NATIONAL PARK SERVICE ADMINISTRATIVE POLICIES for the Historical Areas of the National Park System

DISCUSSION

Physical developments are provided in historical areas to fulfill the congressional policy enunciated in the Historic Sites Act of 1935, namely: to operate and manage historic and archaeologic sites, buildings, and properties * * * together with lands and subordinate buildings for the benefit of the public, such authority to include the power to * * * grant concessions, leases, or permits for the use of land, building space, roads or trails when necessary or desirable either to accommodate the public or to facilitate administration,,

These necessary facilities should be provided under carefully controlled safeguards against unregulated and indiscriminate use so that there is the least possible disturbance and intrusion on the historic features of the area. The location, design and materials, to the highest practicable degree, should be consistent with the preservation of the historical environment.

Such appropriate facilities, if wisely located, designed, and constructed, can serve, moreover, to protect historical values by focusing and directing the use of the area. For example, a road, a trail, or a needed concession facility, can serve to channel use in specific locations, thus preventing indiscriminate use of a larger area or intrusions on historic resources which could damage or destroy some of the very values for which the park has been dedicated and set aside.

Physical developments for the foregoing purposes can be made to be compatible with the historical environment; those which are in discord with their surroundings can be avoided. It is the purpose of the administrative policies which guide the Service in its physical development programs to achieve this objective.

ADMINISTRATIVE POLICIES

Architectural Theme
Only those physical facilities needed for management and appropriate public use shall be provided in a historical area and then only at sites designated on the approved Master Plan for the area. An architectural theme (statement of design philosophy) shall be prepared for each historical area or, where desirable, for each major development site within an area. Particular attention shall be devoted to the harmonizing of such developments with their historical environment, consistent with utility and economic construction and maintenance costs. In all cases, maximum creativity in design and materials—preferably those native to the region or locality—shall be used to insure that the manmade facility is subservient to and not competitive with or dominant to the historical features of the area. (See also Construction Materials, this page.)

Airports
The Service encourages the location of needful airport facilities and services outside of historical areas and, to the extent permitted by law and funds, will participate in their development. (See also Aircraft Operation, p. 37, Resource Management Policy section.)

Memorials
(See Memorials, p. 51, Resource and Visitor Use Policy section.)

Construction Materials
Materials recovered from approved construction sites may be used for construction or maintenance projects within the area. If such materials are not obtainable from a construction site, they may be obtained from other sites in the area only when the recovery of such materials does not impair the historic environment or outstanding natural features that should be preserved for public use and enjoyment. (See also Architectural Theme, this page; and Borrow Pits, p. 69, Road and Trail Policy section.)

Residential Facilities
Except for historic structures, the use of federally owned lands in historical areas for permanent or seasonal residences shall be permitted only when required to house those persons engaged in on-site public services or protection of property. The provision of housing for Federal employees shall be in accordance with Bureau of the Budget Policy Circular No. 18, October 18, 1957. Historic structures may be made available for permanent or seasonal residences in circumstances other than those mentioned above when such use is compatible with the primary purpose of the area and it will facilitate the management program of the area. (See also Restoration, p. 22, and Compatible Use of Historic Structures, p. 27, Historic Preservation Policy section; and Recreational Activities, p. 51, Resources and Visitor Use Policy section.)

Maintenance
Physical facilities shall be maintained and operated in the condition or state equivalent to that existing when the facility was completed, or the state to which subsequently modified by alteration or betterment to the end such physical facilities may be continuously used for their intended purpose.

Concession Facilities
The number of sites and the locations and sizes of the tracts of land assigned for necessary accommodations shall be held to the minimum essential to the proper and satisfactory operation of the accommodations authorized to be installed and operated. Moreover, such developments as are permitted (including use of historic structures when appropriate) shall be constructed so as to be as harmonious as possible with their surroundings. To this end, plans and specifications for buildings and other structures, including renovations and modifications of historic structures to be undertaken by the concessioners, shall be prepared at the expense of the concessioner and submitted to the Service for approval before construction is begun. Such plans, when approved, shall be adhered to by the concessioners in carrying out construction programs. (See also Concessions and Concessioners, p. 55, Resource and Visitor Use Policy section, and Compatible Use of Historic Structures, p. 27, Historic Preservation Policy section.)

