US National Park Buffer Zones: Historical, Scientific, Social, and Legal Aspects

/ This review will trace the evolution of beyond boundary/buffer zone thinking and policy responses in the US National Park Service (NPS); address buffer zone science, benefits, and limitations; examine pertinent legal and social concerns; highlight some agency attempts to create buffer zone-like areas; and propose highlights of a protected area strategy, with buffer zones and corridors as one component. Some findings follow. The need to expand national parks to accommodate large ungulate movement began in the late 1800s, but the recognition that such land was also needed to thwart human impacts such as poaching surfaced in the 1930s. External park buffer zone recommendations by 1930s park scientists were not implemented, and other related adopted policy forgotten, supporting the belief that great insight can be discovered in forgotten institutional history. Buffer zones can remedy some impacts but not others, but their benefits are multiple and underappreciated. The science of buffer zones is very immature and deserves more attention. A present primary obstacle to creating park buffer zones and connecting corridors is a social climate opposing federal initiatives that may intrude on the rights of private landowners. Some proactive NPS bufferlike activity examples are reviewed, but there were none where permanent, complete, effective nonlegislated park buffer zones, derived from nonfederal property, circumscribed large natural area parks. The need for buffer zones and corridors may be a symptom of inadequate regional planning. Options to create buffer zones from private and federal land are outlined. A comprehensive, overall protected area strategy must include more than just buffer zones, with highlights provided. Because optimal regional planning for US national parks is now thwarted by land-use politics, American society must soon decide what is most crucial to future well-being. KEY WORDS: Buffer zone; Reserve; Boundary; Policy; Planning     

An Assessment of Road Impacts on Wildlife Populations in U.S. National Parks

Current United States National Park Service (NPS) management is challenged to balance visitor use with the environmental and social consequences of automobile use. Wildlife populations in national parks are increasingly vulnerable to road impacts. Other than isolated reports on the incidence of road-related mortality, there is little knowledge of how roads might affect wildlife populations throughout the national park system. Researchers at the Western Transportation Institute synthesized information obtained from a system-wide survey of resource managers to assess the magnitude of their concerns on the impacts of roads on park wildlife. The results characterize current conditions and help identify wildlife-transportation conflicts. A total of 196 national park management units (NPS units) were contacted and 106 responded to our questionnaire. Park resource managers responded that over half of the NPS units’ existing transportation systems were at or above capacity, with traffic volumes currently high or very high in one quarter of them and traffic expected to increase in the majority of units. Data is not generally collected systematically on road-related mortality to wildlife, yet nearly half of the respondents believed road-caused mortality significantly affected wildlife populations. Over one-half believed habitat fragmentation was affecting wildlife populations. Despite these expressed concerns, only 36% of the NPS units used some form of mitigation method to reduce road impacts on wildlife. Nearly half of the respondents expect that these impacts would only worsen in the next five years. Our results underscore the importance for a more systematic approach to address wildlife-roadway conflicts for a situation that is expected to increase in the next five to ten years.     

A review of conservation legislation in Nepal: Past progress and future needs

Nepal is considered a leader among developing nations with regard to conservation legislation and programs; it was among the first Asian nations to develop national conservation legislation, sign CITES, and develop a national conservation strategy. We review the history of modern conservation law in Nepal from the Rana period (early 1950s) to the present. The early legislation focused mainly on strict preservation of areas and species; this phase culminated in the National Parks and Wildlife Conservation Act of 1973. Subsequent legislation has evolved more in the direction of an integrated, holistic approach to conservation and is beginning to incorporate the participation of local people; subsequent amendments to the 1973 act allowed greater rights to rural villagers, and the designation of conservation areas in addition to the more strictly defined protected areas (national parks, wildlife reserves, etc.). Our review of conservation legislation suggests that Nepal has had many successes to date; the country has a protected area system covering over 10% of its land area, and many target species are recovering in parks and reserves. There are also some causes of concern, including staff shortages, financial constraints within the Department of National Parks and Wildlife Conservation, and the fact that there is little legal infrastructure outside of protected areas to enforce conservation laws; further, some aspects of hunting regulations are in need of revision. Primary needs include a comprehensive review of these policies and a nationalized strategy to ameliorate the shortcomings.     

