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

DISCUSSION

Physical developments within natural areas should be limited to those that are necessary for adequate management and appropriate park use and enjoyment. Moreover, these necessary facilities should be provided only under carefully controlled safeguards against unregulated and indiscriminate use so that the least damage to park values will be caused. The location, design, and materials, to the highest practicable degree, should be consistent with the preservation and conservation of the grandeur of the natural environment. (See also Recreation Activities, p. 48, Visitor Use Policy section.)

Administrative facilities, including roads and trails, are needed in all areas for proper management. In most areas, public accommodations, such as restaurants, overnight lodges, and campgrounds, are needed so that the public may have adequate opportunity to enjoy and use the parks that have been set aside for them by the Congress. The types of physical developments, as well as the extensiveness and intensity of such developments, are discussed under the Master Plan Policy section, p. 31, and Wilderness Use and Management Policy section, p. 54.

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

It is estimated that in Yellowstone National Park—an area larger than Delaware and Rhode Island combined—lands devoted to such physical developments amount to less than 3 percent of park acreage. The road system in Yellowstone National Park is mostly unchanged since 1908. Yet, these limited lands absorb 95 percent, or more, of the public use and visitation to Yellowstone. In Sequoia National Park, lands devoted to such physical developments amount to less than 2 percent of the total acreage and, likewise, absorb 95 percent or more of all public use.

Facilities can be made to be compatible with the natural 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 and enjoyment shall be provided in a natural 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 park or monument or, where desirable, for each major development site within each park or monument. Particular attention shall be devoted to the harmonizing of such developments with their natural environment, consistent with utility and with economical 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 of, the natural features of the area. (See also Management Facilities, Practices, and Uses, p. 56, and Visitor Use Structures and Facilities, p. 57, Wilderness Use and Management Policy section; and Construction Materials, p. 61, this section.)

Airports
The Service encourages the location of needed commercial airport facilities and services outside of natural areas. (See also Aircraft Operations, p. 45, Resource Use Policy section.)

Navigation Aids
Needed navigation aids should be planned in collaboration with the U.S. Coast Guard and should be installed and used in conformity with the standards established by that agency. (See also Safety and Public Health, p. 50, Visitor Use Policy section; and Boating, p. 57, Wilderness Use and Management Policy section.)

Memorials
Monuments or plaques of a memorial nature commemorating individuals or events may be erected in a natural area or physical features therein may be named for individuals when the association between the area and the individual or event is of transcendent importance. Except for existing memorializations, generally, no individual should be so honored during his lifetime. (See the statement of policy of U.S. Board of Geographic Names for applying names of persons to natural features, and guidelines of National Park Service for making recommendations on geographic name proposals: Appendixes I and J, respectively.)

Construction Materials
Materials recovered from approved construction sites in a natural area 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 local conditions make importation of the materials impractical. (See also Architectural Theme, p. 60, this section; and Borrow Pits, p. 67, Road and Trail Policy section.)

Residential Facilities
The use of Federal lands in natural areas for permanent or seasonal residences shall be permitted only when required to house those persons engaged in onsite 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. (See also Campground Operation, p. 41, Camping and Campgrounds Policy section; and Recreation Activities, p. 48, Visitor Use Policy section.)

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 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 to be erected by the concessioners shall be prepared at the expense of the concessioners and submitted to the Service for approval before construction is begun. Such plans, when approved, shall be adhered to by the concessioners in erecting the structures authorized. (See also Concessions and Concessioners, p. 49, 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 that such physical facilities may be continuously used for their intended purpose.

Landscape Management
(See Landscape Management, p. 19, Resource Management Policy section.)

Utilities
Utility lines should be placed underground, except where to do so causes excessive damage to the natural ecological associations of the area. When placed above ground, utility lines and appurtenant structures should be carefully planned and located to minimize their impact on park resources and visitor enjoyment of the natural esthetic scene. Wherever possible, utilities should be included in the transportation corridor. (See also Roads and Utilities, p. 58, Wilderness Use and Management Policy section.)

Nonpark 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, nonpark roads and highways, 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 to the applicable requirements and stipulations of Section 2234.4, Title 43, Code of Federal Regulations. Where such nonpark 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 Roads and Utilities and Water Development Projects, p. 58, Wilderness Use and Management 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 Concessions and Concessioners, p. 49, Visitor Use Policy section; Non-park Uses and Developments, this page; and Appendix F.)

