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

DISCUSSION

Explicit in the several congressional enactments is that national parks are established for the "benefit and enjoyment of the people" of this and future generations. The mission of a national park is achieved as it provides enjoyment, refreshment, and knowledge. Implicit in these legislative mandates is the concept that use of a park and its resources is to be of a special kind and quality.

Accordingly, it is clear that park forests, waters, wildlife, and minerals are not available for consumptive, exploitative use as a material resource. The features of a park are to be preserved "from injury or spoliation * * * for the benefit and enjoyment of the people" of this and future generations.

"Benefit and enjoyment" connote more than recreation. The use of national parks for the advancement of scientific knowledge is also explicit in basic legislation. National parks, preserved as natural, comparatively self-contained ecosystems, have immense and increasing value to civilization as laboratories for serious basic research. Few areas remain in the world today where the process of nature may be studied in a comparatively pure natural situation. Such use of national parks and monuments is to be encouraged to the degree that, in the process, the natural integrity is not itself unpaired.

ADMINISTRATIVE POLICIES

Fishing
(See Fishing, p. 25, Fish and Wildlife Management Policy section.)

Research
The public use, protection, development, interpretation, and management of the natural and cultural resources of a natural area shall be predicated on documented data obtained through appropriate investigation and research. Moreover, the use of the resources in natural areas for study or research purposes by recognized educational and scientific institutions and accredited individuals shall be encouraged. Pursuant to the achievement of these policies, the collection of reasonable numbers of biological and geological specimens and historic artifacts and objects may be permitted.

All research should be in consonance with the purposes of the park and the policies of the Service. Procedures which might result in damage or alteration to Class IV areas will not be permitted. Care should be taken to avoid excessive disturbance or destruction of plantlife, as well as excessive disturbance or harassment of wildlife and aquatic life. In no case will harassment of rare and endangered species be permitted, and undue disturbance thereof must be avoided. (See also Research Program, p. 37, Research Station Policy section; Preservation and Display of Natural and Cultural Objects and Disposal of Resources, this page; and Research, p. 56, Wilderness Use and Management Policy section.)

Preservation and Display of Natural and Cultural Objects
Objects representative of the natural and cultural resources of natural areas may be collected and preserved for study and interpretive purposes. Where objects are not obtainable from the area or additional objects are needed to supplement existing collections, such may be acquired by gift, loan, exchange, purchase, etc., in conformance with legal authorization and existing procedures.

Disposal of Resources
Natural products salvaged as a result of resource management activities and physical development projects that are excess to the management needs of a natural area shall be disposed of in accordance with Federal laws and procedures. Also, natural products salvaged from natural phenomena which adversely affect, or impair, the management of a natural area and which are excess to the management needs of the area, shall be disposed of in accordance with Federal laws and procedures. (See also Act of August 25, 1916, 16 U.S.C. 3; and Plant and Animal Resources, p. 17, Resource Management Policy section.)

Archeological and historic objects and artifacts shall not be disposed of or removed from the jurisdiction of the Service except in connection with approved educational or research programs. Arrangements for their transfer, loan, or other disposal shall be made in accordance with Federal laws and established procedures. (See also Sale of Native Handicraft and Artifacts, p. 51, Visitor Use Policy section; and Act of June 8, 1906, 16 U.S.C. 431.)

Aircraft Operations
Where aircraft operations adversely affect the environment of a natural area, the cooperation of agencies exerting flight control over public aircraft will be sought to institute such measures as will minimize or eliminate the disturbance. The use of aircraft in natural areas is permissible in emergency situations involving the saving of human life or protection of threatened park resources, or when the use of aircraft offers significant advantages to area management and such can be accomplished with minimum disturbance to visitor enjoyment. Float-equipped or amphibious aircraft may land in designated water-oriented parks to provide visitor access to selected areas. Landings will be restricted to waters especially designated on the park Master Plan for this use. (See also Fire Control and Rescue and Other Emergency Operations, p. 56, and Motorized Equipment, p. 58, Wilderness Use and Management Policy section; and Airports, p. 60, Physical Developments Policy section.)