Utilities
Utility lines should be placed underground except where to do so causes excessive damage to the historic environment or outstanding natural features. When placed above ground, utility lines and appurtenant structures should be carefully planned and located to minimize their impact on historical resources and outstanding natural features and visitor enjoyment and understanding of the historical theme of the area.

Non-park Uses and Developments
Except where they involve existing rights recognized in legislation or agreement prior to the establishment of the area, or where they are authorized as being clearly in the national interest after all reasonable alternatives have been exhausted, the installation of electrical power transmission lines, gas and oil pipelines, railroads, and other structures and facilities not directly related to park management and visitor use should be discouraged. When it is necessary to authorize electrical power transmission lines, the authorization will conform with the applicable requirements and stipulations of Section 2234.4, Title 43, Code of Federal Regulations. Where such non-park uses exist, or where they may be authorized in the foregoing circumstances, they should be eliminated as rapidly as possible through orderly and cooperative procedures with the permittees concerned. (See also Utilities, p. 65, this section, and Non-park Roads and Highways, p. 70, Road and Trail Policy section.)

Special Uses of Government-owned Property
Authorizations for special uses of Government-owned property (lands, structures, or other facilities) administered by the Service shall be reduced to writing, utilizing forms prescribed by the Service for such purposes. (See also Fees, and Cultural Facilities, this page, and Non-park Uses and Developments, p. 65, this section; Compatible Use of Historic Structures, p. 27, Historic Preservation Policy section; Concessions and Concessioners, p. 55, Resource and Visitor Use Policy section; Non-park Roads and Highways, p. 70, Road and Trail Policy section; and Appendix G.)

Fees
Except for exclusions specifically authorized, appropriate fees shall be charged for authorizations for special uses of Government-owned property administered by the Service. (See also Bureau of the Budget Circular No. A. 25, September 23, 1959; Concessions and Concessioners, p. 55, Resource and Visitor Use Policy section; Appendix G; and applicable volumes of the National Park Service Handbook Series.)

Private-use and Development Zone
Where a private-use and development zone occurs within historical areas boundaries, public use and development will be planned and located so as to minimize conflicts with the private owner's use and enjoyment of private property.

Cultural Facilities
Permanent facilities for cultural events (concerts, plays, etc.) may be provided in historical areas where (l) it is clearly impracticable to use existing historic structures for such purposes (see also Compatible Use of Historic Structures, p. 27, Historic Preservation Policy section); (2) demountable or temporary facilities are not feasible; and (3) the event or program to be staged is of transcendent importance in the interpretation of the events and persons associated with the area.

DISCUSSION

The Director of the National Park Service, on September 8, 1967, asked a committee of distinguished scientists, conservationists, and park planners to undertake a study of the purposes of park roads and standards to which they should be constructed. The committee report is included as Appendix I. The report, approved by the Director and the Secretary of the Interior, deserves careful study by all park planners and managers.

ADMINISTRATIVE POLICIES

Road System
In each area there should be a "good sensible road system" to serve the needs of management and the reasonable requirements of appropriate park visitor use and enjoyment. Types of roads which may be provided within the road system are: Major park roads, minor park roads, special purpose roads, interpretive (motor history) roads, administrative roads, and parkways. Two-way roads should be deemphasized and one-way roads should be emphasized. (See also One-way Roads, p. 69, and Interpretive (Motor History) Roads, p. 70, this section.)