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. 49, Visitor Use Policy section; Appendix F; and applicable volumes of the National Park Service handbook series.)

DISCUSSION

In his letter of May 13, 1918, to Director Mather, Secretary Lane directed that "Every opportunity should be afforded the public, wherever possible, to enjoy the national parks in the manner that best satisfies the individual taste. Automobiles and motorcycles will be permitted in all of the national parks; in fact, the parks will be kept accessible by any means practicable."

In an interpretation of this policy many years ago, Director Mather stated:

It is not the plan to have the parks gridironed by roads, but in each it is desired to make a good sensible road system so that visitors may have a good chance to enjoy them. At the same time, large sections of each park will be kept in a natural wilderness state without piercing feeder roads and will be accessible by trails by the horseback rider and hiker.

When Secretary Lane issued his directive, the National Park System contained 39 national parks and monuments. Annual visits to all areas of the System were approximately 455,000. There were about 5,500,000 automobiles in the United States, and our annual rate of production was about 940,000. Our population was estimated at 103,000,000. The workweek averaged more than 46 hours. Ease of travel by air and overland via the Interstate Highway System did not exist.

The National Park System now includes more than 275 areas. Annual visitation approaches 150,000,000. With increasing leisure time, expanding population, improved transcontinental highways, and the growing popularity of recreational driving, it is to be expected that visits to the parks will continue to increase. Admittedly, automobile crowding during short periods in some of the Nation's parklands impairs a meaningful, quality park experience on such occasions.

Of equal significance, horseback use of the trails in many parks is increasing at a rate as rapidly as, or more than, automobile traffic. Moreover, the parties are increasing in size. The extensiveness of this use, as well as its intensity, is having a serious impact on the park values of many areas. To preserve park values, some regulatory controls may be necessary.

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 this critical segment of park management. The committee report is included in Appendix H. The report, approved by the Director and by 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. Within the road system may be provided: major park roads; minor park roads; special-purpose roads; interpretive (motor nature) roads; administrative roads, and parkways. Two-way roads should be deemphasized and one-way roads should be emphasized. (See also One-way Roads and Interpretive (Motor Nature) Roads, p. 67, this section.)

Nonpark Roads and Highways
(See Nonpark Uses and Developments, p. 62, Physical Developments Policy section.)

Traffic Management
The aim of traffic management of park roads should be to enhance the quality of a park experience to be derived from viewing natural features 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 therefor, 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 places of heavy visitor concentrations. Arrangements for such service shall be made with authorized transportation concessioners. (See Concessions and Concessioners, p. 49, Visitor Use Policy section.) To facilitate traffic movement and to achieve safe travel, special-purpose vehicles may be required by regulation 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 ecological determination must be made that the resulting effects on park values—including such aspects as 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 viewing wildlife, photography, hiking, and nature 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 and the Director, Harpers Ferry Center.

Alternative 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. Opportunity should be taken also to encourage the safe use of waterways for access.

Road Design
An esthetically 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, and by developing viewpoints and overlooks, as well as by 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 turnouts, overlooks, and trail connections should be provided to facilitate leisurely visitor enjoyment of 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 H.

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 other natural resources. Moreover, a design objective for roads in natural 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.)

Interpretive Trails
(See Interpretive Trails, p. 48, Visitor Use Policy section.)

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 on frequency of trips to specific locations may be imposed. (See also Off-road Use of Motorized Equipment, p. 18, Resource Management Policy section; Campground Operation, p. 41, Camping and Campgrounds Policy section; Wildlife Observation, p. 48, Visitor Use Policy section; and Motorized Equipment, p. 58, Wilderness Use and Management Policy section.)

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 as small as possible while still allowing for effective operation. Where large parking areas are needed, they should be broken up with plantings and screenings, if possible. (See also Road Surfaces and Materials, this page.)

Signs
Roadside signing, whether regulatory, informational, 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 enhance the visitor experience.

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.

Trail Surfaces and Materials
(See Road Surfaces and Materials, p. 66, this section.) Additionally, elevated boardwalks, such as Anhinga Trail, are effective solutions.

Borrow Pits
Only when economic factors make it totally impractical to import road material 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. 61, 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. 64, this section.)

Interpretive (Motor Nature) Roads
To disperse the traffic load and to increase visitor enjoyment, efforts should be made to convert existing roadbeds—such as abandoned roads and rail roads, fire roads, administrative roads—into interpretive roads or motor nature 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. 64, this section.)