Visitor Use Management Framework - National Park Service
Visitor Use Management FrameworkA Guide to Providing Sustainable Outdoor RecreationEdition One July 2016
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This publication was prepared by the Interagency Visitor Use Management Council,which consists of the following agencies:DEPARTMENTAGENCYBureau of Land ManagementDepartment of the InteriorNational Park ServiceU.S. Fish and Wildlife ServiceDepartment of AgricultureU.S. Forest ServiceDepartment of CommerceNational Oceanic and Atmospheric AdministrationDepartment of DefenseU.S. Army Corps of EngineersJuly 2016, Edition Onei
ContentsAbstract.viChapter 1: Introduction. 1Overview and Purpose. 3Organization of the Framework. 4Chapter 2: The Sliding Scale of Analysis. 7Determination Criteria for Placement on the Sliding Scale. 7Decision Support Tool. 8Relating Issues to the Sliding Scale. 10Summary of the Sliding Scale. 18Chapter 3: Framework Elements. 21Element 1: Build the Foundation. 23Step 1. Clarify the Project Purpose and Need.23Step 2. Review the Area’s Purpose and Applicable Legislation,Agency Policies, and Other Management Direction.24Step 3. Assess and Summarize Existing Information and Current Conditions.25Step 4. Develop a Project Action Plan.27Summary of Element 1.28Element 2: Define Visitor Use Management Direction. 29Step 5. Define Desired Conditions for the Project Area.30Step 6. Define Appropriate Visitor Activities, Facilities, and Services .34Step 7. Select Indicators and Establish Thresholds .38Summary of Element 2.42Element 3: Identify Management Strategies. 43Step 8. Compare and Document the Differences between Existing andDesired Conditions, and, for Visitor Use-Related Impacts,Clarify the Specific Links to Visitor Use Characteristics.44Step 9. Identify Visitor Use Management Strategies and Actions to AchieveDesired Conditions.46Step 10. Where Necessary, Identify Visitor Capacities and AdditionalStrategies to Manage Use Levels within Capacities.50Step 11. Develop a Monitoring Strategy.55Summary of Element 3.57iiVisitor Use Management Framework: A Guide to Providing Sustainable Outdoor Recreation
Element 4: Implement, Monitor, Evaluate, and Adjust. 58Step 12. Implement Management Actions.59Step 13. Conduct and Document Ongoing Monitoring, and Evaluatethe Effectiveness of Management Actions in AchievingDesired Conditions.59Step 14. Adjust Management Actions if Needed to Achieve DesiredConditions, and Document Rationale.60Summary of Element 4.62Chapter 4: Relationship to Larger Agency Planning Processes. 65Agency Planning Policies and Procedures Specific to the Framework. 65Relationship to Each Agency’s Planning Policies and Procedures. 66Appendix A: History and Limitations of Previous Visitor UseManagement Frameworks. 93Early Visitor Use Management Concepts and Frameworks. 93Limitations of Previous Frameworks. 94Appendix B: Hypothetical Example of the Application of the Visitor UseManagement Framework. 97Moose Creek Watershed Restoration Project. 97Appendix C: Sliding Scale Decision Support Tool. 111Glossary of Key Terms. 113References. 115July 2016, Edition Oneiii
FIGURESFigure 1. Overview of the Visitor Use Management Framework. 4, 21Figure 2. Elements and steps of the Visitor Use Management Framework. 22Figure 3. Illustration representing the range of settings included in theRecreation Opportunity Spectrum. 32Figure 4. Management triggers and thresholds in relation to trendin conditions. 40Figure 5. Planning process for refuge comprehensive conservation plans. 75Figure 6. Forest Service Planning Model. 80Figure 7. Planning model for revision or amendment to a landmanagement plan. 81Figure 8. The Recreation Opportunity Spectrum in relation to land managementand USFS project planning . 84ivVisitor Use Management Framework: A Guide to Providing Sustainable Outdoor Recreation
TABLESTable 1. Example of a completed decision support tool for determining thelocation of a project on the sliding scale of analysis: Reduce the sizeof a campground. 9Table 2. Example of a completed decision support tool for determining the locationof a project on the sliding scale of analysis: Manage overnight use at apopular national park. 12Table 3. Example of a completed decision support tool for determining the locationof a project on the sliding scale of analysis: Decide capacity in a low-useremote river setting. 14Table 4. Example of a completed decision support tool for determining the locationof a project on the sliding scale of analysis: Decide capacity in a high-useriver setting. 16Table 5. Example of a product from steps 5 and 6—a historical park’sdesired conditions and appropriate activities and facilities formultiple zones. 36Table 6. Large-scale plans required for federal land- andwater-managing agencies. 66Table 7. Policy direction for visitor use planning and management on refugelands and waters. 78Table 8. The Recreation Opportunity Spectrum class descriptions. 83Table B1. Decision support tool for the Moose Creek WatershedRestoration Project . 97Table C1. Blank decision support tool. 111July 2016, Edition Onev
