Evaluating Effectiveness Of Visitor Use Management
Monitoring GuidebookEvaluating Effectiveness of Visitor Use ManagementEdition One June 2019
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AcknowledgmentsThis guidebook has benefited from the contributions of numerous members of theInteragency Visitor Use Management Council. In alphabetical order, these membersinclude Adam Beeco (National Park Service), Kerri Cahill (National Park Service),Rachel Collins (National Park Service), Mary Ellen Emerick (U.S. Forest Service),Susan McPartland (National Park Service), Bret Meldrum (National Park Service),Linda Merigliano (U.S. Forest Service), Aleksandra Pitt (National Park Service), andCarin Vadala (U.S. Forest Service). We wish to extend our thanks to Katie Abrams,Heather Huppe, Charlie Jacobi, Todd Newburger, Jeff Marion, and Jennifer Steinfor their time and contributions to this guidebook. Also, many thanks to those whocontributed to the publication of this guidebook, including the graphic designers,editors, and reviewers.The Interagency Visitor Use Management Council consists of the following agencies:DEPARTMENTAGENCYDepartment of AgricultureU.S. Forest ServiceDepartment of CommerceNational Oceanic and Atmospheric AdministrationDepartment of DefenseU.S. Army Corps of EngineersDepartment of the InteriorBureau of Land ManagementDepartment of the InteriorNational Park ServiceDepartment of the InteriorU.S. Fish and Wildlife ServiceSuggested citation:IVUMC (Interagency Visitor Use Management Council). 2019. Monitoring Guidebook:Evaluating Effectiveness of Visitor Use Management. Denver, ork.JUNE 2019, EDITION ONEAcknowledgments i
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ContentsAbstract.viiChapter 1: Introduction. 1Chapter 2: Why Monitor?. 7Chapter 3: What is Monitoring?. 9Desired Conditions. 9Indicators. 9Thresholds and Triggers. 10Objectives (Optional). 13Chapter 4: How is a Monitoring Strategy Developed?. 15Process for Selecting Indicators. 151. Review the analysis area's purpose, management direction, andproject issues. . 162. Conduct an assessment of existing monitoring information. 173. Identify potential indicator topics. . 184. Brainstorm and refine ideas for potential indicators. 195. Screen potential indicators. 216. Determine the appropriate unit of measure for each indicator. 227. Test indicators. . 24Process for Establishing Thresholds, Triggers, if Needed, andObjectives, if Desired . 241. Establish potential threshold(s) and, if needed, triggers foreach indicator. . 252. Document the rationale for threshold(s) and triggers. 293. Establish objectives, if desired. . 32Chapter 5: How is Monitoring Implemented?. 33Chapter 6: How are Monitoring Data Used?. 43Review and interpret the data collected. 43Appendix A: List of Indicator Topics and Associated Example Indicatorsand Thresholds. 49Appendix B: Monitoring Scenarios Showing the Use of Indicators, Triggers,Thresholds, Objectives, and Management Actions. 53Scenario #1: Encounter Rates. 53Scenario #2: Decibel Levels. 56Scenario #3: Percent Change in Condition of Prehistoric andHistoric Sites. 58Scenario #4: Bare Soil. 61JUNE 2019, EDITION ONETable of Contents iii
Appendix C: Indicator and Threshold Worksheet. 67Appendix D: Sample Monitoring Forms. 71Example #1: Recreation Site Monitoring Form. 71Example #2: Winter Use Monitoring Form. 75Example #3: Site Monitoring Form. 76Example #4: Wilderness Encounter Rate Monitoring Form . 78Example #5: Site Monitoring for Campgrounds. 81Example #6: Encounter Rate Monitoring Form. 82Example #7: People per Viewscape Monitoring Form. 83Example #8: Wildlife Distance Observation Monitoring Form. 84Glossary of Key Terms. 87References. 89iv Table of ContentsMONITORING GUIDEBOOK
FIGURESFigure 1. Elements and steps of the “Visitor Use Management Framework.”. 3Figure 2. Representation of where monitoring is integrated into the framework. 5Figure 3. Representation of the four criteria involved in thesliding scale of analysis. 6Figure 4. Trends in conditions in relation to triggers and thresholds. 11Figure 5. Process for selecting indicators and establishing thresholds, triggers,and objectives. 16Figure 6. Process for selecting indicators and establishing thresholds, triggers,and objectives. . 26Figure 7. Use of monitoring data to inform visitor use management. 44Figure D1. Images of pages from a data booklet for monitoringwilderness encounters. 79TABLESTable 1. Example showing the difference between a threshold and an objective. 13Table 2. Examples of desired conditions and corresponding indicators andthresholds, as well as associated rationales and monitoring methods. 30Table B1. Encounter rate triggers for trail segments A, B, and C. 54Table B2. Thresholds and associated management actions and rationale toachieve and maintain desired conditions for wilderness recreation. 55Table B3. Violations of noise emission standards in the Citronella Lake areafrom 2007 to 2010. 57Table B4. Condition scores of significant prehistoric and historic sites. 59Table B5. Bare soil cover values for ecological condition classes inhigh-elevation meadows. 62Table B6. Triggers and management actions to achieve and maintain desiredconditions for high-elevation meadows. 64Table C1. Indicator and threshold worksheet. . 68JUNE 2019, EDITION ONETable of Contents v
