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

DISCUSSION

The administrative policies relating to physical developments within recreation areas are more liberal than those for natural or historical areas. This is so since outdoor recreation is the "dominant or primary resource management purpose" of recreation areas. The development of physical facilities thus becomes a most significant part of the recreation area program to promote this management objective and to accommodate a wide variety of recreational uses. It is of particular importance however, that the scope and type of developments, as well as their design, materials, and construction, enhance and promote the use and enjoyment of the recreational resources of the area.

Imaginative design, innovations in the use of materials, and construction techniques can promote the realization of the management and use objectives. Facilities which are in discord with their environment can be avoided. It is the purpose of the administrative policies which guide the Service in its physical development planning and construction to enhance the quality of the outdoor recreational experience for each visitor.

ADMINISTRATIVE POLICIES

Architectural Theme
An architectural theme shall be prepared for each area or major development site within an area. The purpose is to develop guidelines for the design of structures that will further the realization of area purpose in terms of the materials to be used, the spirit or feeling to be conveyed by the facilities, and the kind of relationship to be developed between facilities and their surroundings. As a rule, the theme should strive to strike a balance between functionalism, economy, and creativity.

Private-use and Development Zone
Where a private-use and development zone occurs within recreation area boundaries, public use and development will be planned and located so as to minimize conflicts with such private owners' use and enjoyment of their property.

Spectator Facilities
Facilities for cultural programs, spectator sports, and special events may be provided. As a rule, these facilities should be part of an intensive-use area in order to make use of existing parking lots, comfort facilities, food, and other services. (See also Spectator Sport and Special Events, p. 43, and Cultural Programs, p. 44, Resource and Visitor Use Policy section.)

Organized Group Camps
Permanent camping facilities, including buildings for use by organized groups and for hostel-type use, may be provided in recreation areas. Operation of these facilities, depending upon circumstances, should be either by concessioners, organizations under permit, or by the Service. Full use over as much of the year as possible should be an objective for such facilities. (See also Programs for Youth, p. 43, Resource and Visitor Use Policy section.) Space for organized group camping should be allocated to serve the greatest number of groups interested. To accommodate demand, advance reservation of facilities and limitations on length of continuous use by one camping party may be imposed. In allotting camping privileges, preference should be given to public groups over semi-public groups, and semi-public groups over nonprofit groups, and nonprofit groups over private groups, as follows:

1. Public groups are those supported wholly by public taxation or public contributions whose membership and program are open to all. Examples are: Schools, park and recreation agency programs, welfare organizations, or similar institutions such as the Salvation Army.

2. Semi-public groups or associations are those whose membership is not open to the general public, but are organized for general recreation, education, public welfare, religious, or philanthropic purposes and are supported in part by public contributions or some sponsoring agency. Examples are: Boy Scouts, Girl Scouts, Campfire Girls, church groups, YMCA, YWCA, 4-H Clubs, and Future Farmers of America.

3. Nonprofit groups are those societies or associations supported by assessed membership dues but not operated for profit to the organization or its members, and the benefits of the organization are not entirely confined to its memberships. Examples are: American Legion, Veterans of Foreign Wars, and service clubs, such as Rotary, Lions, Kiwanis, and the Izaak Walton League.

4. Private groups are those societies or associations with restricted or limited memberships and organized for engaging in enterprises for profit for the benefit of the members only, but confine activities to recreation purposes. Typical examples are: rifle and gun clubs, hunting clubs, boating clubs, fishing clubs, and special organized recreation groups with limited membership. (See also Camping and Campgrounds, this page.)

Camping and Campgrounds
Camping accommodations should provide for a range of camping experiences from the primitive campgrounds with minimum facilities, served by foot or horse trail or watercraft, to the formal campground offering full utility hookups for recreation vehicles and permanent buildings for organized group camping. Consistent with the "carrying capacity" of the area and the need therefor—taking into account camping accommodations developed, or which reasonably may be developed, to serve the need in the vicinity of the area—such camping accommodations may be provided within an area. (See also Organized Group Camps, p. 55, this section.) Where space limitations are significant, campgrounds should be planned within an area to accommodate on a priority basis those camping needs least likely to be served outside the area. Such camping accommodations as may be provided within an area will be located and designed to provide the highest quality of camping experience. (See also Outdoor Sports, p. 43, Resource and Visitor Use Policy section.)

Insofar as practicable, campgrounds, including group camps, necessary within an area should be developed and operated by private enterprise under contract with the Service.

Each campground—except primitive campgrounds—should have such interpretive facilities as may be required to serve the needs of the area's interpretive program.