Berry Picking
Individuals may gather berries, fruits, mushrooms, and similar edibles for consumption in the area, but not for sale or distribution to others.

Official Records
In conformance with legal authorization and existing procedures, the Service shall make available, upon request, those official records affecting the public. (See also Part 2 of Title 43, Code of Federal Regulations, issued pursuant to the Public Information Act of June 5, 1967 (P.L. 90-23).)

DISCUSSION

The Congress, in the act of August 25, 1916, establishing the National Park Service, charged the Service to "promote and regulate" the use of the parks. Moreover, the Convention on Nature Protection and Wildlife Preservation in the Western Hemisphere Between the United States of America and Other American Republics and Annex (see Treaty Series 981, Appendix C) provides, among other things, that: "The Contracting Governments further agree to provide facilities for public recreation and education in national parks consistent with the purposes of this Convention." Secretary Franklin Lane, in his May 13, 1918, letter to Director Stephen T. Mather, included the following comment on interpretation and conservation education in his administrative policy statement:

The educational, as well as the recreational, use of the national parks should be encouraged in every practicable way. University and high school classes in sciences will find special facilities for their vacation-period studies. Museums containing specimens of wild flowers, shrubs, and trees, and mounted animals, birds, and fish native to the parks, and other exhibits of this character will be established as authorized.

Director Mather implemented Secretary Lane's policy with the following words:

Like other quests for knowledge, an intelligent study of nature is greatly assisted by direction. Many persons who visit the parks are thoroughly responsive to their influences, but they lack the incentive born of knowledge to delve into a real understanding of things.

The quality of park use depends upon a creative understanding of the park and its resources by the visitor. An imaginative and meaningful information and interpretive program which provides this understanding is essential to park management.

A variety of interpretive and informational activities and facilities is needed, including visitor centers, museums, publications, wayside exhibits, overlooks, and trails.

Appropriate visitor use includes both interpretation and wholesome recreation in an outdoor, natural setting. This does not mean, however, that national parks may accommodate all varieties or unlimited volume of recreational use. Outdoor recreation involves a broad spectrum of activities ranging from participation in outdoor sports to moments of quiet meditation in a solitary walk among the big trees.

A national park is not a scenic location for a golf course, amusement park, or a spectator sports event. Such recreational events have their own "built-in" values and rewards, and need not be enjoyed within a national park.

This is the test—is the activity inspired by, and do its rewards derive from, the natural character and features of the park?

Appropriate park use falls dominantly in the esthetic, cultural, and educational end of the recreational spectrum. Park use should lean heavily upon individual participation and response. Individuals engage as individuals, respond as individuals, even when in a crowd viewing an eruption of Old Faithful.

The goal of interpretive programs should be to create greater awareness and understanding of the natural park environment. In general, interpretation of natural features is more effective in an outdoor, onsite setting.

To "promote and regulate" appropriate park use in accordance with the mandate of the Congress, as set forth in the 1916 Act, requires in most parks a variety of related services which satisfy the health, safety, subsistence, and accommodation of the public. Some of these services are provided by other agents, such as concessioners and other Federal agencies. The important considerations in these matters are:

That appropriate use of the park requires the service.

That geographic or other factors require that the service be provided within the park, rather than outside its boundaries.

ADMINISTRATIVE POLICIES

Visitor Centers
For the purpose of providing orientation and interpretation for visitors, and for other management purposes, visitor center facilities may be developed at appropriate locations. Audiovisual programs, publications, manned and self-help information desks, maps, and museums may be included, as appropriate, among the interpretive activities provided in visitor centers.

Amphitheaters and Wayside Exhibits
Interpretive facilities for outdoor interpretive programs, such as amphitheaters and wayside exhibits, should be provided where visitor-use patterns, particularly evening use, develop a need. All seats will have backrests.

Education
A broad program to promote environmental education should be a part of the interpretive program; and cooperation with schools, colleges, publishers, and other organizations is encouraged for the purpose of communicating an environmental consciousness both within and beyond the park. (See also Camping and Campgrounds Policy section, p. 39.)

