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VERPTheVisitorExperienceandResourceProtection(VERP)FrameworkAHandbookforPlannersandManagersU.S.DepartmentoftheInteriorNationalParkService


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VERPTheVisitorExperienceandResourceProtection(VERP)FrameworkAHandbookforPlannersandManagers

September1997U.S.DepartmentoftheInteriorNationalParkServiceDenverServiceCenter


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Contents

HOWTOUSETHISHANDBOOK 1OrganizationoftheHandbook 3

HISTORYANDTHEDEVELOPMENTOFTHECARRYINGCAPACITYCONCEPT 4Introduction 4TheConceptofCarryingCapacity 4LimitsofAcceptableChange 5

OVERVIEWOFTHEVERPFRAMEWORKPurposeoftheVERPFramework 8SummaryoftheFramework 9VERPandNPSPlanning 11VERPandNEPA 12

ELEMENT1Assemble

an

Interdisciplinary

Project

Team

PointersforBuildingtheTeam 13

ELEMENT2DevelopaPublicInvolvementStrategy 15

8

13

PointersforDevelopingaPublicInvolvementStrategy 18ELEMENT3DevelopStatementsofParkPurpose,Significance,andPrimaryInterpretiveThemes;IdentifyPlanningConstraints 19

IdentificationofParkPurposeandSignificance 20PointersforDevelopingParkPurposeStatements 21ExamplesofParkPurposeStatements 21PointersforDevelopingParkSignificanceStatements 22ExamplesofParkSignificanceStatements 24

IdentificationofPrimaryInterpretiveThemes 25PointersforArticulatingPrimaryInterpretiveThemes 26ExamplesofPrimaryInterpretiveThemesandParkThemes 26

IdentificationofPlanningConstraints 28

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PointersforIdentifyingPlanningConstraints 28ExamplesofPlanningConstraints 29

ELEMENT4AnalyzeParkResourcesandtheExistingVisitorUse 30

Analysisas

It

Relates

to

VERP

30

PointersforAnalysis 32

ExperientialResourceAnalysis 33PointersforExperientialResourceAnalysis 38

ExistingUseandFacilitiesAnalysis 38PointerforExistingUseandFacilitiesAnalysis 39

ResourceConcerns/ResourceSensitivityAnalysis 40PointersfortheResourceConcerns/ResourceSensitivityAnalysis 41

ELEMENT5DescribeaPotentialRangeofVisitorExperiencesandResourceConditions 42

ImportanceofDiversity 42IdentifyingtheRangeofPotentialResourceConditionsandVisitorExperience 43

ExampleofZoneDescriptionsfromArchesNationalPark 46ExampleofZoneDescriptionfromIsleRoyalNationalParkMotorizedSensitive

WaterZone 47PointersforDeterminingtheRangeofResourceConditionsandVisitorExperiences 48

ELEMENT6AllocatethePotentialZonestoSpecificLocationsinthePark(PrescriptiveManagementZoning) 51

ExamplesofVERPZoning 52PointersforDevelopingManagementZoning 52DevelopmentofAlternatives 56PointersforDevelopingAlternatives 57

ELEMENT7SelectIndicatorsandSpecifyStandardsforEachZone;DevelopaMonitoringPlan 58

DefinitionofIndicatorsandStandards 58Indicators 60

SourcesofIndicators 60CharacteristicsofGoodIndicators 62SelectionofIndicators 64

Standards 67CharacteristicsofGoodStandards 67SettingStandards 69

ExamplesofPossibleIndicatorsandStandards 70RevisionofIndicatorsandStandards 70PointersforDevelopingandSelectingIndicatorsandStandards 72DevelopmentofaMonitoringStrategy 74

KeyComponentsofaMonitoringStrategy 75WhereResourceandSocialIndicatorsShouldBeMonitored 76WhenIndicatorsShouldBeMonitored 78HowResourceandSocialIndicatorsShouldBeMonitored 79

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Contents

ELEMENTS 8 & 9 MonitorResourceandSocialIndicatorsTakeManagementAction 81

Monitoring 81RangeofPossibleManagementActions 82Pointers

for

Selecting

Management

Tactics

85

APPENDIXADescriptionsoftheResourceExperienceOpportunityAreasDevelopedfortheArchesVERPPlan 87APPENDIXBDescriptionsoftheManagementZonesintheArchesVERPImplementationPlan 90GLOSSARY 96BIBLOGRAPHY 97LIST

OF

PREPARERS

103

FIGURES1. PlanningCorral 192. ResourceExperienceOpportunityAreas,ArchesNationalPark 363. ParkwideManagementZones,ArchesNationalPark 534. WindowsSectorManagementZones,ArchesNationalPark 54

TABLES1. ResourceExperienceAttributesforVisitorUse 372. PotentialManagementZones,ArchesNationalPark 453. SummaryoftheArchesNationalParkVERPZones 554. ExampleofanEvaluationMatrixforSelectingIndicators 665. ExamplesofIndicatorsandStandards 71

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HowToUsethisHandbook

In1992theNationalParkService(NPS)begandevelopingtheVisitorExperienceandResourceProtection(VERP)frame-

worktoaddressvisitorusemanagementandcarryingcapacityissuesintheunitsofthenationalparksystem.ArchesNationalParkwasthefirstunitinwhichtheVERPprocesswastested.InterestintheVERPframeworkintheNationalParkServicehassubsequentlysoared,andadditionalapplicationsarenowunderwayinseveralparkunits.Interesthasalsobeenexpressedbyothermanagementagenciesbothinthiscountryandinternationally.ThishandbookisintendedtoprovidesufficientguidancesothataNPSplanner,resourcemanager,orotherpractitionerassignedtoundertakeVERPplanningcandosowithconfidence.However,evenwiththishandbookapractitionerwillneedtohaveinitiativeandcreativity,bewillingtoexperiment,andbeabletomakejudgementcallsinordertosuccessfullycarryoutaVERPeffort.Frequentcommunicationwithindi

vidualsinvolvedinotherVERPeffortsmayalsobehelpful.Itmustbestressedthatthishandbookisnotmeanttobeacompleteguideonhowtodogeneralplanningforparks.Manyimportanttopicsthatshouldbeconsideredinthedevelopmentofparkplans,suchasthetreatmentofissues,publicinvolvement,andtheassessmentofalternatives,arediscussedbrieflyornotatall.ReadersshouldrefertotheNPSParkPlanningGuidelinesandtheParkPlanningSourcebook(bothinpreparation)formoredetailsonparkplanning.Duetothetimingoftheproductionofthesethreedocuments,theremaybeinconsistenciesandcontradictionsinterminologyanddirectionscontainedinthedocuments.Inthesecases,readersshoulddefertotheguidanceprovidedintheParkPlanningGuidelines.

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ThisHandbookis . . . ageneralguidetotheelementsthatmakeuptheVERPframework.It

definestheelements,explainstheirrelationshipstoeachotherandtoplanning,suggestssometerminology,andsharescurrentinsightsintothesuccessesandpotentialpitfallsinapplyingVERP.

aboutanewwayofaddressingvisitoruse(carryingcapacity)issuesinparks.TheVERPframeworkisamethodologyforvisitoruseplanningandmanagement.ManyoftheVERPelementsarealsoelementsofgeneralmanagementplanning.

intendedtoprovideoverallconsistencyintheapplicationoftheVERPmethodologysothattheframeworkcanevolveandimproveinanorderlyway.

acompilationofmanyideasandapproachesthatarenewand/orexperimentaltotheParkService.AstheVERPframeworkistestedinmoreparkareas,thishandbookwillneedtobeupdated.

ThisHandbook isnot . . . astep-by-stepguideonhowtoapplyVERP.Itisnotpossibleforthis

handbooktoanswerallthequestionsthatariseovertheapplicationoftheVERPframeworkineverypark.

adescriptionofasubstituteoralternativegeneralmanagementplanningprocess,althoughtheVERPframeworkmaybeusedinconjunctionwithgeneralmanagementplanning.

intendedtoprovidearecipethatrequiresthattheVERPframeworkbeappliedexactlythesamewayineveryparkunit.

thefinalwordontheVERPprocess.Itwilloftenbeuptothepractitionertochooseacourseofactiondeemedbestforeachparksituation.WearestilllearninghowtoimplementtheVERPframework.

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HowtoUseThisHandbook

ORGANIZATIONOFTHEHANDBOOKThefirsttwochaptersofthishandbookgiveanoverviewofthecarryingcapacityconceptandtheVERPframework.TheremainingchaptersareorganizedbynineVERPframeworkelements.Generallyeachofthesechaptersdescribesthepurposeorroleoftheelement,describeswhatitis,providesexamples,andofferspointersonhowtocompletetheelements.Thesechaptersvaryconsiderablyintheirlevelofdetail,dependingonhowfamiliarplanners/managersarewiththeelement.Attheendofthehandbookthereisaglossaryoftermsandalistofkeysourcesofadditionalinformation.

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HistoryandDevelopmentoftheConceptofCarryingCapacity

ThePurposeoftheNationalParkServiceconservethesceneryandthenaturalandhistoricobjectsandthewildlifethereinprovidefortheenjoymentofthesameinsuchmannerandbysuchmeansaswillleavethemunimpairedfortheenjoymentoffuturegenerations1916NPSOrganicAct(16USC1)

Thenationalparks containnaturalandculturalresourcesofgreatimportancetothenationand,inmanycases,totheinter-nationalcommunity.Giventhesignificanceofthisresourcebase,publicdemandtoseeandexperiencetheseareasshouldnotbesurprising.Inthedecadesofthe1970sand1980s,visitationincreasedtremendouslyinthenationalparksystem.Inthe1990stheincreaseinvisitationhasslowed,butuselevelsarestillrisinginmanyparks.Thisupwardtrendisexpectedtocontinueintothenextcentury.TheincreasingvisitationtothenationalparksystemismakingitmoredifficultfortheNationalParkServicetofulfillitsdualmissiontoprovidefortheenjoymentofnationalparkswhileconservingresourcesforfuturegenerations.Concernoverrising

visitationinparks,andaccompanyingimpactsonresourcesandon

visitor

experience,

has

led

the

National

Park

Service

to

focus

increasingattentionontheconceptofcarryingcapacity.

THECONCEPTOFCARRYINGCAPACITYTheunderlyingconceptofcarryingcapacityhasarichhistoryinthenaturalresourceprofessions.Inparticular,ithasprovenausefulconceptinwildlifeandrangemanagementwhereitreferstothenumberofanimalsofanyonespeciesthatcanbemaintainedinagivenhabitat.Carryingcapacityhasobviousparallelsandintuitiveappealinthefieldofparkmanagement.Infact,it

wasfirstsuggestedinthemid1930sasaparkmanagementconceptinthecontextofthenationalparksystem.However,thefirstrigorousapplicationofcarryingcapacitytoparkplanningandmanagementdidnotoccuruntilthe1960s.

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Theinitialscientificapplicationsofcarryingcapacityinparksfocusedontheimpactsonparkresourcesresultingfromvisitoruse.Itsoonbecameapparent,however,thattherewasanotherdimensionofcarryingcapacitydealingwiththesocialaspectsofthevisitorexperience.Inthe1964monographTheCarryingCapacity

of

Wild

Lands

for

Recreation,

J.

A.

Wagar

reported

that

hisstudywasinitiatedwiththeviewthatthecarryingcapacityofrecreationlandscouldbedeterminedprimarilyintermsofecologyandthedeteriorationofareas.However,itsoonbecameobviousthattheresourceorientedpointofviewmustbeaugmentedbyconsiderationofhumanvalues.Thepointwasthatasmorepeoplevisitapark,boththenaturalandculturalresourcesoftheareaandthequalityofthevisitorexperiencecanbeaffected.ThroughtheyearsithasbecomeevidentthatthereisaconflictbetweenParkServiceeffortstoencouragetheuseofparksbymakingthemmoreaccessibletomorepeople,anditseffortstoensurethatparkresourcesareprotectedandopportunitiesforqualityvisitorexperienceopportunitiesareprovided.