Each campground shall be operated within its design capacity. No overflow or excess use of a campground or individual campsite will be permitted. To accommodate visitors, advance reservation of campsites and limitations on length of continuous use by one camping party may be imposed.

Back-pack camping, including boat access camping, by individuals, families, and groups is encouraged. Fire permits and registration, consistent with minimum standards of safety, may be required. Moreover, limitations on size of groups and frequency of trips to specific locations may be imposed. Campers, also, may be required to pack out noncombustible trash.

Sites or facilities within campgrounds may not be utilized for residential purposes by persons not engaged in on-site public services or protection of property within the area when such space is needed to serve visitor demand. (See also Residential Facilities, this page.)

Residential Facilities
Except for those lands designated for vacation cabin site use in certain recreation areas prior to January 1, 1964, and in concessioner-operated campgrounds, the use of Federal lands for permanent or seasonal residences shall be permitted only when required to house those persons engaged in on-site public services or protection of property. The provision of housing for such employees shall be in accordance with Bureau of the Budget Policy Circular A-18, October 18, 1957. (See also Camping and Campgrounds, p. 56, this section.)

Airports
Airport facilities and services may be permitted in recreation areas when desirable for effective management and visitor use of the area and where the location of such facilities within the area is compatible with the management of the area for its primary purpose. Whether located within or without the area, the Service will participate in the development of such facilities to the extent permitted by law and funds. (See also Aircraft Operation, p. 45, Resource and Visitor Use Policy section.)

Memorials
Monuments or plaques of a memorial nature commemorating individuals or events may be erected in a recreation area or physical features therein may be named for individuals when there is a significant association between the area and the individual or event being commemorated. Except for existing memorializations, generally, no individual should be so honored during his lifetime. (See also Statement of Policy of U.S. Board of Geographic names for applying names of persons to Natural Features—Appendix G; and Guidelines of National Park Service for making recommendations on Geographic Name proposals—Appendix H.)

Navigation Aids
Needful navigation aids should be planned in collaboration with the U.S. Coast Guard and shall be installed and used in conformity with the standards established by that agency.

Construction Materials
Materials recovered from approved construction sites may be used for construction or maintenance projects within the area. If such materials are not obtainable from a construction site, they may be obtained from other sites in the area only when the recovery of such materials does not impair the recreational values of the area. (See also Architectural Theme, p. 54, this section; Borrow Pits, p. 62, Road and Trail Policy section; Mineral Exploration and Mineral Leasing, p. 22, Physical Developments 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.

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

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

Cultural Facilities
(See Spectator Facilities, p. 55, this section.)

Utilities
Consistent with the recreational environment of the site and economical construction and maintenance costs, utility lines for service and concession operations 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 recreation resources and visitor enjoyment of the area. Wherever possible, utilities should be included in the transportation corridor.

Utility and Transportation Corridors and Rights-of-way
Several of the national recreation areas involve multi-purpose reservoir projects. Others involve villages and similar enclaves of privately owned property, including residences, and commercial establishments. To serve these needs in a manner compatible with maintaining the recreational environment of recreation areas, utility and transportation corridors should be planned where needed.

Where feasible, utility lines and pipelines should be placed underground. All structures and facilities above ground, whether in utility and transportation corridors or other rights-of-way, should be located and designed to minimize their impact on recreational values and visitor enjoyment of the same.

The installation of electrical power transmission lines, gas and oil pipelines, railroads, etc., may be authorized, preferably within utility and transportation corridors, where necessary to serve the multi-purpose project purposes of a recreation area or the needs of privately owned enclaves of villages, etc., within the area, or when there exists no feasible alternative route for bypassing recreation areas. Moreover, in similar circumstances, roads, highways, and other structures and facilities not directly related to the management program of the recreation area, including appropriate visitor use thereof, may also be authorized. When it is necessary to authorize electrical power transmission lines, the authorization will conform with the applicable requirements and stipulations of section 2234.4, Title 43, Code of Federal Regulations.

Access roads from private lands across Federal lands to reach bodies of water—for example, a subdivision adjacent to the "take line" at a reservoir—should be authorized, as a rule, only when the road is available to the general public and serves, also, an intensive-use site available to the general public. In those few cases where such an access road does not serve an intensive-use site but access for limited recreational use is desirable, such access roads may be authorized only on condition that they are available for public use. Access roads which do not meet the above criteria should not be authorized.

Rights-of-way from public roads across Federal land to private lands within recreation area boundaries may be granted private parties when necessary to provide reasonable access to such private property. On this same right-of-way, where practical, private parties may provide such utility lines as may be reasonably necessary to their use and enjoyment of their property.