AbstractVisitor use management is fundamental for maximizing benefits for visitors whileachieving and maintaining desired resource conditions and visitor experienceson federally managed lands and waters. By using this Visitor Use ManagementFramework, managers collaboratively develop long-term strategies for providingaccess, connecting visitors to key visitor experiences, protecting resources, andmanaging visitor use. The purpose of the framework is to provide cohesive guidanceon four major elements for analyzing and managing visitor use on federallymanaged lands and waters. It is also intended to provide a legally defensible,transparent decisionmaking process that meets law and policy requirements,ensures agency accountability, and provides sound rationales upon which to basemanagement decisions and actions. A common thread throughout the framework isthe use of the sliding scale. A sliding scale is used to ensure the investment of time,money, and other resources for a project is commensurate with the complexity ofthe project and the consequences of the decision. Issues with clearly small impactsusually require less depth and breadth of analysis than those with impacts ofgreater significance. Overall, this framework is meant to be adaptable to differentagencies’ policies and regulations and yet allow for a professional, comprehensive,and consistent approach to visitor use management on federally managed landsand waters.viVisitor Use Management Framework: A Guide to Providing Sustainable Outdoor Recreation
1Chapter 1: Introduction
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Chapter 1: Introduction“Everybody needs beauty as well as bread, places to play in and pray in, whereNature may heal and cheer and give strength to body and soul alike.”- John Muir, 1912Every year, people across the countryflock to federally managed lands andwaters for a variety of recreationalpurposes. Some are visiting an areafor the first time, while others arereturning to places they visit year afteryear. Some visitors are alone, andothers visit with friends and family.On any given day, visitors are planningtheir trips, others are immersed inKayakers at river’s edgea long visit, and some are headinghome and reflecting on their sharedmemories of time well spent. Recreation is a core element of American culture and avital thread in the fabric of society. It allows people to connect with their natural andcultural heritage, be healthier in mind and body, enhance the bonds between familyand friends, contribute to the economic vitality of communities, and be inspired andrejuvenated. Further, these opportunities allow people to better understand andcare for resources and federal lands and waters, creating citizen stewards who wantto support sustained management of our collective heritage.The last decade has been an exciting time with many initiatives, such as the WhiteHouse’s America’s Great Outdoors and Every Kid in a Park and the Department ofthe Interior’s America’s Youth in the Great Outdoors, which encourage visitor accessand connections to federally managed lands and waters. In particular, theseinitiatives encourage federal agencies to be responsive to an increasingly diversepublic that has changing interests and expectations. With this encouragement ofaccess, there is a corresponding need to heighten managers’ thoughtful approachesto managing visitor use.The Interagency Visitor UseManagement Council (thecouncil) was chartered in2011 to develop bestpractices for visitor usemanagement on federallymanaged lands and waters.Visitor use management isthe proactive and adaptiveprocess for managingcharacteristics of visitor useJuly 2016, Edition OneThe Interagency Visitor Use ManagementCouncil’s vision statement: Providing aunified voice for excellence in visitoruse management on our nation’sfederally managed lands and watersto sustain resources and quality visitorexperiences. See the council’s website:visitorusemanagement.nps.gov/.Chapter 1 1
and the natural and managerial setting using a variety of strategies and tools toachieve and maintain desired resource conditions and visitor experiences. Simplyput, it means managing use well to provide sustainable recreation.Visitor use refers to human presence in an area forrecreational purposes, including education, interpretation,inspiration, and physical and mental health. TheInteragency Visitor Use Management Council considersvisitor use management and recreation management assynonymous concepts.This Visitor Use Management Framework (the framework) is intended to providemanagers of federal lands and waters guidance regarding a common approach tovisitor use management. More specifically, this framework provides the analyticalelements necessary to address visitor use management opportunities and issues,consistent with applicable law, within existing agency management processes.The elements of the framework are combined with the appropriate proceduralcomponents (e.g., public involvement and environmental and cultural resourceanalysis) for the particular project being conducted. By using this framework,managers collaboratively develop long-term strategies for providing access,connecting visitors to key visitor experiences, protecting resources, and managingvisitor use. The decisions made within the framework are professional judgmentsinformed by the best available science, staff expertise, and public input.The concepts presented in this framework are not new; the framework is theproduct of an evolution of earlier efforts, modified to reflect lessons learned.It follows all of the council agencies’ planning principles and illustrates how tospecifically address visitor use management. It is consistent with previous efforts,such as the Limits of Acceptable Change process and the Visitor Experience andResource Protection Framework. In particular, one of the goals of this framework isto avoid the limitations of previous frameworks. Past frameworks were perceived toapply only in certain situations or to specific federal agencies, to be overly complexand costly, as stand-alone processesthat were separate from other agencyplanning efforts, and as reactive. Seeappendix A for a brief summary ofthe history of visitor use managementconcepts and frameworks.Children participating in an educational program2 Chapter 1This framework will enhanceconsistency in visitor use managementon federally managed lands andwaters, since it will be used byall agencies. The elements of thisVisitor Use Management Framework: A Guide to Providing Sustainable Outdoor Recreation
