones and/or alternatives and would be included in 

those descriptions (e.g., locations of trails, trail types).

» Allocation of trail classes to specific trails is likely to vary by alternative 

and would thus be best described under each alternative description. 

Types of trail facilities allowed is likely to vary by zone and would be 

best described under each zone description. Trail class allocations, 

management actions related to trails, and trail facility types in each 

alternative/zone can also be discussed in the impact analysis.

Campsite Management

•  Issue/action topic—This section might include types of visitor use sites (e.g., 

day use, hiker, group, stock, beach, gravel bar, no bare ground campsites) 

including the number, density and distribution that would be acceptable 

in each zone; whether visitors would be required to camp in designated 

sites; description of campsite standards (e.g., size limits); appropriateness of 

delineation and hardening of sites; placement of sites (e.g., distance from 

water); construction of new sites or the closure of existing sites; and types 

of campsite facilities (e.g., fire rings, site markers).

•  Relationship to wilderness character—Campsites may relate to a number 

of indicators under the natural quality: “Plant and animal species 

and communities,” “Physical resources,” and “Biophysical resources.” 

Campsite management is very relevant to the solitude or primitive and 

unconfined recreation quality. Campsites are most relevant to the indicator 

“Remoteness from sights and sounds of people inside the wilderness,” 

and “Facilities that decrease self-reliant recreation,” but may also relate to 

“Remoteness from occupied and modified areas outside the wilderness,” 

and “Management restrictions on visitor behavior.”

•  Relevant wilderness stewardship plan section—Current campsites could be 

listed/mapped and any current campsite standards listed in the affected 

environment section, the “no action” alternative, or in an appendix of the 

environmental assessment / environmental impact statement. Many aspects 

of campsite management are likely to vary by zone and some may also vary 

by alternative; describe them in the appropriate section. They also can be 

discussed in the impact analysis.

Signs and Other Route Markings

•  Issue/action topic—The proposed type and number of signs in each 

wilderness and/or backcountry zone could be listed (e.g., boundary, 

directional and mileage, natural feature, regulation, safety, resource 

management). A general objective for sign design might be placed here 

(e.g., rustic in design) while specifics on design (e.g., metal or wood, 

round vs. square post, size letters) might be better handled in a park sign 

standards document (e.g., sign plan). The park sign plan, for wilderness 

signs, would then be based on the requirements in the wilderness plan. 

Permanent and temporary route markings should be addressed (e.g., when 

and where and whether or not metal tree markers, cairns, wands, flagging, 

etc., are acceptable).
References and Appendix

113

•  Relationship to wilderness character—Signs and other route markings 

relate to two indicators under the solitude or primitive and unconfined 

recreation quality: “Remoteness from sights and sounds of people inside 

the wilderness,” and “Facilities that decrease self-reliant recreation.”

•  Relevant wilderness stewardship plan section—The appropriate locations 

and types of signs are likely to vary by zone and/or by alternative. If so, 

describe. They can also be discussed in the impact analysis.

Ranger Stations, Equipment Caches and Visitor Use Shelters

•  Issue/action topic—A park’s wilderness plan is an appropriate place to 

develop the specific criteria for evaluating whether existing wilderness 

ranger stations and visitor use shelters should remain. It might also be the 

place for some parks to evaluate and list specific structures proposed for 

removal or rehabilitation. Historic structures would be addressed in the 

“Cultural Resources” section but may also be discussed here to provide a 

total picture of visitor use facilities or administrative facilities. Criteria for 

construction of new ranger stations or new types of replacement ranger 

stations should be described if any might be considered in the future. The 

placement or prohibition of visitor, park staff, or researcher caches should 

also be addressed. If caches are permitted, this discussion should address 

the acceptable types (e.g., park tools, ranger food), maximum length for 

caching, and permitted locations.

•  Relationship to wilderness character—Ranger stations and equipment 

caches relate to the indicator “Nonrecreational structures, installations, and 

developments” under the undeveloped quality while visitor use shelters 

relate to “Facilities that decrease self-reliant recreation.” All may relate to 

the indicator “Use of motor vehicles, motorized equipment, or mechanical 

transport” under the undeveloped quality and “Remoteness from sights 

and sounds of people inside the wilderness” under the solitude or primitive 

and unconfined recreation quality.