An Interpretive Study of Yosemite National Park Visitors’ Perspectives Toward Alternative Transportation in Yosemite Valley

The National Park Service (NPS) is increasingly focusing on alternative transportation systems in national parks to address environmental and social problems arising from a historical reliance on personal automobiles as the primary means of visitor access. Despite the potential advantages, alternative transportation may require a reorientation in the way that Americans have experienced national parks since the advent of auto-tourism in the early twentieth century. Little research exists, however, on visitor perspectives towards alternative transportation or the rationale underlying their perspectives. It remains unclear how transportation systems affect visitors’ experiences of the park landscape or the factors influencing their travel behavior in the parks. This report presents an interpretive study of visitor perspectives toward transportation management in the Yosemite Valley area of Yosemite National Park, California. Qualitative analysis of 160 semi-structured interviews identified individual psychological factors as well as situational influences that affect visitors’ behavior and perspectives. Individual psychological factors include perceived freedom, environmental values and beliefs, prior experience with Yosemite National Park and other national parks, prior experience with alternative transportation in national parks, and sensitivity to subjective perceptions of crowding. Situational factors included convenience, access, and flexibility of travel modes, as well as type of visit, type of group, and park use level. Interpretive communication designed to encourage voluntary visitor use of alternative transportation should focus on these psychological and situational factors. Although challenges remain, the results of this study suggest approaches for shaping the way Americans visit and experience their national parks to encourage environmental sustainability.     

Natural Resource Assessment: An Approach to Science Based Planning in National Parks

We conducted a natural resource assessment at two national parks, New River Gorge National River and Shenandoah National Park, to help meet the goals of the Natural Resource Challenge—a program to help strengthen natural resource management at national parks. We met this challenge by synthesizing and interpreting natural resource information for planning purposes and we identified information gaps and natural significance of resources. We identified a variety of natural resources at both parks as being globally and/or nationally significant, including large expanses of unfragmented, mixed-mesophytic forests that qualify for wilderness protection, rare plant communities, diverse assemblages of neotropical migratory birds and salamanders, and outstanding aquatic recreational resources. In addition, these parks function, in part, as ecological reserves for plants in and wildlife. With these significant natural resources in mind, we also developed a suite of natural resource management recommendations in light of increasing threats from within and outside park boundaries. We hope that our approach can provide a blueprint for natural resource conservation at publically owned lands.     

Evaluating U.S. National Heritage Areas: Theory, Methods, and Application

Like many governmental actors in recent decades, the U.S. National Park Service (NPS) has operated increasingly through partnerships with other state and federal agencies, non-governmental organizations (NGOs), community groups, and private sector corporations. Perhaps the most salient example of this trend toward partnerships is the rapid growth and development of national heritage areas (NHAs). Since the first NHA received congressional designation in 1984, NHAs have become an increasingly popular strategy for protecting and managing landscapes. To date, congressional designation has been granted to 49 NHAs, making them one of the fastest growing initiatives involving the NPS. Despite this growth, no prior research has examined the efficacy or effectiveness of the NHA model. This article introduces the NHA concept, while reviewing the literature on evaluation research and its application to protected area management. We then offer an NHA program theory model for evaluating NHAs. The model was developed using a theory-based, process evaluation approach, along with 90 qualitative interviews conducted at three study sites: Blackstone River Valley National Heritage Corridor, MA-RI (BLAC); Delaware and Lehigh National Heritage Corridor, PA (DELE); and Cane River National Heritage Area, LA (CANE). We conclude by discussing the key challenges and implications associated with developing a long-term research agenda for evaluating NHAs.     

Evolving policies for conservation: An Historical Profile of the Protected Area System of Nepal