framework are broadly applicable to all visitor use management opportunitiesand issues. The framework is applicable across a wide spectrum of situations thatvary in spatial extent and complexity, from site-specific decisions to large-scalecomprehensive management plans. More specifically, the framework may be usedas part of a general or comprehensive planning effort, which typically providesoverall guidance on desired conditions, appropriate uses, and general managementstrategies for different areas within a unit. The framework may also be used toguide project-level planning and management, which typically define actions forspecific areas. This framework may also be used across a series of projects that buildon each other and may be applied to internally driven activities (e.g., analyzing amanagement action), as well as externally driven activities (e.g., a permit request oran action by another agency).All federal agency actions are subject to a variety of procedural requirements,including the National Environmental Policy Act (NEPA) and the National HistoricPreservation Act. However, each agency has specific policies and procedures forimplementing and documenting these requirements. This requires planners to befamiliar with and apply their specific agency NEPA and National Historic PreservationAct direction and any other procedural planning rules when using this framework.Chapter 4 highlights some of these commonalities and differences by agency.OVERVIEW AND PURPOSEThe purpose of the framework is to provide cohesive guidance on the majorelements for analyzing and managing visitor use on federally managed lands andwaters. It is also intended to provide a legally defensible, transparent decisionmakingprocess that meets law and policy requirements, ensures agency accountability, andprovides sound rationale upon which to base management decisions and actions. Inshort, the framework provides a professional, comprehensive approach to visitor usemanagement on federal lands and waters.This framework is designed to be highly flexible and adaptable to local situationsand needs. Of particular importance is the notion of a sliding scale of analysis,whereby the investment of time, money, and other resources in the analysis iscommensurate with the complexity of the project and the consequences of thedecision. For some projects, one person might work through the framework toa decision in a few hours; other projects might require multiple years of work bylarge teams. Another important concept is applying the framework proactivelyto determine which management actions are necessary to meet managementobjectives before unacceptable impacts occur. Monitoring data can help refine theunderstanding about which actions are necessary to maintain and/or achieve desiredconditions and improve the understanding and use of indicators and thresholds. Thisframework and a subsequent guidebook on indicators, thresholds, and monitoringemphasize the importance of setting thresholds at acceptable levels of impact andresponding to trends in changing conditions as identified by monitoring.July 2016, Edition OneChapter 1 3
ORGANIZATION OF THE FRAMEWORKThis framework is organized into five chapters. The current chapter, chapter 1,gives an overview of the framework and a summary of background information.Chapter 2 introduces the concept of the sliding scale of analysis and describes,generally, how it applies to all steps of the framework. Chapter 3 providesmore detailed descriptions of each element and its steps within the framework(see figure1). Chapter 4 provides guidance on integrating the framework intoagency planning processes and procedural requirements; each agency may applythe framework in a slightly different way to conform to its planning guidance.Appendix A offers a brief history and limitations of previous visitor use managementframeworks. A hypothetical example of applying the framework is includedin appendix B. A glossary of key terms follows appendix C, which is a blankdecision support tool.Figure 1. Overview of the Visitor Use Management FrameworkWHYBuild theFoundation4DO1Universal tothe Framework:LawAgency PolicySliding ScalePublicInvolvementImplement, Monitor,Evaluate, and AdjustDefine Visitor UseManagementWHATDirection2Identify ManagementStrategies3HOWThis document is not a “cookbook” of exactly how to implement each step of theframework; the context of each project guides the application of the framework.In addition, each agency’s planning processes and procedural requirements areconsidered during implementation of the framework. Application of the frameworkshould include creativity and flexibility to ensure meaningful visitor use managementprojects and decisions. Additional “how to” guidance on several of the frameworksteps is included in subsequent council guidebooks. See the council’s website formore information (visitorusemanagement.nps.gov/).4 Chapter 1Visitor Use Management Framework: A Guide to Providing Sustainable Outdoor Recreation
