COVER

National Park Service

Cultural Resource Challenge

NPS CULTURAL RESOURCES ACTION PLAN

for 2016 AND BEYOND

National Park Service

U.S. Department of the Interior

Cultural Resources Stewardship, Partnerships, and Science
National Park Service Cultural Resources Stewardship,

Partnerships, and Science Program Mission

Provide leadership for the protection and interpretation of the nation’s 

heritage, guide a national historic preservation program that embraces 

national parks and heritage resources, engage all American peoples with the 

places and stories that make up their national identity, and serve as a model 

for the stewardship of cultural resources throughout the world.

Front cover photo: Native Hawaiians use traditional 

practices to repair an earthquake-damaged heiau at 

Pu’ukohola Heiau National Historic Site. NPS PHOTO
National Park Service

Cultural Resource Challenge

PRESERVING AMERICA’S SHARED HERITAGE

IN THE 21ST CENTURY

NPS CULTURAL RESOURCES ACTION PLAN

for 2016 AND BEYOND
2 National Park Service Cultural Resources Stewardship, Partnerships, and Science

National Park Service

Cultural Resources Action Plan for 2016 and Beyond

Full funding to accomplish all the goals of the Cultural Resource Challenge would require 

more than a $200 million annual increase to the cultural resource budget lines of the 

National Park Service (Operations of the National Park Service, National Recreation and 

Preservation, and the Historic Preservation Fund). Although such an increase appears 

unlikely in the immediate future, the goals and strategies outlined in the Cultural Resource 

Challenge will be used to craft future budget increase requests, and will be tailored to take 

advantage of future administration or congressional initiatives in accordance with the 

following critical funding priorities. 

n The Servicewide needs assessment conducted in 2011 showed that nearly half the 

NPS regional offices lack a professional in one or more of the basic cultural resource 

disciplines that serve park and partnership programs, that one in four national parks 

are devoid of any cultural resource expertise at all, and that in many parks untrained 

personnel are assigned cultural resource tasks as collateral duty. 

n The Systemwide gap assessment conducted in 2011 revealed that over 70 percent of 

national park units do not have a complete set of baseline cultural resource information 

that documents the range and condition of its cultural resources and guides management 

decisions affecting those resources. 

n The National Historic Preservation Act of 1966 created a National Historic Preservation 

Program, established a national network among the state, tribal, and local governments, 

and created the Historic Preservation Fund to enable them to survey, document, and 

preserve their cultural resources. But the Historic Preservation Fund has never been fully 

funded at the $150 million level authorized. Rather, adjusted for inflation, it has decreased

since 1980, while the number of participating tribes and certified local governments 

requesting service and assistance has ballooned.

n The 2008 National Academy of Public Administration (NAPA) report revealed that 

nearly 46 percent (12,476) of 27,000 historic and precontact structures owned by the 

NPS are not in good condition; 2,811 of the most significant historic structures are in 

poor condition; 39 percent of museum collections are not housed in good condition; 

45 percent of NPS collections (159 million items) are not catalogued; and over half (52 

percent) of the documented cultural landscapes are not in good condition. Conditions 

have not improved since then. 

Achieve a standard of excellence for the stewardship of the 

resources that form the historical and cultural foundations of 

the nation, commit at all levels to a common sets of goals, and 

articulate a common vision for the next century. 

—National Park Service Cultural Resource Challenge
National Park Service Cultural Resource Challenge Action Plan 3

Uniforms from National 

Park Service museum 

collections enhance an 

interpretive program at 

the World War II Memorial on the National Mall 

(above). NPS / TONY DEYOUNG PHOTO

n The Cultural Resources programs and responsibilities 

of the NPS funded through National Recreation and 

Preservation (NR&P) appropriation, such as the 

National Register of Historic Places, National Historic 

Landmarks, Historic American Building Survey, 

Historic American Engineering Record, Historic 

American Landscapes, National Center for Preservation 

Technology and Training, Technical Preservation 

Services, and National Heritage Area programs, reach 

into every park and virtually every community in 

the nation. The demand for services far outweighs 

NPS capacity to respond, let alone to address new 

and significant challenges such as climate change and 

sustainability. 

