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

DISCUSSION

The Recreational Area Category of the National Park System includes a wide variety of areas having diverse resource values. In some of these areas, the natural or historical resource significance (seashores, scenic rivers) is the primary basis for their inclusion in the National Park System. In others, manmade features (reservoirs, parkways) are the central features for recreational use. Each characterization, of course, is at best only an approximation. For example, areas in which manmade features constitute the central recreation resources may also have significant natural and historical values. Moreover, areas known widely for their scenic splendor or unique features may likewise include significant manmade features.

In the management of recreation areas, outdoor recreational pursuits "shall be recognized as the dominant or primary resource objective." Managing an area to emphasize its recreational values, however, does not mean that its natural and historical values are to be ignored. On the contrary, management must provide for the conservation of natural or historical features when they are of such value as to enhance the recreational opportunities of the area.

Consistent with the recognition of outdoor recreation as the dominant resource management objective, other resources within recreation areas shall be managed for such additional uses as are compatible with fulfilling he recreation mission of the area. Such additional uses, in appropriate circumstances, may involve the management of forest lands on a sustained-yield basis, mineral exploration and mineral leasing, grazing, etc.

ADMINISTRATIVE POLICIES

Resources Management Plan
A resources management plan will be prepared for each recreation area. It will be guided by the approved Master Plan, administrative policy, agreements with other agencies involving management of the area, and area legislation. The purpose of this plan is to spell out the details of resource management for public use and enjoyment.

Research
Resource management programs will be based on adequate knowledge, obtained through appropriate investigation and research. Research is recognized as a tool of resource management and Service research activities will be mission oriented for achievement of resource management programs. Research by others will be encouraged in recreation areas for the increase and dissemination of knowledge. (See also Research Station Policy section, p. 39.)

Water Pollution Abatement and Control
The Service will strive to maintain quality of all waters (1) originating within the boundaries of recreation areas through

(a) Provision of adequate sewage treatment and disposal for all public-use facilities, including self-contained boat sewage storage units;

(b) control of erosion;

(c) regulation and control, as necessary, of fuel-burning water craft;

(d) avoidance of contamination by lethal substances, such as certain insecticides;

(e) regulation of the intensity of use in certain areas and at certain times when determined as being necessary based on water quality monitoring;

and (2) flowing through or bounding on recreation areas

(a) by applying the methods listed under 1 (a) to (e) above; and

(b) by entering into cooperative agreements or compacts with other agencies and governing bodies for cooperative measures to avoid water pollution.

(See also Recreation Advisory Council Policy Circular No. 3 of April 9, 1964, Appendix C, and Soil and Moisture Conservation, p. 19, this section.)

Air Pollution
The Service will work with others within the regional air shed to reduce air pollution from sources within the area and elsewhere in the air shed. Fumes and smoke from campfires, refuse burning, and other kinds of combustion will be controlled in public-use areas to the extent necessary to maintain clean air.

Solid-waste Disposal
Wastes generated within a recreation area may be disposed of within or outside the area so long as disposal does not (1) pollute water or air, (2) result in the defacement of public recreation areas, or (3) result in destruction or impairment of important natural or cultural resources.

Resource Manipulation
Because of the wide variety of resource uses acceptable in recreation areas, active resource manipulation, such as management of habitat for fish and wildlife, agricultural uses, forest management, and maintenance of meadowlands, is required to achieve desired results. In these cases, however, effective management requires the application of sound ecological principles to permit the achievement and maintenance of the desired conditions.

Conservation of Significant Resources—Scenic
Many recreation areas contain significant scenic or scientific resources. Scenic resources may or may not be due to the existence of completely natural conditions (i.e., a pastoral or mixed agricultural-natural scene may possess great scenic appeal based on the combination of features). Management of scenic areas will be governed accordingly. If significant scenic features are the result of natural conditions, they will be managed to retain these conditions, at the same time making appropriate recreational, interpretive, educational, and research use of them. If other than natural conditions are involved, management may perpetuate these cultural conditions involved.

Conservation of Significant Resources—Cultural
Where significant cultural resources are present in a recreation area and are worthy of preservation of their historical value, they shall be protected and presented for public understanding, appreciation, and enjoyment to the extent compatible with the primary purpose of the area. In such cases, the management and use of the cultural resources will be patterned after the management and use of similar resources in historical areas.

Soil and Moisture Conservation
Programs will be conducted for the prevention and correction of erosion and soil or vegetation deterioration. A recreation area may participate in the program of a Grasslands Conservation District or Soil Conservation District when the purposes, plans, programs, and operation of the district are consistent with the purposes of the recreation area and the policies for its management and use.

Landscape Management
Programs of landscape management may be carried out in recreation areas (except as designated otherwise) for purposes of enhancing aesthetics generally which may include, but not to be limited to:

1. Encouragement of certain species of plants.

2. Increasing the ability of certain areas to absorb recreational use through vegetative management.

3. Maintaining a certain stage of plant succession.

4. Retention of provision of open areas, meadows, vistas, etc., or the planting of open areas to trees or shrubs.

5. Enhancement of roadside vegetation.

6. Management of landscape for educational or interpretive purpose.

7. Rearrangement as necessary of land contours, particularly in areas formerly denuded, mined, or excavated. (See also Resource Manipulation p. 19, this section; and Fish and Wildlife Management Policy section, p. 23.)