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AbstractVisitor use management is fundamental for maximizing benefits for visitors whileprotecting resources and high-quality visitor experiences on federally managed landsand waters. Monitoring is an essential part of managing visitor use, as it providesfeedback for managers to evaluate the effectiveness of management actions inachieving and maintaining desired conditions. Monitoring is the process of routinelyand systematically gathering information or making observations to assess the statusof specific resource conditions and visitor experiences.This monitoring guidebook, in combination with the “Visitor Use ManagementFramework,” is intended to (1) help managers select a focused set of indicatorsand establish triggers, thresholds, and objectives that are relevant, costeffective, and tied to achieving and maintaining desired conditions; (2) developa monitoring strategy to routinely and systematically collect data to assess anychanges in conditions over time; and (3) use the data collected to assess whetherchanges in management actions are needed. Indicators, triggers, thresholds, andobjectives should provide useful information to inform decisions about visitor usemanagement, and a monitoring strategy should be designed so that a consistenteffort to gather information can be sustained over time. As in the framework, thesliding scale of analysis is discussed throughout this monitoring guidebook to ensurethe investment of time, money, and other resources for a project is commensuratewith the complexity of the project and the consequences of the decision. Thisguidebook expands on the framework and is intended to be adaptable todifferent agencies’ regulations and policies, as well as different project scales oranalysis areas.Visitors of all ages hike up a dirt trail in a forested area.JUNE 2019, EDITION ONEAbstract vii
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1Chapter 1: Introduction
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Chapter 1: IntroductionEvery year, people seek out public lands and waters to pursue a growing variety ofvisitor experiences. Opportunities for access, the condition of the environment, andthe quality of the visitor experience are all important to the management of federallands and waters. Faced with visitor use that is growing and changing, federal landmanagers are challenged to respond to an increasingly complex array of needsand opportunities. The Interagency Visitor Use Management Council (the council)“Visitor Use Management Framework” (the framework) provides cohesive guidanceon analyzing and managing visitor use on federally managed lands and waters.Monitoring is a core component of the framework and is increasingly emphasized inall agencies that manage federal lands and waters.Monitoring is the process of routinely and systematically gathering information ormaking observations to assess the status of specific resource conditions and visitorexperiences. Monitoring is accomplished by selecting indicators that are used totrack trends in resource and experiential conditions. Established thresholds clearlydefine when conditions are becoming unacceptable for the selected indicators,thus alerting managers that a change in management action(s) is required. Thisguidebook is designed to help managers complete these tasks.This guidebook is intended to complement the framework. In particular, theguidance offered herein builds on the expectation of already having clearly defineddesired conditions that tier to the foundational direction of the project area (see theframework and figure 1, step 2 and step 5).Desired conditions are defined as statements of aspirationthat describe resource conditions, visitor experiences andopportunities, and facilities and services that an agencystrives to achieve and maintain in a particular area. Suchstatements are often built on the foundational language thatlegally established the area. Desired conditions describe whatconditions, outcomes, and opportunities are to be achievedand maintained in the future, not necessarily what exists today.Descriptions of desired conditions paint a picture of what theparticular area will look like, feel like, sound like, and functionlike in the future.This guidebook can be used by those who have not yet selected indicators andthresholds or developed a monitoring strategy, or it can be used by those who areseeking to make updates or improvements to their monitoring strategy.JUNE 2019, EDITION ONEChapter 1 1