n The first goal of the NPS A Call to Action strategy 

includes identifying a national system of parks and 

protected sites that fully represents the nation’s cultural 

experience. The NPS needs to assess the gaps in the

National Park System and the National Historic Landmarks and National Register of 

Historic Places programs of sites related to underrepresented groups and resource types, to 

raise awareness of important sites associated with underrepresented communities, to tell the 

stories that make up our diverse national identity, to promote understanding and sensitivity 

to issues of a contested past, and to identify candidates for a national system of parks and 

protected sites that fully represents the nation’s cultural experience. 

Until such funding is received, this action plan, as a subset of the Cultural Resource 

Challenge, focuses on opportunities presented by the upcoming NPS centennial in 2016 and 

the fiftieth anniversary of the National Historic Preservation Act in 2016. Looking ahead 

to these anniversaries and beyond, the NPS will continue taking steps to ensure effective 

stewardship of the nation’s heritage within available levels of funding and staffing. 

Actions are organized under the goals of the Cultural Resource Challenge and are tied to 

and supportive of goals and actions of the NPS A Call to Action initiative. Although not 

all the actions listed can be achieved by 2016 with current levels of funding and staffing, 

representative actions will be reflected in annual NPS Cultural Resource Program work 

plans. 

To better serve national parks and NPS partners, NPS cultural resource preservation efforts 

at the park, program, regional, and national levels will be aligned with the Cultural Resource 

Challenge goals. Available funding resources will be targeted towards the outlined action 

items to implement the Challenge goals, and critical staffing and funding priorities will 

be documented and prioritized. Sharing of resources, collaboration with other NPS and 

partner programs, and an interdisciplinary approach will all be emphasized as the NPS reembraces the vision of the National Historic Preservation Act.

The NPS Cultural Resource Challenge Action Plan outlines what the NPS can do as we 

approach the one hundredth anniversary of the National Park Service and the fiftieth 

anniversary of the National Historic Preservation Act. We aspire to do more, and invite all 

our partners to join us in the endeavor.

National Park Service Cultural Resource Challenge Action Plan 5

Goal #1: Provide leadership, support, and advocacy for the 

stewardship, protection, interpretation, and management 

of the nation’s heritage through scholarly research, 

science, and effective management.

Complete the analysis of baseline documentation needs, fully document these needs in 

the Project Management Information System (PMIS), and focus NPS research funding on 

reducing the identified gaps for all resource types.

Reduce the NPS cataloging backlog 

of museum collections, increase the 

number of sites that have undergone 

systematic archeological inventory, 

and increase the number of cultural 

landscapes that have undergone 

systematic recording in the Cultural 

Landscapes Inventory.

Increase monitoring of resource 

conditions and prioritize funding 

for preventive maintenance and 

stabilization of archeological sites, 

cultural landscapes, historic and 

precontact structures, and preventive 

conservation of museum objects.

Collaborate with the National Park 

Service Capital Investment Strategy 

by supporting park efforts to prioritize NPS maintenance activities to improve the condition 

of historic and precontact structures, sites and landscapes; integrate cultural resource issues 

into life cycle cost planning; and revitalize the historic leasing program.

Support park and partner cultural resource management by reviewing and updating 

NPS guidance ( A Call to Action Item 25), such as NPS-28: Cultural Resource Management 

Guideline and guidelines associated with the Secretary of the Interior’s Standards for the 

Treatment of Historic Properties.

Collaborate with NPS facilities management programs to enter maintained cultural 

resources assets into the Facility Management Software System (FMSS) and with pilot parks 

to update management categories for all resources on the List of Classified Structures (LCS).

Establish a national priority for cultural resource funding requirements for “transfer of 

knowledge.” For example, determine how research and technical guidance may be made 

accessible to multiple audiences from NPS managers and interpreters to teachers and 

visitors.