•  Relevant wilderness stewardship plan section—The current ranger stations 

and shelters could be listed/mapped in the affected environment section, 

the “no action” alternative, or in an appendix of the environmental 

assessment / environmental impact statement. The presence of ranger 

stations and visitor use shelters will probably vary by zone and thus the 

location and types of ranger stations (e.g., cabin, tent) appropriate in 

each zone could be listed under the zone descriptions. They also can be 

discussed in the impact analysis.

Food Protection Systems

•  Issue/action topic—Describe how wildlife will be protected from obtaining 

human food in the wilderness. Describe guidelines for the presence and 

acceptable types of food protection systems. Criteria using the minimum 

requirements concept can be listed to help determine whether a food 

protection facility is needed, and if so, what type is appropriate.

•  Relationship to wilderness character—Food protection systems that 

are facilities relate to the indicator “Facilities that decrease self-reliant 

recreation” under the solitude or primitive and unconfined recreation 

quality.
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•  Relevant wilderness stewardship plan section—The types of acceptable 

food protection systems will probably vary by zone and/or alternative. In 

the zone description you might choose to list the specific types (e.g., animal 

resistant food canister, food hanging wires) acceptable in each zone. They 

also can be discussed in the impact analysis.

Sanitation and Waste Management Facilities

•  Issue/action topic—Describe how human waste and litter will be managed 

within the wilderness. Describe guidelines for the presence and acceptable 

types of waste management facilities. Criteria using the minimum 

requirements concept can be listed to help determine whether a toilet 

is needed, and if so, what type of toilet is appropriate. Guidelines for 

location of toilets (e.g., distance from water, campsites, trails) might also be 

covered. This action topic goes hand-in-hand with visitor capacity.

•  Relationship to wilderness character—Sanitation and human waste 

facilities relate to the indicators “Plant and animal species and 

communities” and “Physical resources” under the natural quality if 

vegetation, water quality, and soils are affected by human waste disposal. 

Depending on how the facilities are managed, they may relate to two 

indicators under the solitude or primitive and unconfined recreation 

quality: “Facilities that decrease self-reliant recreation,” and “Use of 

motor vehicles, motorized equipment, or mechanical transport.” If cat 

holes are dug in archeological sites the indicator “Loss of statutorily 

protected cultural resources” in the other features of value quality 

would be applicable.

•  Relevant wilderness stewardship plan section—The types of acceptable 

human waste management systems will probably vary by zone and/or 

alternative. In the zone description you might choose to list the specific 

system (e.g., pack-it-out, cat hole, pit, composting, vault) and type of 

structures (e.g., Wallowa, full-size privy) acceptable in each management 

zone. They also can be discussed in the impact analysis.

Radio Repeaters / Communication Facilities

•  Issue/action topic—Describe the criteria the park will use to evaluate 

the presence, placement, and type of communication facilities, structures, 

or installations within the wilderness. Determine parameters for the 

support of park and outside operations (i.e., under what circumstances 

will internal and external communication operations that affect the 

wilderness be supported).

•  Relationship to wilderness character—Communication facilities 

relate to the indicators “Nonrecreational structures, installations, and 

developments” and may relate to the “Use of motor vehicles, motorized 

equipment, or mechanical transport” under the undeveloped quality.
References and Appendix

115

•  Relevant wilderness stewardship plan section—Describe for each zone 

and/or alternative the appropriate types and locations of communication 

facilities, if they will vary. If not, describe any proposed management 

actions related to communication facilities in “Common to All 

Alternatives.” They also can be discussed in the impact analysis. The current 

communication facilities could be listed and mapped in the affected 

environment section, the “no action” alternative, or in an appendix of the 

environmental assessment / environmental impact statement.
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Appendix 5—Indicators, Measures, And Nps Data Sources For

The Qualities Of Wilderness Character

Qualities, indicators, and possible measures are from Keeping It Wild. This 

appendix includes the column “Monitoring Questions” for consistency with 

Keeping It Wild, although some users may find that this column is not necessary. 

Also, because Keeping It Wild did not include the other features of value quality 

of wilderness character, no monitoring questions are provided for this quality. 