Nepal has instituted progressive conservation programmes since the 1970s. This move was in reaction to very rapid rates of land clearance in the lowland areas of the country and an opening up to the world that led to nature-based tourism as a major economic enterprise. Formal conservation began with the passage of national legislation in 1973 offering strong protection for national parks and wildlife reserves, but denied usufruct rights to rural communities. From the late 1970s to the 1990s, the legislation was amended several times. Each case was, in several fundamental ways, a loosening of control by government authorities. Nepal now has buffer zone legislation and allows for the designation of conservation areas in addition to the more-strictly defined categories. Beginning in the 1990s, both government and foreign-backed projects have been implementing landscape level conservation approaches; a number of initiatives in trans-boundary protected area management with India and China have also begun and non-governmental organizations have taken an increasingly active role. This paper considers the expansion of the protected areas network in light of historical, cultural and economic factors and concludes that Nepal has been reactive in adopting conservation programmes. Both outside and inside influences have strongly affected the development of conservation programmes and there are several areas in which more work needs to be done. This includes the need for implementing both national and international conservation law and adopting social and biological monitoring programmes in and around protected areas. In addition, factors outside the control of conservation officials (i.e. a Maoist insurgency) have indirectly hindered conservation programmes in recent years and have greatly complicated prospects for further success.     

A method for evaluating areas for national park status

A procedure for evaluating different areas as national parks based on a scoring system is proposed. A National Park Evaluation Form (NPEF) evaluating natural, cultural, and recreational resources in accordance with international criteria for national parks is presented. The evaluation points given to an area indicate the possibility of the area becoming a national park. In this method, subjectivity and bias have been minimized by a special application of the Delphi technique. The method outlined here could help in the efforts of selecting and establishing national parks in many countries.     

Evaluating the effectiveness of air quality management within the class I area of great smoky mountains national park

The Clean Air Act Amendments of 1977 designated national parks and wilderness areas larger than 1894 ha to be class I areas for air quality management, setting more restrictive criteria than the National Ambient Air Quality Standards. Class I areas are afforded the greatest degree of air quality protection under the Clear Air Act of 1970. In recent years, several studies have documented air pollution effects in the Great Smoky Mountains National Park (GSMNP), the second-largest class I area in the eastern United States. Air pollution problems of greatest concern in the GSMNP are effects of acid deposition, visibility impairment, and tropospheric ozone. Several recent events have increased concerns about air quality management in the class I area of the GSMNP. A forum, sponsored by the Southern Appalachian Man and the Biosphere Cooperative (SAMAB), was held in March 1992, which involved representative. parties-at-interest and began to address strategies for better management of air resources in the Southern Appalachians. This paper summarizes those discussions and recommendations and reports actions occurring as a result of the forum. Another objective of this paper is to present a conceptual framework for more effective management of the class I area of the GSMNP.     

Linking management and livelihood in environmental conservation: case of the Korup National Park Cameroon

Biodiversity conservation has emerged within the past two decades as one of the most important global challenges confronting national planners, world bodies, professionals and academics. Governments faced with increasing biodiversity loss as a result of human activities have resorted to the creation of protected areas as a strategy to both slow down habitat loss and/or degradation and eventually mitigate species extension and reduction rates. However, the creation of a protected area can have strong implications on the livelihoods of people inhabiting the forest and depending on it, especially those caught within its borders. The involvement of such inhabitants in the management process of the protected area can be profitable. This paper discusses the case of the Korup National Park, Cameroon, considered in the late 1980s by some to be a flagship of conservation and development efforts, and later on in the late 1990s by others as a catastrophic failure as an example of integrated conservation and development. As a means of updating the program's management information base, an in-depth participatory and socio-ecological survey was conducted by some of the program's technical staff. This study aimed at appraising the extent to which the Park's human community of 4200 inhabitants continued to relate to its resources and depend on them for their livelihood. The aim was to evaluate the potential links between the communities' livelihood and the long-term management and survival of the Park as the important biodiversity conservation zone it had been found to be. Results indicate that the successful management of a Park like Korup may well depend on the involvement of the local communities; and that successful management through approaches that minimize the potential contributions and aspirations of the local people is difficult to achieve.     

Legal considerations in challenging external threats to Glacier National Park,Montana, USA

External threats to the environmental integrity of Glacier National Park, Montana, USA, fit into three categories: adverse land use practices adjacent to the Park, air pollution, and water pollution. This article identifies and evaluates the laws that Glacier National Park officials might rely upon to protect the Park against these external threats. The article also assesses the available scientific information relating to external threats, and it identifies additional information needed to establish a legal basis for challenging the threats.     