LIMITSOFACCEPTABLECHANGE(LAC)Theearlyscientificworkoncarryingcapacityhasblossomedintoanextensiveliteraturebaseonresourceandsocialaspectsofparkuseandtheirapplicationtocarryingcapacity(forexamples,seetheBibliography).Butdespitetheimpressiveliteraturebase,

efforts

to

determine

and

apply

carrying

capacity

to

parks

haveoftenresultedinfrustration.Theprincipaldifficultyliesindetermininghowmuchresourceorsocialimpactistoomuch.Giventhesubstantialdemandforpublicuseoftheparks,somedeclineorchangeinresourceconditionandthequalityofvisitorexperienceisinevitable.Buthowmuchdeclineorchangeisappropriateoracceptable?Thisissueisoftenreferredtoasthe

limitsofacceptablechange(LAC)andisfundamentaltoaddressingcarryingcapacity.In1985theU.S.ForestServicepublishedaprocessfordealing

withtheissueofrecreationalcarryingcapacityinwilderness.TheprocesswasfirstappliedattheBobMarshallWildernessComplexinMontana.Sincethattimeseveralplanningandmanagementframeworkshavebeendevelopedtoaddresscarryingcapacity,includingtheNationalParksandConservation

AssociationVisitorImpactManagement(VIM)process,theParksCanadaManagementProcessforVisitorActivities(knownasVAMP),andtheParkServiceVERPprocess.Whileeachframeworkincludesrefinementstosuitindividualagency

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missions,policies,andprocedures,alloftheframeworksshareacommonsetofelements.Alloftheseframeworksincludeadescriptionofdesiredfutureconditionsforparkresourcesand

visitorexperiences,theidentificationofindicatorsofqualityexperiencesandresourceconditions,establishmentofstandardsthat

define

minimum

acceptable

conditions,

the

formulation

of

monitoringtechniquestodetermineifandwhenmanagementactionmustbetakentokeepconditionswithinstandards,andthedevelopmentofmanagementactionstoensurethatallindicatorsaremaintainedwithinspecifiedstandards.

AnotherwayoflookingatthebasiclogicoftheLACprocessandotherframeworkshasbeenarticulatedbyDavidColeofthe

AldoLeopoldWildernessResearchInstituteandoneoftheoriginalauthorsoftheLACconcept.AccordingtoCole,theintentofcarryingcapacityplanningistodevelopacompromisebetweentheabsoluteprotectionofresources(inthiscaserefer-ringtotheenvironmentalconditionsandthevisitorexperience)andtheunrestrictedaccesstoresourcesforrecreationaluse.TheLACprocesswasdesignedtohelpdefinethiscompromise.ThebasiclogicoftheLACprocess,accordingtoCole,isasfollows:

IdentifyTwoGoalsinConflict.Inthecaseofnationalparks,thetwogoalsareusuallytheprotectionofenvironmentalconditionsandvisitorexperiences(goal1)andtheunrestrictedaccesstoresourcesforrecreationaluse(goal2).

EstablishthatBothGoalsMustBeCompromised.Ifoneortheothergoalcannotbecompromised,thentheLACprocessisnotneededonegoalmustsimplybecompromisedasnecessarytomeettheonethatcannotbecompromised.

DecideWhichGoalWillUltimatelyConstraintheOther.Inthecaseofnationalparks,thegoalofprotectingenvironmentalconditionsandvisitorexperienceswillalmostalwaysconstrainthegoalofunrestrictedaccess.

WriteLACStandardsforthisUltimatelyConstrainingGoal.LACstandardsexpresstheminimallyacceptableconditionsfortheenvironmentandvisitor.

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CompromisethisGoalUntiltheStandardsAreReached.Allowtheenvironmentalconditionsandvisitorexperiencestodegradeonlytotheminimallyacceptablestandard.Recreationalaccessshouldnotbesubstantiallyrestricteduntilthestandardsarereached.

CompromisetheOtherGoalasMuchasNecessary.Oncestandardsforenvironmentalconditionsandvisitorexperiencesarereachednomoredegradationisallowed,andrecreationalaccessisrestrictedasneededtomaintainstandards.

LookingatthebasiclogicoftheLACprocessinthiswayishelpfulforseveralreasons.First,thiswayofthinkingillustratesthatthefundamentalchallengeinvisitorusemanagementisnotsomuchtheresolutionofresourceprotectionandvisitoruseconflicts.Instead,theemphasisshouldbeondefiningcomplementaryvisitorexperienceopportunitiesandresourceconditions,andthendeterminingtowhatextentunrestrictedrecreationalaccesscanbeaccommodated.Second,thislogicallowsmanagerstorecognizethatunrestrictedaccessavalueheldstronglybymanyrecreationistsisavalidgoal,butone

whichcannotalwaysbeaccommodatedinlightoftheequallyvalidgoalsofvisitorexperiencediversityandresourceprotection.Third,anunderstandingofthegenericthoughtprocessishelpfulinunderstandinghowthevariousframeworksmaybeadaptedorfine-tunedfordifferentsituationswithoutlosingthecriticalelementsoftheframeworks.Fourth,becausetherehasbeen

interest

on

the

part

of

managers

to

apply

the

LAC

process

toproblemsotherthancarryingcapacity,theexaminationofthegenericprocesshelpsindeterminingthesituationsinwhichsuchapplicationsmaybeusefulandthosesituationsinwhichtheymaynot.SincetheinceptionoftheLACprocess,landareamanagersandplannershavecontinuedtotest,adapt,andrefinetheprocess.TheVERPframeworkisoneoftheadaptationsoftheLACprocess.InVERPplanning,theprocessisexpandedtoaddressawidevarietyofresourcesettingsandfrontcountryaswellasbackcountryexperiences.

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OverviewoftheVERPFramework

PURPOSEOFTHEVERPFRAMEWORKUnderthe1978NationalParksandRecreationAct(P.L.95-625),theNationalParkServiceisrequiredtoaddresstheissueofcarryingcapacityinitsgeneralmanagementplans(GMP).NPSmanagementpoliciesandplanningguidelinesacknowledgethisresponsibility.Theconceptofcarryingcapacityisintendedtosafeguardthequalitybothoftheparkresourcesandthevisitorexperience.Parkresourcesinthiscontextencompassesallofthebiophysical,aesthetic,andculturalelementsandfeaturescontainedinapark.

Asitappliestoparks,visitorcarryingcapacityisdefinedasthetypeandlevelofvisitorusethatcanbeaccommodatedwhilesustainingacceptableresourceandsocialconditionsthatcomplement

the

purpose

of

apark.

Underthisdefinitioncarryingcapacityisinterpretedprimarilyasaprescriptionofresourceandsocialconditions,andsecondarilyasaprescriptionfortheappropriatenumbersofpeople.Inherentintheabovedefinitionaretheunderstandingofthepurposeofaparkandthedevelopmentofmanagementprescriptionsspecifyingappropriateresourceandsocialconditions.

Anotherbasicassumptionisthatcarryingcapacityworkisundertakenwiththeintentofmanagingvisitoruse.Visitorusemanagementbeginswithaplan,butitcontinuesasancyclicalprocessinvolvingmonitoring,evaluation,andtakingactiontomakeadjustments.Discussionsabouttheappropriatefocusandscopeofeffortshaveledtothefollowingworkingdefinition.VERPis:

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Overview

aplanningandmanagementframeworkthatfocusesonvisitoruseimpactsonthevisitorexperienceandtheparkresources.Theseimpactsareprimarilyattributableto

visitorbehavior,uselevels,typesofuse,timingofuse,andlocationofuse.

Itshouldbenotedthatcrowdingisonlypartofwhatcontributestoortakesawayfromthevisitorexperience.However,itistherapidlyincreasingvisitationinmanyparksthatisdrivingtheinterestinandtheneedforusingtheVERPframework.ManagershaveothertoolsbesidestheVERPframeworkforevaluatingthequalityofparkinterpretationprogramsandtheadequacyoffacilitymaintenance,forexample,eventhoughthesefactorscertainlyinfluencethequalityofthevisitorexperience.

SUMMARYOF

THE

FRAMEWORK

NineelementsareintegraltotheVERPframework.Theelementsaresummarizedbelow;eachelementisdiscussedinfurtherdetailinsubsequentchapters.Whilethescopeoftheelements,theorderinwhichtheyareundertaken,andthespecificmethodsusedtocompletetheelementsmayvaryindifferentsituations,alloftheelementsarenecessarytoimplementaVERPprogram.Althoughtheelementsarenumberedandmayappeartofollowalinearprocess,itisimportanttorememberthattheVERPframeworkisiterative,withfeedbackandfeed-forwardoccurringthroughouttheelements.TheVERPframeworkisintendedtoprovidealogicandration-aleformakingdecisionsoncarryingcapacityissues.Itis,there-fore,importanttodocumentalldecisionsthataremadeduringthecourseofdevelopingandimplementingtheVERPelementsinapark.Thedocumentationofrationaleisparticularlyimportantwhenmanagersneedtomakecontroversialdecisions,suchaslimitingvisitoruseorincreasingdevelopment.

FrameworkFoundationElement1:AssembleanInterdisciplinaryProjectTeam.Acoreteamisneededandshouldincludethosepeoplewhocandeveloptheplanandthosewhowillimplementtheplan.Awide

varietyofconsultantswithvariousbackgroundsandexpertisemaybeneededtoassistthecoreteam.Element2:DevelopaPublicInvolvementStrategy. As in anyplanningeffort,thepublicmustbeinvolvedinVERPplanning.

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BothNPSstaffandpublicsexternaltotheagencyshouldbeconsidered.Apublicinvolvementstrategyshouldbepreparedearlyintheframework.Element3:DevelopStatementsofParkPurpose,Significance,andPrimaryInterpretiveThemes;IdentifyPlanningConstraints.ThesestatementsformthefoundationuponwhichtheVERPplanandimplementation strategiesarebuilt.Allsubsequentelementsmustbeconsistentwithandsupportiveofthesestatements.Thiselementmayalreadyexistinmanyparks,havingbeendevelopedinpreviousplanningefforts.Butifthisworkhasnotbeendone,theworkonVERPelementsshouldnotcontinueuntilallofthesestatementsarearticulatedandclearlyunderstood.

AnalysisElement4:AnalyzeParkResourcesandtheExistingVisitorUse.Theobjectiveofthiselementistounderstandasfullyaspossibleparkresourcesandexistingvisitoruseandexperience.Thisanalysisshouldbedocumented,usuallythroughacombinationofmaps,matrixes,andtext.

PrescriptionsElement5:DescribeaPotentialRangeofVisitorExperiencesand

Resource

Conditions

(potential

prescriptive

zones).

Potentialzonesaredescribedbydifferentdesiredvisitorexperience

opportunitiesandresourceconditionsthatcouldbeprovidedinagivenpark,consistentwiththeparkpurposeandsignificance.Thezonedescriptionsprescribetheappropriatekindsandlevelsofactivity,development,andmanagement.Thesepotentialzonesaredescribedintextonly;theyareappliedtospecificgeographicalareasinelement6.Element6:AllocatethePotentialZonestoSpecificLocationsinthePark(prescriptivemanagementzoning).Inthiselementthezonesdescribedinelement5areassignedtospecificlocationsinapark.Thezoningschemeprescribesfutureconditions;itisnotdescriptiveofexistingconditions,althoughinsomecasesthecontinuationofexistingconditionscouldbethedesiredfuture.Ifappropriate,theplanningteamshoulddevelopalter-nativezoningschemesandassesstheirbeneficialandadverseimpacts,consistentwiththeNationalEnvironmentalPolicyAct(NEPA).