Likely data sources need to be verified by park staff as to whether they are 

available and appropriate for the park and their intended use.

Table 10. Indicators, measures, and NPS data sources for the qualities of wilderness.

Natural Quality

Monitoring Question Indicator Possible Measures Likely NPS Data Sources

What are the trends in 

terrestrial, aquatic, and 

atmospheric natural resources 

inside wilderness?

Plant and 

animal 

species and 

communities

Abundance, distribution, 

or number of indigenous 

species that are listed 

as threatened and 

endangered, sensitive, 

or of concern

•  NPS Integration of Resource Management 

Applications (IRMA) NPSpecies database 

(http://science.nature.nps.gov/im/

datamgmt/IRMA.cfm)

•  State agencies and other partners 

(e.g., NatureServe data)

•  U.S. Fish and Wildlife recovery records 

for listed species

Number of extirpated 

indigenous species

•  NPS IRMA NPSpecies database

•  State agencies and other partners (e.g. 

NatureServe data)

•  U.S. Fish and Wildlife recovery records for 

listed species)

Number of 

nonnative species

•  Vegetation inventory map data

•  I&M monitoring data; NPS IRMA 

NPSpecies database

•  National Forest Inventory and 

Analysis data

•  Fire Monitoring Handbook plot records 

or FEAT/FIREMON Integration (FFI) data 

(http://www.frames.gov/portal/server.pt/

community/feat_firemon_integrated_

(ffi)/483)

•  Nonindigenous Aquatic Species database 

(http://nas.er.usgs.gov/)

Abundance, distribution, 

or number of invasive 

nonnative species

•  Alien Plant Control and Monitoring 

database for gross infested acres

•  Nonindigenous Aquatic Species database

•  LANDFIRE Uncharacteristic 

Vegetation data

Number of acres of 

authorized active grazing 

allotments and number 

of animal unit months of 

actual use inside wilderness

•  Park data

Change in demography 

or composition of 

communities

•  LANDFIRE data

•  I&M vegetation monitoring data
References and Appendix

117

Natural Quality

Monitoring Question Indicator Possible Measures Likely NPS Data Sources

What are the trends in 

terrestrial, aquatic, and 

atmospheric natural resources 

inside wilderness?

Physical 

resources

Visibility based on average 

deciview and sum of 

anthropogenic fine nitrate 

and sulfate

•  National IMPROVE data 

(http://views.cira.colostate.edu/web/)

Ozone air pollution based 

on concentration of N100 

episodic and W126 chronic 

ozone exposure affecting 

sensitive plants

•  National EPA AIRS data 

(http://epa.gov/airdata/aqsdb.html)

•  National CASTNET data (http://epa.gov/

castnet/javaweb/index.html)

Acid deposition based on 

concentration of sulfur and 

nitrogen in wet deposition

•  National NADP/NTN data 

(http://nadp.sws.uiuc.edu/)

Extent and magnitude of 

change in water quality

•  I&M monitoring data

Extent and magnitude of 

human-caused stream bank 

erosion

•  I&M monitoring data

•  Trail monitoring data

Extent and magnitude of 

disturbance or loss of soil or 

soil crusts

•  I&M monitoring data

•  Trail/campsite monitoring data

What are the trends in 

terrestrial, aquatic, and 

atmospheric natural processes 

inside wilderness?

Biophysical 

processes

Departure from natural fire 

regimes averaged over the 

wilderness

•  LANDFIRE Ecosystem Alteration Departure 

Index (http://www.landfire.gov/)

•  Local Fire Regime Condition Class 

maps available from local Fire 

Management Office

Extent and magnitude of 

global climate change

•  LANDFIRE Uncharacteristic Vegetation 

Map (http://www.landfire.gov/)

•  Species shift data from local or regional 

sources (check with DOI Regional Climate 

Science Center to see what is available at 

http://www.doi.gov/csc/index.cfm)

Area and magnitude for 

pathways for movement 

of nonnative species into 

the wilderness

•  NPS IRMA NPScape

•  GIS analysis of pathways and vectors 

adjacent to wilderness (roads, trails, 

trailheads, waterways, and other 

common pathways)

Area and magnitude of loss 

of connectivity with the 

surrounding landscape

•  NPS IRMA NPScape

•  GIS analysis using landscape ecology tools 

(e.g., FragStats at http://www.treesearch.

fs.fed.us/pubs/3064)
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Untrammeled Quality

Monitoring Question Indicator Possible Measures Likely NPS Data Sources

What are the trends in actions 

that control or manipulate the 

“Earth and its community of 

life” inside wilderness?