Wildlife Observation
Opportunities should be provided for visitors to view park wildlife. Park roads with associated parking overlooks, wildlife trails, improved information techniques, and special publications are encouraged. Those activities which harass wildlife and misuse wildlife habitat should be avoided.

Interpretive Trails
A variety of interpretive trails—nature and history, self-guiding and motor trails—are desirable. The concept of one-way motor nature trails, with ample turnouts, small overlooks, and short (usually one-quarter of a mile) self-guiding walks shall be encouraged. The use of existing administrative roads for this purpose, either on a self-guiding basis or by personally conducted motor caravans, should be permitted where appropriate. Trailheads, from which trail use can begin, should be provided. (See also Off-road Use of Motorized Equipment, p. 18, Resource Management Policy section; Motorized Equipment, p. 58, Wilderness Use and Management Policy section; and Road and Trail Policy section, p. 63.)

Recreation Activities
In natural areas, outdoor recreation activities, such as hiking, mountain climbing, bicycling, horseback riding, sightseeing, water-oriented activities, winter-use activities, nature observation, photography, camping, picnicking, and similar activities that can be accommodated without material alteration or disturbance of environmental characteristics or the introduction of undue artificiality into a natural environment are to be encouraged, and provision shall be made to facilitate public participation in them. Water-oriented recreation activities shall be governed by applicable Federal, State, and local laws and regulations. Vessels that are to be used as residential facilities may not be placed on waters under the jurisdiction of the Service in natural areas. (See also Boating, p. 57, Wilderness Use and Management Policy section; and Residential Facilities, p. 61, Physical Developments Policy section.)

Special Events
The use of lands or facilities of natural areas for organized athletic events or competitive recreational events characterized as public spectator attractions should not be permitted. Pageants, anniversary observances, and the like, may be permitted when there is a meaningful association between the area and the event, and its observance contributes significantly to visitor under standing and enjoyment and when it can be staged without undue impact on the area's resources. (See also Public Assembly, p. 52, this section.)

Concessions and Concessioners
Concession and other business operations in natural areas are authorized under the act of August 25, 1916 (39 Stat. 535), as amended. The congressionally approved concession policies (P.L. 89—249, 89th Cong.) are set forth in Appendix F. The standard contract language approved by the Secretary is incorporated in the Service's "Concessions Management Handbook." Administrative policies dealing with subjects in addition to those in the congressionally approved policies are as follows:

1. Site Selection and Construction of Concession Facilities. (See Concession Facilities, p. 61, Physical Developments Policy section.)

2. Government Development of Concession Facilities. When there is no response from a prospectus, and the facilities are necessary for the accommodation of park visitors, such facilities may be provided by the Government with appropriated funds and made available to responsible private parties for operation. Except in emergency situations, the Government should not engage in the direct operation of concession facilities.

3. Maintenance of Government-owned Facilities. Concessioners should be required to maintain all government-owned facilities used in concession operations. To this end, annual maintenance programs shall be required during the term of the contract. Concessioners should not be granted possessory interest in capital improvements made to Government-owned facilities. Where capital improvements, as distinguished from maintenance, are necessary, they may be made by the Government, if adequate funds are available, or, if made by the concessioner, should be amortized to avoid dual ownership interests.

4. Insurance. Concessioners should carry such insurance against losses by fire, or other casualty of Government-owned facilities, public liability, employee liability, and other hazards as is customary among prudent operators of similar businesses under comparable circumstances.

5. Employees. Concessioners should have affirmative action programs to assure equal employment opportunities and adhere to the Department's labor standards and to applicable Federal and State labor laws.

6. Nondiscrimination in Service. Concessioners and their employees may not discriminate against any individual because of race, creed, color, sex, or national origin.

7. Advertising of Facilities and Services. Advertising of facilities and services should be descriptive, accurate, and in good taste. Billboard advertising is discouraged. (See also Advertising, p. 51, this section.)

8. Merchandise. The merchandise sold in natural areas is to be limited to those items and services appropriate and necessary for public use and enjoyment of the areas. All souvenirs and other merchandise offered for sale to visitors must be in good taste. (See also Sale of Native Handicraft and Artifacts, p. 51, this section.)