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Overview

Element7:SelectIndicatorsandSpecifyStandardsforEachZone;DevelopaMonitoringPlan.Indicators(specific,measurablevariablesthatwillbemonitored)andstandards(minimumacceptableconditions)areidentifiedforeachzone.Amonitoringplanisdevelopedthatidentifiespriorities,methods,funding,

and

staffing

strategies

and

analysis

requirements.

MonitoringandManagementActionElement8:MonitorResourceandSocialIndicators.Theparkstaffregularlymonitorsresourceandsocialconditionsinvariouszones.Staffandfundinglimitationswillusuallynecessitatesettingprioritiesandmonitoringindicatorsonlyinthemostcriticalareas.Element9:TakeManagementAction.Whenmonitoringindicatesthatsocialorresourceconditionsareoutofstandardoraredeterioratingtowardastandard,managementactionmustbetaken.

VERPANDNPSPLANNINGTheVERPframeworkwasconceivedanddesignedtobepartoftheparkGMPprocess.Indeed,manyoftheelementsintheVERPframework,suchasdevelopingparkpurposeandsignificancestatementsanddescribingfutureconditionsbyindividualmanagement

zones,

will

be

integral

to

most

park

general

managementplans.AccordingtocurrentNPSguidance,general

managementplanswillqualitativelyaddresscarryingcapacitybydescribingthevisitorexperienceandresourceconditionbyzone.Mostfuturegeneralmanagementplans,therefore,willnotcontainfurthercarryingcapacitydetails.InmostcasesthemorequantitativeelementsoftheVERPframeworkspecifyingindicatorsandstandards,developingamonitoringstrategy,andidentifyingmanagementactionsneededtoaddressconditionswhenstandardsarereachedorexceededwillbeaccomplishedinanimplementationplanthatisdevelopedafterthecompletionofageneralmanagementplan.TheremaybeothersituationswhereVERPplanningwillbeappliedoutsideoftheGMPprocess.Forexample,itmaybenecessaryattimestoaddressvisitoruseissuesforparkswitholdergeneralmanagementplansortoaddressvisitoruseissuesinonlyoneortwoareasinapark.Aseparatevisitormanagementplanoranamendmenttoanexistingplanmaybeappropriateinthesecases.

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VERPandNEPAAllVERPplanning,includingthedevelopmentandrevisionofstandardsandmanagementactionsandthedevelopmentofaVERPimplementationplan,issubjecttotheprovisionsoftheNationalEnvironmentalPolicyAct.Asmuchaspossible,adecisiontopursueaVERPeffortshouldbeanalyzedintheenvironmentaldocumentationaccompanyingageneralmanagementplan.ButoftenitmaynotbepossibleinageneralmanagementplantopredictthefullrangeofmanagementactionsneededtoimplementaVERPeffortortheconsequencesofthoseactions.InthiscaseadditionalNEPAdocumentationmaybeneededtocoverthestandardsandmanagementactionsinaVERPimplementationplan.Ifmajororcontroversialactionsareproposedafteranimplementationplaniscompleted,oradecisionismadetoreviseindicatorsorstandards,furtherNEPAdocumentationmaybeneeded.(ForfurthergeneralguidanceonwhentoapplyNEPAcompliance,readersshouldrefertotheNationalParkServiceNationalEnvironmentalPolicyActGuidelines.)

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Element 1AssembleanInterdisciplinaryProjectTeam

Planningisacomplexchallengethatshouldbeaccomplishedbyaninterdisciplinaryteam.Carefulthoughtneedstobegiventoselectingteammemberstoensurethattheteamhasthenecessaryskills,knowledge,andexpertisetodevelopandguidetheimplementationofaplan.Acoreteamshouldbeassembledconsistingof

ateamleader/planner (someonetoleadtheteamthroughtheframework)

adecisionmaker(superintendent orassistantsuperintendent)

twoorthreekeyparkstaff/specialistsItisessentialthatalloftheseindividualsbepartofthecoreteam.Inadditiontothecoreteammembers,avarietyofconsultantswilllikelyparticipateatdifferentpointsinthedevelopmentofaplan.

POINTERSFORBUILDINGTHETEAM

Parkstaffmustplayamajorroleinthedevelopmentofaplanbecausetheywillberesponsibleforimplementingit.Iftheplanistosucceed,itisimportantthattheplanningteamculti

vatestaffunderstandingofandownershipintheplan. Developingaplanmaytakealotoftimeandeffort.Itis

essentialthatbeforebeginningworkonaplan,theparksuperintendentandparkstaffareawareofthefuturework-loadrequirementsandarewillingandabletomaketheneededtimecommitments.Thiscommitmentmustbestrongthroughouttheplanningeffort.Ifteammembersdonotattendmeetings,donotdoassignedwork,ordropofftheteam,thechancessignificantlyincreasethattheplanwillfail.

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(Theabilityofpeopletocommittoteamparticipationmaybeoneofthecriteriainselectingteammembers.)

Thecoreteamshouldbekeptrelativelysmall(i.e.,37members).Itshouldincludediverseperspectivesanddisciplines,and

should

represent

arange

of

park

staff

and

management.

Sincedirectionmustbegiventotheplanningteamonnumer

ousdetails,itisdesirabletohavethesuperintendentonthecoreteam.Ininstanceswherethesuperintendentcannotsitin,theassistantsuperintendentshouldparticipate.Inthelattercase,thesuperintendentshouldberegularlybriefedonthestatusoftheefforttoavoidanysurprises.

Thecoreteamshouldrelyonconsultantstoprovideadditionalskillsandabilities.Thenumberandtypesofconsult-antsandthedurationoftheirinvolvementwillvarydependingonthecoreteamsneedsandabilitiesandthecharacteristicsofthepark.SomeoftheseconsultantscouldbefromoutsidetheParkService,includingotheragencies,stakeholders,andresearchinstitutions.Individualswhomightparticipateindifferentplanningprojectsoratdifferenttimesonthesameprojectinclude

naturalresourcespecialists culturalresourcespecialists resourcemanagers interpretivespecialists naturalresourcescientists socialscientists geographicinformationsystemspecialists publicinvolvementspecialists parkmaintenancespecialists concessionmanagementspecialists landscapearchitectswriter/editors communityplanners facilitators statehistoricpreservationofficers

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Element 2DevelopaPublicInvolvementStrategy

ParkshaveagreatdealofsymbolicvaluetotheAmericanpublicandareoftenthefocusofintenseemotions.Publicinvolvementintheplanningprocesshelpstheplanningteamtounderstandthevaluespeopleholdinrelationtoparkresourcesandthevisitorexperienceandiscriticaltocreatingaplanthatcanbesuccessfullyimplemented.Underlyingallfundamentalplanningdecisionsarecompetingvalues,whichmustberesolvedbyadecisionastowhichvalueisofgreaterimportanceinthisparticularsituation.Aplanningdecisionisthecompromisebetweencompetingvaluesatagivenpointintime.Under-standingpublicvaluesenablestheplanningteamtomakeinformedplanningdecisions.Involvingthepublicintheplanningprocesshelpsaplanningteamto

learnaboutpublicconcerns,issues,expectations,andvalues

educatepeopleabouttheplanningprocess,issues,andproposedmanagementaction

learnaboutthevaluesplacedbyotherpeopleandgroupsonthesameresourcesandvisitorexperience

collectdataandvalidateproposals(e.g.,informationonpublicvaluesandissues,onhowpeopleuseapark,onexistinganddesiredconditions,andontheacceptabilityofproposedindicators,standards,andmanagementactions)

definetherangeofalternatives buildsupportamonglocalpublics,visitors,Congress,and

othersforimplementingtheplanDevelopingapublicinvolvementstrategyisoneoftheplanningteamsfirsttasks.Thestrategyshouldoutlineopportunitiesfor

Iknownosafedepositoryoftheultimatepowerofsocietybutthepeoplethemselves,andifwethinkthemnotenlightenedenoughtoexercisetheircontrolwithawholesomediscretion,theremedyisnottotakeitfromthem,buttoinformtheirdiscretionbyeducation.ThomasJefferson

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publicinvolvementthroughouttheplanningeffortandshouldbecarefullyandsystematicallydesignedaspartofthedecision-makingprocess.Thepublicandtheplanningteamshouldexchangeinformationandideasthroughouttheprocess,notjustafterdecisionshavebeenmade.Whenthisdoesnotoccur,public

comment

is

likely

to

be

received

either

too

early

or

too

late

tobeusable,oritmayfailtofocusonthecriticalissues.Thepublicneedstounderstandhowtheirinputwillbeused,howdecisionswillbemade,andtheconsequencesofpotentialmanagementaction.Thereshouldbealinkbetweenpubliccommentanddecisionmaking,orthepublicwillseenoreasontoparticipate.Thesuccessinimplementingapublicinvolvementstrategydependsuponpreplanningandpreparation.Foreachelementintheplanitisimportanttoknowwhytheteamisinvolvingthepublic,whatneedstobeaccomplished,andwhatinformationneedstobeexchangedbetweentheParkServiceandthepublic.Onlyafterthesequestionshavebeenansweredshouldtheteamdeterminewhichpublicinvolvementtechniqueswouldbemostappropriate.Thetimingofpublicinvolvementeventsshouldbesensitivetotheamountofinformationgeneratedandthedecisionsmadesincethelasttimetheteaminteractedwiththepublic.Theplanningteammayneedtoactivelysolicittheviewsofsomegroupsthatmightnototherwiseparticipateandmayneedtoexplorealternativeformsofpublicinvolvementthataresensitivetothegroupsneedsandculture.Itisimportanttoinvolveasmanypeople,organizations,andagenciesaspossiblethatmaybeaffectedbyorhaveastakeintheoutcomeofplanningandimplementationdecisions.Allgroupsandindividualsshouldhaveequalaccesstoinformationaswellasequalopportunitiestointeractwiththeplanningteam.Belowaresomefactorsthatshouldbeconsideredinidentifyingpublicstoinvolveinaplanningprocess.

Proximity.Peoplewholiveintheimmediateareaofthe

park

may

be

affected

by

noise,

the

influx

of

people,orthechangesinpublicuse.Becauseofthenationalinterestinparks,NPSmanagersmustconsiderandbalanceinformationreceivedfrombothlocalandnationalpublics.AsampleofvisitorsfromacrosstheUnitedStatesandnationallybasedorganizationsshouldalsobeinvolved.

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Element2

EconomicGainorLoss.Groupsmayhavejobsorcompetitiveadvantagestowinorlose.Forexample,concessionairesandlocaloutfittersmaydisagreewithtribesovertheuseofareassacredtothetribes.Use.Peoplesuseofaserviceorresourcemaybeaffectedbytheoutcomeoftheaction.Values.Somegroupsmaybeonlyperipherallyaffectedbythefirstthreefactorsbutfindthatsomeoftheissuesraisedbyaproposedactiondirectlyaffecttheirvaluestheirsenseofthewaythingsoughttobe.Wheneveraproposedactiontouchesonissuessuchasfreeenterpriseversusgovernmentcontrolorjobsversusenvironmentalprotection,theremaybeindividualswhoparticipateprimarilybecauseofthevaluesinvolved.

