Council Vision
Providing a unified voice for excellence in visitor use management on our nation’s federally-managed lands and waters to sustain resources and quality visitor experiences.
Frequently Asked Questions
Connecting people with nature and history builds healthier minds and bodies, enhances bonds between family and friends, contributes to the quality of life and resiliency of local communities, and inspires and rejuvenates our spirits. Additionally, experiencing federally managed lands and waters helps visitors develop an understanding and sense of belonging to a real place and, thus, to act as citizen stewards of our collective natural and cultural heritage.
Why Manage Visitor Use?
Every year, people seek out federally managed lands and waters to pursue a growing variety of visitor experiences.
As public interest in and use of these lands and waters changes, this nationwide trend requires that all of
us—visitors, managers, and citizens—adopt more effective ways to manage visitor use to ensure that these special
places, and the benefits they generate, persist for current and future generations. Effective visitor use management
helps meet this changing demand and helps federal agencies protect resources and improve visitor experiences.
Visitor use management simultaneously supports appropriate public access to these places, while ensuring the
long-term viability of the resources and social and managerial conditions that make desired visitor experiences
possible.
Proactive visitor use management is more important now than ever before as patterns in outdoor recreation and visitor
use are continually changing. The visiting public is becoming more diversified with new interests and needs,
oftentimes leading to new and emerging visitor experiences. Different facilities and services are needed to support
changes in visitor demographics and spatial and temporal distribution, increasing visitation from travel and tourism
providers with an emphasis on international visitors and visitation by larger intergenerational family units. These
changes often result in the need to consider social and environmental justice factors, such as race, class, gender,
and age, to accommodate shifting visitor expectations. Increasing reliance on technology, coupled with metropolitan
populations close to federally managed lands and waters, is also requiring a higher demand for information and
quality services from visitors.
- What are some of the benefits of visitor use and recreation on federal lands?
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Beneficial outcomes of visiting and recreating on federal lands are plentiful. Examples include educational learning; inspiration; rejuvenation; discovery; challenge; personal growth; improved physical and mental health; social connections; and economic growth at local, regional, and national scales.
- How has visitor use on federal lands and waters changed in recent years?
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Visitor use—the “who,” the “how,” and notably the “how much”—is changing rapidly in the United States. Visitor populations are becoming more diverse, with new interests and needs, as evidenced by: (a) expanding interests in new types of recreation activities; (b) an aging demographic; (c) visitation by larger intergenerational family units with different needs for facilities and services; (d) changing preferences for camping and overnight lodging; and (e) higher demand for quality services coupled with an increasing reliance on information technology. Many areas have seen a significant increase in visitation over the last several years. This trend is driven by many factors, including state and national marketing campaigns, low gas prices, rising international visitation to the United States, and new ways to recreate. In some locations, the dramatic increases in visitation levels or significant change in types of use far exceed the design capacity and how these areas were traditionally managed. All of these factors demand new ways of thinking about visitor use management.
- What does good visitor use management mean?
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Ensuring quality visitor experiences and protecting the natural and cultural resources that attract people to federally managed lands and waters requires a commitment to professional and proactive visitor use management. Decades of addressing visitor use issues have shown that good visitor use management requires the following:
- • A clear description of desired conditions for resources and visitor experiences, as well as supporting facilities and services.
- • An understanding of how visitor use influences the achievement and maintenance of desired conditions.
- • A commitment to adaptive management and monitoring of visitor use.
- What are some of the most relevant issues related to visitor use?
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The federal member land and water agencies are working to invite and welcome the next generation of visitors, many of whom may have different expectations and needs than current visitors. The agencies continue to work toward being responsive to societal changes, improving visitor experiences, and developing new ways for people to access federal lands and connect to their natural and cultural heritage. Additionally, many small communities are looking toward tourism and recreation as vital parts of local economies. Federal member land and water management agencies are working to balance these changing needs with maintaining the authenticity of the areas and associated desired conditions.
While many positive benefits are associated with the transformation of recreation, the changes in visitation have also led to new demands on facilities and services, operational challenges for federal member land and water agencies, conflicts among visitors, new impacts on natural and cultural resources, and spillover effects on adjacent communities. The agencies are working to address the needs associated with increasing visitation and the emergence of new activities. - What are the reasons for managing visitor use?
