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DOCUMENT RESUME RC 020 921 ED 404 081 Munsell, Steve AUTHOR Land Access, Protection and Permits. TITLE 96 PUB DATE 8p.; In: Proceedings of the 1995 International NOTE Conference on Outdoor Recreation and Education; see RC 020 917. Viewpoints (Opinion/Position Papers, Essays, etc.) PUB TYPE General (140) Reports (120) MF01/PC01 Plus Postage. EDRS PRICE Camping; *College Programs; *Conservation DESCRIPTORS (Environment); Diversity (Institutional); *Federal Regulation; Higher Education; *Land Use; Natural Resources; Organizations (Groups); *Outdoor Education; Parks; Public Agencies; *Public Policy; Service Learning Outdoor Recreation; *Public Lands; Resource IDENTIFIERS Management ABSTRACT This paper summarizes a panel discussion that included 25 students and outdoor education and recreation professionals on issues related to land use and outdoor education and recreation programs. Many participants expressed frustration over inconsistent management policies related to educational and recreational use of public lands. Participants reported that there is no predictable manner in which agencies interpret land use by colleges and nonprofit groups. The panel also pointed out that organizing a collective voice for advocating land use among educational users would be difficult due to the diversity of outdoor education programs. For example, there are college degree programs, noncredit college courses, and college sponsored adventure clubs, all of which use public lands. Another problem area is reaching agreement for defining outdoor education for land permit purposes. For example, land permits for Forestry Service lands are issued by forest rangers based on district requirements, which may vary widely among districts. The panel also addressed problems associated with increased use of public lands and additional demands placed on natural resources. Recommendations included promoting outdoor education as the best source for teaching minimum impact camping techniques, examining the economic benefits of outdoor recreation programs, and demonstrating commitment to land stewardship by incorporating service projects in outdoor education programs. A follow-up meeting of panel participants stressed the need to define the role and purpose of the Association of Outdoor Recreation and Education (AORE) in promoting public land use by outdoor programs and considered land management as a potential critical focus of future AORE conferences. (LP) *********************************************************************** Reproductions supplied by EDRS are the best that can be made from the original document. *********************************************************************** -,4 U.S. DEPARTMENT OF EDUCATION Office or Educational Research and Improvement THIS "PERMISSION TO REPRODUCE EDUCATIONAL RESOURCES INFORMATION BY CENTER (ERIC) MATERIAL HAS BEEN GRANTED Permits Land Access, Protection and This document has been reproduced received Iron, the person or organization By originating it 0 Minor changes have been made to improve Steve Munsell reproduction quality. BON WATTERS Adventure Education Faculty Points of view or opinions stated in this docu- Prescott College ment do not necessarily represent official OERI position or policy. RESOURCES TO THE EDUCATIONAL Az.86301 220 Grove Avenue, Prescott INFORMATION CENTER (ERIC)." Abstract: occurring at the general summary of discussions This proceedings paper is a and Steve Keith Thurman of the Access Fund panel presentation facilitated by best of held during the A follow up meeting was Munsell of Prescott College. AORE board member facilitated by Jim Rodgers, the best" time slot which was in the text committee. Subheadings are used and outgoing chair of the land use from the Opinions expressed are paraphrased to break it up by content areas. to assure accuracy No policy reviews were completed discussion or are my own. regulations on use of public lands. of statements regarding specific Format of Panel Discussion provided a way of participants at the workshop A go round style introduction It served as a University based programs today. to scope the issues facing professionals gathered at the meeting. good introduction of students and summarized 25 or so people in attendance Several common threads emerged as the locations. This is experiencing at their home the land use issues each program This time scheduled for the meeting. round table process took about half the time in the of the group, but a good use of our was an investment on the part view of the issues as expressed by a peer sense that we acquired a good broad group. Summary Discussion about the different federal There was quite a bit of frustration expressed frustration was based around Most bureaucracies managing public lands. educational and to related inconsistency in management policies in Although many of the issues are centered recreational use of public lands. schools discussed issues of State people from mid-West and Eastern the West, in addition to federally managed managed park lands and private property locations that receive River issues were mentioned in Southeast lands. organized commercial trips. concentrated private use and alot of round was the inconsistencies The consistent point made during the go permitting of organized groups. There experienced with the various agencies in how agencies or perSonnel within is just no predictable consistency in colleges and non profits. agencies will interpret organized use by merit when issues end up Occasionally these inconsistencies will have It was pointed out that we do interpreted in favor of access for the program. There is ourselves in any organized fashion. not as a profession represent collective voice for land use consolidated movement towards creating a no it would be difficult A counter point was made that among educational users. of the diversity of outdoor programs to represent the profession because A collective voice is not easily America. education in across undergraduate heard from such broad constituency. 