2Chapter 2: The Sliding Scale
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Chapter 2: The Sliding Scale of AnalysisThe sliding scale is used in each element and is explained in this chapter. Thischapter provides guidance for determining the level of analysis required toadequately address visitor use management opportunities and issues on federallymanaged lands and waters. A misperception of earlier frameworks was that theywere complex in application and costly in time and money. Therefore, this ledsome to use a less detailed process for simpler visitor use management issues. Inthis framework, regardless of the significance of the situation, all framework stepsstill apply. That is, the process does not vary with project complexity; rather, theinvestment of time and resources varies. The amount of investment is dependent onwhere the project is on the sliding scale. The same fundamental elements and stepsare used regardless of the placement on the sliding scale.This sliding scale approach is consistent with direction given in the Council onEnvironmental Quality’s interpretation of NEPA. This approach implements theinstruction that agency NEPA documents shall “focus on significant environmentalissues and alternatives” (40 CFR 1502.1) and shall discuss impacts “in proportion totheir significance” (40 CFR 1502.2(b)) (CEQ 2005, 2007). In short, when applyingthe sliding scale approach to NEPA analysis, the preparer should analyze issues andimpacts with a level of detail commensurate to their significance. (Note: Under theCouncil on Environmental Quality’s regulations and judicial rulings, the degree towhich environmental effects are likely to be controversial with respect to technicalissues is a factor in determining significance (40 CFR 1508.27).)Applying this “sliding scale of analysis” seeks to match the investment made inanalysis with the level of uncertainty and risk associated with the issues beingaddressed. Recognizing that it may not always be entirely clear what level of analysisis appropriate, this chapter attempts to provide some general guidance.DETERMINATION CRITERIA FOR PLACEMENT ONTHE SLIDING SCALEA variety of factors influence where a given visitor use management issue landson the sliding scale, including the level of uncertainty about the issue, risk ofimpacts to resources and visitor experiences, degree of stakeholder interest,and level of controversy/potential for litigation. To establish or set the level ofanalysis, which affects the investment of time, money, and other resources, useprofessional judgment.Use the following criteria to infer the level of analysis for an issue: Issue uncertainty: What is the level of uncertainty about the issuebeing addressed?»» This first criterion provides an opportunity to explore the issue as awhole, which aids in answering the subsequent criteria. Be careful not tounderestimate the uncertainty surrounding a given visitor use issue andwhere that uncertainty puts it on the sliding scale.July 2016, Edition OneChapter 2 7
Impact risk: Are there considerable threats to the quality of resource conditionsand visitor experiences?»» Determine if special interest groups are involved. Are there imminentthreats to unique or irreplaceable resources? Are there threats to uniqueor irreplaceable visitor experiences and recreational opportunities? Arethe impacts at a landscape scale? If the answer is “yes” to any of thesequestions, then a higher level of analysis may be appropriate to addressconcerns. Analyze the nature of impacts, their causes, and potential effects. Stakeholder involvement: What is the level of stakeholder interest in the issue?»» Are special interest groups involved? Are they well organized, wellestablished, and engaged? Engaged stakeholder groups are more likely toclosely track the process. Therefore, higher levels of analysis are requiredto satisfy their information needs. It is important to build trust and movea decision or action forward through two-way communication withstakeholders, partner groups, and government agencies, such as tribes,counties, and towns. If there is little stakeholder interest, it is still importantto understand how they feel about or perceive the issue associatedwith the project. Level of controversy/potential for litigation»» If an issue is controversial or more likely to be litigated, a higher level ofanalysis is required. Generally, legal battles over visitor use managementissues can be minimized and outcomes likely more positive when theprocess includes a rigorous, well-documented analysis with a completeadministrative record that supports the decision. DECISION SUPPORT TOOLThe decision support tool (appendix C) is a simple high, moderate, or low ratingsystem that, when used in conjunction with the broad criteria previously presented,can help inform the level of analysis needed for a project. If the overall responsesto the questions are “high,” then the level of analysis is likely high. If the overallresponses are “low,” then the level of analysis is likely low. However, if some of theresponses are high, some are low, and some are moderate, the level of analysis islikely somewhere in the middle. When only one guideline rates out as high, carefullydecide the overall level of analysis. For example, a high risk of controversy maymean that the level of analysis is also high or that the level of analysis is moderateand accompanied by a robust public involvement process. Document the rationalefor any determination, regardless of the level of analysis.The decision support tool’s list of questions is undoubtedly incomplete; thedecisionmaker must consider other factors and variables in cases in which regulatorystandards must be met. While the decision support tool can help determine where aproject falls on the sliding scale, the decisionmaker ultimately decides the necessarylevel of analysis. See the council’s website for a blank decision support rces. Table 1 provides anexample of a completed decision support tool for a project on the low end ofthe sliding scale.8 Chapter 2Visitor Use Management Framework: A Guide to Providing Sustainable Outdoor Recreation