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Proactive planning for visitor use helps federal member land and water agencies provide access, improve experiences, and protect resource conditions and values. Unmanaged visitor use can inadvertently damage the very natural and cultural resources and qualities that attract people to these areas in the first place. Proactive planning can also create opportunities for engagement and participation from the public and other involved partners in subsequent implementation and stewardship activities.
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How Does the Interagency Visitor Use Management Council Help?
The Interagency Visitor Use Management Council (the council) is a collaborative forum for federal member land and
water agencies created to share and leverage practical, science-based tools for managing recreation on America’s
most iconic and valued federal lands and waters. The council is designed to build a common language and
institutional knowledge of management techniques, while efficiently sharing tools, training, technical assistance,
and best practices.
- Why form an interagency council on visitor use management?
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Federal agencies are charged with managing our nation’s lands and waters to maximize benefits for public visitors, while maintaining the desired conditions necessary for quality visitor experiences. Finding the balance between desired experiences and societal benefits, resource protection, and access is inherently complex and constantly changing at the local, regional, and national levels.
During the past three decades, these federal agencies have gained substantial experience in balancing these often-competing objectives, but challenges remain. To meet these challenges, several agencies envisioned the council in 2011 to share, enhance, and leverage best practices, and to improve interagency consistency of approaches about how these treasured areas should be sustainably used. - What is the council’s mission and purpose?
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The council’s mission is to improve visitor use management across federal lands and waters. Specifically, the council provides guidance to member agencies on long‐term policies and tools for visitor use management, including visitor capacity where appropriate, on federal lands and waters.
Council members include: the Bureau of Land Management (BLM), the National Park Service (NPS), and US Fish and Wildlife Service (USFWS) in the US Department of the Interior; the US Forest Service (USFS) in the US Department of Agriculture; the US Army Corps of Engineers (USACE) in the US Department of Defense; and the National Oceanic and Atmospheric Administration in the US Department of Commerce. Combined, these agencies manage millions of acres of federally owned public lands and waters and coastal estuaries. - Are states or local agencies directly involved in the council?
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Not directly. The council was created specifically to provide a learning network among federal agencies that supports recreation on federally managed or co-managed lands and waters. It is the hope of the council that its work can also benefit from and inform the work of state, local, and tribal agencies that support sustainable outdoor recreation.
- How does the council influence policies and rules for its federal member land and water management agencies?
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The council makes recommendations about visitor use management principles and approaches to its member agencies. Its goal is to increase the effectiveness, and, where appropriate, the consistency in the interpretation and application of applicable laws and policies pertaining to visitor use management on federally managed lands and waters. The council role is limited to formulating interagency guidance and tools on a variety of visitor use management topics for a diversity of settings. It does not have the authority to develop interagency policy or to establish or enforce rules for particular areas.
- Does the council interact with other federal recreation and tourism efforts?
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Yes. Through an interagency agreement, the Federal Recreation Council (FRC) provides coordination, recreation, and policy development in parks and on federal lands and waters, including visitor use management and related issues. The council also coordinates closely with other interagency groups, such as the Interagency Wild and Scenic Rivers Coordinating Council, the Interagency Wilderness Policy Council, the interagency Tourism Policy Council, and the Federal Interagency Council on the National Trails System regarding visitor use management issues pertinent to these groups. The council strives for close collaboration and coordination among these complementary efforts to ensure consistency across agencies in policy guidance and work products.
- What are the council’s primary activities?
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The council developed position papers on visitor use management and best practices for identification of visitor capacity (https://visitorusemanagement.nps.gov/VUM/WhatGuidesIt). It has also released a Visitor Use Management Framework (the framework) to guide visitor use management planning (https://visitorusemanagement.nps.gov/VUM/Framework). The council also released two guidebooks on elements of the framework: Monitoring Guidebook and Visitor Capacity Guidebook (https://visitorusemanagement.nps.gov/VUM/Framework). Training tools, including web-based training modules on visitor use management for agency practitioners, are forthcoming. The council will continue to provide technical assistance to the agencies regarding emerging visitor use management issues and needs.