9. Alcoholic Beverages. The sale of alcoholic beverages may be permitted in natural areas, subject to applicable Service regulations and State laws.

10. Conventions. The use of concession facilities for conventions, group meetings, and the like, during seasons of heavy vacation travel, should be discouraged.

11. Overnight Accommodations. The concessioners shall maintain a reasonable proportion of their accommodations as low-priced accommodations.

12. Establishment of Concessions. Concession services and facilities are authorized within the natural areas only when necessary and appropriate for the public use and enjoyment of the area, consistent with their preservation and conservation. Where adequate facilities and services exist or can be developed by private enterprise outside such areas, such shall not be provided within the natural areas.

13. Quality of Service. Services offered to the public by concessioners must be satisfactory as judged by recognized standards and the rates for such services must be reasonable as judged by statutory criteria.

Safety and Public Health
The recommended standards for safety and public health prescribed by Federal, State, or local authorities having jurisdiction shall be observed in providing for the health, safety, and well-being of visitors and those employed in natural areas. (See also Recreation Advisory Council Circular No. 3, Policy Governing the Water Pollution and Public Health Aspects of Outdoor Recreation, Appendix G.)

Safety equipment such as fire hydrants and standpipes should be carefully planned and located to prevent impairment of the scenic and scientific values of natural areas. Facilities such as viewing platforms, outdoor stairs, trails, and railings, if they are essential, should be as unobtrusive as possible so as to minimize or eliminate the adverse effect of such installations on the integrity and interpretation of the area. Moreover, visitor aids such as handrails and paint strips will be avoided in historic structures unless they are part of the historical architecture or furnishings.

Sale of Native Handicraft and Artifacts
The sale of appropriate handicraft articles associated with or interpretive of an area is encouraged. Such articles shall be clearly labeled as to origin and displayed separately from commercially or mechanically produced souvenirs. Archeological specimens or objects of American Indian origin, such as pottery or arrowheads more than 100 years old, may not be sold regardless of their place of origin. (See also Concession and Concessioners, p. 49, this section.)

Motion Pictures and Still Photography
The making of still and motion pictures involving the use of professional casts, settings, and crews may be permitted under conditions which protect and perpetuate the integrity of the area in the end product and minimize the impact on the resources and the public's normal use of the area. (See also Departmental Regulations, Part 5, Title 43, Code of Federal Regulations.)

Advertising
The Service and its concessioners may participate in signing and other public information programs to the extent necessary to acquaint the public with means of access to the areas it administers and with the facilities and services available in them. (See also Concessions and Concessioners, p. 49, this section.)

Religious Services
Where facilities for organized worship are not readily available in nearby communities, the Service will cooperate with established groups and organizations by permitting the use of Government-owned facilities for worship services, when it does not interfere with needful use of such facilities for their primary purpose. Concessioners may be permitted to cooperate with such groups in similar circumstances. (See also Concessions and Concessioners, p. 49, this section.)

Cooperating Associations
Formation and operation of cooperating associations or agencies of existing associations to facilitate the conservation education and interpretive programs of an area as authorized under Public Law 633, August 7, 1946, shall be encouraged where they contribute to the management of the area.

Fishing
(See Fishing, p. 25, Fish and Wildlife Management Policy section; and Boating, p. 57, Wilderness Use and Management Policy section.)

Public Assembly
The use of natural areas for public gatherings, meetings, and other forms of expressing viewpoints on social, economic, and political questions is guaranteed by the Constitution of the United States. Solicitor Frank J. Barry expressed this guarantee of expression as follows in a memorandum of March 23, 1965 (see Appendix K for full text of memorandum):

The First Amendment of the Constitution of the United States expressly forbids legislation by Congress "abridging the freedom of speech, or of the press, or the right of the people peaceably to assemble, and to petition the Government for redress of grievances."

Any authority the Secretary of the Interior has to promulgate Regulations is by delegation from Congress. Any limitations on the power of the Congress to legislate would follow such delegation and limit the power of the Executive Branch.