Parkstaffinvolvementisanimportantcomponentofpublicinvolvement,especiallyinlargeparkswheremanystaffmemberswillnotparticipatedirectlyindevelopingtheplan.Parkstaffunderstandingandinvolvementwilllikelybecriticalinestablishingcommunitysupportfortheplanandforsuccessfulplanimplementation.Whilepublicinvolvementcannotbeconsideredastatistically

validsurvey,itcanbeviewedasasnapshotofpublicopinion.Itshouldberememberedthattheinformationreceivedbytheplanningteamonlyrepresentsthepeoplewhoresponded.Also,publicinvolvementisnotavotingprocess.Theresultsofapublicinvolvementeffortshouldbeused,alongwiththeanalysisofotherinformationanddatagatheredduringtheplanningprocess,tomakerationalanddefensibleplanningdecisions.Goodplanningensuresthateveryonewhohasastakeintheoutcomeofadecisionunderstandsandcanacceptthedecisionasitisbeingmade.Toachievethisobjectivethepublicmustbeconvincedandunderstandthat

doingsomethingisbetterthandoingnothing theplanningprocessisreasonableandfair,andnotpredetermined parkmanagersaretrulylisteningtothepublic parkmanagersaretryingtominimizehardshipswhile

stillsolvingtheproblemsPublicinvolvementinVERPplanningiscriticalbecausecarryingcapacitydecisionsarevalue-laden.Publicopinionassistsin

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Element 3DevelopStatementsofParkPurpose,Significance,andPrimaryInterpretiveThemes;IdentifyPlanningConstraints

Parkpurposeandsignificancestatements,aswellastheNPSmission,clarifythemostbasicassumptionsaboutparkuseandmanagement,andprovidecontextforhowaparkshouldbemanagedorused.Thesefoundationelementscanbethoughtofthecornerstonesofacorral,asshowninfigure1.Thiscorralformstheboundariesthatlimitdecisionsconcerningapark.Ifparkpurpose,significance,primaryinterpretivethemes,andplanningconstraintshavenotbeenidentified,workonotherelementsoftheVERPframeworkshouldnotbeginuntilthestatementsareclearlyarticulatedandunderstoodbybothparkmanagementandthepublic.Ifparkpurposeandsignificancestatementsandprimaryinter-pretivethemesdoalreadyexist,theystillshouldbereviewedand

either

be

validated

or

updated.

ParkPurpose

NPSMissionLaws

PoliciesPark

Significance

alldecisionsaboutthepark

Figure1.PlanningCorral

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Purpose,significance,andprimaryinterpretivethemesshouldnotbeidentifiedearlyintheframeworkandlaterforgotten.EverythingtheplanningteamdoesintheVERPframeworkshouldbecontinuallytestedagainstparkpurpose,significance,andprimaryinterpretivethemes.

IDENTIFICATIONOFPARKPURPOSEANDSIGNIFICANCEThefoundationofparkplanning,andtheVERPframework,isformedbythepurposeandsignificanceofapark.Inanyplanningeffort,theparticipants(includingtheplanners,parkstaff,andthepublic)haveassumptions,frequentlynotarticulated,aboutthebasicpurposeandsignificanceofapark.Allplanningdiscussions,proposals,andassessments,andallmanagementdecisionsandactionswillbefilteredandevaluatedbyeachindi

vidualbasedonhisorherownsetofassumptions.Untiltheseassumptionsareexaminedandunderstoodbytheparticipants,subsequentplanningandmanagementwilllackfocusandcontinuity,andpublicunderstandingandconsentwillbedifficultorimpossibletoachieve.Parkpurposeisdefinedasthereasonorreasonstheareawassetasideasaunitofthenationalparksystem.Parksignificanceissummarizedinstatementsthatcapturetheessenceoftheparksimportancetoournaturaland/orculturalheritagewhatissoimportantaboutthisareathatitbelongsinthenationalparksystem?

Significance

statements

place

apark

in

abroader

regional,national,orinternationalcontext.Inadditiontoparkpurpose,allparksaresubjecttomanylegalandadministrativemandatesthatapplytomanagingthenationalparksystem.Somespecialmandatesalsomayapplytoaparticularparkthatareworthyofdiscussionandspecialconsideration,eitherbecausetheyareunusual(suchasaspecialprovisionforgrazingintheestablishinglegislationofapark)orbecausetheyaddanotherdimensiontoparkpurposeandsignificance(suchasthedesignationofanareaaspartofthenationalwildernesspreservationsystem,oradesignationasa

worldheritagesiteorbiospherereserve).Thesespecialman-datesmaybedocumentedinaparkplan,butarelistedseparatelyfromparkpurposeandsignificance.

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Element3

PointersforDevelopingParkPurposeStatements Purposestatementsarticulatethereasonstheparkexists;

theydonotincludemandatesformanagementorotherlegislativerequirements(seeexamples).

Purposestatementsmustbegroundedinparklegislation,legislativehistory,andotherformaldesignations(e.g.,wilderness,biospherereserve,orwildandscenicriverstatus).Careshouldbetakeninquotinglegislationorlegislativehistory

verbatimaspurposeorsignificancestatementsbecausethelanguageisoftenvagueandopentodifferinginterpretation. Wheneverpossible,wordscontainedinthelegislation,suchasoutstanding,natural,preserve,andenhance,shouldbedefinedorqualifiedbythepurposestatements(seeexamples).

Asmuchaspossible,purposestatementsshouldbespecifictotheunitinquestion.Ifapurposestatementcouldbeappliedtoanyparkinthesystem,itshouldbereexamined.

Parkpurposegenerallydoesnotchange.Butinsomecasestheycanevolveovertimeifconditionsandvalueschangeand/ornewinformationbecomesavailable.

Asageneralrule,parksshouldnothavemorethanthreetofivepurposestatements.

Allparticipants(planners,parkstaff,andthepublic)mustunderstandandaccepttheparkpurposestatements.Thestatementsaretheresultofextensivediscussionandclarification.Draftstatementsshouldbedevelopedbyasmall,facilitatedgroup,andthenthestatementsshouldbeevaluatedandrefinedbylargergroupsandthepublic.

ExamplesofParkPurposeStatements Tomanageparkscenery,naturalandculturalresources,and

wildlifeinamannerconsistentwiththe1916OrganicAct.Thisisnotaneffectivepurposestatement.ItismerelyarestatementoftheNPSmissionandpolicy.Allthisstatementreallysaysisthatwearegoingtoobeythelaw.

Toprovideforlivestockgrazing,consistentwithlegislationandproclamations,whileconservingandprotectingresources.

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Thisisnotanappropriatepurposestatement.Whileprovidingforlivestockgrazingisalegislativemandateforthisparticularpark,grazingisnotthereasontheparkwasestablished.Thisstatementwouldbemoreappropriatelydocumentedasaspecialmandate.

Preserveandprotectspecialgeologicfeatures:labyrinthsofremarkablecanyons,volcanicphenomena,fossiliferousdeposits,brilliantlycoloredstrata,andraresedimentation.Thisisamuchbetterpurposestatement.Ittiesthepurposeofthisparktothoseessentialfeaturesdetailedintheenablinglegislation.

Preserve(forresearch)andinterpret(forcommemoration)sitesandremainsassociatedwiththeAmericanColonialperiodfrom16071781.Again,thisstatementispark-specificandbeginstoestablishparkpriorities.Thewordspreserveandcommemorate,

whichappearedinthelegislation,arebetterdefined. Perpetuate,forfuturegenerations,arepresentativesampleofthe

naturalandculturalresourcesoftheBigDryDesert.Thisstatementgivessomeinformationaboutparkprioritiesandalsoqualifiesthewordpreserve,whichwasintheoriginallegislation.Atthispark,thepreservationoftheentireBigDryDesertwouldbeimpossiblebecauseofthesmallsizeoftheparkandincreasingdevelopmentoutsidetheparkboundary.Sothestaffusedthelanguage,perpetuate . . . a representativesample,asanachievablepurpose.

PointersforDevelopingParkSignificanceStatements Significancestatementsshoulddefinetheoverallsignificance

ofapark.Parksignificanceisnotaninventoryofparkresourcesorevensignificantparkresources;arepetitionofpurposestatements;astatementoffactaboutoradescriptionofaresource(withoutplacingthestatementincontext);orastatementthataresourceissignificant(withoutexplaining

whyitisimportant).

Agoodtestforsignificancestatementsistoask,Ifthisresourceorvaluewereremoved,wouldwestillhaveXYZNationalPark?Forexample,BlackRocksNationalMonumentwassetasidetopreservedistinctivevolcanicfeatures.

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Element3

Nearby,andinparkboundaries,isasectionoftrailrutsassociatedwiththeIrishmigrationtoMexico.Ifthevolcanicrocksweregone,wouldwestillhaveBlackRocksNM?Iftheanswerisno,thevolcanicrocksrepresentparksignificance.IftheIrishtrailwereremoved,wouldwestillhaveBlackRocksNM?

If

the

answer

is

yes,

even

though

the

trail

resource

may

carryitsownsignificance,andtheparkmayhavesomemanagementandprotectionresponsibilityforit,thetrailisnotrepresentativeofparksignificance.

Significancestatementsareintendedtohelpsetparkpriorities.Thetendencytomakesignificancestatementsinclusiveenoughtojustifyallongoingparkprogramsshouldberesisted.However,itshouldalsoberecognizedthatparkstaffsneedtodomanythingsthatarenotnecessarilysup-portedbytheirsignificance,butaredictatedbylawsorNPSpolicy.Forexample,aparkwhosesignificanceisprimarilyarcheologicalmayneedmanagementprogramsinplacetoprotecthabitatsforendangeredspecies,eventhoughtheendangeredspeciesarenotincludedinparksignificancestatements.

Theargumentmaybemadethatallparkresourcesareimportant,andtherefore,itisnotpossibletodeterminesignificanceorsetprioritiesallparkresourcesarethehighestpriority.However,parkmanagersneedtoknowwhatismostimportantwhenmakingdecisionsonallocatinglimitedmoneyandstafftime.

Donotforgettoconsiderparkvaluesfrommultipleculturalperspectives.Forexample,NativeAmericansmayhavedifferentviewsonthesignificanceofapark,whichshouldbeincludedinthelistofsignificancestatements.

Tofindinformationaboutsignificanceconsulttheparkenablinglegislationandassociatedhistory,documentationinsupportofspecialdesignations(suchasaworldheritagesiteorbiospherereserve),researchreports,andexperts.

Thenumberofsignificancestatementswillvarywitheachpark

unit.

However,

not

even

apark

as

large

and

diverse

as

YellowstoneNationalParkshouldhavemorethan10.Mostparkswillhavethreetofivestatements.Ifasignificancestatementcanbeappliedtoeveryunitinthesystem,itisnotagoodstatement;significancestatementsarepark-specific.(Seetheexamplesbelowformoretips.)

Aswithpurposestatements,allparticipants(planners,parkstaff,andthepublic)mustunderstandandacceptthepark

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significancestatementsandmustbeinvolvedinwritingthemand/orhaveinputinrefiningthem.Theinvolvementofexpertswhoknowandunderstandparkresourcesiscrucialindevelopingaccurateandusefulsignificancestatements.(Usuallyparkstaffmembersaretheexperts,buttheremaybeexperts

outside

the

staff

who

should

be

consulted.)

On

the

otherhand,significancestatementsthatarewrittenbyonlyoneortwoexpertsmayomitsomestatementsorfailtodescribeparksignificancesoitcanbeunderstoodbyparkstaff,planners,orthepublic.Draftsignificancestatementsshouldbedevelopedbyasmall,facilitatedgroup,andthenthestatementsshouldbeevaluatedandrefinedbylargergroupsandthepublic.

ExamplesofParkSignificanceStatements Theparkandsurroundingareaprovideawidearrayofrecrea

tionalactivities.Thisisnotagoodsignificancestatement.Canyouthinkofaparkaboutwhichthiscouldnotbesaid?

Theparkcontributessignificantlytolocaleconomiesinmanyways.Whilethismaybeatruestatement,andmayevenrepresentparksignificancetoalimitedsegmentofthepublic,itdoesnotrepresentthepartofAmericanheritagepreservedatthispark.Therefore,itisnotagoodsignificancestatement.It

wouldbeanappropriatepartofthedescriptionoftheparkanditsrelationshiptotheregioninwhichitislocated.

Theparkandsurroundingareaprovideadiversityoftravelexperiences,frompavedanddirtroads,totrails,andunmarkedbackcountryroutes.Thismaybeavaliddesiredfuture,butitismoreanevaluationoftheparkinfrastructurethanastatementabouttheoverallsignificanceofthepark.