- How will the council ensure that the guidance it develops is understood and, as appropriate, applied among its member agencies?
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The council is disseminating its guidance across the individual agencies in a variety of ways. These include presentations to agency leadership, outreach to field staff, integration of the guidance into ongoing projects, conference presentations and panels, and ongoing responses to technical assistance requests from member agencies. In addition, the council is working to develop training for agency practitioners. Each of the agencies will work to integrate the council guidance into management approaches and policies, as appropriate.
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What is the Council’s Visitor Use Management Framework?
The Visitor Use Management Framework and associated guidebooks provide a broadly applicable tool kit that
agencies can apply to make visitor use management decisions at a variety of scales, ranging from changes in
day-to-day operations in a section of a park, to the long-term planning of a regional network of land, aquatic,
and marine protected areas. The council’s framework also provides a common language to enable recreation and
resource management specialists across all agencies to communicate with one another and the public regarding
visitor use management.
- Aren’t there other frameworks and tools for visitor use management (e.g., LAC/VERP/VIM/ROS)?
How is this one different? -
Yes, and the framework incorporates the best of the previous approaches, along with lessons learned from years of their implementation. It provides consistent terminology and can be applied flexibly within each agency’s existing planning processes. The framework can be used in a variety of recreation settings, not just in Wilderness or protected areas. The council will continue to learn from implementation of this new framework and update the guidance accordingly.
- Does the framework require a long, complex planning effort?
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The framework does not prescribe a specific planning timeline or level of complexity. Instead, it promotes a sliding scale of analysis, whereby the investment of time, funds, expertise, public and partner participation, and other resources reflect the complexity of the management issue and the magnitude and consequences of the decision. For some projects, one person might work through the framework to a decision in a few hours; other projects might require longer time commitments by large teams engaging a diversity of user groups. Applying the framework at the appropriate level of analysis requires practice, targeted expertise, and knowledge of the area’s resources and visitors. The sliding scale can be applied to each element of the framework and is described in detail in chapter 2 of the framework.
- How do time and resources factor into your level of effort on the sliding scale?
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The sliding scale helps determine the necessary level of effort in terms of investment of time and resources to achieve the desired conditions. If those needs cannot be aligned, it may be necessary to consider alternative approaches for the area (e.g., adjusting the project scope or time frame). Shortcuts often just create the need for more time and investment later.
- What if we don’t have enough information to be confident to make an informed decision?
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The sliding scale helps identify the amount and precision of scientific information needed to inform a management decision. Sometimes that information is lacking, incomplete, unreliable, or simply too costly or time-consuming to acquire before action must be taken. In those cases, the legal authorities governing the area may allow, or even require, the management agency take a precautionary approach and act to achieve the desired conditions in the face of scientific uncertainty. At the same time, collecting scientific information does not need to be costly; the management agency can take advantage of existing research, consider low-tech options, and leverage partnerships and volunteers.
- Why are all the steps of the framework important for every project?
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The framework is designed to help agencies examine an issue or opportunity and craft an effective solution. To that end, it is helpful to invest time at the beginning of the process to show how the different elements fit together to improve decision making. The team leader should explain the value of starting with the “why” (the project purpose and need, area’s purpose, existing information, and issues) and the “what” (the desired conditions and appropriate activities) to ultimately shape and guide the selection of appropriate management strategies (“how”) that will then be implemented, monitored, evaluated, and adjusted as needed (“do”). Generally, following this sequence maximizes the likelihood that desired conditions will be achieved, a defensible decision is made, and the most appropriate and effective management strategies are selected. Further, it can be helpful for the team leader to explain some of the challenges that have occurred when agencies have not followed a clear and transparent process.
- What are “desired conditions,” and why are they so important for visitor use management?