Exotic Plant Species
Exotic species of plants may be controlled, eradicated, or introduced into recreation areas as part of various management programs for purposes of public recreational use and enjoyment except that no species, particularly those new to the country or region, may be introduced unless there are reasonable assurances from the U.S. Department of Agriculture and responsible State agencies that the species will not become a pest or disrupt desirable natural plant and animal communities and associations of particular scenic significance. (See also Wilderness Use and Management Policy section, p. 49.)

Fire
The presence or absence of natural fire within a given habitat is recognized as one of the ecological factors contributing to the perpetuation of plants and animals native to that habitat.

Fires in vegetation resulting from natural causes are recognized as natural phenomena and may be allowed to run their course when such burning can be contained within predetermined fire management units and such burning will contribute to the accomplishment of approved vegetation and/or wildlife management objectives.

Prescribed burning to achieve approved vegetation and/or wildlife management objectives may be employed as a substitute for natural fire.

Fire Control
Any fire threatening cultural resources or physical facilities of a recreation area or any fireburning within a recreation area and posing a threat to any resources or physical facilities outside that area will be controlled and extinguished.

The Service will cooperate in programs to control or extinguish any fire originating on lands adjacent to a recreation area and posing a threat to natural or cultural resources or physical facilities of that area.

Any fire in a recreation area other than one employed in the management of vegetation and or wildlife of that area will be controlled and extinguished.

Grazing and Agricultural Uses
Agricultural uses, such as demonstration farms, and grazing and raising of domestic livestock, may be permitted when they contribute to maintaining a desired condition or scene; contribute to visitor use and enjoyment in terms of recreation, interpretation, and education; or, do not impair significant scientific, scenic, and cultural resources that contribute to the recreational opportunities of the area. (See also Grazing, p. 53, Wilderness Use and Management Policy section.)

Timber Harvesting
Harvesting of timber, in accordance with sound forest management principles, is permitted in recreation areas where compatible with fulfilling the area's recreation mission or is not significantly detrimental to it. In recreation areas, resources management plans will be prepared on the basis of identifying a primary zone and a secondary zone for recreation, usually co-extensive with Zones 1 and 2, respectively, discussed in Acquisition Zones, Master Plan Policy section, p. 36.

In the primary zone, forest management will consist mostly of removing timber and utilizing the logs commercially in the following circumstances:

1. Salvage of hazardous trees in public-use areas or trees with insect or disease infestation that cannot otherwise be controlled which endanger adjacent healthy plants.

2. Salvage of blowdown or fire-killed timber which might precipitate insect outbreaks or create serious fire hazards.

3. Harvesting of timber for vista clearing and similar cultural treatment along roads, parking areas, lakeshores, and developed sites, keeping in mind the scenic, aesthetic, and ecological considerations.

4. Selective harvesting of timber in development and maintenance or recreational sites such as roads, trails, campgrounds, picnic areas, boat ramps, winter use areas, and visitor centers, as well as maintenance, residential, and administrative sites.

The removal of timber in the foregoing situations is incidental to the more important job of facilitating management of the area for recreational use as the dominant purpose of the area.

In the secondary zone where less intensive recreational activities, such as public recreational hunting and back-country trail use, are prevalent, forest utilization shall consist of:

1. Removal of trees when desirable to enhance the wildlife resource for public recreational hunting; and

2. Harvesting of timber pursuant to the best forest management practices in other designated areas to maintain a dynamic, healthy forest when harvesting will promote or is compatible with, or does not significantly impair, public recreation and conservation of the scenic, scientific, historic, or other values contributing to public enjoyment.

Moreover, the programs mentioned above for the primary zone may also be applicable in the secondary zone in connection with trail construction, vista clearing, etc.

Mineral Exploration and Mineral Leasing
Mineral prospecting and the extraction of minerals or the removal of soil, sand, gravel, and rock may be authorized by permit issued pursuant to applicable regulations, where such use will promote or is compatible with, and does not significantly impair public recreation and the conservation of scenic, scientific, historic, or other values contributing to public enjoyment. As as specific example, such activities might be carried out in reservoir areas below the conservation pool prior to flooding. Where combined with adequate controls over depths, contours, etc., surface removal of material may also serve for landscape enhancement, fish and wildlife management, or otherwise further the purpose of the recreation area. (See also Construction Materials, p. 57, Physical Developments Policy section.)

Quality of Environment
To achieve the purpose of a recreation area, planning and management should be related to the total environment in which the area is located. (See Master Plan Policy Section p. 33.) Such planning and management recognize the need for transportation arteries; utility and communication corridors; consumptive resource uses; and residential, commercial, and recreation land uses inside and within the vicinity of the area as parts of a systematic plan assuring viability and good health of the area and the surrounding region.

The Service should be alert to peripheral use and development proposals that impinge on the environment of a recreation area. Moreover, it should cooperate with and encourage joint and regional planning among public agencies, organizations, and individuals having responsibility for maintaining the quality and aesthetics of the environment surrounding recreation areas.