Improve collaboration with international heritage groups such as the U.S. National 

Committee of the International Council on Monuments and Sites (US/ICOMOS) and other 

world heritage organizations and governments engaged in heritage conservation.

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Actions

The Frederick Douglass Library Collection includes over 2,500 books, monographs, rare photograph albums, 

abolitionist newspapers, and other items that have been treated or require treatment (above). Assisted by the 

NPS Submerged Resource Center, management of Isle Royale National Park shipwrecks includes documentation, 

assessment, and preparation of nominations to the National Register of Historic Places (opposite). NPS PHOTOS

National Park Service Cultural Resource Challenge Action Plan 7

Goal #2: Recommit to the spirit and letter of the landmark 

legislation underpinning the National Park Service mission, 

as expressed in the Organic Act, the Antiquities Act, the 

Historic Sites Act, and the National Historic Preservation 

Act, through which the American people have made clear 

their desire for the protection and preservation of our 

historic and cultural resources.

Document the need and goals for full funding of the Historic Preservation Fund (HPF) and 

for increases to the National Recreation and Preservation Program to adequately support 

critical mandates of the National Historic Preservation Program.

Update and maintain NPS geographic information system (GIS) data on all resources 

included in agency databases, ensuring that the information will meet national metadata 

standards and be readily accessible to parks, program managers, and partners; develop a 

system to integrate data from the disparate systems used by states and tribes; complete the 

digitization of National Register of Historic Places and National Historic Landmark records.

Conduct a “usability” study to collect feedback from partners and audiences on how well 

current delivery systems and educational offerings of NPS heritage education programs 

meet their needs; identify recommendations for improvements through collaboration with 

parks and partners to expand existing NPS heritage education programs and place-based 

learning.

Expand HABS/HAER/HALS programs for the recordation of park, public, and private 

historic sites, structures, and landscapes for deposit in the Library of Congress.

Ensure that NPS research reflects the most current scholarship through improved 

accessibility to research, technical guidance, and databases associated with park and 

partner-based cultural resources and improved access to, and collaboration with 

professional societies, academic institutions, Cooperative Ecosystems Studies Units (CESUs) 

and other professional organizations.

Increase cultural resource representation and participation in urban national parks and 

programs through collaboration with NPS programs and partners, including the NPS 

Conservation Study Institute, to connect people to parks, increase park use, and help 

underserved neighborhoods that face historic and structural barriers to park access.

Consolidate, revise, and renew all cultural resource websites in the new nps.gov/history web 

framework; create/renew websites/shared platforms to support NPS professional networks 

within the National Park Service and with academic and preservation partners; develop 

thematic websites that provide linkages and context for parks with related resources.

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Actions

The historic Beardmore Block in Priest River, Idaho, rehabilitated in 2009 using the Federal Historic Preservation 

Tax Incentives Program, was one of the first historic tax credit projects to achieve LEED (Leadership in Energy 

and Environmental Design) Gold-level certification from the U.S. Green Building Council for its energy 

conservation and environmentally sustainable features (opposite). PHOTO COURTESY OF THE RUNBERG ARCHITECTURE GROUP
8 National Park Service Cultural Resources Stewardship, Partnerships, and Science

Assess gaps in the National Park System and 

National Historic Landmarks and National Register 

of Historic Places sites related to underrepresented 

groups and resource types, and identify and 

implement strategies and initiatives for their 

inclusion.

Provide toolkits, support, and guidance to 

communities with historic districts, Certified Local 

Governments, and communities within national 

heritage areas (NHAs) to assist partners engaged in 

the preservation of their stories and communities, 

and to elevate the importance of local stories that 

are part of America’s larger shared heritage.

Develop a “traditional skills” program within the NPS to preserve access to traditional trade 

practices and promote the preservation of traditional trade knowledge and preservation 

skills. Produce training manuals and technical briefs that support the efforts of the public 

and private sector to preserve and recover preservation trades and support programs such as 

Vanishing Treasures. 