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Desired conditions are statements of aspiration that describe resource conditions, visitor experiences and opportunities, and facilities and services that an agency strives to achieve and maintain in a particular area. These statements answer the question: What are we trying to achieve in our management of this area? Unless there is a clear, shared, and measurable idea of the end goal, management strategies are not grounded in any outcome and unlikely to succeed. Such statements typically build on the foundational language that legally established the area. Desired conditions should describe outcomes—the “what,” not the “how.” These statements should be focused on the most important resources and values of the area and provide guidance for a long time frame. They also must be responsive to input received from the public and be clear and specific enough that managers and the public have a shared picture of what will be achieved in a particular area. For further information and direction on desired conditions, refer to the Visitor Use Management Framework (https://visitorusemanagement.nps.gov/VUM/Framework). Additional guidance is forthcoming.
- What are some of the most important consideration(s) in evaluating appropriate visitor use management strategies?
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While no single formula exists for deciding which management strategies and related actions are best to implement in a particular area, the strategies must be consistent with the enabling legislation of an area or other applicable laws. The following four questions can help evaluate the strategy: (1) Does the strategy address the specific risks or opportunities in the area?; (2) Will the strategy help achieve the desired conditions for the area?; (3) Will the strategy protect visitors’ abilities to appropriately enjoy desired recreation experiences?; and (4) Can the strategy and related actions be implemented, monitored, and evaluated effectively by the agency?
- How do you deal with issues around emerging new uses and what activities are appropriate versus inappropriate?
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Each federal agency has policies and sometimes legislation to evaluate appropriate activities on its managed lands or waters. Step 6 of the framework includes guidance on determining appropriate visitor activities, facilities, and services. The outcome of this step provides more specific direction for the types of visitor activities, facilities, and visitor services that are consistent with and complement the area’s desired conditions. The intent is not to provide an exhaustive list, but rather to provide some examples to help convey a broad, more complete picture of desired conditions for the area. It is important to consider the connection between what is appropriate in a particular area and the purpose of the area; the desired condition guides what is considered appropriate.
- How can the framework be used to address outfitter-guide or commercial service issues?
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Many visitors experience federal lands through use of outfitter-guides or commercial services. These activities must be considered when evaluating how best to manage visitor use. Clearly defined desired conditions and guidance on appropriate activities, services, and facilities can help guide management of outfitter-guide and/or commercial service opportunities. Subsequently, when selecting management strategies, issues and opportunities directly associated with outfitter-guide operations or commercial services can be evaluated and actions identified. Further, where necessary, identification of visitor capacities can include allocating use into subsets for different types of commercial uses.
- Do you only manage visitor use when there are concerns about crowding or visitor experiences?
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No. Visitor use management goes beyond just visitor experience and includes management strategies to ensure that natural and cultural resource conditions, and the visitor experiences they provide, are protected. Also, visitor use is managed to ensure sustainable operations and facilities.
- Are visitor use management and visitor capacity the same thing?
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No. The term visitor capacity should not be used as a short-hand when the ultimate need is effective visitor use management through a variety of means. Since visitor capacity focuses on the amount of use, identifying and implementing visitor capacities is just one of many visitor use management strategies available to maintain or achieve desired conditions. Visitor capacity is defined as the maximum amounts and types of visitor use that an area can accommodate, while sustaining desired conditions and visitor experiences consistent with the purpose for which the area was established. Therefore, visitor capacity decisions are part of a more holistic approach to visitor use management and can only be made after desired conditions and other management strategies have been identified.
- When is it appropriate to identify visitor capacity?
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Managers should identify and implement visitor capacities when managing the amount of visitor use is directly related to achieving and maintaining desired conditions. Managers must identify and implement visitor capacities when legally required. Decisions on visitor capacity should be based on the desired conditions for a specific area and should be directed by pertinent laws and agency policies.
For in-depth guidance on identifying visitor capacities, please see the council’s position paper, Visitor Capacity on Federally Managed Lands and Waters: A Position Paper to Guide Policy, and the Visitor Capacity Guidebook. (http://visitorusemanagement.nps.gov/VUM/WhatGuidesIt and https://visitorusemanagement.nps.gov/VUM/Framework)
- How do you implement visitor capacities?
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Implementation of visitor capacity can be achieved through many different tools, which may be used in combination, such as: (1) education and marketing: informing visitors of peak use times to encourage voluntary redistribution of use as well as promoting alternate recreation opportunities; (2) engineering: sizing parking lots or access points based on the capacity; and (3) enforcement: enforcing prohibition of undesignated parking outside of established parking areas or better pacing the amount and flow of visitation through a permit system.