Actions 

authorized 

by the 

federal land 

manager that 

manipulate 

the 

biophysical 

environment

Number of actions to 

manage plants, animals, 

pathogens, soil, water, or 

fire

•  Minimum requirements analyses

•  Wildland Fire Management Information 

records and/or fire narratives (DI-1202 or 

ICS209 forms) for fire incidents

•  National Fire Plan Operating and 

Reporting System for prescribed fire and 

fuel treatments

•  Alien Plant Control and Monitoring 

database for nonnative plant treatments

•  Other park specific data sources

Percent of natural fire starts 

that received a suppression 

response

•  Wildland Fire Management Information 

records for fire incidents (check with 

fire management officer for access to 

database at http://www.nifc.blm.gov/) 

and/or fire narratives (DI-1202 or ICS209 

forms)

Number of lakes and other 

water bodies stocked with 

fish

•  Minimum requirements analyses

•  State wildlife agency records for game 

species

•  U.S. Fish and Wildlife Service records for 

threatened and endangered recovery 

species

Actions not 

authorized 

by the 

federal land 

manager that 

manipulate 

the 

biophysical 

environment

Number of unauthorized 

actions by agencies, citizen 

groups, or individuals that 

manipulate plants, animals, 

pathogens, soil, water, or 

fire

•  Law enforcement data systems (e.g., case 

incident reports)
References and Appendix

119

Solitude Or Primitive And Unconfined Recreation Quality

Monitoring Question Indicator Possible Measures Likely NPS Data Sources

What are the trends in 

outstanding opportunities for 

solitude inside wilderness?

Remoteness 

from sights 

and sounds 

of people 

inside the 

wilderness

Amount of visitor use •  Permit records, including number of 

permits, who issued them, where issued, 

type of use, number of people in party, 

trip itinerary

Number of trail contacts •  Trail counters

•  Staff reports

Number and condition of 

campsites

•  Campsite monitoring records (see Carhart 

Visitor Use Management training for more 

details)

Area of wilderness 

affected by access or travel 

routes that are inside the 

wilderness

•  Facility Management System Software 

data

•  NPS IRMA NPScape

Remoteness 

from 

occupied 

and modified 

areas 

outside the 

wilderness

Area of wilderness affected 

by access or travel routes 

that are adjacent to the 

wilderness

•  NPS IRMA NPScape

•  Agency GIS data systems

•  Aerial photography

•  GIS analysis using landscape ecology tools 

(e.g., FragStats at http://www.treesearch.

fs.fed.us/pubs/3064)

Night sky visibility averaged 

over the wilderness

•  National night sky visibility maps

•  Local data if available from the NPS Night 

Sky Program

Extent and magnitude of 

intrusions on the natural 

soundscape

•  Soundscape data from the NPS Natural 

Sounds Program

What are the trends in 

outstanding opportunities 

for primitive and unconfined 

recreation inside wilderness?

Facilities that 

decrease 

self-reliant 

recreation

Type and number of agencyprovided recreation facilities•  Facility Management System Software 

data

Type and number of usercreated recreation facilities•  Local knowledge

•  Law enforcement data systems (e.g., case 

incident reports)

•  Aerial photography for some types of 

facilities (e.g., social trails)

Management 

restrictions 

on visitor 

behavior

Type and extent of 

management restrictions 

•  Superintendent’s Compendium

•  Backcountry/wilderness permit terms and 

conditions
Wilderness Stewardship Division | Wilderness Stewardship Program 

120

Undeveloped Quality

Monitoring Question Indicator Possible Measures Likely NPS Data Sources

What are the trends in 

nonrecreational development 

inside wilderness?

Nonrecreational 

structures, 

installations, and 

developments

Index of authorized 

physical development

•  Local GIS data and FMSS for locations 

of communication installations, utilities, 

other rights-of-way, research installations, 

grazing infrastructure, etc.