Engage indigenous and traditional communities, including their young people, in the 

identification and preservation of their heritage resources; involve at-risk youth from diverse 

and underserved communities in preservation trades programs to provide them access to 

broader work/life opportunities.

Support the passage of National Heritage Area (NHA) program legislation and continued 

funding to provide NHAs with increased assistance, evaluation, monitoring, and technical 

support.

Continue and expand NPS support of the Cultural Resource Diversity Program, Corps 

Network, National History Day, Youth Summits, Summer Recording Programs, 21stCentury Conservation Corps, and other youth program partnerships, as well as heritage 

education and science training classes targeted at K-12 students.

Work with NPS programs and partners to develop a plan for building greater capacity for 

inclusive and diverse educational products and services that allow all Americans to recognize 

their stories in parks and historic places throughout the nation.

Work with other NPS heritage tourism programs to provide information and guidance 

(such as travel itineraries) to states, tribes, and local communities on issues ranging from 

wayfinding to interpretation to promote the economic value of tourism and job creation, and 

to encourage parks and historic communities to adopt Global Sustainable Tourism Criteria.

Use the upcoming 50th anniversary of the National Historic Preservation Act as an 

opportunity to celebrate and promote these programs to all Americans and future 

generations.

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Goal #3: Connect all Americans to their heritage resources in a 

manner that resonates with their lives, legacies, and 

dreams, and tells the stories that make up America’s 

diverse national identity. 

Actions

Trujillo Homesteads National Historic Landmark, an early Hispanic settlement in Colorado’s San Luis Valley, 

tells the story of differing Hispano and Anglo approaches to ranching in the 19th century (above). THOMAS H. SIMMONS PHOTO
National Park Service Cultural Resource Challenge Action Plan 9

Goal #4: Integrate the values of heritage stewardship into major 

initiatives and issues such as renewable energy, climate 

change, community assistance and revitalization, and 

sustainability, while cultivating excellence in science 

and technical preservation as a foundation for resource 

protection, management, and rehabilitation.

A preservation crew repairs damage to the Little Kinnakeet Lifesaving Station after Hurricane Irene struck Cape 

Hatteras National Seashore in 2011 (above). NPS PHOTO

Actions Review current programs and increase NPS ability to respond to national emergencies 

affecting cultural resources. Develop user-friendly guidance for historic property owners 

addressing scenarios such as disaster recovery, distressed/vacant properties, navigating 

government assistance, and more.

Collaborate with other NPS Natural Resource programs on threats ranging from sea level 

change, increased fire and storm intensity, and changing precipitation patterns to define and 

inform an interdisciplinary approach to threat assessment and resource management for 

national park units.

Complete “State of the Park Reports” 

for 50 parks in collaboration with the 

NPS Natural Resources Program; 

use the “State of the Park Reports” 

to develop guidance and expand 

monitoring programs to detect, 

document, and respond to changes in 

cultural resource conditions.

Develop a proposal to create a 

pool of funds within the Historic 

Preservation Fund to provide 

assistance in the wake of disasters 

and to obtain early relief and 

assistance to affected areas while 

awaiting congressional relief funds.

Work with the national preservation 

community through the urban 

initiative to assess ways to provide 

greater assistance to economically 

distressed areas and those 

undergoing rapid urbanization.

Promote economic and community revitalization by encouraging private investment in the 

rehabilitation of historic buildings in older cities, towns, and rural areas through the Federal 

Historic Preservation Tax Incentives Program.

Provide greater assistance and guidance in how historic properties can improve energy 

efficiency, incorporate sustainable features, and utilize the most current preservation 

methods and technologies, while maintaining their historic integrity.

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Walls of West Ruin, constructed of shaped sandstone blocks set in mud mortar, at Aztec Ruins National Monument 

continue to deteriorate despite years of structural stabilization and preservation efforts (opposite). A student 

cleans a historic textile during a workshop at Fort Vancouver National Historic Site (above). NPS PHOTOS

National Park Service Cultural Resource Challenge Action Plan 11

Goal #5: Attract, support, and retain a highly skilled and diverse 

workforce, and support the development of leadership 

and expertise within the National Park Service.