Insects and Diseases
Control operations of native insects and diseases will be limited to (1) outbreaks threatening to eliminate the host from the ecosystem or posing a direct threat to resources outside the area; (2) preservation of scenic values; (3) preservation of rare or scientifically valuable specimens or communities; (4) maintenance of shade trees in developed areas; and (5) preservation of historic scenes. Where non-native insects or diseases have become established or threaten invasion of a recreation area, an appropriate management plan will be developed to control or eradicate them when feasible. (See also Resource Manipulation, p. 19, this section.)

DISCUSSION

The Advisory Board on Wildlife Management in the National Parks, which Secretary Udall appointed in 1962, studied and made recommendations on wildlife management in recreation areas. The Board consisted of Dr. A. Starker Leopold (Chairman), University of California; Dr. Stanley A. Cain, University of Michigan; Dr. Ira N. Gabrielson, President, Wildlife Management Institute; Dr. Clarence M. Cottam, Chairman, National Parks Association; and Thomas L. Kimball, Executive Director, National Wildlife Federation.

Regarding recreation areas, the Board reported:

By precedent and logic, the management of wildlife resources on the national recreation areas can be viewed in a very different light than in the park system proper [the Natural Area Category of the System]. National recreation areas are by definition multiple use in character as regards allowable types of recreation. Wildlife management can be incorporated into the operational plans of these areas with public hunting as one objective. Obviously, hunting must be regulated in time and place to minimize conflict with other uses, but it would be a mistake for the National Park Service to be unduly restrictive of legitimate hunting in these areas. Most of the existing national recreation areas are Federal holdings surrounding large water impoundments; there is little potentiality for hunting. Three national seashore recreational areas on the East Coast (Hatteras, Cape Cod, and Padre Island) offer limited waterfowl shooting. But some of the new areas being acquired or proposed for acquisition will offer substantial hunting opportunity for a variety of game species. This opportunity should be developed with skill, imagination, and (we would hopefully suggest) with enthusiasm.

On these areas as elsewhere, the key to wildlife abundance is a favorable habitat. The skills and techniques of habitat manipulation applicable to parks are equally applicable on the recreation areas. The regulation of hunting, on such areas as are deemed appropriate to open for such use, should be in accord with prevailing state regulations.

In summarizing its recommendations on wildlife management in national recreation areas, the Advisory Board concluded that

Recreational hunting is a valid and potentially important use of national recreation areas, which are also under jurisdiction of the National Park Service. Full development of hunting opportunities on these areas should be provided by the Service.

In its report, the Board also encouraged the National Park Service to "work closely with State fish and game departments and other interested agencies in conducting the research required for management and in devising cooperative management programs."

Secretary Udall, on May 2, 1963, approved the recommendations of the Advisory Board on Wildlife Management and directed that they be incorporated in the administrative policies of the Service.

The Congress has also recognized hunting as a desirable recreational activity in many recreation areas, as for example, in the acts establishing the Ozark National Scenic Riverways and Lake Mead National Recreation Area. In the Ozark National Scenic Riverways Act, for example, Congress provided that

The Secretary shall permit hunting and fishing on lands and waters under his jurisdiction within the Ozark National Scenic Riverways area in accordance with applicable Federal and State laws. The Secretary may designate zones where, and establish periods when, no hunting shall be permitted, for reasons of public safety, administration, or public use and enjoyment and shall issue regulations after consultation with the Conservation Commission of the State of Missouri.

In connection with fishing and hunting on lands administered by certain Bureaus of the Department (including the National Park Service), the Secretary, on June 17, 1968, issued the following policy statement:

A. In all areas administered by the Secretary of the Interior through the National Park Service, the Bureau of Sport Fisheries and Wildlife, the Bureau of Land Management, and the Bureau of Reclamation, except the National Parks, the National Monuments, and historic areas of the National Park System, the Secretary shall—

1. Provide that public hunting of resident wildlife and fishing shall be permitted within statutory limitations in a manner that is compatible with, and not in conflict with, the primary objectives as declared by the Congress for which such areas are reserved or acquired;

2. Provide that public hunting, fishing, and possession of fish and resident wildlife shall be in accordance with applicable State laws and regulations, unless the Secretary finds, after consultation with appropriate State fish and game departments, that he must close such areas to such hunting and fishing or restrict public access thereto for such purposes;

3. Provide that a State license or permit, as provided by State law, shall be required for the public hunting, fishing, and possession of fish and resident wildlife on such areas;

4. Provide for consultation with the appropriate State fish and game department in the development of cooperative management plans for limiting over-abundant or harmful populations of fish and resident wildlife thereon, including the disposition of the carcasses thereof, and, except in emergency situations, secure the State's concurrance in such plans; and

5. Provide for consultation with the appropriate State fish and game department in carrying out research programs involving the taking of fish and resident wildlife, including the disposition of the carcasses thereof, and secure the State's concurrence in such programs.