Index of unauthorized 

(user-created) physical 

development

•  Law enforcement data systems (e.g., case 

incident reports)

Inholdings Area and existing or 

potential impact of 

inholdings

•  NPS regional lands office records (may 

consider splitting apart state sections 

from private inholdings, divide by parcels 

with road access and those without, and 

include mining claims)

What are the trends in 

mechanization inside 

wilderness?

Use of motor 

vehicles, 

motorized 

equipment, 

or mechanical 

transport

Type and amount of 

administrative and 

nonemergency use 

of motor vehicles, 

motorized equipment, or 

mechanical transport 

•  Extract from minimum requirements 

analyses

Type and amount 

of emergency use 

of motor vehicles, 

motorized equipment, or 

mechanical transport

•  Extract from minimum requirements 

analyses

•  Case incident reports for law enforcement 

and search and rescue operations

•  Fire incident narratives (DI-1202 and/or 

ICS 209 reports)

Type and amount 

of motor vehicle, 

motorized equipment, or 

mechanical transport use 

not authorized by the 

federal land manager

•  Case incident reports for law enforcement 

and search and rescue operations
References and Appendix

121

Other Features Quality

Monitoring Question Indicator Possible Measures Likely NPS Data Sources

What are the trends in the 

preservation of cultural 

resources integral to 

wilderness character?

Deterioration or 

loss of cultural 

resources 

integral to 

wilderness 

character

Number of unauthorized 

actions that result in 

disturbances to cultural 

resources (looting, 

trespass activities, 

noncompliance with 

NHPA)

•  Citations, ARPA violations, Secretary’s 

Annual Report to Congress, LOOT report 

in secretary’s report, ASMIS and PMDS site 

condition reporting.

Number of authorized 

actions that result in 

disturbances to cultural 

resources (visitor and 

commercial use (e.g., cat 

holes, trampling, hearths, 

aircraft landings); 

findings of adverse 

effect for projects and 

operations)

•  Citations, ARPA violations, Secretary’s 

Annual Report to Congress, LOOT report 

in secretary’s report, ASMIS and PMDS site 

condition reporting.

Number of naturally 

caused disturbances 

(e.g., erosion, animal 

digging, floods, rising sea 

levels, fires, tree throws)

•  Citations, ARPA violations, Secretary’s 

Annual Report to Congress, LOOT report 

in secretary’s report, ASMIS and PMDS site 

condition reporting.

What are the trends 

in the preservation of 

paleontological resources in 

wilderness?

Human-caused 

loss of important 

paleontological 

resources

Number and severity 

of disturbances to 

paleontological resources

•  NPS Geologic Resources Division’s 

literature based paleontological resource 

inventory (accessed via IRMA)

•  I&M monitoring data

•  Local data
The Wilderness Stewardship Plan Handbook 2014 was prepared by the NPS Wilderness 

Character Integration Team. Principal authors:

Sandee Dingman, Biologist, Lake Mead National Recreation Area

Ruth Scott, Wilderness Specialist, Olympic National Park

Suzanne Stutzman, Wilderness Coordinator, Intermountain Region

The original Wilderness Stewardship Plan Handbook 2004 was developed by a task 

group of the National Park Service Wilderness Steering Committee. Principal authors:

Judy Alderson, Alaska Regional Wilderness Coordinator

Ruth Scott, Wilderness Specialist, Olympic National Park

Steve Ulvi, Management Assistant, Gates of the Arctic National Park and Preserve

Jim Walters, Deputy National Wilderness Program Manager, NPS
Wilderness Stewardship Plan Handbook 

As the nation’s principal conservation agency, the Department of the Interior has responsibility for 

most of our nationally owned public lands and natural resources. This includes fostering sound use 

of our land and water resources; protecting our fish, wildlife, and biological diversity; preserving 

the environmental and cultural values of our national parks and historic places; and providing for 

the enjoyment of life through outdoor recreation. The department assesses our energy and mineral 

resources and works to ensure that their development is in the best interests of all our people by 

encouraging stewardship and citizen participation in their care. The department also has a major 

responsibility for American Indian reservation communities and for people who live in island 

territories under U.S. administration.

WASO 909 122875; January 2014
National Park Service | U.S. Department of the Interior

Wilderness Stewardship Division | Wilderness Stewardship Program