The Supreme Court has recognized that governments must have police power to prevent violence and to protect the safety of persons, property, and other important public and private interests. Such police power, however, cannot justify denial to anyone of the rights guaranteed by the First Amendment merely because such denial tends to prevent the disorders feared. To hold that all speech or any speech can be suppressed or that all gatherings or any gatherings can be forbidden because speech and public gatherings might start arguments or disrupt traffic, all of which might result in someone being inconvenienced or being made uncomfortable would make the guarantees of the Bill of Rights empty phrases without force.

Consistent with this legal interpretation of constitutionally guaranteed rights, the Service observes the following administrative policy concerning demonstrations and other forms of peaceable assembly and freedom of speech:

1. Demonstrations in the exercise of rights guaranteed by the First Amendment of the Constitution to peaceably assemble and to speak on social, economic, and political matters will be permitted in areas administered by the Department that are open to the public.

2. Demonstrations may include, but need not be limited to, rallies, parades, marches, speeches, or picketing with or without signs.

3. Personnel administering areas shall cooperate with the apparent leadership of demonstrating groups regarding their use of the area. An effort may be made to get the groups to voluntarily agree to limit the number of persons involved, in the interest of minimizing public inconvenience, and to limit the duration of the demonstration.

4. Although law enforcement personnel should be available to maintain law and order, representatives of the Department or its agencies should not initiate any action against demonstrators prior to a breach of the peace, such as overt physical violence against persons or property.

5. Areas shall not be closed during the hours they are normally scheduled to be open, solely to avoid an expected demonstration in the area or to attempt to restrict a demonstration in progress. Demonstrators will not be forcibly removed in the absence of any breach of the peace committed by them, except after consultation with and approval of the Director.

6. Permits for the use of areas for demonstrations shall be granted on a "first come, first served" basis. Use of a permit system will allow those administering an area to be prepared to accommodate the group which may appear. The issuance of a permit would also serve to avoid possible conflict in the desire of more than one group to use a given area at the same time. Permits will not be denied upon the presumption that speeches or public gatherings would result in a breach of the peace, or would interfere with the comfort, convenience, and interest of the general public, or would disrupt the normal use of the area. Generally, the foregoing will provide every individual or group an opportunity to obtain a permit for a demonstration or assembly. Failure to obtain a permit will not in itself be cause for action leading to prosecution, except after consultation with, and approval of, the Director.

In implementing these policy guidelines, superintendents and their key personnel will develop and maintain close and consistent working relationships with other nearby Federal, State, and local officials and the leadership of local human relations councils in the communities in which they exist. Meetings with law enforcement and other civic officials should be directed to cooperative efforts with them—(a) to exchange information concerning anticipated demonstrations or meetings; (b) to develop arrangements with the leadership of any group planning to demonstrate; (c) to provide for the protection of the rights of participants; and (d) to assure that the demonstration will be conducted in a peaceful and orderly manner. Such contacts will provide an opportunity to explain to community leaders and other officials our policies with respect to demonstrations and meetings.

The Service will be constantly mindful of the responsibility to protect the rights of all visitors and equally alert to provide for the safety of all persons as well as public and private property, in implementing the assurance of the right of peaceable assembly and free speech. Nothing herein contained shall be construed as preventing the arrest by any peace officer of any individual committing or attempting to commit a criminal act. By the same token, Service personnel on duty at an area in which a demonstration is conducted should not in any way associate themselves either with those conducting the demonstration or with those who may oppose it. (See also Title 36, Code of Federal Regulations; and Special Events, p. 49, and Conventions, p. 50, this section.)

DISCUSSION

From the time that Yellowstone National Park was established in 1872, wilderness preservation has undergirded the management of our National Park System. The national park movement has been a focal point and fountainhead for an evolving wilderness philosophy within our country for almost a century.

It is a fundamental tenet of national park management, moreover, that where other uses have impaired past wilderness values, the national parks and monuments are managed to restore the wilderness character of these areas by the removal of adverse uses.

