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A Guide to Providing Sustainable Outdoor Recreation.
Edition One July 2016.
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This publication was prepared by the Interagency Visitor Use Management Council,
which consists of the following agencies:
DEPARTMENT AGENCY
Department of the Interior Bureau of Land Management
Department of the Interior National Park Service
Department of the Interior U.S. Fish and Wildlife Service
Department of Agriculture U.S. Forest Service
Department of Commerce National Oceanic and Atmospheric Administration
Department of Defense U.S. Army Corps of Engineers
July 2016, Edition One i
Contents.
Abstract vi
Chapter 1: Introduction 1
Overview and Purpose 3
Organization of the Framework 4
Chapter 2: The Sliding Scale of Analysis 7
Determination Criteria for Placement on the Sliding Scale 7
Decision Support Tool 8
Relating Issues to the Sliding Scale 10
Summary of the Sliding Scale 18
Chapter 3: Framework Elements 21
Element 1: Build the Foundation 23
Step 1. Clarify the Project Purpose and Need 23
Step 2. Review the Area’s Purpose and Applicable Legislation,
Agency Policies, and Other Management Direction 24
Step 3. Assess and Summarize Existing Information and Current Conditions 25
Step 4. Develop a Project Action Plan 27
Summary of Element 1 28
Element 2: Define Visitor Use Management Direction 29
Step 5. Define Desired Conditions for the Project Area 30
Step 6. Define Appropriate Visitor Activities, Facilities, and Services 34
Step 7. Select Indicators and Establish Thresholds 38
Summary of Element 2 42
Element 3: Identify Management Strategies 43
Step 8. Compare and Document the Differences between Existing and
Desired Conditions, and, for Visitor Use-Related Impacts,
Clarify the Specific Links to Visitor Use Characteristics 44
Step 9. Identify Visitor Use Management Strategies and Actions to Achieve
Desired Conditions 46
Step 10. Where Necessary, Identify Visitor Capacities and Additional
Strategies to Manage Use Levels within Capacities 50
Step 11. Develop a Monitoring Strategy 55
Summary of Element 3 57
ii Visitor Use Management Framework: A Guide to Providing Sustainable Outdoor Recreation
Element 4: Implement, Monitor, Evaluate, and Adjust 58
Step 12. Implement Management Actions 59
Step 13. Conduct and Document Ongoing Monitoring, and Evaluate
the Effectiveness of Management Actions in Achieving
Desired Conditions 59
Step 14. Adjust Management Actions if Needed to Achieve Desired
Conditions, and Document Rationale 60
Summary of Element 4 62
Chapter 4: Relationship to Larger Agency Planning Processes 65
Agency Planning Policies and Procedures Specific to the Framework 65
Relationship to Each Agency’s Planning Policies and Procedures 66
Appendix A: History and Limitations of Previous Visitor Use
Management Frameworks 93
Early Visitor Use Management Concepts and Frameworks 93
Limitations of Previous Frameworks 94
Appendix B: Hypothetical Example of the Application of the Visitor Use
Management Framework 97
Moose Creek Watershed Restoration Project 97
Appendix C: Sliding Scale Decision Support Tool 111
Glossary of Key Terms 113
References 115
July 2016, Edition One iii
FIGURES
Figure 1. Overview of the Visitor Use Management Framework 4, 21
Figure 2. Elements and steps of the Visitor Use Management Framework 22
Figure 3. Illustration representing the range of settings included in the
Recreation Opportunity Spectrum 32
Figure 4. Management triggers and thresholds in relation to trend
in conditions 40
Figure 5. Planning process for refuge comprehensive conservation plans 75
Figure 6. Forest Service Planning Model 80
Figure 7. Planning model for revision or amendment to a land
management plan 81
Figure 8. The Recreation Opportunity Spectrum in relation to land management
and USFS project planning 84
iv Visitor Use Management Framework: A Guide to Providing Sustainable Outdoor Recreation
TABLES
Table 1. Example of a completed decision support tool for determining the
location of a project on the sliding scale of analysis: Reduce the size
of a campground 9
Table 2. Example of a completed decision support tool for determining the location
of a project on the sliding scale of analysis: Manage overnight use at a
popular national park 12
Table 3. Example of a completed decision support tool for determining the location
of a project on the sliding scale of analysis: Decide capacity in a low-use
remote river setting 14
Table 4. Example of a completed decision support tool for determining the location
of a project on the sliding scale of analysis: Decide capacity in a high-use
river setting 16
Table 5. Example of a product from steps 5 and 6—a historical park’s
desired conditions and appropriate activities and facilities for
multiple zones 36
Table 6. Large-scale plans required for federal land- and
water-managing agencies 66
Table 7. Policy direction for visitor use planning and management on refuge
lands and waters 78
Table 8. The Recreation Opportunity Spectrum class descriptions 83
Table B1. Decision support tool for the Moose Creek Watershed
Restoration Project 97
Table C1. Blank decision support tool 111
July 2016, Edition One v
Abstract.
Visitor use management is fundamental for maximizing benefits for visitors while
achieving and maintaining desired resource conditions and visitor experiences
on federally managed lands and waters. By using this Visitor Use Management
Framework, managers collaboratively develop long-term strategies for providing
access, connecting visitors to key visitor experiences, protecting resources, and
managing visitor use. The purpose of the framework is to provide cohesive guidance
on four major elements for analyzing and managing visitor use on federally
managed lands and waters. It is also intended to provide a legally defensible,
transparent decisionmaking process that meets law and policy requirements,
ensures agency accountability, and provides sound rationales upon which to base
management decisions and actions. A common thread throughout the framework is
the use of the sliding scale. A sliding scale is used to ensure the investment of time,
money, and other resources for a project is commensurate with the complexity of
the project and the consequences of the decision. Issues with clearly small impacts
usually require less depth and breadth of analysis than those with impacts of
greater significance. Overall, this framework is meant to be adaptable to different
agencies’ policies and regulations and yet allow for a professional, comprehensive,
and consistent approach to visitor use management on federally managed lands
and waters.
vi Visitor Use Management Framework: A Guide to Providing Sustainable Outdoor Recreation
1
Chapter 1: Introduction
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