Theparkcontainssignificantarcheologicalandhistoricalresources.Thisstatementisnotusefulbecausesignificanceisnotdefined.Aretheysignificantbecausetheyarerare,numerous,goodexamplesoftheirtype,theonlyonesinexistence,orwhat?

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Element3

TheparkcontainsoneoftheveryfewaccessibleexamplesofintertidalcommunitiesandchaparralcommunitiesrepresentativeofthesouthernCaliforniacoastalenvironment.Thissignificancestatementisuseful.Itcallsoutspecialfeatures

(intertidal

communities

and

chaparral

communities),

putsthemincontext(representativeoftheCaliforniacoastalenvironment),andqualifiesthesignificance(oneofveryfewaccessibleexamples).

Listedbelowaresomemoreclearstatementsofparksignificance.Theyexplainthenatureofthesignificanceandputtheareaincontext:

ThemostpristineandbiologicallydiverseareaoftheBigDryDesertoccurringintheUnitedStates.

TheclimacticcampaignoftheRevolutionaryWarthesymbolicendofBritishcolonization.

Theparkcontainsoneofthelastfree-flowingriversystemscontributingtomajorcanyonformationontheColoradoPlateau.

IDENTIFICATIONOFPRIMARYINTERPRETIVETHEMESPrimaryinterpretivethemesarethoseideasaboutparkresourcesthataresoimportantthateveryparkvisitorshouldunderstandthem.Thelistofprimarythemesdoesnotincludeeverythingaparkstaffmaywishorneedtointerpret,butshouldcoverthoseideasthatarecriticaltovisitorunderstandingofparksignificance.Thereisnotcompleteagreementamongplannersontheneedtoincludeprimaryinterpretivethemesasapartoftheplanningfoundation.Thosewhodonotbelievethatprimarythemesshouldbeincludedarguethatidentifyingthemesplacesmoreemphasisontheinterpretation programthanotherparkpro-grams.Thosewhosupportidentifyingprimarythemesarguethat,justassignificancestatementsbegintosetresourceprotectionpriorities,theprimaryinterpretivethemesflowoutofparksignificanceandhelpsetvisitorexperiencepriorities.Inother

words,theprimaryinterpretivethemeshelpdefinethevisitorexperienceopportunitiesthatshouldbeprovidedinapark.

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Anewtrendinsomeparksistoarticulateparkthemesthatarebroaderthaninterpretivethemesandcanbethoughtofasthemesforresourcemanagementandmaintenanceaswellasfortheinterpretationprogram.Examplesofbothkindsofthemesareofferedbelow.

PointersforArticulatingPrimaryInterpretiveThemes Primarythemesareonlythosebasicideasthatcommunicate

thesignificanceofthepark.Thisisnotanoutlineoftheentireparkinterpretationprogram.Donotlistallofparkinterpretivethemesandcallthemprimarythemes.

Tobemostuseful,themesshouldbewrittenascompletesentencestocommunicateacompletethought.Incompletethoughtsdonotprovideenoughfocustobeusefulinguidingplanningandmanagementefforts.Forexample,ratherthan

writing,theimportanceofSpanishandPortugueseexploration(atopic,notacompletethought),writeSpainandPortugalplayedmajorrolesinhumanunderstandingoftheglobetheyexploredthree-quartersoftheU.S.andcolonizedhalfofit(acompletethought,andtheactualmessagetobecon

veyed). Thelistofprimaryinterpretivethemesisshort.Mostparks

shouldnothavemorethanthreetofiveprimaryinterpretivethemes.

Keep

in

mind

that

some

significance

does

not

need

to

beinterpreted,onlyexperienced.Forexample,manyparksincludeunusualorparticularlyspectacularscenicvistasaspartoftheirsignificance;suchvistasrarelyrequireinterpretation.

ExamplesofPrimaryInterpretiveThemesandParkThemesThefollowingprimaryinterpretivethemesweredevelopedfortheBlueRidgeParkway:

TheBlueRidgeregionisamongthebiologicallyrichestareasinNorthAmerica.

MaterialculturesandlifewaysintheBlueRidgeprovinceillustratehowisolationandassimilationshapecultures.

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Element3

Theparkwayisaspecialroadwayandamanagedlandscapethatwasdesignedtomaximizescenicvalues.

AdifferentapproachtodevelopingprimaryinterpretivethemeswastakenatJohnDayFossilBedsNationalMonument:

AtJohnDayFossilBedsNationalMonumenttherearelotsoffossilsthereisagreatdiversityoffossilsthefossilsareverywellpreservedthefossilsrepresentanunusuallylongtimespanthefossilsaredatable

Thus,itiswonderfulplacetostudyevolutionarychange.AtIsleRoyaleNationalParktheparkstaffidentifiedparkthemesinsteadofprimaryinterpretivethemes.Thesethemesincorporatekeyresourcesandstoriesthatcharacterizethepark.Someexamplesoftheseparkthemesinclude:

Self-sufficiencyisawayoflifeonIsleRoyale.Self-sufficiencyisasimportanttodayforparkbackpackers,canoeists,andboatersasitwasforthosewhofirstusedandsettledtheislandNativeAmericans,Europeanminers,lighthousekeepers,andcommercialfishermen.

Isle

Royale

is

a

living

laboratory

where

plant

and

animal

life

canbestudiedinarelativelysimpleandcontrolledecosystem.Thetheoryofislandbiogeographyisillustratedbyboththelimitednumberandvarietyofspeciesfoundhere.

BecauseofIsleRoyalesgenerallyundisturbedsetting,itisanimportantsourceofinformationabouttheworldaroundushowtheworldevolved,howtheimpactsofcivilization

havealterednaturalsystems,andwhattheunmodifiedenvironmentholds.

TheParkServiceisstrivingtosustainthenativefisheryofIsleRoyaleNationalParkperhapsthemostexceptionalfisheryintheGreatLakesregion.ForcenturiesIsleRoyaleswatershaveattractedfishermenprehistoricpeople,immigrantcommercialfishermen,andtodayssportfishermen.Arelicofthepast,adaptivefishinglifestyleandtechnologystillremainsandremindsusofthissignificantislandculture.

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IDENTIFICATIONOFPLANNINGCONSTRAINTSPlanningconstraintsarethosedecisionsthataregivensandusually arenotreconsideredduringtheplanningeffort.Examplesincludedecisionsthatarecontainedinrecentlyapprovedplans,theconditionsofcurrentconcessioncontracts,under-standingsoragreementsmadebetweentheparkandanotheragency,tribalgovernment,ormembersofthepublic,pastpromises,andpoliticalcommitments.Manyplanningparticipantswillhavetheirownideasaboutwhatcanandcannotbeconsideredinaplanningprocess.Waitingtoolongtoclarifytheseassumptionswillcreateproblemsandcon-fusionlateron.Sometimesthepublicwillhavestrongfeelingsaboutissuesthatwillnotbeaddressedinaparticularplan.EarlyidentificationofwhatwillandwillnotbeaddressedintheplanningeffortisimportantinfocusingattentiononappropriateissuesandnotraisingexpectationsonissuesthatareoutsidethescopeoftheVERPframework.

PointersforIdentifyingPlanningConstraints Theremustbejustificationforplanningconstraints.The

opinionsandpersonalagendasofplannersormanagersorwehavealwaysdoneitthiswayarenotsufficient

justifications. Othergovernmentalagencymandatesmayaffectapark,and

therefore,shouldnotbeforgotten.Forexample,theman-datesofanadjacentnationalforestmayconstrainhowparkmanagementzonesareappliedincertainareas.

Goodsourcesofinformationonplanningconstraintsincludeparkandotherofficefiles,staffwithinstitutionalmemory(e.g.,longtermparkemployees),andsuperintendents (whomaybeagoodsourceforpoliticalandothertypesofrealandperceivedconstraints).

Plannersandparkstaffsfrequentlyassumethatconstraintsexistwheninfacttheyarenotreal.Constraintsalsomaybeassumedtobenon-negotiablewhenthatisnotthecase.Thus,thereisaneedtoquestionandvalidateplanningconstraintsbeforeacceptingthem.Thisisparticularlytrueforconstraintsseenasparkorlocaltraditions.Discussionofwhatactionsmustbedone(mustdos)andwhatactionsarenotpossible(cantdos)oftenbroadentheflexibilityandscopeoftheplan,ratherthannarrowingtheplan.

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Element3

Planningconstraintsshouldbeidentified,documented,andsharedwiththepublicasearlyintheplanningprocessaspossible.Allparticipantsmustunderstandtheseconstraints.

Constraintsmayneedtobereexaminedthroughoutaplanning

effort

to

ensure

they

are

still

valid.

Information

generatedasaresultofplanningmayalterthinkingonsome

constraints.

ExamplesofPlanningConstraints TheNationalParkServicewillnotbanmotorboats,sport

fishing,ordockingfacilitiesinthepark(politicalconstraint,pastpromise).

Fishingintheparkwillbemanagedincooperationwiththestate(pastformalagreement).

TheNationalParkServicewillminimizethelossordegradationofwetlandsinthepark(executiveorder).

Therewillbenoadditionallandacquisitionintheparkboundaries(politicalconstraint,pastpromise).

TheNationalParkServicewillkeepopentheXXXCampgroundregardlessofmoneyandstafflimitations(politicalcommitment).

TheNationalParkServicewillabidebythepoliciesoftheinteragencymanagementcommission(formalagreement).

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Element 4AnalyzeParkResourcesandtheExistingVisitorUse

Element4isintendedtoprovidetheplanningteamwithacommonunderstandingofparkresourcesandvisitorexperiences.Thetermresourceisdefinedhereasthebiotic,geologic,hydrologic,aesthetic,ethnographic,architectural,historic,andarchaeologicalelementsandfeaturescontainedinapark.Themixoftheseresourceshelpsshapevisitorexperiencesinapark.Theteamanalyzesresourcesandvisitorexperienceinorderto

categorizeimportantinformationandgivetheplanningteamacommonvocabulary

understandwhatexperienceopportunities,baseduponparkresources,couldbeprovidedtovisitorsintheconstraintsofresourceprotection

documentexistingconditionsandusesintheparkItisimportanttorememberthatthiselementdescribesexistingconditions;itdoesnotprescribefutureconditions.

ANALYSISASITRELATESTOVERPUsinganalysistechniquestoprovideaworkingunderstandingofresourcesandexistingconditionsiscommontoallplanningefforts.ThereareseveralaspectsoftheVERPframework,how-ever,thatrequiresomechangesinthewayNPSplannerstraditionallyhavecarriedoutanalysisactivitiesforplanning.

NeedtoDocumenttheAnalysis.Inthepastmuchanalysiswascarriedoutmoreorlessintuitivelyandthroughdiscussionamongtheplanningteammembers.Becauseoftheneedtodocumentthedecision-makingthoughtprocessthroughouttheVERPframework,theteams

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Element4

analysis,andtheconclusionstheteamdrawsfromitmustbedocumented.

NeedtoUnderstandResourcesfromanExperientialView-point.Theopportunitiesfordiversevisitorexperiencesinaparticularparkarelargelydeterminedbyresourcecharacteristicssuchasvariety,attractiveness andaccessibilitytovisitors,andtherelationshipofvariousresourcestoparkpurposeandsignificance.Plannersandmanagersneedtounderstandtheseresourcecharacteristicsinordertodefineandmanageforarangeofvisitorexperiencesthatisappropriatetothatpark.

NeedtoUnderstandtheAbilityoftheResourcetoWith-stand/TolerateUse.Providingopportunitiesforvisitorstoexperienceresourcesmustbeundertakeninthecontextofresourceprotectionandpreservation.Differentre-sourceshavedifferentabilitiestoaccommodatevarious

visitoractivities.Identifyingthemostsensitiveresourcesorresourceareasisaninitialstepinensuringtheprovisionofappropriatetypesandlevelsofvisitoruse.