Actions Complete a Servicewide assessment 

of cultural resource programs and 

staff resources; establish baseline 

requirements for all programs and 

document and prioritize staffing needs.

Update the Secretary of the Interior’s 

Professional Qualifications Standards for 

all major cultural resource management 

disciplines. 

Require that NPS cultural resource programs are led and managed by professionals who 

meet the Secretary of the Interior’s Professional Qualifications Standards and that cultural 

resource research is conducted in accordance with professional research standards and 

is overseen by staff that meets the Secretary’s Professional Qualifications Standards, as 

required by Section 112 of the National Historic Preservation Act. 

Develop the NPS Career Academy to provide for career-long professional development for 

cultural resource professionals and workers across all major cultural resource disciplines, 

including the development of a clearinghouse for training opportunities.

Develop and implement a mandatory cultural resources policies and procedures training 

module for the NPS Superintendent Academy. The module should incorporate information 

about national historic preservation programs, including NPS relationships with American 

Indian tribes and the core principles of tribal consultation.

Develop a continuum of internship and work programs that target diverse communities and 

leads to cultural resource management careers, including expansion of current internship 

programs with Cooperative Ecosystem Studies Units (CESUs) and minority serving 

institutions (such as Historically Black Colleges and Universities and Native American and 

Latino serving schools); develop social networks for program participants and alumni to 

share experiences and opportunities.

Support expanded skill-sharing, details, and special assignments between parks, regional 

offices, and the NPS Washington Support Office (WASO). Establish cross-training and 

temporary details between cultural resource employees and others who impact cultural 

resources to expose employees and partners to experiences outside their normal job series 

and work environments.

Work with other NPS programs, community and technical colleges, union and trades 

groups, and professional associations to expand and enhance opportunities for preservation 

trades and crafts training for both NPS staff and partners.

Continue efforts to further refine allocation of staffing and funding resources to create the 

most efficient target organization based on ongoing workload analyses, reclassification of 

positions, and position management review processes tied directly to budget processes to 

guide future funding and staffing decisions.

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ARCHEOLOGICAL EXCAVATION CUYAHOGA VALLEY NATIONAL PARK

The spirit and direction of the Nation are founded upon and reflected in its historic 

heritage; the historical and cultural foundations of the Nation should be preserved 

as a living part of our community life and development in order to give a sense of 

orientation to the American people... the preservation of this irreplaceable heritage 

is in the public interest so that its vital legacy of cultural, educational, aesthetic, 

inspirational, economic, and energy benefits will be maintained and enriched for 

future generations of Americans.

—1966 National Historic Preservation Act

NPS PHOTO
National Park Service Cultural Resource Challenge Action Plan 13

Thanks to the many people from the National Park Service and its 

partner organizations who contributed to the Cultural Resource 

Challenge through timely, extensive, and insightful feedback during its 

creation and review.  

The Cultural Resource Challenge takes both its vision and challenge 

from several previous studies which contained thoughtful 

recommendations for the improvement of our efforts and ability to 

identify and preserve the precious cultural resources which record 

and illustrate the history of our nation, its peoples, and our growing 

understanding of one another:

n Back to the Future: A Review of the National Historic Preservation 

Program, National Academy of Public Administration, 2007

n Saving our History: A Review of National Park Cultural Resource 

Programs, National Academy of Public Administration, 2008

n Advancing the National Park Idea, National Parks Second  Century 

Commission report, 2009

n A Call to Action: Preparing for a Second Century of Stewardship 

and Engagement, National Park Service, 2011

n Imperiled Promise: The State of History in the National Park 

Service, Organization of American Historians, 2011

For more information about the National Park Service

Cultural Resource Challenge go to:

www.nps.gov/history

Back cover photo: Participants from the Pacific Northwest 

Preservation Field School at Olympic National Park 

rebuild the roof of a log trail shelter. NPS PHOTO
www.nps.gov/history

National Park Service

U.S. Department of the Interior

Cultural Resources Stewardship, Partnerships, and Science