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Determining Best Management Practices for Wilderness Climbing in the National Parks

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Determining Best Management Practices for Wilderness Climbing in the National Parks University of Montana ScholarWorks at University of Montana Graduate Student Theses, Dissertations, & Professional Papers Graduate School 2018 INTERPRETATION AND IMPLEMENATION OF DIRECTOR’S ORDER #41, SECTION 7.2: DETERMINING BEST MANAGEMENT PRACTICES FOR WILDERNESS CLIMBING IN THE NATIONAL PARKS Kerry E. Sullivan University of Montana, Missoula Follow this and additional works at: https://scholarworks.umt.edu/etd Let us know how access to this document benefits ou.y Recommended Citation Sullivan, Kerry E., "INTERPRETATION AND IMPLEMENATION OF DIRECTOR’S ORDER #41, SECTION 7.2: DETERMINING BEST MANAGEMENT PRACTICES FOR WILDERNESS CLIMBING IN THE NATIONAL PARKS" (2018). Graduate Student Theses, Dissertations, & Professional Papers. 11139. https://scholarworks.umt.edu/etd/11139 This Professional Paper is brought to you for free and open access by the Graduate School at ScholarWorks at University of Montana. It has been accepted for inclusion in Graduate Student Theses, Dissertations, & Professional Papers by an authorized administrator of ScholarWorks at University of Montana. For more information, please contact [email protected]. INTERPRETATION AND IMPLEMENATION OF DIRECTOR’S ORDER #41, SECTION 7.2: DETERMINING BEST MANAGEMENT PRACTICES FOR WILDERNESS CLIMBING IN THE NATIONAL PARKS By KERRY ELLEN SULLIVAN Bachelor of Science, Green Mountain College, Poultney, VT, 2013 Professional Paper presented in partial fulfillment of the requirements for the degree of Master of Science Resource Conservation The University of Montana Missoula, MT March 2018 Dane Scott, Committee Chair Society & Conservation Elizabeth Covelli Metcalf Society & Conservation Dan Spencer Environmental Studies © COPYRIGHT by Kerry Ellen Sullivan 2018 All Rights Reserved ii Sullivan, Kerry, M.S., Spring 2018 Resource Conservation INTERPRETATION AND IMPLEMENATION OF DIRECTOR’S ORDER #41, SECTION 7.2: DETERMINING BEST MANAGEMENT PRACTICES FOR WILDERNESS CLIMBING IN THE NATIONAL PARKS Chairperson: Dane Scott Climbing in national parks’ wilderness areas has long created tension for mangers between providing recreational opportunities and maintaining wilderness values. This activity presents a challenge to wilderness management as managers try to balance feelings of solitude in wilderness and opportunities for unconfined recreation. Increased interest in climbing in the national parks lead to management considerations to satisfy Director’s Order #41: Wilderness Stewardship (DO41). In October 2013, the National Park Service (NPS) issued Director’s Order #41, Section 7.2, Climbing (DO41, Sec. 7.2), to clarify management of climbing in wilderness. Climbing in designated wilderness requires management due to conflicts between this growing recreational activity and maintenance of the qualities of wilderness character. With the publication of DO41, Sec. 7.2, the NPS has specific mandates for how to manage wilderness climbing. While the Order does provide a directive for the agency, it intentionally leaves room for interpretation to allow the parks to manage according to the specific needs of their park. The objectives of the study were to (1) ascertain what management actions have been implemented by national parks in response to DO41, Sec. 7.2; (2) determine how effective managers judge these actions to be; and (3) collect manager suggestions for improving the implementation of DO41, Sec. 7.2 in the national parks. Collecting online information on climbing in wilderness and conducting telephone interviews with managers experienced with climbing from a sample of national parks where climbing in wilderness is present fulfilled these objectives. The findings articulated that there should be more consistency in presentation of information to the climbing community. Lastly, relationships between the climbing community and National Park Service personnel are essential to effective management of climbing activity. iii Table of Contents SECTION 1. INTRODUCTION...................................................................................... 1 1.1 What is a Director’s Order? ...................................................................................... 2 1.2 Director’s Order #41: Wilderness Stewardship ........................................................ 3 1.3 Significance to the Field ............................................................................................ 4 SECTION 2. LITERATURE REVIEW ......................................................................... 6 2.1 The Wilderness Act of 1964...................................................................................... 6 2.2 Wilderness Character ................................................................................................ 7 2.3 History and Management of Climbing in the National Parks ................................... 8 2.4 Place-based Management in the National Parks ..................................................... 11 2.5 Climbing Regulation in the National Park Service ................................................. 12 SECTION 3: SUMMARY OF RESEARCH METHODS ........................................... 15 3.1 Research Methods Summary ................................................................................... 15 3.1.1 Description of Methods and Analyses for Collection of Online Information . 15 3.1.2 Description of Methods and Analyses for Qualitative Interviews ................... 16 3.1.3 Significance of the Research Approach ........................................................... 20 3.2 Descriptions of Director’s Order #41, Section 7.2 Elements .................................. 21 SECTION 4: FINDINGS ................................................................................................ 23 4.1 Online User Group Information Findings ............................................................... 23 4.2 Guiding Management Documents Findings ............................................................ 27 4.3 Qualitative Findings of Interviews with Park Personnel ......................................... 34 4.3.1 The Effectiveness of Face-to-face Communication ......................................... 34 4.3.2 Historical Relationships Between Managers and Users and the Concept of Trust .......................................................................................................................... 37 4.3.3 Need for Scientific Research ........................................................................... 41 4.3.4 Climbing Remains a Low-Priority Recreational Activity ............................... 43 4.3.5 Fixed-Anchor Management ............................................................................. 45 4.4 The Emerging Benefits of Social Media Use .......................................................... 46 SECTION 5. DISCUSSION ........................................................................................... 47 5.1 Director’s Order #41, Section 7.2 Implementation ................................................. 48 5.2 Best Practices for National Park Service Wilderness Climbing Management........ 49 5.2.1 Good Relationships Yield Great Benefits to the NPS and Climbing Community ............................................................................................................... 50 iv 5.2.2 Filling Knowledge Gaps by Gathering Baseline Data and Centralized Databases .................................................................................................................. 52 5.2.3 Providing a Suite of Information Avenues and Improving Access ................. 53 5.3 Research Limitations ............................................................................................... 53 5.4 Areas for Future Research Studies .......................................................................... 54 SECTION 6. CONCLUSION ........................................................................................ 55 REFERENCES ................................................................................................................ 57 APPENDIX A .................................................................................................................. 61 APPENDIX B .................................................................................................................. 62 APPENDIX C .................................................................................................................. 65 APPENDIX D .................................................................................................................. 67 APPENDIX E: RESEARCH METHODS .................................................................... 75 APPENDIX F .................................................................................................................. 80 v SECTION 1. INTRODUCTION Where humanity once feared the wilderness as foreign and unknown to humankind, the United States now treats it with pride and reverence (Nash, 1967). We can trace this history back to the 1920s, when social movements encouraged the protection of these vast, wild lands (ibid.). Wishes to protect these unspoiled lands throughout the United States led to the introduction of legal public protection culminating in the introduction of the Wilderness Act of 1964 (Act). Throughout the United States, federal and state agencies maintain wilderness areas in accordance with the Act. The Act defines wilderness as An area of undeveloped Federal land retaining its primeval character and influence, without
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