NeedtoTestorQuestiontheAppropriatenessandCurrentLocationofExistingFacilitiesandInfrastructure.InthepasttheParkServicesusualresponsetoincreasingpressurefromvisitorusehasbeentohardensitesand/ortoincreasethecapacityoffacilitiesandinfrastructure (suchasroadsandutilitysystems).TheVERPframeworkoffersadditionalsolutionsbasedonthedesirabilityofexperiencesthatmayrequirefewerfacilities,smallerfacilities,orfacilitiesindifferentlocationsthancurrentlyareprovided.

AnalysisresultsareusedthroughouttheVERPplanningelementsto

helpdefinethepotentialrangeofmanagementzonesthatmaybeappropriateinaparticularpark

helpdeterminewhereparticularmanagementzonesmightbeplacedinapark(forexample,higherusezonesshouldbeallocatedtomoreresilientresourceareas)

justifywhycertainzonesareallocated(ornotallocated)tocertainlocations;asbaselinedataagainstwhichtoevaluatetheimplicationsofzoningareasonewayversusanother(impactanalysis)

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helpparkmanagersmakemanagementdecisionslongafteraparticularplaniscompleted.

Analysisisacreativeprocessthereisnoonerightwaytoaccomplishit,solongastheneededoutcomesareproduced.Inthis

section

of

the

handbook,

we

discuss

three

kinds

of

analysis,

allofwhicharerecommendedforaVERPproject.Whileexamplesarepresented,plannersshouldkeepinmindthattheseexamplesarenotnecessarilytheonlymethodsthatcouldbeemployed.Analysismethodsmustbetailoredtotheneedsofeachindividualsituation,theavailabilityofdataandtechnologyineachparticularpark,andthecapabilitiesandexperienceoftheplanningteam.

PointersforAnalysis Whiletherearedifferentapproachesthatcanbefollowedin

thiselement,whateverapproachisusedmustbedocumented.Thiswillhelpkeeptrackofimportantdecisionsmadealongtheway,anditwillbeeasierfortheplanningteamtomakeadjustmentsandcorrecterrors.

Itisimportanttothinkaboutwhatinformationisreallyneededfortheplan.Ontheonehand,thereismoreparkresourceinformation,anditismoreaccessiblethaneverbefore.Ontheotherhand,theteamwillprobablyfindthatitdoesnothavealltheresourceinformationitwouldlike.Theinventory

of

resources

and

existing

conditions

should

be

tailoredtoparksignificance,thegoalsandproblemsbeing

addressedintheplan,andthelevelofdetailneeded.Takingthetimetodefineneededbaselineinformationwillhelpensurethattheteamgets theappropriateinformationandavoidswastingtimeanddollarscollectingunnecessarydata.Keepinmindthatitisbettertotakeactiontoprotecttheresourcestheteamknowsaboutthantodonothingbecausetheteamdoesnothaveascompleteinformationasitwouldlike.

Tounderstandapark,itisnecessarytounderstandthecon-textorenvironmentinwhichtheparkislocated.Landsadjacenttoaparkmayaffecttheconditionorsensitivityofparkresources,visitorexperiences,andtheneedtoprovidevariousopportunitiesinapark.

Thereisafullrangeofgraphicandtextoptionsthatprovideflexibilityindisplayinganalysisinformation.Acombinationoftext,matrices,andmapsiscommon.Datalayeroverlaysmay

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Element4

bedigitizedandusedasapartofageographicinformationsystem(GIS),ortheymaybehanddrawnonpolyesterfilm(e.g.,Mylar)formanualoverlayingofonesheetoveranother.ThedecisiontouseGISorhand-drawnmapsisdependentuponthecomplexityofdata,thetimeframeforcompletingthe

VERP

work,

the

project

budget,

the

availability

of

digitizeddata,andthestaffexpertisetodothespecializedcom

puterwork.

Resourceanalysisisusuallybestperformedbyexperts(someofwhommaynotbeontheplanningteamorparkstaff)whoknowtheresourcesandhavetheknowledgeortheunder-standingtocarryoutaccurateevaluations.Theplanningteammayalsowantothers,includingvisitors,stakeholders,andcitizens,toreviewtheresultsofthisanalysis,becausetheyoftencanprovidevaluableinsightsandobservations.

EXPERIENTIALRESOURCEANALYSISThepurposeofthiskindofanalysisistohelptheplanningteamunderstandtheparkasasystemofphysicallydefinableandexperientiallydifferentspaces.Aparklandscapecanbethoughtofashavingafloorplanwithacollectionofindividualroomsorlandscapeunitsthatcanbeenteredandexperienced,liketheroomsofabuilding.Theintentofthistaskistodefinetheparkfloorplanbyidentifyingandmappingalloftheindividualunitsthatcomprisethefloorplan.Innaturalparks,topography,hydrology,

and

vegetation

will

primarily

define

the

park

landscapeunits;inculturalresourceparks,architecturalelements

andstructuresandlandscapeplantingsalsomaydefineunits.Toaccomplishthisanalysis,variousdatalayersarecombinedandanalyzedtodefineasetofpolygonsthatsegmenttheentireparkintounitsorrooms.Thepolygonsarebasedontheedgesorboundariesenclosingspaceswithrelativelyhomogeneous

vegetation,thecharacteristicsofthesurroundinglandformandwaterform,or,inthecaseofaculturalarea,thearchitecturalstyleorfunctionofaparticularspace.Identifyinglandscapeunitsinvolveslocatingandmappingsuchelementsasprominentridgelines,steeptopographicslopes,forestedges,groupedformswhichdominateanarea,architecturalwalls,buildings,landscapeplantings,junctionsbetweenlanduseareas,andlandcoverpatterns.Oncelandscapeunitsaredefined,theexperientialqualitiesofeachunitcanbedescribed.Thesedescriptionsmightcontaininformationoncolors,textures,spatialenclosure,vegetativecover,andothernaturalorculturalresourcescontainedinthe

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unit.Characterizingtheexperientialqualitiesofthelandscapeunitsmayshowthatsomeunitsprovideverysimilarkindsofexperienceopportunities.Tocarrytheroomanalogyfurther,ahousemayhavetenrooms:fivebedrooms,threebathrooms,akitchen,andalivingroom.Similarly,landscapeunitsthatshareexperience

characteristics

may

be

grouped

into

opportunity

areas.Forexample,aparkmayhaveninelandscapeunitsdefinedbytopographyandvegetation,butbecausethreeoftheunitsareverysimilartoeachother,theparkwouldhaveonlysevenopportunityareas.Ifallninelandscapeunitswereexperientiallydistinct,thelandscapeunitsandopportunityareas

wouldbethesame.Howopportunityareasaremappedmaydifferforeachpark,butthedelineationoftheopportunityareasshouldbedeter-minedbytheresources.Opportunityareasshouldnotbedefinedbyorbelimitedtoexistingparkvisitationpatterns,theestablishedvisitationuses,ortheexistinginfrastructure(e.g.,roads,trails,visitorcenters,comfortstations,overlooks).Statingthisanotherway,planningteamsshouldmapopportunityareas(i.e.,developaparkfloorplan)onlybasedonresource-related overlays.Thisallowstheresources,thelocationsofattractions,andthekindsofexperienceopportunitiestodirecttheneedforandthelocationofparkinfrastructure,ratherthanthereverse.Twoexamplesofopportunityareasthatweredevelopedforthe

ArchesVERPplanarethefinsanduplandblackbrushflat.Fins.ThisopportunityareaincludestheDevilsGarden,

FieryFurnace,KlondikeBluffs,andHerdinaParkareas.Theyaredominatedbytheorange-to-reddish Entradasandstonefinsandspires.Intheseareastherearelabyrinthsofspires,fins,chutes,andarches.Thevisitorexperienceinthisopportunityareaisverymuchinwardlyfocusedbecauseofthehighverticallandformsthatlimitmovementandviewsalongnarrowcorridors.Theimmediateforegroundandthefocusedcorridorviewsofland-formsdominatetheexperience;incontrast,theimportanceofcolorandvegetationcoverisminimal.

UplandBlackbrushFlats.ThisopportunityareacoversmostofWillowFlats.Theseareasaregenerallyflat,withsomerelief,andappearsandyorrocky.Theyhavefewdistinguishablegeologicfeatures.Low,dark,blackbrushdominatesthelandscape.Thevegetationcanappeartobeanobstacle,andtherearenoobviousroutesthroughtheareas.

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Element4

Figure2showsalloftheopportunityareasthatwereidentifiedatArches.(AlloftheArchesopportunityareasaredescribedinappendixA.)Foreachoftheopportunityareas,theArchesteamevaluatedseveral

attributes

to

determine

which

could

support

or

sustain

visitoruse,aswellastherelativeabundanceofvariousresourcesandthecomparativeimportanceofeachareatotheparkpurpose,significance,andprimaryinterpretivethemes.Thisanalysishelpedtocomparethehumanvaluesinherentineachoftheopportunityareasandhighlightedareaswhereresourcesensitivitymaybeinconflictwithdesiredvisitor.Italsoassistedindeterminingthepotentialrangeofvisitorexperiencesandmanagementzonesforthepark.Table1showstheanalysisthatwasdevelopedforArches.Asshowninthetable,sixspecificattributeswereanalyzedforeachopportunityarea.Theseincludethe

relativeabundanceoftheresourcearea,bothinandout-sidethepark

abilityoftheresourceareatoconcealtheevidenceofvisitoruseordevelopment

abilityoftheresourceareatosupportorsustainvisitoruse

potentialinterestoftheresourcetovisitors relativeimportanceoftheareatotheparkpurpose,sig

nificance,andprimaryinterpretivethemes sitesorfeaturesintheresourceareathatareofcritical

importancetoparkpurpose,significance,andinterpretivethemes

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Figure2.ResourceExperienceOpportunityAreasofArchesNationalPark

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TABLE1.RESOURCEATTRRIBUTESFORVISITORUSE

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PointersforExperientialResourceAnalysis Theplanningteammayneedtoprepareseveralmapsaswell

astextandmatricestoidentifythelandscapeunitsandopportunityareas.Forexample,atArches,edgeswerecoarselyidentifiedonamaptitled,LandscapeFramework.Then,thelandscapeunitswereestablishedbydrawinglineswhichfollowthenaturalboundariesandedgesdefinedduringthelandscapeframeworkanalysis.Landscapeunitswerecomparedtoseewhichunitssharedsimilarexperienceopportunities.Thesesimilarunitsweregrouped,codedonamap,andnamedtoreflecttheresourceexperienceavailablethere.Todifferentiatetheexperiencegroupsfromlandscapeunits,thegroupsweretermedresourceexperienceopportunityareas.Thecharacteristicsandpatternsofeachgroupofareasweredescribedanddocumentedinwritingandonamatrix.Thisdocumentationallowedtheintroductionofinformationthat

wasdifficultorimpossibletomap.

Landscapeunitsandopportunityareasaredescriptiveanalysistools,notprescriptivezoningtools.Whiletheresourcecharacteristicsinanopportunityareawillhelpplannersdecidewhatmanagementzonesmightbeappropriateorinappropriateinaparticulararea,theopportunityareaboundariesshouldnotbeusedtodeterminemanagementzoningboundaries.Somemanagementzoneboundariesmayturnouttobethesameorsimilartoopportunityareaboundaries,butthisshouldoccurbycoincidence,notbydesign.

Itisveryimportanttounderstandhowresourcesshapethevisitorexperience,independentofparkinfrastructure.Keepresourceinformationseparatefromtheinventoriesofparkfacilitiesandvisitoruse(seenextsection).

EXISTINGUSEANDFACILITIESANALYSISThepurposeofthisanalysisistounderstandtheexistingvisitorexperienceopportunitiesofferedintheparkbydocumenting

whatpeoplearedoing,wheretheyaredoingit,howmanypeopleareusingvariousparkareas,andwhatfacilitiesandinfrastructurearecurrentlypresentinthepark.Analysiscanhelpusunderstandsomeofthereasonspeoplegowheretheygoanddo

whattheydointhepark,includingtheidentificationofkeyattractionssites,activityareas,andhotspots.