External threats to ecosystems of US national parks

Activities beyond national park boundaries are now the principal source of threats to park natural resource integrity. Assessing the full impact of major threats as air and water pollution requires a long-term ecosystem-level approach in research design and execution, and park management. Failure to take such an approach renders most existing park data bases useless in the documentation of external threats. While the concept of managing national parks as ecosystems is not new, Park Service research and its organization have not provided the information necessary for such a basis of management. Quantifying the impacts on park resources due to external hydrologic regulation and air pollution is a good example of the need to employ an ecosystem approach in research. However, implementing such a program will require a fundamental change in research administration, priority setting, and conceptual approach.The first four of the articles in this special section arise from an AAAS symposium onExternal Threats to Ecosystems of the National Parks in the USA, which was convened in 1982. The articles have been revised to reflect subsequent developments in this field. The first article, by Dr. Stottlemyer, the symposium organizer, serves as an introduction to the topic. The fifth article in this special section was submitted separately, but included because it also is related to this particular topic.     

Proactive monitoring and adaptive management of social carrying capacity in Arches National Park: an application of computer simulation modeling

Public visits to parks and protected areas continue to increase and may threaten the integrity of natural and cultural resources and the quality of the visitor experience. Scientists and managers have adopted the concept of carrying capacity to address the impacts of visitor use. In the context of outdoor recreation, the social component of carrying capacity refers to the level of visitor use that can be accommodated in parks and protected areas without diminishing the quality of the visitor experience to an unacceptable degree. This study expands and illustrates the use of computer simulation modeling as a tool for proactive monitoring and adaptive management of social carrying capacity at Arches National Park. A travel simulation model of daily visitor use throughout the Park's road and trail network and at selected attraction sites was developed, and simulations were conducted to estimate a daily social carrying capacity for Delicate Arch, an attraction site in Arches National Park, and for the Park as a whole. Further, a series of simulations were conducted to estimate the effect of a mandatory shuttle bus system on daily social carrying capacity of Delicate Arch to illustrate how computer simulation modeling can be used as a tool to facilitate adaptive management of social carrying capacity.     

Wildlife resources in creating the new Alaskan Parks and preserves

Legislation settling the Alaska Native Lands Claims also resulted in the establishment of ten new parks and preserves in Alaska. This settlement was the result of a long and often bitter legislative struggle between pro- and antidevelopment groups. The planning history of the Wrangell-St. Elias National Park and Preserve is used as a case example of this debate. One particular source of conflict was the curtailment of sport hunting that would result under national park classification. A preserve classification was introduced to resolve this conflict. Data on wildlife resources and sport hunting were instrumental in defining the areas so classified.     

Populations of domesticated cattle and buffalo in the Western Forest Complex of Thailand and their possible impacts on the wildlife community

The Western Forest Complex (WEFCOM) of Thailand is comprised of many protected areas and has one of the highest wildlife populations in the country. Populations of wildlife in the WEFCOM have decreased dramatically over recent years. Rapid economic development has resulted in the conversion of forest into agricultural and pastoral land, which has directly and indirectly impacted the wildlife community. This research aimed to evaluate populations of domesticated cattle (Bos indicus) and buffalo (Bubalus bubalis) in the WEFCOM and their possible impacts on the wildlife community. Domesticated cattle and buffalo keepers from 1561 (or 3.3%) of houses in and near WEFCOM were interviewed. The average number of animals per household was 15.6 cattle and 8.5 buffalo. Most villagers released domesticated cattle and buffalo to forage in the protected areas. This tended to have a high impact on the wildlife community in Huai Kha Khaeng Wildlife Sanctuary and Tungyai Naresuan Wildlife Sanctuary. The least impacted areas were Luam Khlong Ngu National Park, Thong Pha Phum National Park and Chaleam Ratanakosin National Park. With a high risk to the wildlife community, law enforcement should be used in combination with a certain level of co-management with local communities.     

Evaluation of anthropogenic atmospheric inputs on US national park ecosystems

It is estimated that more than half the threats to national park resources originate outside park boundaries, and most threats are attributable to degradation of air and water quality. Atmospheric contaminants are the principal source of external threats to national park ecosystems. This article examines the potential impact to national park resources by anthropic atmospheric inputs and summarizes present research methods and results regarding impacts. Air quality monitoring currently receives much more emphasis and support than effects research. Present research on effects focuses on vegetation impact, biomonitoring, and acid rain. This research and that of other investigators suggest that the most likely impacts will not be direct cause-effect situations, but indirect, incremental, and possibly synergistic effects on the interactions of ecosystem components. Conceptually, such alteration of interactions can be measured through long-term observation of biogeochemical cycles, energy transfer, and community structure and function. But traditional Park Service research has not emphasized the ecosystem and especially ecosystem processes and component interactions. Most research on effects, then, must begin with baseline data acquisition. A research program to mitigate present national data base deficiencies would require a fundamental change in present research priorities, administration, and funding.     