Traffic Management
The aim of traffic management of park roads should be to enhance the quality of a park experience and not to expedite the maximum flow of automobile traffic through an area. To this end, every effort shall be made in cooperation with the States and the Bureau of Public Roads to eliminate designated U.S. Highways from the parks and minimize the impact of cross-country through traffic. Where traffic volumes and safety standards indicate the necessity therefore, speed limits should be lowered below design speed to achieve safe travel. Moreover, existing two-way roads may be converted to one-way roads to achieve safe travel. During the short periods when automotive traffic may exceed the safe capacity of the road system, shuttle-bus service should be instituted to relieve the congestion in the places of heavy visitor concentrations. Arrangements for such service shall be made with authorized transportation concessioners. (See also Concessions and Concessioners, p. 55, Resource and Visitor Use Policy section.) To facilitate traffic movement and to achieve safe travel, special-purpose vehicles may be required by regulations to use park roads during hours other than peak travel hours. Vehicles that cannot safely negotiate park roads—either because of size or length of vehicle—should be prohibited by regulation.

Routing of Roads
In deciding upon road locations, maximum advantage should be taken of interpretive and scenic values. A professional determination must be made that the resulting effects on park values—including such aspects as historic preservation, wildlife habitat and mobility, drainage, stream flow, and the climatic effects of paved areas—will be minimal. A professional determination must be made that the means of transportation, and its location, will provide maximum opportunity for visitor enjoyment and appreciation of park resources. The encouragement of such activities as photography, hiking, and interpretive walks, will be influential in determining actual locations. The routing of all roads and the plans for construction and reconstruction of all roads shall be guided by field determinations of the Chief Scientist, Chief, Office of Archeology and Historic Preservation, and the Assistant Director for Interpretation.

Alternate Methods of Transportation
Analysis of all potentially useful modes of transportation should be continued. Feasible alternatives to road transportation should receive experimentation in areas in which serious circulation problems now exist or in which access has not yet been provided. Every opportunity should be taken, also, to encourage the safe use of waterways for access.

Road Design
An aesthetically pleasing road is one which lies lightly upon the land utilizing natural support wherever possible. Moreover, heavy cuts and fills must be avoided. In effect, the road is molded to the terrain through which and upon which it is passing. Monotony is avoided, and maximum advantage taken of park values, by eliminating long tangents, by changes in elevation, by developing viewpoints and overlooks, as well as providing close-range views of local scenes. The road should, in fact, strive to maintain a continuing sense of intimacy with the countryside through which it is passing.

In forested terrain, clearing limits should be carefully controlled and selective cutting should be used to produce variation and indentation in the tree line. Retaining walls can reduce the height and extent of cut-and-fill slopes. In heavy mountainous terrain and under certain other conditions, serious consideration should be given to the use of trestles or bridges, tunnels, and half-viaduct sections to reduce scarring.

Ample turn-outs, scenic overlooks, and trail connections should be provided to facilitate leisurely visitor enjoyment of historic and natural features and to encourage visitors to leave their automobiles to more thoroughly experience the park.

Ditches, slopes, structures, vertical alinement, design speed, and roadway widths shall not exceed the standards set forth in Appendix I.

With respect to design speed standards, curves having a design speed of less than 25 miles per hour are to be encouraged when their use will reduce scarring or enhance visitor enjoyment of scenic or historic resources. Moreover, a design objective for roads (other than non-park roads and highways) in historical areas is to achieve a roadway that restricts speed of passenger automobiles on all sections to not more than 35 miles per hour. Creative use should be made of vertical alinement, curve layout, and other engineering techniques to accomplish this objective. Special-purpose vehicles which cannot safely and conveniently negotiate such park roads may be required by park regulation to travel at other than peak travel hours or they may be prohibited from using such roads. (See also Road Surfaces and Materials, this page.)

Road Surfaces and Materials
The color of materials used in road construction will be chosen to harmonize with the general character of the landscape. Chips used for periodic sealing and repair should be selected from appropriate rock material sources. A particular effort should be made to avoid "black top" in sensitive areas, such as in the vicinity of cultural resources and natural features. The above is equally applicable to parking areas.