For example, about 70 years ago the famous wilderness of Sequoia National Park was perilously close to permanent destruction. So thoroughly had sheep done their work that once lush alpine meadows and grasslands were dusty flats. Eroded gullies were everywhere. Much of the climax vegetation was gone, and the High Sierra was virtually impassable to stock parties due to scarcity of feed. In 1893, the acting superintendent of Sequoia National Park recommended that cavalry be replaced by infantry. No natural forage was available for horses!

Today, under National Park Service management, Sequoia National Park contains wilderness comparable to any other national park. And, in spite of increasing public use, these areas are in a less damaged condition today than they were more than 70 years ago. (See also Resource Management, p. 15.)

To become a unit of the National Wilderness Preservation System, each national park or monument wilderness must be designated by the Congress. In order to be so designated, each proposed wilderness unit must be clearly identified so that its boundaries may be legally described in the legislation. Thus, the Wilderness Act requires that the Service, hereafter, clearly identify and appropriately describe the boundaries of those lands that are to be recommended to the Congress for wilderness designation, rather than following past Service practice of referring to all undeveloped lands in a park as "wilderness" or "back country." Importantly, however, the Wilderness Act of 1964 does not establish any new standards or criteria for national park wilderness use and management to replace the old and time-tested concepts enunciated by the Congress for the natural areas of the National Park System and implanted by the Service. For example, the Wilderness Act specifically provides that:

Nothing in this Act shall modify the statutory authority under which units of the National Park System are created.

The Wilderness Act of 1964 recognizes, moreover, that all lands which may be included in the National Wilderness Preservation System are not to be managed alike. For example, the Wilderness Act provides for certain multiple uses in wilderness areas of the national forests designated by the act, such as existing grazing; mineral prospecting until 1984 and mining (with authority to construct transmission lines, waterlines, telephone lines, and utilize timber for such activities); and water conservation and power projects as authorized by the President.

No such lowering of park values is contemplated by the Wilderness Act for national park wilderness, since that act provides, in part, that:

* * * the designation of any area of any park * * * as a wilderness area pursuant to this Act shall in no manner lower the standards evolved for the use and preservation of such park * * * in accordance with the Act of August 25, 1916, [and] the statutory authority under which the area was created * * *

Moreover, the status of those national parklands not included by the Congress in the National Wilderness Preservation System remains unique pursuant to previously existing National Park Service legislation, for the Wilderness Act does not contemplate the lowering of park values of these remaining parklands not designated legislatively as "wilderness," nor does management of such lands compete with any other resource use.

Of course, when Congress designates wilderness areas within the national parks and monuments for inclusion in the National Wilderness Preservation System, it may prescribe such standards and criteria for their use and management as it deems advisable.

ADMINISTRATIVE POLICIES

Management Facilities, Practices, and Uses
Only those structures, management practices, and uses necessary for management and preservation of the wilderness qualities of an area will be permitted. These would include, but need not be limited to, patrol cabins and limited facilities associated with saddle and pack stock control. (See also Physical Developments Policy section, p. 59, and Road and Trail Policy section, p. 63.)

Fire Control
Wildfire will be controlled as necessary to prevent unacceptable loss of wilderness values, loss of life, damage to property, and the spread of wildfire to lands outside the wilderness. Use of fire lookout towers, fire roads, tool caches, aircraft, motorboats, and motorized fire-fighting equipment would be permitted for such control.

Insect and Disease Control
(See Forest Insect and Disease Control, p. 20, Resource Management Policy section.)

Rescue and Other Emergency Operations
In emergency situations involving the health and safety of persons and to meet recognized management needs, use of aircraft, motorboats, or other motorized or mechanical equipment will be permitted. (See Aircraft Operations, p. 45, Resource Use Policy section.)

Regulation of Excess Wildlife Population
Population control through natural predation will be encouraged. Trapping and transplanting of excess animals will be practiced by park personnel as necessary. If these prove insufficient, direct reduction by park personnel would be instituted. (See also Wildlife Management Program, p. 25, Fish and Wildlife Management Policy section.)

Non-native Plants and Animals
Non-native species of plants and animals will be eliminated where it is possible to do so by approved methods which will preserve wilderness qualities.