All construction shall be in accord with plans prepared by or for the permittee at his expense and approved by the Service. Moreover, such permits shall require costs of construction, maintenance, etc., to be borne by the permittee. (See also Local and State Roads and Right-of-way, p. 63, Road and Trail Policy section; and Special Uses of Government-owned Property, and Fees, this page.)

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. 45, Resource and Visitor Use Policy section, and Appendix E.)

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. 45, Resource and Visitor Use Policy section; Appendix E; and applicable volumes of the National Park Service Handbook series.)

DISCUSSION

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

ADMINISTRATIVE POLICIES

Road System
In each area there should be a "good sensible road system" to serve the needs of management and the reasonable requirements of visitor use and enjoyment. Types of roads which may be provided within the recreation area road system are: Major roads, minor 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, p. 63, and Interpretive (Motor Nature) Roads, p. 63, this section.)

Traffic Management
The aim of traffic management should be to enhance the quality of the outdoor recreational experience. 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 the places of heavy visitor concentrations. Arrangements for such service shall be made with authorized transportation concessioners. (See also Concessions and Concessioners, p. 45, Resource and Visitor Use Policy section.) To facilitate traffic movement and to achieve safe travel, special purpose vehicles may be required by regulation to use recreation area roads during hours other than peak travel hours. Vehicles that cannot safely negotiate recreation area roads—either because of size or length of vehicle—should be prohibited by regulation.

Routing of Roads
In deciding upon road locations, maximum advantage should be taken of interpretive and scenic values, a professional determination must be made that the resulting effects on recreation 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 an outdoor recreational experience. The encouragement of such activities as photography, hiking, and interpretive walks will be influential in determining actual locations. The routing of all roads and the plans for construction and reconstruction of all roads shall be guided by field determinations of the Chief Scientist and the Assistant Director for Interpretation.

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

Road Design
An aesthetically pleasing road is one which lies 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 recreation values, by eliminating long tangents, by changes in elevation, by developing viewpoints and overlooks, as well as providing close-range views of local scenes. The road should, in fact, strive to maintain a continuing sense of intimacy with the countryside through which it is passing.

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

Ample turn-outs, scenic overlooks and trail connections should be provided to facilitate leisurely visitor enjoyment of natural features and to encourage visitors to leave their automobiles to more thoroughly experience the area. Ditches, slopes, structures, vertical alinement, design speed, and roadway widths, shall conform to the standards set forth in Appendix I. (See also Road Surfaces and Materials, this page.)

Interpretive Trails
(See Walks and Trails, p. 63, this section.)

Trail Use
Where volume of use warrants, separate trails should be provided for foot and horse use. Moreover, where intensity of use threatens recreational values, limitations on size of parties and frequency of trips to specific locations may be imposed. (See also Camping and Campgrounds, p. 56, Physical Developments 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 limited to the greatest extent possible for effective operation. Where large parking areas are necessary they should be broken up with plantings and screenings, if possible. (See also Road Surfaces and Materials, this page.)

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

Road Surfaces and Materials
The colour 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, this page.) Additionally, elevated boardwalks, such as Anhinga Trail, are often effective solutions.

Borrow Pits
Only when economic factors make it impractical will borrow pits be created in the recreation areas, or present pits further utilized, unless located in washes or other places where natural factors will eradicate the scar. (See also Construction Materials, p. 57, Physical Developments Policy section.)

One-way Roads
In general, the philosophy should be followed that the primary purposes of outdoor recreation in a pleasing natural environment and interpretation are collectively served better by one-way roads than by two-way roads (major and minor recreation area roads and parkways). Accordingly, one-way roads should be constructed in preference to two-way roads wherever practicable. (See also Road System, p. 60, 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 railroads, fire roads and 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. 60, this section.)

Walks and Trails
A variety of trails—interpretive, bicycle, horse, and motor trails—are desirable. Visitor use of historic trails, walks, and roads is encouraged when appropriate and compatible with outdoor recreation enjoyment.

Bicycle trails, when the terrain is suitable and the demand is sufficient, may be provided when compatible with the primary purpose of the area. Normally, bicycle trails will be separate from other trails. However, bicycles may be permitted on recreation area roads when they do not pose a safety hazard or diminish the quality of experience for other visitors.

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

Where major through roads in recreation areas are required to serve the primary mission of the area, the Service will cooperate with responsible local, State, and Federal officials in selecting locations and developing design standards consistent with the primary purpose of the area. (See also Utility and Transportation Corridors and Rights-of-Way, p. 58, Physical Developments Policy section.)