Borrow Pits
Only when economic factors make it impractical will borrow pits be created in the parks, or present pits further utilized, unless located in washes or other places where natural factors will eradicate the scar. (See also Construction Materials, p. 64, Physical Developments Policy section.)

One-way Roads
In general, the philosophy should be followed that the primary park purposes of preservation, enjoyment, and interpretation are collectively served better by one-way roads than by two-way roads (major and minor park roads and parkways). Accordingly, one-way roads should be constructed in preference to two-way roads wherever practicable. (See also Road System, p. 67, this section.)

Interpretive (Motor History) Roads
To increase visitor enjoyment, efforts should be made to convert existing roadbeds—such as abandoned roads and railroads, fire roads, administrative roads—into interpretive roads, or motor history trails. Their use for this purpose is encouraged. These low-speed, often one-way roads, with ample parking, viewing, and trail opportunities, encourage visitors to explore the scenery and features at a leisurely pace. (See also Road System, p. 67, this section.)

Signs
Roadside signing, whether regulatory, information, or interpretive, is an integral part of the visitor experience, as well as road design. Care should be exercised to insure that the quality and design of all signing enhances the visitor experience.

Parking Areas
The placement of parking areas where they intrude, by sight or sound, on significant features, must be avoided. Moreover, the size of parking areas should be limited to the greatest extent possible for effective operation. Where large parking areas are necessary, they should be broken up with plantings and screenings, if possible. (See also Road Surfaces and Materials, p. 69, this section.)

Non-park Roads and Highways
Rights-of-way from public roads across Federal land to private lands within area boundaries may be granted private parties when necessary to provide reasonable access to such private property. On this same right-of-way, where practical, private parties may provide such utility lines as may be reasonably necessary to their use and enjoyment of their property. All construction shall be in accord with plans prepared by or for the permittee at his expense and approved by the Service. Moreover, such permits shall require costs of construction, maintenance, etc., to be borne by the permittee.

Local and State roads and rights-of-way may exist in and serve visitors to historical areas. Where this is the case, the Service may enter into cooperative agreements, as legally permitted, regarding the methods, responsibilities, and sharing of costs for maintenance, rehabilitation, and reconstruction of such roads.

Where major through roads in historical areas are required to serve the primary mission of the area, the Service will cooperate with responsible local, State, and Federal officials in selecting locations and developing design standards consistent with the historic integrity of the area. (See also Fees, p. 66, Utilities, p. 65, and Special Uses of Government-owned Property, p. 66, Physical Developments Policy section.)

Walks and Trails
A variety of trails—interpretive, bicycle, horse, and motor trails—are desirable. The use of historic trails, walks, and roads by visitors is encouraged when appropriate and compatible with preservation of historical integrity.

Bicycle trails, when the terrain is suitable and the demand is sufficient, may be provided when compatible with the primary purpose of the area.

Normally, bicycle trails will be separate from other trails. However, bicycles may be permitted on park roads when they do not pose a safety hazard or diminish the quality of experience for other visitors. Horse trails may be provided in historic areas when the degree of use justifies them, and they do not threaten deterioration of the historic resource or detract from the enjoyment of history by other visitors. Horseback use will ordinarily be separated from other elements of the circulatory system although horses may be permitted on less used roads and hikers' trails when they will not create a safety hazard or interfere with the enjoyment of other visitors. (See also Interpretive (Motor History) Roads, p. 70, this section.)

Interpretive Trails
(See Walks and Trails, this page.)

Trail Surfaces and Materials
(See Road Surfaces and Materials, p. 69, this section.) Additionally, elevated boardwalks, such as Anhinga Trail, are often effective solutions.

Trail Use
Where volume of use warrants, separate trails should be provided for foot and horse use. Moreover, where intensity of use threatens park values, limitations on size of parties and frequency of trips to specific locations may be imposed. (See also Campground Operation, p. 52, Resource and Visitor Use Policy section.)