Research
The Service, recognizing the scientific value of wilderness areas as natural outdoor laboratories, would encourage those kinds of research and data gathering which require such areas for their accomplishment. The Service may establish reasonable limitations to control the size of the area which may be used for varying types of research projects within national park wilderness, and projects exceeding those limitations would be subject to approval by the Director. (See also Research Station Policy section, p. 36.)

Fishing
Fishing is an appropriate use and will be permitted under applicable rules and regulations. (See also Boating, this page; and Fishing, p. 25, Fish and Wildlife Management Policy section.)

Visitor Use Structures and Facilities
Primitive trails for foot and horse travel are acceptable. Narrow trails which blend into the landscape will be allowed in wilderness, with foot bridges and horsebridges where they are essential to visitor safety. Stockholding corrals or discreetly placed drift fences will be permissible if needed in the interest of protection of wilderness values. No improvements will be permitted that are primarily for the comfort and convenience of visitors, such as developed campgrounds and picnic facilities. However, trailside shelters may be permitted where they are needed for the protection of wilderness values.

Boating
Boating, except with motorboats and airboats, is an acceptable use of park wilderness. (See also Recreation Activities, p. 48, Visitor Use Policy section, and Navigation Aids, p. 60, Physical Developments Policy section.)

Commercial Services
Saddle and pack stock and guided boat trips in water areas are acceptable uses, but the number, nature, and extent of these services will be carefully controlled through regulations and permits so as to protect the wilderness values. (See also Concessions and Concessioners, p. 49, Visitor Use Policy section.)

Mining and Prospecting
These uses will not be permitted in national park wilderness. Where these activities are expressly authorized by statute, the area in question will be recommended for wilderness only with provisos that such activities be discontinued and the authorization be revoked. Actively operated claims, based on valid existing rights, will be excluded from the proposed wilderness. It will be the policy to phase out existing active mining claims and acquire the lands involved. When this is accomplished, such lands will be proposed for designation as wilderness if they otherwise meet the criteria for such areas. (See also Mineral Exploration, Mineral Leasing, and Mining, p. 20, Resource Management Policy section.)

Inholdings
Unless acquisition by the United States is assured, inholdings will be excluded from the area classified as wilderness. It will be the policy to acquire such inholdings as rapidly as possible, and as they are acquired, the lands will be proposed for designation as wilderness if they otherwise meet the criteria for such area. (See also Land and Water Rights Acquisition Policy section, p. 27.)

Water Development Projects
Such projects, whether for improvement of navigation, flood control, irrigation, power, or other multiple purposes, are not acceptable in wilderness. Where these activities are authorized by statute, the area in question will be recommended for wilderness only with the proviso that such authorization be discontinued. (See also Recreation Activities, p. 48, Visitor Use Policy section.)

Grazing
Grazing is not an acceptable use in national park wilderness. Except where grazing is conducted under permits which may be expected to expire at a fixed or determinable date in advance of legislative action on a wilderness proposal, lands utilized for that purpose will not be proposed for wilderness designation. It will be the policy to phase out such operations as rapidly as possible, and as this is done, the lands will be proposed for designation as wilderness if they otherwise meet the criteria for such areas. (See also Grazing and Agricultural Uses, p. 18, Resource Management Policy section; and Land Classification, p. 32, Master Plan Policy section.)

Timber Harvesting
This will not be permitted in national park wilderness.

Hunting
Public hunting will not be permitted in national park wilderness. (See also Fish and Wildlife Management Policy section, p. 22.)

Motorized Equipment
The use of aircraft for airdrops or for other purposes, and the use of motorized trail vehicles, generators, and similar devices will not be permitted in national park wilderness, except as otherwise provided herein to meet the needs of management. (See also Fire Control and Rescue and Other Emergency Operations, p. 56, this section; Off-road Use of Motorized Equipment, p. 18, Resource Management Policy section; Wildlife Observation and Interpretive Trails, p. 48, Visitor Use Policy section and Trail Use, p. 66, Road and Trail Policy section.)

Roads and Utilities
Public use roads and utility line rights-of-way are not permitted. (See also Nonpark Uses and Developments and Utilities, p. 62, Physical Developments Policy section.)