B. In the case of the National Parks, National Monuments, and historic areas of the National Park System, the Secretary shall—

1. Provide, where public fishing is permitted, that such fishing shall be carried out in accordance with applicable State laws and regulations, unless exclusive legislative jurisdiction* has been ceded for such areas, and a State license or permit shall be required for such fishing, unless otherwise provided by law;

2. Prohibit public hunting; and

3. Provide for consultation with appropriate State fish and game departments in carrying out programs of control of overabundant or otherwise harmful populations of fish and resident wildlife or research programs involving the taking of such fish and resident wildlife, including the disposition of carcasses therefrom.

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*The term "exclusive legislative jurisdiction" is applicable to situations wherein the Federal Government has received, by whatever method, all the authority of the State, with no reservation made to the State except the right to serve process resulting from activities which occurred off the land involved. This term is applied notwithstanding that the State may exercise certain authority over the land, as may other States over land similarly situated, in consonance with the several Federal statutes. The term is also sometimes referred to as "partial jurisdiction."

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In any case where there is a disagreement, such disagreement shall be referred to the Secretary of the Interior who shall provide for a thorough discussion of the problems with representatives of the State fish and game departments and the National Park Service for the purpose of resolving the disagreement.

ADMINISTRATIVE POLICIES

Wildlife Populations
Wildlife populations will be controlled when necessary to maintain the health of the species and to safeguard public health and safety. Ungulate populations will be maintained at the level that the range will carry in good health and without impairment to the soil, the vegetation or to habitats of the several species in an area.

Cooperation With States
The Service will consult with the appropriate State fish and game departments in the development of cooperative management plans for limiting over abundant or harmful populations of fish and resident wildlife, including the disposition of carcasses thereof, and, except in emergencies, secure the State's concurrence in such plans and programs.

The Service will consult with the appropriate State fish and game department in carrying out research programs involving the taking of fish and resident wildlife, including the disposition of the carcasses thereof, and secure the State's concurrence in such programs.

The management of fish and wildlife in recreation areas must be a cooperative endeavor with the States. These cooperative endeavors will be effected through a Memorandum of Understanding with the respective States. (See Appendix D for sample agreement.)

Fish and Wildlife Management Program
Fish and wildlife management involves two principal management functions, i.e. (1) the management of the habitat—soils, water, and vegetation; and (2) the management of harvesting of fish and wildlife populations by the public. In recreation areas, this latter function is recognized as being within the regulatory authority of the individual States. The first management function is recognized as the responsibility of the Service.

Wildlife management programs will be directed toward maintenance and enhancement of habitat for game animals and for other wildlife whose presence in the recreation area is of aesthetic, recreational, interpretive, or educational value.

Management of aquatic resources will have as its primary objective the improvement of habitat for game fishes and shellfish (where relevant) and waterfowl. Habitat management of aquatic resources may also apply to other vertebrate species of value for aesthetic, recreational, interpretation, or educational purposes.

The reintroduction of native species into recreation areas may be permitted where it poses no obvious danger to human life or property or where it contributes to recreational use or enjoyment.

Exotic Species of Animals
Exotic species of animals may be introduced into recreation areas as part of various management programs for purposes of public recreational use and enjoyment except that no species, particularly those new to the country or region, may be introduced unless there are reasonable assurances from the Bureau of Sport Fisheries and Wildlife and responsible State agencies that the species will not become a pest or disrupt desirable natural plant and animal communities and associations of particular scientific significance.

Control of exotic species will be undertaken only when they are undesirable in terms of public health, recreational uses and enjoyment, or when their presence threatens significant scientific features or the existence of important native species. (See also Wilderness Use and Management Policy section, p. 53.)

Public Hunting and Fishing
Public hunting of resident wildlife and fishing shall be permitted within statutory limitations in a manner that is compatible with, and not in conflict with, the primary objectives as declared by the Congress for which such areas are established.

Public hunting, fishing, and possession of fish and resident wildlife shall be in accordance with applicable State laws and regulations.

The Service may designate zones where, and establish periods when, no hunting or fishing shall be permitted for reasons of public safety, administration, or other public use and enjoyment of the area. Regulations prescribing such restrictions shall be issued after consultation with the States.

A State license or permit, as provided by State law, shall be required for public hunting, fishing, and possession of fish and resident wildlife on such areas.

DISCUSSION

The administrative policy that guides the Service in its land and water rights acquisition program for the Recreational Area Category of the National Park System is different from the administrative policy guiding the Service in this program area for the Natural Area Category. These administrative policies arise out of the differences in purposes of the management of these two distinct categories of areas.

For example, the natural areas are established to preserve for all time scenic beauty, wilderness, native wildlife, indigenous plantlife, and areas of scientific significance. In the long range, the preservation of these areas in their natural condition, as prescribed by the Congress, is best achieved when exploitative and private uses are eliminated from them by the acquisition of private property by the Federal Government.

Recreation areas also possess natural endowments, and occasionally historical values, that are well above the ordinary in quality and extent. Many, moreover, are located on oceans, lakes, or large manmade reservoirs. As such, they possess resources of recreational appeal that afford an opportunity for a wide-ranging and varied program of recreational activities, including outdoor sporting events. These areas, located and designed to achieve a comparatively high recreational carrying capacity, are ideally suited to serve the rapidly burgeoning urban populations of our Nation.