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Element4

Informationtheteammayneedforthisanalysisincludesthe locationofparkfacilities(e.g.,roads,parkingareas,

trails,buildings,utilitycorridors)

differencesinstandardsand/orfunctionsofthefacilities(e.g.,paved,unpaved,gravel-surfacedroads;surfaced,unsurfacedtrailsandboardwalks;visitorcenters,administrationbuildings,restrooms)

typesofactivities(e.g.,hiking,crosscountryskiing,scenicviews)

thecirculationofvisitortrafficandthesequenceinwhichopportunityareasarevisited

levels,timing,

and

seasonality

of

visitor

use

activitynodes areaswithspecialusedesignations(e.g.,wildernessareas,

wildandscenicrivers,historicdistricts) developmentandlandusepracticesexternaltothepark

(e.g.,roadsandtrails,landownership,existingactivities,landusezoning)

keyattractionsintheregion,especiallythosetypicallyincludedinparkvisitoritineraries

PointerforExistingUseandFacilitiesAnalysis

Oneofthemostcommonareasofinformationlackinginparksishowmanypeoplearewhereatanyonetime.Ideally,thisinformationshouldbecollectedpriortobeginningaVERPeffort;however,ifthisdoesnotoccur,plannerswillneedtorelyheavilyonparkstaffknowledgetoobtainthisinformation.ThiskindofdatacanbeobtainedbyresearchersespeciallyforaVERPeffort,butgatheringvisitorusedataacrosslargeparkareaswillbecostlyandtimeconsuming.

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RESOURCECONCERNS/RESOURCESENSITIVITYANALYSISThepurposesofthisanalysisaretoidentifytheprimaryresourceconcernsandresourcesthataresensitivetohumanuseorenvironmentalchange.Identifyingresourceconcernsandsensitiveresourceshelpstheplanningteamdefinepotentialmanagementzonesandapplythezonestotheparkinamannerthatminimizesconflictbetweenvisitoruseandresourceprotection.Resourceconcernsorthreatsareoftendescribedintext.Forexample,aconcerninsomeareasisthatthepopulationsofcertainbirdspeciesaredecliningbecausetheycannolongerfindenoughlarge,uninterruptedtractsofforestinwhichtobreed.Ashortparagraphcouldprovideenoughinformationtohelpaplanningteamsitedevelopmentandtransportationcorridorssothatforestsarenotfurtherfragmented,orsothatforestfragmentsarereconnected.Schematicmaps(withnotes,symbols,andarrows)canalsobeusedtoillustrateresourcethreats.Theproductofresourcesensitivityanalysisistypicallyoneormoremapsshowingtherelativeresourcesensitivityofdifferentareastohumanactivityorenvironmentalchange(e.g.,habitatalterationorfacilitydevelopment).Individualsensitiveresourcesarefirstmappedatrelativelycoarsescale,eitherbyhandorinaGISformat.Thentheindividualmapsareoverlaid(againbyhandordigitally)tocreateasynthesismapshowingthe

spatial

distribution

of

all

of

the

sensitive

resources

and

their

locationsrelativetootherparkfeatures,suchasinfrastructure.Theoverlaymethodalsoidentifiesplaceswheremorethanonesensitiveresourceoccursinthesamearea.Insomecases,beforeoverlayingtheresourcelayers,theplanningteamassignsahigherweight(orvalue)tocertainresourcesknowntobemoresensitiveorvulnerabletoimpacts.Ontheresultingsynthesismap,highlysensitiveareasrepresenteitherparticularlysensitiveindividualresourcesorareaswheretwoormoresensitiveresourcesco-occur.Thetypeofsensitiveresourcesidentifiedandmappedmayvary

withthesizeandcharacteroftheparkandwiththenatureofavailableinformation.Examplesinclude

archeologicalresourceswetlandareas floodplainareas erosivesoilandsteepslopes

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Element4

threatenedandendangeredspeciesandtheirhabitat rareorspecialplantcommunitiesorassociations(e.g.,

dunes,bogs,tundra) corridorsforanimalmovement(oftendrainagesor

streamcourses)wildlifewinterrange criticalnesting,mating,orbreedingareas historicalsitesandstructures historicdistricts

PointersforResourceConcerns/ResourceSensitivityAnalysis

When

planning

teams

use

synthesis

maps,

questions

often

ariseregardingspecificresourcesincertainareas.Therefore,itisusuallyhelpfulfortheteamtohaveindividualresourcemaps(aswellassynthesismaps)availableforreference.

Theteamshouldunderstandthenatureoftheecosystemcharacteristics,suchassuccession,nutrientcycling,energyflow,anddisturbanceregimes.Theteamshouldalsoconsult

withexpertsasneeded.Understandingtheecosystemstructureandfunctionwillhelpidentifyresourcethreats,aswellascomponentsandrelationshipsthatmustbepreservedtoensureecosystemhealth.IntheArchescase,forexample,insightsintotheimportanceofthecryptobioticsoilcrust(alivingsoilconsistingofcynobacteria,lichens,andmosses)ledtheplanningteamtousesoilcrustasanindicatorofecosystemintegrity.

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Element 5DescribeaPotentialRangeofVisitorExperiencesandResourceConditions(PotentialManagementZones)

Inelementfive,thefocusmovesfrombeingdescriptivetobeingprescriptive.Inthiselementtheteambeginstoformulateanddescribefutureconditionsforapark.Elementfivefocusesondeterminingwhatresourceandmanagerialconditionsandvisitorexperienceopportunitiesshouldexistinapark.

IMPORTANCEOFDIVERSITYProvidingopportunitiesforarangeofvisitorexperiencesisanimportantpartofplanningformostnationalparks.Onemightask,whyshouldaparkprovideopportunitiesformorethanonetypeofexperience?Visitorscometonationalparksfor

verydifferentandsometimesconflictingreasons.Byprovidingadiversityofsettings,visitorscantheoreticallyselectwhichexperience(s)mostcloselymatchthereasonthattheycametothepark.Also,planningforadiversityofexperienceshelpstoavoidtheconflictsthatoftenoccuramongvisitorswhowantdifferentthingsfromtheirvisits.Nationalparksnormallyprovideopportunitiesforadiversityofexperiencesbyprovidingavarietyofsettingsorenvironmentsforvisitors.Forexample,inYosemiteNationalPark,avisitorcanexperiencealargelyurbanenvironment(YosemiteValley)andalsoexperiencewildernessinthehighSierras.InYosemite,asinothernationalparks,manyotheridentifiablesettingsarebetweenthesetwoextremes.Inthepastparkmanagersandplannersdidnottrytodefinethetypesofvisitorexperienceopportunitiesdifferentareasinaparkcouldbestprovide.Italsowasnotrecognizedthatchangesinthelevelsofvisitoruseandinbehavior,aswellasvisitorimpactsandmanagementreactionstothoseimpacts,affectthediversityofvisitorexperiencesintheparks.Mostvisitorswenttoareasintheparkswithspecialattractions(e.g.,OldFaithful

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Element5

Geyser,YosemiteValley)and/ortoeasilyaccessibleareas.Parkmanagersandplannerslargelyrespondedtoincreasingvisitoruselevelswithwhatwerebelievedtobeappropriateinfrastructureandmanagementpolicies.Forinstance,sitesoftenwerealteredtoaccommodatemorevisitoruse.But,theincreasedlevels

of

use

and

reactive

management

action

frequently

changed

thecharacteristicsofthesettingsandthevisitorexperience.TheVERPframeworktakesadifferentapproachfromwhat

wasdoneinthepast.Theframeworkisprescriptiveandproactiveabout

whatvisitorexperienceopportunitiesareprovidedinapark

whattheessentialelementsofthoseexperiencesare,howmuchlandshouldbeallocatedtovariousvisitorexperienceopportunities

whereintheparkshouldtheopportunitiesbeprovided.TheVERPframeworkalsoisintendedtoensurethatadiversityofexperiencesisavailableinapark.Itisnotintendedtoensurethatadiversityofexperienceswillbeavailableateveryattractioninthepark,norisitintendedtoprotectallexperiencesinallzones.Itmaynotbepossibletoprovideopportunitiesforadiversityofexperiencesatuniqueattractions,suchasatOldFaithfulGeyser.

IDENTIFYINGTHERANGEOFPOTENTIALRESOURCECONDITIONSANDVISITOREXPERIENCESTheobjectiveofelementfiveistodeterminetherangeofpotentialvisitorexperiencesandresourceconditionsthatcanbeaccommodatedinapark.Thisisdonebycreatingaseriesofpotentialmanagementzones.Eachpotentialzoneisdefinedbythe

resourceconditions socialconditions kindsandlevelsofvisitoruses kindsandlevelsofparkdevelopment kindsandlevelsofmanagementactivity

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Bothmatricesandwrittennarrativesaredevelopedtodescribethepotentialzones.Itisusuallybesttostartoutdevelopingamatrixsimilartotable2.Thematrixconsistsoftwoaxes.Oneaxisliststhepotentialzones,whiletheotheraxisconsistsofkeyfactors,ordescriptors,thatdescribethepotentialqualityofthezones

and

differentiate

one

potential

zone

from

another.

Thepotentialzonenamesarerelativelyunimportantbutshouldbederivedfromthevisitorexperienceopportunitiesorresourcesinthezoneinsteadoftheinfrastructureinthezone.Forexample,rural(anexperienceopportunity)isabetternamethanunpavedroad(aninfrastructurefeature).Thedescriptorsusuallycanbeseparatedintothreemaincategories.

SocialDescriptors.Thoseaspectsabouttheexperiencethatarerelatedtotheeffectofvisitorsonothervisitors(e.g.,visitorbehavior,numbers).

ResourceDescriptors.Thebiological,geological,cultural,orscenicaspectsrelatedtotheexperience.

ManagerialDescriptors.Thoseaspectsofthevisitorexperiencethatarecontrolledbymanagement(e.g.,infrastructure,thepresenceofparkstaff,theintensityofmanagement,andsigning).Oncethematrixisfilledin,

writtendescriptionsofeachofthepotentialzonesshouldbe

completed.

These

narratives

expand

on

the

matrix,

providingamoreholisticperspectiveonthezonesandtheircharacteristics.

Afterthedescriptorsarechosen,thematrixisfilledinbytheplanningteam.Theobjectivehereistoseekaconsensuson

whatthepotentialzonesareandhowtheyqualitativelydifferfromotherzonesitisnotnecessarytobedefinitiveandquantitativeatthispoint.Wordsqualifyingthedescriptorsmayinclude:large,small,moderate,high,low,extreme,minuscule,notapplicable,medium,andvariable.Developingthepotentialzonesmaytakeseveraldays.Substantialrevisionsmayberequiredastheteambeginstorelatethepotentialzonestospecificgeographicalareas(seeelement6).Newdescriptorsoftenareadded;othersmaybedeleted.Potentialzonesmaybecombinedwhenthereappeartobelittledifferencebetweenthem.Otherpotentialzonesmaybeaddediftheteamsubsequentlyidentifiesomissionsintherangeofdesiredvisitorexperiencesandresourceconditions.

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TABLE2.POTENTIALMANAGEMENTZONES,ARCHESNATIONAL

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Examplesofpotentialzonesaredescribedbelow.ThefirsttwodescriptionsarefromtheArchesVERPimplementationplan.ThethirdisfromtheIsleRoyaleNationalParkGeneralMan

agementPlanandisincludedtoshowsomeofthevarietyofzonesandthewaystheymaybedescribed.(Adescriptionofallthe

zones

from

the

Arches

plan

is

included

in

appendix

B.)