Transforming the Integrated Conservation and Development Project (ICDP) Approach: Observations from the Ranomafana National Park Project, Madagascar

Preservation of the biological diversity and ecosystems in protected areas can be achieved through projects linking conservation of the protected areas with improved standards of living for resident peoples within surrounding buffer zones. This is the hypothetical claim of the integrated conservation and development project (ICDP) approach to protected area management. This paper, based on several years of experience with the Ranomafana National Park Project in Madagascar, questions the major assumptions of this approach from ethical and practical perspectives. The four basic strategies available to ICDPs – protected areas, buffer zones, compensation, and economic development – are analyzed and shown to be deficient or untested in the case of Ranomafana. Recommendations are made to explore conservation models other than the western conception of the national park, to modify the notion of a buffer zone outside the protected area, to redistribute money or other resources directly to the poor people living in and around the protected areas, and to eliminate the middle men in the development business. An appeal is made to focus on local education, organization and discipline in order to promote self-determination and self-reliance among resident peoples of protected areas. The paper argues that a public works program, similar to the Roosevelt administration's Civilian Conservation Corps of the 1930s, funded through a hard-currency endowment or other innovative financing mechanism, should be tried as a replacement for the currently questionable ICDP approach at Ranomafana.     

Restoring naturalness to national parks

National park resource management planning requires ecological information describing the objectives to be achieved. This information must be quantitative and unambiguous. Since most acts creating United States national parks, beginning with the Yellowstone National Park Act of 1872, specify that these parks should be maintained in a natural condition, resource management objectives for each national park must be defined in terms of quantitative standards of naturalness. Such quantitative standards of naturalness do not yet exist for any national park in the United States. Although this article focuses on US national parks, the same problem exists in national parks, reserves, and wilderness areas throughout the world. The physical evidence needed to develop quantitative standards of naturalness is rapidly disappearing because of the effects of management fires, wildfires, decomposition, successional changes, and other disturbances. Therefore, a nationwide rescue ecology program is recommended to recover as much remaining ecological information as possible before it is lost. This information is essential for developing quantitative standards to restore naturalness to national parks.     

Beyond buffer zone protection: a comparative study of park and buffer zone products' importance to villagers living inside Royal Chitwan National Park and to villagers living in its buffer zone

Even after 30 years of strict de jure protection, today's de facto extraction of products from Nepal's Royal Chitwan National Park (RCNP) and their great economic importance to local households suggests that this reality should be explicitly internalised in managing this world heritage park. Several studies have quantified local people's use of protected areas and estimated the value of such areas to them. However, few studies incorporate economic analyses to investigate the effect of management interventions on local communities' resource use and collection behaviour. In Nepal, buffer zones and especially buffer zone community forestry are seen as means to define and demarcate places, where local people may legally extract goods that are either identical to or relevant substitutes for products that are collected in protected areas. The intention is to resolve park-people conflicts over resource use. This article presents the findings of an in-depth study of the importance of natural resources to the livelihoods of 18 households. One village was located inside RCNP with no realistic alternatives to Park resources, while the other is located in the buffer zone with equal distance to the Park, a national forest and their community forest. For each household, the collection of products, allocation of time, and purchase and sale of goods were recorded daily through 12 consecutive months and economic values were calculated on the basis of local market prices and recorded quantities. The study shows that products from RCNP are of great importance to the livelihoods of local people. Furthermore, we find that products collected in the national forest substitute products from the Park, while the substitution effect of the community forest is small. Accordingly, the study illustrates that, irrespective of buffer zone community forestry, there is still a gap between local people's need for supplementing natural resources and their rights to satisfy them on a legal basis, which is likely to be unsustainable in the longer term. This calls for a thorough evaluation of actual park-people relations and how these may be improved through local participation that goes beyond the current form of buffer zone community forestry and the admitted 7-14 annual days of open access grass cutting within the park.