To achieve the primary objective of recreation areas, it is usually not essential to eliminate all private uses within their exterior boundaries. The Congress has recognized this fact in connection with numerous legislative enactments affecting such areas as Point Reyes National Seashore, Ozark National Scenic Riverways, and Whiskeytown-Shasta-Trinity National Recreation Area. The important consideration in the land acquisition program is that adequate lands be acquired by the Federal Government for public use and enjoyment and effective administration, accompanied by adequate control of the remaining lands to insure that the natural endowments of the area are preserved and that private uses are not maintained or developed in a manner that would impair the primary purpose of the area to provide a continuing resource for quality outdoor recreation.

In some instances, the Congress has provided that private uses in these areas may be continued so long as individuals, villages, or communities observe appropriate zoning or development restrictions in accordance with standards established by the Secretary of the Interior. In other instances, the Congress has authorized the Secretary of the Interior to acquire scenic or development easements over private lands to insure that the continued private use shall be compatible with the primary purpose of the area. Also, under recent authority of the Congress, the Secretary of the Interior may, with regard to lands acquired in fee, lease or sell back private development rights subject to terms and conditions which assure use of the property in a manner consistent with the primary purpose for which the area was established.

Accordingly, except as otherwise provided in legislation affecting a particular area, the Service, in preparing Master Plans for the Recreational Area Category, establishes three land zones when consistent with the primary purposes of such areas and where the overall size of the area is sufficient to allow compatible private uses to remain in the area. The land zones which may be provided for the Recreational Area Category are:

1. Public-use and Development Zone.
2. Preservation-conservation Zone.
3. Private-use and Development Zone.

In connection with Zones 2 and 3 in recreation areas where water use is a primary activity, it is usually necessary to provide for public access to the shorelines of water bodies. Such access may be across the land to the water or from the water to the land, such as for tieing up boats for fishing or camping on sandbars. The Master Plan for the area shall designate land areas in Zones 2 and 3 where such right of access is essential for appropriate public use.

ADMINISTRATIVE POLICIES

Land Acquisition
In Zone 1 (Public-use and Development) lands, usually will be acquired in fee simple: Provided, that acquisition by the Federal Government may be made subject to the reservation of continued use and occupancy for limited periods when consistent with the need to utilize the property for public use and development or other management purposes, such as administrative facilities, roads, and trails. (See also Acquisition Zones, p. 36, Master Plan Policy section.)

In Zone 2 (Preservation-conservation) interests in lands which are less than fee simple may be acquired where such acquisition will achieve the management objectives at reasonable cost to the Government. Such lesser interests may be in the form of scenic easements; access easements; development restrictions; reserved life estate for the owner and his (or her) spouse; or, continued use and occupancy for a specified period, usually 25 years or less. In the alternative if these lesser interests may not be acquired at reasonable cost to the Federal Government, the property may be purchased in fee simple and appropriate development rights either "leased back" or "sold back" to private parties. (See also Acquisition Zones, p. 36, Master Plan Policy section.)

In Zone 3 (Private-use and Development) acquisition by the Federal Government may not be necessary if local zoning is adequate to achieve the long-range purpose of the area. Where local zoning is not adequate, lesser interests than fee, such as scenic easements; access easements; development restrictions; reserved life estate for the owner and his (or her) spouse; or, continued use and occupancy for a specified period, usually 25 years or less, may be acquired by the Federal Government. In the alternative, if these lesser interests may not be acquired at reasonable cost to the Federal Government, the property may be purchased in fee simple and appropriate development rights either "leased back" or "sold back" to private parties. (See also Acquisition Zones, p. 36, Master Plan Policy section.)

In executing the land acquisition program in the Recreational Area Category, the following priority of acquisition is used, unless otherwise provided in the legislation:

1. Land needed for development of facilities, including administrative facilities.

2. Land needed for preservation or protection of the natural, cultural and recreational values of the area.

3. Land devoted to uses incompatible with or needed to prevent threatened development or use which would be incompatible with, the purposes of the area.

Within each of the foregoing priorities, the Service will give primary consideration to the acquisition of land which the owner needs to dispose of for hardship reasons; and land which the owner, voluntarily, has placed, or intends to place, on the market for sale.

The land acquisition program is carried out in accordance with the specific legislative policies, if any, set forth in the legislation authorizing the area. In the absence of specific legislative directives, the land acquisition program is carried out as follows:

1. Purchases are negotiated on the basis of competent appraisals of fair market value.

2. Less than fee interests (see No. 3 below) may be acquired when they will meet the needs of the Service and are justified on cost.

3. Reserved use and occupancy by the owner for life or for a term of years is allowed if purchase on this basis will meet the needs of the Service and is justified on cost.

4. Eminent domain proceedings are used only as a last resort, when all reasonable efforts of negotiation have failed.

Water Rights
All rights to the use of water diverted to or used on Federal lands in recreation areas by the United States its concessioners, lessees, or permittees shall be perfected in the name of the United States.

Valid existing water rights of concessioners and land use permittees on Federal lands will be acquired by the United States as funds, legal authority, and overall management objectives permit.