ExampleofZoneDescriptionsfromArchesNationalParkPedestrianZone.Thiszoneiscomprisedofhighusetrailcorridorsthataccessprimeparkfeatures.Theareasinthiszonearepredominatelynatural,butwithmuchevidenceofthesightsandsoundsofpeople.Visitorscansee,touch,smell,andhearparkresourcesastheywalkalongawell-definedtrail,buttheywillnotfeelliketheyarefarfromtheircarsorconveniences.Pavedorhardenedtrailsandsmallinterpretivestructuresaretheonlyfacilitiespresent.Sometrailswouldbeaccessibletovisitorswithdisabilities.Tousethisarea,visitorsmustmakeashorttimecommitmentandphysicallyexertthemselvestosomedegree.Therearelimitedopportunitiesforchallengeandadventure,andtheneedforoutdoorskillsisrelativelyunimportant.TheprobabilityofencounteringvisitorsisveryhighandmoderateforencounteringNPSstaff;manypeoplemaybepresent.No

vehiclesorstockarepermittedinthiszone.Visitors,sites,andtrailsareintensivelymanagedinthepedestrian

zone

to

ensure

resource

protection

and

public

safety

(e.g.,

withfences,intensivelawenforcement,andrestrictionsonvisitoractivities).Resourcescanbemodifiedforessentialvisitorandparkoperationneeds,buttheyarechangedinawaythatharmonizeswiththenaturalenvironment.Exceptfortheseessentialchanges,theParkService'stoleranceforresourcedegradationhereislow.HikerZone.Thiszoneisappliedtotrailcorridorsandareasofasomewhatmoreprimitivenaturethanthoseinthepedestrianzone.Thehikerzoneprovidesasenseofbeingimmersedinanaturallandscapeandfeelssomewhatdistantfrommostcomfortsandconveniences.Unpaved,maintainedtrails,andsome-timescairnedroutesaretheonlyfacilitiesinthiszone.Opportunitiesexisttoexperiencechallengeandadventure.Visitorsmustcommitablockoftime,havesomeoutdoorskills,andexpendsomephysicalexertiontousethearea.Theprobabilityofencounteringothervisitorsismoderatetohigh(althoughthereareopportunitiesforsolitaryexperiences)andmoderate

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Element5

forencounteringNPSstaff.Novehiclesorstockarepermittedhere.

Ahighlevelofmanagementisprovidedforresourceprotectionandsafetypurposesinthehikerzone(e.g.,placingstonesalongtrail

edges

and

restricting

off-trail

use

and

group

sizes).

Some

resourcemodificationsareevident,buttheyharmonizewiththenaturalenvironment.ParkServicetoleranceforresourcedegradationhereislow.

ExampleofZoneDescriptionfromIsleRoyaleNationalParkMotorizedSensitiveWatersZoneVisitorExperience.Thiswouldbeazonewheremotorboat-borne

visitorsandotherscouldgotofindrelativelytranquil,naturalmarinesurroundings.Theprobabilityofencounteringother

visitorswouldbemoderate,butsolitudewouldbepossible.Tolerancefornoise,visualintrusions,andsocialinteractionwouldbemoderate.Anychallengeoradventurewouldprobablyrelatetonavigationindifficultclimaticconditions.Visitorswouldneedtoberelativelyself-sufficient.ResourceConditionorCharacter.ThiszonecouldbeinshelteredLakeSuperiorharborsandbayswherecalmwatersandrelativelyquietaredesirableforsafety,resource,orvisitorexperiencereasons.Itmightbeappropriate,forexample,inharborsor

bays

where

water

birds

nest

or

where

facilities

such

as

visitor

centersorcampgroundsarelocated.Amoderatelevelofmanagementwouldbeprovidedforresourceprotectionandvisitorsafety.Thetoleranceforresourcedegradationinthiszone

wouldbelow.AppropriateKindsofActivitiesorFacilities.Human-poweredandmotor-poweredwatercraftcouldbefoundinthesewaters.Boats

wouldtravelatslowspeedsandleavenowake.Boatanchorageswouldbeappropriatehere.

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POINTERSFORDETERMININGTHERANGEOFRESOURCECONDITIONSANDVISITOREXPERIENCES Potentialmanagementzonesdescribetheconditionstobe

created,sustained,ortolerated,nottheactionsnecessarytocreatetheconditions.Inotherwords,thezonesdescribewhattheteamistryingtocreate,nothowtocreatethoseconditions.

Usuallythereareneitherdefinitivedatatoguidetheteamindeterminingtherangeofresourceconditionsandvisitorexperiencesnorcheckpointstoensurethattheteamisontrack.Developingthiselementrequiresmuchbrainstorming,discussion,andopen-mindedness onthepartoftheteam.Itisgreatlyaidedbyafacilitatorandbyindividualsintimatelyfamiliarwithparkresourcesandvisitors.

Becausethedeterminationofwhataparkshouldorshouldnotprovideislargelysubjectiveandoftenvalueladen,afullunderstandingofpublicvaluesandexpectationsisrequired.Thedevelopmentofpotentialmanagementzonesisgenerallydonebytheteamandreviewedandrefinedbylargergroupsandthepublic.

Someguidancefordeterminingtherangeofpotentialzonesappropriatetoaparticularparkisprovidedbythe

regionalcontext

of

the

park

parkpurpose,significance,andprimaryinterpretive

themes(definedinelement3) distributionandabundanceofdifferentparkresources

mappedinelement4(e.g.,vegetation,terrain,orsensitivewildlifemightgivecluesastowhatexperienceopportunitiesmightbeprovidedaswellaswhatshouldnotbeprovided)

Understandingvisitorwantsandneedscanhelpdeterminearangeofdesirablevisitorexperiencesandresourceconditions.Thisinformationcanbeobtainedthroughavisitorsurveyoranewsletterwithanaccompanyingresponseform.

Alternatively,theinformationmaybecollectedusingfocusgroupsorbyholdingconversationswithvisitors.Attheveryleast,individualswhointeractwithparkvisitorsonadailybasisshouldbeinvolvedindevelopingthiselement.Inmostparks,theseindividualsaretheinterpreters,informationdeskpersonnel,maintenancepersonnel,andotherprovidersof

visitorinformation.Theymaybepermanentorseasonalpark

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Element5

employees,volunteers,orinterpretativeassociationemployees.Becausetheseindividualslistentoandanswervisitorquestionsdaily,itplacestheminapositiontoprovidegoodinformationandthoughtstotheplanningteam.

Inventorying

the

surrounding

region

will

help

determine

what

typesofvisitorexperienceopportunitiesmightbestbepro

videdoutsidetheparkandthetypesofopportunitiesthatcanoccuronlyinit.Providingarangeofrecreationalopportunitiesinaregionisdesirabletosatisfythediversityofrecreationtastes.Nooneparkmanageroragencyshouldfeelobligatedtomeetthedemandsofallrecreationalusers.Eachagency,forexample,couldaimatprovidingoneormorespecifictypesofrecreationalopportunitiesandreferthosewantingsomethingdifferentelsewhere.Obviously,regionalcollaborationamongprivateandpublicmanagersismandatoryifafullandappropriatemixofopportunitiesandbenefitsistobeprovided.

Ariskinelement5isthattheteamwillonlylookattheexistingvisitorexperiences,recreationalactivities,resourceconditions,andmanagerialconditionsanddescribethem.Thismaybeappropriate;however,potentialopportunitiesmaybemissediftheteamisnarrowlyfocusedonwhatis,ratherthan

whatcouldbe,oriftheteamhurriesthroughthiselement.Goingbacktotheexperientialresourceanalysisworkmaybeusefulincheckingtoseeifpotentialexperienceopportunitieshavebeenmissed.

Indescribingapotentialzone,ateamisoftentemptedtousewordsthatactuallydescribeanactivityratherthananexperience.Thisshouldbeavoideditistheexperienceonwhichtheteamshouldbeconcentrating.Forexample,ateammightcreatedifferentpotentialzonesforhiking,equestrianuse,andovernightcamping.Theseareallactivities,notexperiences.Thepotentialzoneinsteadshouldfocusontheintendedexperience(e.g.,givingvisitorsanopportunityasenseofbeinginwildlands,withopportunitiesforchallengeandadventure).Dependingonthedesiredexperience,itispossiblethatonepotentialzonemightprovideopportunitiesforalloftheaboveactivities.

Thegoalofmanagementzoningistoidentifyareaswithdifferentmanagementrequirements.Somevariationsofvisitorexperiencesandresourcesettings,andmanydifferentvisitoractivitiesmayoccurinasinglezonesolongasthemanagementprescriptionsremainconstant.Sometimesthereisatendencyforteammemberstobeeitherlumpersorsplittersindevelopingpotentialzones.Splitterscanbogdownthe

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processbytryingtodefinedifferentmanagementzonesforeverydifferentexperienceorsetting.Lumperscanmakethezonesuselessbyincludingareasinthesamezonethatmustbemanageddifferently.Amiddlegroundmustbesoughtthatdefinesenoughzonestoclarifymanagementrequirements

withoutover

complicating

the

zoning

scheme.

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Element 6AllocatethePotentialZonestoSpecificLocationsinthePark(PrescriptiveManagementZoning)

Inelement6,thepotentialmanagementzonesdescribedinelement5areallocatedtospecificgeographicareas.Thisprocessofmanagementzoningisakeyplanningtoolformakingdecisionsaboutwhatisappropriateandnotappropriateinapark,andwhatcanandcannotoccurindifferentareasoftheparkintermsofresourcesmanagement,visitoruse,anddevelopment.Thereisnosetway,nostandardizedapproach,noranycomputerprogramtomanipulatetheinputsfromtheprecedingelementsandderiveaninstantmanagementzoningschemeforapark.Thisiswherethecommittedworkofaninterdisciplinaryteamprovesitsvalue.Theteammustlookatthedesiresandconcernsofthepublicasdiscussedinelement2,theplanningfoundationestablishedinelement3,thepotentialsandlimitationsoftheparkresourcesidentifiedinelement4,andtherangeofpotentialvisitorexperiencesandresourceconditionsdescribedinelement5.Synthesizingallofthisinformation,theteambeginstodiscernandorganizepatterns.Thesepatterns,examinedvisuallythroughmapsandoverlays,andverballythroughteamdiscussions,helpguidetheallocationofmanagementzonestogeographicalunitsthatcanbeidentifiedontheground.

Alllandandwaterinaparkmustbezoned.Eachareashouldbeincludedinonlyonezonebecausenoareacanbemanagedmorethanonewayatatime.However,iftheteamdecidesthatanareashouldbemanageddifferentlyindifferentseasonstheareacouldbeplacedindifferentseasonalzones.

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EXAMPLESOFVERPZONINGThefollowingmapsshowexamplesofhowArchesNationalParkwaszonedbytheplanningteam.Figure3showsthezoningschemefortheentirepark.Severalpopularareaswerezonedatamorespecificscale;thesecondmapoftheWindowsSection(figure4)isanexampleofsuchanarea.Asummaryofthe

Archesmanagementzonesisincludedforreference(formoredetails,seeappendixB).Notethatzoneswithheavilyusedroadsandtrails,wherethe

visitorexperiencetendstobelinear,weremappedascorridors.Loweruseareas,wherethevisitorexperiencetendstobemoreunstructured,weremappedaspolygons.Whilethisisexpectedtobeacommonapproach,itisbynomeansintendedtobearule.Whethercorridorsorpolygonsworkbestwillvarywithindividualparksandsituations.Itmayevenbepossibletohavethesamezone(e.g.,abackcountrytrailzone),appliedasacorridorinsomeareasofaparkandappliedasapolygoninotherareasofthesamepark.OntheWindowssectionmap,noticehowthepedestrianzonecorridortraversesthesensitiveresourceprotectionzonepolygon.Theparkpurposestatementsdirecttheparktoprotectextraordinaryexamplesoferodedsandstoneformationsandthe

settinginwhichtheyoccur.Thisapplicationofthezoneswasusedtomeetthemanagementgoalofkeepingvisitorsontrailsinordertoprote

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