Table 1. Example of a completed decision support tool for determining the location of aproject on the sliding scale of analysis: Reduce the size of a campgroundDecisionSupport ToolRATING QUESTIONSRATIONALEHIGHMODERATELOWProject: Reduce the Size of a Campground (see a full description in example 1 underchapter 2, “Relating Issues to the Sliding Scale”)1What is the likelihood that theSurveys show the site has no sensitive,situation involves sensitive, rare, orrare, or irreplaceable natural resources.irreplaceable natural resources?Low2What is the likelihood that theSurveys show the site has no sensitive,situation involves sensitive, rare, orrare, or irreplaceable cultural resources.irreplaceable cultural resources?Low3What is the likelihood of imminentand significant changes to thenatural or cultural resources?The footprint of the campground hasalready been established, so significantchanges will not occur.Low4What is the likelihood of imminentand significant changes tovisitor experience?There may be short-term disturbance,but overall, the improvements willenhance visitor experience.Moderate5How will the issue affect otheraspects of land management inthe area or surrounding areas?As major maintenance, there may beshort-term disturbance duringconstruction, but overall, theimprovements will enhance visitorexperience.Low6What is the geographic extentof the issue’s impacts? Scales ofimpacts include: national, regional,state, local/county, and siteor project.This is a local campground and isconsidered a project.Low7What is the relative interest ofstakeholders affected by theaction? Stakeholders may include:Stakeholders are locals and are interestedlocal communities, generalin the improvements as shown bypublic, special interest groups,attendees of local outreach meetings.recreational visitors, commercialusers, traditional-subsistence users,tribes, and others.8Is the impact temporary (low) orlong lasting (high)?July 2016, Edition OneThe maintenance happens over oneseason, but the improvements to visitorexperience are long lasting.LowLow - HighChapter 2 9
Table 1. ContinuedCRITERIA - Use the ratings assigned to questions 1-8 to evaluate the following 4 slidingscale criteria. Combine those criteria into a single qualitative rating (high, moderate, orlow) of the project’s appropriate location on the sliding scale.CRITERIARATIONALEHIGHMODERATELOWThis project is clearly stated, and theability to complete the work is fairlycertain. No surprises are anticipated.LowB Impact RiskThe risk to resources and visitor experienceis low since the campground is establishedand surveys have been completed.LowC Stakeholder InvolvementStakeholders are supportive of the projectand want it to be completed.LowD Level of ControversyLow levels of controversy exist dueto the established nature of thecampground. Additionally, the projectwill create opportunities to improve thevisitor experience.LowAIssue UncertaintyLocation on the Sliding ScaleLowRELATING ISSUES TO THE SLIDING SCALEThe following four examples demonstrate how the rating questions of the decisionsupport tool are considered collectively to determine the project’s place on thesliding scale.Example 1: Reduce the sizeof a campground.Consider an agency-operatedcampground that only reachescapacity on some holiday weekends.Some visitors are highly attached tothe area and enjoy using the samesites year after year. The campgroundis at a point in its lifecycle in whichmajor maintenance is required (e.g.,resurfacing roads, replacing picnicRV camping at Hartwell Dam Recre
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
Visitor Visa Guide INZ 1018 A guide to applying for a visitor visa For further information on immigration visit www.immigration.govt.nz April 2013 Information about this guide This guide will help you to complete the form Visitor Visa Application (INZ 1017). It will give you information about coming to New Zealand as a visitor and help you to
“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.
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
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
user satisfaction and use level. The National Visitor Use Monitoring Program ensures that all visitor statistics for national forests and grasslands produced by the Forest Service use a standardized measure. These standards were originally established by the agency in the 1970s. However, application of those standards is now under stricter .
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
N. Suttle 2010. Mineral Nutrition of Livestock, 4th Edition (N. Suttle) 1 1 The Requirement for Minerals Early Discoveries All animal and plant tissues contain widely vary-ing amounts and proportions of mineral ele-ments, which largely remain as oxides, carbonates, phosphates and sulfates in the ash after ignition of organic matter. In the .