Water rights owned by private landowners within recreation areas will be acquired in connection with the acquisition of such private lands insofar as practicable.

Owners of land or interests in land within or adjacent to recreation areas may be granted, by special-use permit, the privilege of using water owned by the Service when it is administratively determined that the use of such water facilitates the management program of the Service or when no other reasonable source of water is available. An appropriate charge shall be made for the use of such water.

Owners of lands or interests in land adjacent to recreation areas may be granted, by special-use permit, the privilege of developing sources of water on Federal lands when it is administratively determined that the use of such water facilitates the management program of the Service or when no other reasonable source of water is available. An appropriate charge shall be made for the use of such water.

Development costs, including costs of access between the private lands to be served and the source of water, shall be borne by the permittee. In all of these cases, the Service shall retain the right to use water from such a development. If, and when, such retained rights are exercised by the Service, it shall share in the costs of the water rights development on an equitable basis.

Under this policy, as a matter of comity, the Service will notify the State of the amount of water diverted and consumed, and the priority asserted. The notice shall also include a disclaimer as to State jurisdiction.

Owners of lands or interests in lands within or adjacent to recreation areas may be granted, by special-use permit, the privilege of installing pipelines or other means to transport water across Federal lands administered by the Service when the water rights are either owned by the permittee or another agency of Government. An appropriate charge for such rights-of-way shall be made.

DISCUSSION

Recreation areas do not exist in a vacuum. In planning a recreation area, master planning must take into account the total environment or region in which the recreation area exists. (See provisions of Policy Circular No. 1 of Recreation Advisory Council—Appendix B.) Of particular significance are the plans for other park and recreation facilities within the region at all levels of government, as well as the role of private enterprise in the recreation industry, transportation and access, socio-economic factors, wildlife considerations, and others. Accordingly, a first step in master planning is to analyze the related cohesive region in which the recreation area is located and the many factors that may influence its management.

Master planning for a recreation area must take particular cognizance of the statewide recreation plan for the State(s) in which the area is located. This plan can provide a great deal of guidance, not only about other related recreation areas and facilities, but the expected demand for the facilities and resources offered by the recreation area under study.

Moreover, where recreation areas adjoin, as they frequently do, other public outdoor recreation resources, a joint effort must be made to analyze the total resource base and visitor needs, then to develop plans cooperatively for the accommodation of these requirements to insure compatible and complementary development of both areas.

The purpose of a Master Plan is to implement the general and specific mandates of Congress, cooperative agreements, if any, with other bureaus affecting the management of the area, and the administrative policies of the Service. This purpose is accomplished through the provision of criteria, controls, and guidance for resource management, resource use, and development in terms of a unified planning concept for each area consistent with, and complementary to other programs of recreational use, accommodations, and resource planning in the surrounding region. Master Plans serve also as zoning or space allocation plans defining not only the areas for development, but also the intensity or magnitude of development. The Master Plan also defines the areas in which no developments are to be permitted.

ADMINISTRATIVE POLICIES

Master Plan
A Master Plan will be prepared for each area. It shall cover all programs of Resource and Visitor Use, Resource Management and Physical Developments. Further, it shall zone land and water for various kinds and intensities of use. An approved Master Plan is required before any development program may be executed in any area. Master Plans will be kept current and revised as necessary to reflect changing conditions.

Master Plan Teams
Master Plan Teams will be composed of members having different professional backgrounds and experience appropriate to the problems of the area under study. Such backgrounds could include, depending on the area involved, biology, geology, ecology, archeology, history, resource management, interpretation, sociology, recreational planning, economic geography, landscape architecture, engineering, and architecture.

Assistance from outstanding professionals or persons knowledgeable in recreation programs will be sought as needed where funds permit it. In particular, those working in, or particularly conversant with the surrounding region, should be consulted. This includes professionals from other public land-managing agencies on the local, State, and Federal level. The purpose of the multi-disciplinary team approach is to insure adequate consideration of all the resources and of the visitor's needs and use of these resources in terms of an economically, aesthetically, and administratively sound plan.

Architectural Theme
(See Physical Developments Policy section, p. 54.)

Land Classification
Master planning requires sound classification for the lands in a recreation area. This is necessary to insure that public-facility development is commensurate with the use capabilities of the basic resources and in accord with the legislative intent of Congress for the area. Land Classification in recreation areas thus is a tool of space allocation.

The land classification system used is similar to that proposed by the Outdoor Recreation Review Commission and prescribed for application to Federal lands by the Bureau of Outdoor Recreation, as follows:

Class I—high density recreation areas; Class II—general outdoor recreation areas; Class III—natural environment areas; Class IV—outstanding natural areas; Class V—primitive areas: and Class VI—historic and cultural areas.

Classes I and II identify the land reserved for visitor accommodations (both existing and proposed), for administrative facilities, public beaches, marinas, formal campgrounds, two-way roads, etc., of high and moderate intensities. Class I and II lands in recreation areas will occupy a relatively higher proportion of the total space as compared to such classifications in, for example, a national park.