This guidebook answers the following questions. 2STEP 7 3STEP 11 STEP 13Chapter 2: Why Monitor?This chapter describes why monitoring is integral to visitor use management.Chapter 3: What is Monitoring?This chapter explains the concepts of monitoring, indicators, thresholds,triggers, and objectives.Chapter 4: How is a Monitoring Strategy Developed?This chapter describes how to develop a monitoring strategy by selectingappropriate indicators and establishing thresholds, triggers, and objectives.Chapter 5: How is Monitoring Implemented?This chapter provides guidance on developing a monitoring strategy. Amonitoring strategy involves details such as the frequency of monitoringand protocols for data collection, quality assurance, analysis, and storage.Chapter 6: How are Monitoring Data Used?This chapter discusses how monitoring data are used to inform visitor usemanagement decisions.Appendices provide examples of indicators, thresholds, triggers, and objectives for avariety of resources and settings to show how monitoring information is used toinform management actions. Sample monitoring forms and worksheets are alsoprovided. Numerous publications are available that have additional visitor usemonitoring information (see the References section of this guidebook). The list ofreferences and also this guidebook are not intended to be a comprehensiverepresentation of the literature on this topic.The icons above and to the left, indicate a reference to specific elementsand steps in the framework.2 Chapter 1MONITORING GUIDEBOOK
JUNE 2019, EDITION ONEChapter 1 3Define VisitorUse ManagementDirectionOutcome: Understand why theproject is needed, and develop theproject approach.4. Develop a project action plan.3. Assess and summarize existinginformation andcurrent conditions.2. Review the area’s purposeand applicable legislation,agency policies, and othermanagement direction.Outcome: Describe the conditionsto be achieved or maintained andhow conditions will be trackedover time.7. Select indicators andestablish thresholds.6. Define appropriate visitoractivities, facilities, and services.5. Define desired conditionsfor the project area.WHAT1. Clarify project purpose and need.Build tStrategiesOutcome: Identify strategies tomanage visitor use to achieve ormaintain desired conditions.11. Develop a monitoring strategy.10. Where necessary, identify visitorcapacities and additionalstrategies to manage use levelswithin capacities.9. Identify visitor use managementstrategies and actions to achievedesired conditions.8. Compare and document thedifferences between existingand desired conditions, and,for visitor use-related impacts,clarify the specific links to visitoruse characteristics.Steps:3Steps highlighted in yellow involve monitoring and are discussed in detail in this guidebook.Figure 1. Elements and steps of the “Visitor Use Management Framework.”DOImplement,Monitor, Evaluate,and AdjustOutcome: Implement managementstrategies and actions, and adjustbased on monitoring and evaluation.14. Adjust managementactions if needed to achievedesired conditions, anddocument rationale.13. Conduct and documentongoing monitoring, andevaluate the effectivenessof management actions inachieving desired conditions.12. Implementmanagement actions.Steps:4
Monitoring related to visitor use is a broad topic. To understand the content inthis guidebook, it is important to distinguish between two different types of visitoruse monitoring:1. Monitoring that is conducted to inform the development of desiredconditions. This type of monitoring focuses on the question, “What is thestatus and trend of visitor use?”2. Monitoring that is conducted to evaluate the effectiveness of managementactions. This type of monitoring focuses on the question, “Are current actionsachieving and maintaining desired conditions?”This guidebook focuses on the second type—monitoring that is conducted toevaluate the effectiveness of management actions in achieving and maintainingdesired conditions. Such monitoring responds to two key questions: (1) For selectedindicators, what is