51 2 EST COPY AVAIIABILE agencies personnel resources were in such The point was made that in some The not available to coordinate volunteer programs. a state that people were accept the labor that a service agencies are not always well organized to added that service projects can oriented group might offer. In closing someone good opportunities for publicity. also be good public relations present action More' Solutions, ideas for brainstorming ideas of what to do The follow up meeting was pretty focused on committing to the follow up to see and trying to cajole each other into and brought a valuable AORE something through. Jim Rodgers facilitated perspective to the discussion. AORE needs a position statement and a We must define the AORE position. We can advance our own definition of our role and purpose on public lands. We can request association. agenda through greater organization within the Make public lands issue. greater assistance from ORCA on the permit priority within the management and access issues could become a greater greater focus of We could make access and lands management a coalition. with the theme we could organize a series of workshops future conferences. of access and stewardship for outdoor programs. Create a this agenda too. We want to find ways to get others to work on We should look at the Access Fund liaison with the Leave No Trace program. issues in an active way. model of work that focusing on specific local information on how permitting Much interest was expressed about greater How do you appeal a organized. processes work and how the agencies are ourselves There is clearly a need for greater education among decision? primer for A published handbook, "permit and agency on how it all works. Getting a commitment from ORCA to program administrators" was suggested. documents on provide a legal intern to research and compile government It was thought to be a permit regulations was an idea everyone liked. compiled and valuable resource to have regulations on permits and access indexed in some fashion. think nationally Work Locally, future are the ones you The areas that matter the most for your programs Federal procedure based Because there is so much variation in currently use. working it is most important to have a good upon who you are dealing with This cannot be over emphasized. relationship with your local agency people. program is hoping for on a It is often true that the management outcome your judgment or "feel" that the permit issue may boil down to the subjective It can also come down to who you agency person has for your program or you. decision or at least get the Who might be able to influence a know. The mayor?, the Your college or University president? agencies attention? people at the follow up Perhaps your congressman or Senator. Most Governor? permit related issues. meeting had written their congressman and Senator on knowledge on the We must advance the state of Educating the decision makers. issue for all involved. 3 56 Programs--Recreational or credit bearing by describing how programs differ at Someone illustrated this diversity recreation curricular Most programs are offered as extra different colleges. Other programs opportunities to balance out a student's academic program. Many programs physical education departments. may be taken for credit under that utilize outdoor pursuits have well developed recreation degree programs One college may run several types of programs as a part of their curriculum. under one administrative umbrella. Education or Wilderness Leadership are Degree programs in Outdoor Adventure of public lands in credit bearing also offered at some colleges and make use bearing programs These organized credit bearing and non credit curriculum. university including common adventure are joined by other program types at the show how it could be difficult to to This was offered programs and clubs. nationally. create a unified voice for the profession Semi Public Commercial, Definitions, Non-Commercial, have been defined for Discussion turned to particulars of how outdoor programs The problem definitions. permit purposes and the general gray area of permit since there are of definition for educational trips was clear to the group apply directly to educational very few specific permit definitions that We commercial. Most permits are described as non-commercial or groups. these neither-of reviewed these definitions and it was the groups view that represented definitions fit most of the activities sponsored by the colleges at the meeting. to pursue a There was strong opinion that a positive direction to head was on permit specific use definition for educational programs conducted under would be nice There was general agreement that it the various public lands. instead of not have a category to have a use definition that fit your activity commercial use coming from agencies to fit in. We reviewed the definitions for commercial and agreed that the interpretation of many university programs as represented at the is the more accurate definition. Several universities brought up This meeting were using commercial permits for their programs. meeting. Outward Bound and NOLS many other issues for program people at the that operated under were mentioned as examples of non-profit programs commercial permits for their access to public lands. different type of definition Mike Caveness shared background information on a finding a more accurate category of use that has been helpful for agencies in This permit category lands. from which to manage educational use of public The Gallatin National Forest issued was described as "Semi Public Outfitting" The this definition. permits to the Montana State University at Bozeman under this as a alternative definition to Program Director from Bozeman offered permit type He produced some documentation of this pursue with the agencies. and offered to post it for others to examine. Special Use Permits advantages for colleges Being under a commercial use definition may have some that can be obtained. because it may be the only type of official sanction It is the Department Special Use Permits are common on Forest Service lands. 52 for use of forest lands. Agencies may have of Agriculture's commercial permit permit well developed administrative systems to process commercial This is not always the management of the subsequent use. applications and inefficient or local agencies being case and others offered the problem of Special Use overworked with respect to processing permit applications. There Permits are usually done by individual ranger districts in each forest. is a great deal of variety between different ranger districts. Some ranger districts may require as much as a one year lead time to process permit requests. Other ranger districts may have moratoriums in place on issuing new special use permits in wilderness areas. Generally the agency will be required to gather alot of information and documentation from the college. In certain Limits of Acceptable situations the forest may have to do a NEPA process, (LAC) or some other administrative process which results in a Change considerable investment in workload on the part of the agency and the program. businesses The point was made that ski areas or other major developments or run under the same type of permit that a Forest may require for a college group running a week long leadership seminar in the Forest. Impacts on Resources The problem of increasing use and the additional demands placed on the natural resources by the growing numbers of organized programs came up at this time. It was acknowledged by many that part of the issue of continued access to Federally managed lands has boiled down to the increased pressures on the There are many many more This can be viewed singly or cumulatively. lands. organized "entities" using the outdoors for recreation, education or a place The land manager to conduct