- Does using the framework always lead to permitting, regulations, or other use rationing?
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No. The framework encourages using management strategies that effectively address the specific visitor use needs of a project. Even when establishing a visitor capacity, a variety of more indirect management strategies (e.g., pre-trip information, outdoor ethics, and facility designs) may be implemented to ensure that use remains within the capacity. However, there are times when regulations, permitting, or use rationing may be needed to protect desired conditions and achieve the legislative purpose of the area.
- How do you know if visitor use management strategies are working?
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If desired conditions are being maintained or if conditions are trending toward desired conditions, then management strategies are likely working. Central to this assessment are clearly articulated desired conditions, coupled with a robust monitoring and evaluation program for the area. Please see the Monitoring Guidebook for more guidance. (http://visitorusemanagement.nps.gov/VUM/Framework)
- Is the framework already being used, and are there examples of its successful use?
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The framework is being applied to ongoing projects among the member agencies. There are case studies in the framework and also in the accompanying guidebooks that illustrate the application of the framework. Contact your agency’s council members for more information on some of the recent projects that applied the framework.
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How does the Council’s Work Benefit Resource Managers and Visitors?
The council benefits managers of the nation’s federal lands and waters by providing a collaborative forum and tools for federal agencies to tackle common challenges of sustainable visitor use and recreation. The council’s products, trainings, and outreach make it possible for agencies to facilitate and sustain public access and use of valued, and often vulnerable, land and water resources.
The council’s efforts also directly benefit visitors to federal lands by providing an objective, science-based, consistent, and transparent process for their engagement with agency decisions that affect how, where, and at what intensities we all access and enjoy the natural and cultural treasures of our nation’s lands and waters.
Still Curious? Dive deeper by clicking here.- How does the framework support appropriate engagement of the public, partners, and other interested parties?
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Most projects and management decisions will benefit from some level of public participation. It is important to build trust and move a decision or action forward through two-way communication with any interested members of the public or other parties, partner groups, or various government agencies (e.g., tribes, counties, towns, etc.). It is important to understand how these groups feel about and perceive the issues and/or actions associated with a project. The sliding scale, when used with applicable laws and regulations, helps to assess the level of public participation that is appropriate for the given situation.
- Can the framework be used for non-federally managed lands and waters (e.g., state and local public lands)?
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Yes. This framework is designed to be highly flexible and adaptable to local situations and needs. The council hopes that the framework is useful and can inform the work of state, local, and tribal agencies that support recreation. In fact, the council is already aware of a few state, local, and international governments that are using the framework to guide visitor use planning efforts.
- Can the framework be used on Wild and Scenic Rivers, in Wilderness, and for National Trails?
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Yes. This framework is designed to be highly flexible and adaptable to diverse situations and needs. The framework has been developed in close coordination with other councils and agency programs that provide direction to designated areas such as Wild and Scenic Rivers, Wilderness, and National Trails. The framework document and subsequent guidebooks include a variety of examples and case studies to illustrate its application to a variety of settings and needs. The legislation that established these designated areas is incorporated into the framework from the onset (e.g., refer to step 2 of element one) and guides the execution of the subsequent steps.
- How does the council’s work enhance visitor access to federal lands?
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Proactive planning and management for visitor use results in the opportunity to develop desired conditions, strategies, and thresholds that can guide decision making and management related to public access and visitor experience. Being thoughtful, collaborative, and creative about how to best provide for and manage use ensures high-quality visitor experiences that meet established desired conditions for resources and visitor experiences. Using the framework to guide planning and decision making, federal land managers can more proactively prepare for events and anticipate changes in trends that could potentially affect visitor access and/or experience. Agency staff can strategize and prioritize their efforts, in coordination with partners, to better accommodate use and avoid emergency closures, crowding, long lines, and other symptoms of overuse that impede visitor access and quality experiences. Ultimately, effectively managing visitor use contributes to the sustainability and preservation of federal land resources for current and future generations.
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