the status and trend of conditions?; and (2) How do conditionscompare with established thresholds?The focus of this guidebook does not diminish the importance of gathering dataor conducting research related to the overall status and trend of visitor use. Thisbroader scale of data collection may be conducted at the unit level, particularly forlarge units with complex visitor programs, but it is more often conducted at largergeographic scales that potentially span administrative boundaries. In addition,status and trend research can complement monitoring efforts and provide an evengreater understanding of human-resource interactions. Broad-scale research or datacollection helps inform step 3 of the framework (existing conditions) to build a solidfoundation for the project. Examples of this type of information include:What is the status and trend of characteristics of visitor use (e.g., how muchuse is occurring, where are people going, what time of year are they visiting, inwhat activities are people engaged, how frequently do people return)? What is the status and trend of visitor demographics (e.g., age, gender,ethnicity, residence)? What are peoples’ expectations and preferences? What are the attributes of thearea that draw people to visit or reside in the area? What information sourcesare people using to find out about visitor opportunities? How much are people spending on their trips? How is visitor use contributingto the economy? How much are recreation opportunities and experienceson federally managed lands and waters contributing to quality of lifeconsiderations for individuals and businesses? How are external factors influencing recreation opportunities and visitorexperiences (e.g., marketing campaigns, oil and gas development, gasolineprices, weather patterns)? 4 Chapter 1MONITORING GUIDEBOOK
1STEP 3The white quadrant of figure 2 illustrates monitoring within the framework that isconducted to inform the development of desired conditions (element 1, step 3).The other quadrants of figure 2 illustrate monitoring within the framework that isconducted after desired conditions have been defined (i.e., monitoring conductedto evaluate the effectiveness of management actions in achieving and maintainingdesired conditions). Again, this guidebook focuses on monitoring that occurs afterdesired conditions have been defined, not the monitoring that occurs to inform thedevelopment of desired conditions.Figure 2. Representation of where monitoring is integrated into the framework.WHYAssess and summarize existing informationand current conditions (e.g., status andtrends of visitor use and opportunities).3Build theFoundation4DO1Universal tothe Framework:LawAgency PolicySliding ScalePublicInvolvementImplement, Monitor,Evaluate, and AdjustConduct and documentongoing m
“Visitor Use Management Framework” (the framework) provides cohesive guidance on analyzing and managing visitor use on federally managed lands and waters. Monitoring is a core component of the framework and is increasingly emphasized in all agencies that manage federal lands and waters.
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situations where excessive visitor use has impaired wil - derness character. Policy (Appendix A) suggests that (1) use should be limited if necessary to avoid impair-ment, (2) any limits on visitor use should be based on estimates of visitor capacity, and (3) capacity should be based on concerns regarding protection of both the
Visitor use management is fundamental for maximizing benefits for visitors while achieving and maintaining desired resource conditions and visitor experiences on federally managed lands and waters. By using this Visitor Use Management Framework, managers collaboratively develop long-term strategies for providing
primary reason for visiting the area (within a 1-hour drive of the park). Zion National Park was the primary destination in travel plans of 17% summer visitor groups and 32% fall visitor groups. Of the visitor groups who spent less than 24 hours
May 25, 2017 · compared to April 2016 ( 227 per person). The Canada market continued to recover from sharp decreases in visitor spending and visitor arrivals for most of last year. In April 2017, visitor spending ( 21.5% to 90.4 million) and arrivals ( 17.9
Of the site (content, ecommerce, marketing, help/support, ) Of the experiment What can you measure to tell you if you met your objective? Content site: clicks/user, pageviews/user, time on site Ecommerce: rev/visitor, units purchased/visitor, cart-adds/visitor Marketing: referrals/visitor, time on site
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