Class III identifies the "natural environment areas" which will, to a large degree, make up the bulk of the lands within a recreation area. Ofttimes, facilities and uses are planned in Class III lands which provide for additional public use of the area, such as public recreational hunting, and nature study. Such developments are less intensive than those for Class I and II lands. These developments, moreover, should be in harmony with and facilitate the enjoyment of the natural environment. Other resource uses, not incompatible with the recreation mission of the area may be provided for in the Class III lands, such as timber harvesting and grazing.

Classes IV, V, and VI, while not necessarily found in recreation areas, do frequently occur there. While these elements provide the very basis for a national park or monument, they serve more to enhance and supplement the more general features of the Class III aspects of a recreational area. The planner must be keenly aware of Class IV, V, and VI resources within recreation areas as these, preserved and made available to the public, can greatly complement the recreation area by providing a much broader spectrum of visitor use and enjoyment.

Class IV lands are those encompassing unique natural features, such as Big Spring in Ozark National Scenic Riverways.

Class V lands are primitive lands which should remain pristine and undisturbed as a part of our natural inheritance. Where they exist in sufficient size, they may qualify for study and recommendation to the Congress for designation as wilderness. Facilities in Class V lands should be limited to trails and such limited primitive campsites, shelters, and sanitary facilities as may be required for public use and enjoyment or protection of the Class V values.

Class VI is the lands, including historic structures, etc., of historical or cultural significance, such as the lighthouse at Cape Point in Cape Hatteras National Seashore.

Acquisition Zones
Master planning for recreation areas involves another important step after land classification Once the lands have been allocated or classified as to purpose, intensity of development, and capacity of human use, then they should be "zoned" to determine the degree of ownership required by the Government to achieve these purposes within legislative and administrative policies. In those recreation areas where the overall size of the area is sufficient to permit private uses to continue and consistent with the ownership criteria, if any, specified by the Congress in authorizing the area, three zones should be prescribed. (See also Land Acquisition, p. 29, Land and Water Rights Policy section.)

The first zone (Zone 1—Public-use and Development) includes, as a minimum, those lands needed for administrative facilities and Government or concessioner development of public-use facilities of high and moderate intensities (Class I and II lands). (See Land Classification, p. 34, this section.) This zone also includes, as a rule, those unique natural features (Class IV), primitive lands (Class V), and lands of historical or cultural significance (Class VI), which contribute to making the area nationally significant and which, if adversely developed, would be detrimental to the full use and enjoyment of the area. The ultimate objective in this zone, usually, is to acquire full fee title to all lands. It may be, however, that in some instances, less than fee title will suffice as determined by management. For example, in this zone may be a historic home owned by an organization and open to the public. Even though fee title may not be acquired in such property, it nevertheless should be included in Zone I since it does serve the public and contributes to the public use and enjoyment of the area. Similarly, an individual may own and operate a public facility, such as a restaurant, motel, or campground which it is desirable to continue in operation to serve the public. This, too, should be included in Zone 1 for the same reason, unless it exists as a part of a village or community that more properly should be included in Zone 3. A similar situation may occur in connection with an organized group camp. (See also Land Acquisition, p. 29, Land and Water Rights Policy section.)

It is the purpose of Zone 2 (Preservation-conservation) to include those lands necessary for the preservation-conservation of the environment of the area. As a rule, these lands fall in Class III. Minimally, this zone includes (1) all lands considered essential to "buffer" or insure the full protection of all those lands included in Zone 1 (Public-use and Development); and (2) those lands needed to accommodate recreational use of less intensity than those included in Zone 1. Occasionally, this zone may include lands of historical or cultural significance (Class VI). For example, there may be a historic home, or group of homes, which contributes to the national significance of the area but which is privately owned and occupied and may, consistent with the purpose of the area, remain so. On rare occasions this zone may contain natural features (Class IV) and primitive lands (Class V). For example, there may be research areas owned and managed by institutions of higher learning or scientific organization which, consistent with the purpose of the area, may continue in this manner. Recreational uses in this zone are those of less intensity than normally found on lands classified as Classes I and II. For example, fishing access, hiking trails, public recreational hunting, nature study, and primitive campgrounds, are common uses in Zone 2. Moreover, in this zone, other uses, such as grazing, commercial timber harvesting, mineral exploration and mineral leasing may be permitted when such activities are consistent with, or not significantly detrimental to, the recreation mission of the area. The Service will seek such title or interest in lands within this zone as is required to achieve the foregoing objectives. In most instances, full fee title should be acquired. Often, such acquisitions may provide for life tenancy or continued occupancy for specified periods. In some instances, access easements, scenic easements, or development restrictions may suffice to accomplish the management objectives. Occasionally, appropriate zoning by local authority will achieve management's objectives. (See also Land Acquisitions, p. 29, Land and Water Rights Policy section.)

Zone 3 (Private-use and Development) may or may not exist in all recreation areas. Its use depends on the overall size of the area and the ownership criteria, if any, specified by the Congress in authorizing the area. For example, at Fire Island the Congress specifically authorized the continuance of enclaves of property for private use and development provided zoning regulations were promulgated by local governing authorities in accordance with standards established by the Secretary. The lands in Zone 3, normally, have a significant impact—visual or otherwise—on the quality and integrity of the environment of the recreation area. Lands included in this zone, usually, involve subdivisions, villages, and similar developments. In some instances, such development may provide important supplemental accommodations and recreational pursuits for visitors to the recreation area. In these respects, therefore, the lands in this zone are similar to those in Zone 2. The most obvious distinction between the two, however, is that lands in Zone 3 serve primarily a local or community purpose and their contributions to the public use of the recreation area are secondary. The reverse situation is true of the lands in Zone 2. Generally, no public-use facilities or developments requiring Government ownership of the land are planned for Zone 3. Thus, except in unusual situations—involving, perhaps, accessways—acquisition in this zone of the full fee title, generally, is not necessary. In fact, acquisition of any portion of the estate may be unnecessary where local zoning is adequate and continuous to insure developments and uses complementary to and compatible with the recreation area. For example, if a tract is zoned for single-family residences or low-lying commercial structures and these are compatible with the environment of the recreation area, no acquisition may be needed. On the other hand, acquisition of a scenic or development easement may be necessary—in the absence of zoning—to prevent high-rise structures that may impair the environment of the area.

The three zones, as noted above, cannot be applied precisely and rigidly to each and every acre within an area. They are approximations at best. Their use as planning and management tools is designed to achieve the public purpose of recreation areas while minimizing costs and reducing as much as possible personal hardships and inconveniences occasioned by land acquisition. In these circumstances, it is to be expected, quite naturally, that there will be examples found of land classifications falling into zones other than in the manner prescribed above. These exceptions should be explained in the Master Plan.

In summary, however, it is to be expected that proportionately more of the lands in Zone 1 need to be acquired in fee and that the acquisition of some lesser interests, such as scenic or access easements or development restrictions, will occur less frequently than in Zones 2 and 3. In Zone 2 it is to be expected that fee acquisition, proportionately will be less than in Zone 1 and acquisition of interests less than fee will be proportionately higher than in Zone 1 (except where lands are already in public ownership as in the case of State or public domain lands). Zoning controls may also suffice in some limited cases in Zone 2. It is to be expected that zoning control will be proportionately higher in Zone 3 than in Zone 2 and that the acquisition of fee title and less than fee interests in land in Zone 3 will be proportionately lower than in Zone 2. (See also Land Acquisition, p. 29, Land and Water Rights Policy section.)

DISCUSSION

The Secretary's Advisory Board on National Parks, Historic Sites, Buildings and Monuments, at its 55th meeting in Washington, D.C., October 3-6, 1966, considered the matter of research stations in the national parks.

In its memorandum to the Secretary of October 6, 1966, recommending the establishment of research stations at appropriate locations in the National Park System, the Board stated, in part, as follows:

The Board is familiar with the Jackson Hole Biological Station in Grand Teton National Park, the Archeological Research Station in Mesa Verde, operated by the University of Colorado, the Volcano Observatory in Hawaii National Park, operated by U.S. Geological Survey, and with proposals to establish similar research stations in other parks. The board favors the establishment of such stations, entirely or partially financed and operated by others. Such stations, it believes, can do much to focus research efforts in the national parks in support of park management, and to encourage the use of park resources for basic research by others. At the same time, the Board recognizes that such operations and developments must remain within the purview and control of the National Park Service and the Department.

The Board's memorandum was approved on October 26, 1966.

ADMINISTRATIVE POLICIES

Research Program
The Service encourages and will participate in appropriate ways in the establishment in recreation areas of research stations which focus significantly upon studies of resources within the area. The research programs of such stations should include research within the scope of the management-oriented research plan. The research programs may also embrace basic research independently conceived.

The foregoing does not necessarily exclude research reaching beyond the boundaries of the area.

Research Station Criteria
Proposals for a research station within an area should demonstrate that:

a. The sponsoring institution is one of stability and competence.

b. The research plan and the development plan are adequate and consistent with the objectives and policies of the area concerned.

c. The financial plan is sound and promises fruition of the enterprise.

d. Where the research station is proposed to be located within the area:

(1) The station should be of a nature and in a location that does not impinge upon the recreational values of the area, the ecology of the area, or come into conflict with visitor use.

(2) The research station development should be consistent with the Master Plan, taking into account location, development plan, design, and the like.

(3) An understanding should be reached as to the degree to which the Service will provide utilities, road access, trails and provide for maintenance of the same. Service participation will quite likely vary from project to project, depending in part upon the benefits expected to inure to area management from the station.

(4) Limitations should he agreed upon as to the eventual size of the development, the scope of the research contemplated, and upon the number of personnel to be served by the station.

Research Station Administration
In the administration of the station, appropriate representation on the governing board should give the Service a voice on matters of research policy, research orientation, and in the operating policy of the station.

Such stations should not be closed institutions restricting participation to associates of the sponsoring institution. Rather, acceptance of applicants for use of the facilities should generally be based upon conformance of the proposed research to the research orientation and program agreed upon for the station.

Whenever possible, the Service will provide as liaison with each research station an on-site research biologist to facilitate the operation of the research station in the area.