outings for any number of other special purposes. is in a tough place being charged with protecting the natural conditions from deterioration in the face of increasing pressure for use from all the various constituencies. Outdoor education programs and organized recreation groups have joined the ranks of special interest groups in that it has become necessary to lobby the On forest lands, the agency is beset with management agencies for access. demands placed on the resource by a whole host of "multiple users" with a All the agencies are legislative mandate to accommodate this variety of uses. tasked with stewardship of their lands. On Interior lands under management by the National Park Service, the agency has the additional mandate to provide for access yet balance uses to conserve natural values for later generations The boom in the outdoors has coincided with additional of visitors. legislative mandates and a more modern era in recreation management. The Wilderness Act of 1964 created legislation that bridged across agencies management priorities to regulate designated with a specific set of wilderness lands. These priorities identify protection of the existing natural As important as the conditions on the land as a primary management objective. additional protection is for the resource; it creates a stricter management standard with respect to visitor impacts. An end result of this is visitor limitations in areas actively being managed to preserve their wilderness values. New resource measuring methods used in the "limits of acceptable change" process provide agencies with more quantified data that show impacts to the resource from human recreation. 53 quantify the subjective element of Social standards have been developed to Years ago areas that may "opportunity for solitude". "user experience" and that receive enough visitation that it is thought have received little use now of have been impacted by the sheer numbers the natural values for recreation visitors. situation faced in the federal The group shared a common empathy for the The pressures being agencies tasked with managing our natural resources. and natural values are being felt are beyond what the lands can sustain increased human impacts in degraded. Since the recreation boom we have seen lumped Recreation use and subsequent impacts are being highly visited areas. different a use as in with other uses and not necessarily being seen as any the land An outrage is expressed about than say, mining or logging. extraction has role modeled by the USFS and BLM where resource stewardship That this nearly a century. been the operative management priority for public right though such antiquated appears to be a fully protected Meanwhile outdoor legislation as the 1872 mining act is equally outrageous. hurdles to leap just to access education programs have a heap of bureaucratic positive, even virtuous public lands to conduct activities many feel have The extractive Which public are the lands for? benefits for the public. of our natural industries of timber, mining, and grazing have left much agencies have been in partnership with heritage in a state of ruin. The industry in allowing this to occur. in more effects of the recreation boom are now being felt The cumulative related impacts that are popular areas where crowds of visitors have created does not compare to obvious and significant. Yet the nature of these impacts It was felt that the impacts created by sustained resource extraction. use widespread tracts of public land have concentrated recreation impacts on and hence impacts on fewer acres of lands. Solutions ?? Problems, problems, all of us. The group soon tired of sharing similar problems common to profession to work towards solutions. Focus then turned to what can we do as a outside the outdoor education Mr. Thurman had a unique perspective coming from solutions in specific community but actively working with agencies towards the best source of His point was that we must project ourselves as areas. minimum impact camping training available to the public in the teaching of "Leave No Trace" He suggested a closer association with the techniques. agencies. This program is program.initiated by NOLS in conjunction with the This group organization based out of Boulder. now an independent non-profit Identifying and ORCA. shares a common office space with the Access Fund training in Leave No Trace skills outdoor education programs as the source for positive impact programs can have on the may help agencies recognize the It is recognized that a who care. resource by producing recreationalists alot of impact in a small number of untrained or abusive users can create the outdoor Although the numbers represented on the lands by short time. impacts on the resource may be education programs are quite large the actual private user days since programs lower when compared with the same number of have a focus on minimum impact operate in a more controlled setting and skills. 6 54 the point profession nation wide was raised and The issue of the size of the providing trips impact created by field programs about the positive economic studied, This economic impact has never been for people in the outdoors. The comparison was made to the quantified, or assessed in a formal way. and guiding industry and tourism in general. economic impact of the outfitting base recreation are major players in the economic Travel, tourism and outdoor bordering National Parks or popular forest of many rural communities or towns industry has turned this powerful recreation lands. The outfitting and guiding base in certain states. economic base into an equally powerful political together as a profession and get some The suggestion was made to get ourselves We could see our use of public land lobbying representation in Washington. acquire greater credibility based on economics alone. project of collecting data on Someone hoped a student might take on a Master's It was generally felt that having the economic scope of the field nationally. project nationally was the only way to make a greater collective identity to headway on this issue from the top down. partnerships Service, returning something to Another area for positive interaction with agencies and and budget is the service project. The general state of non-funding the land crisis in the agencies for cuts coming out of the 104th congress has created a There is very little money lack of funds to carry out their mandated tasks. strategies to coming out to agencies and agencies are looking for creative managing public It may well be that one day the only ones out actively cope. The agencies are eager to develop cooperative lands will be volunteers. Part of the "reinventing government" projects with suitably committed groups. experiment in the Forest Service was to find new ways to reach management real This can take shape for outdoor education programs as a objectives. "adopt a trail opportunity to make a positive contribution on the ground. The of a cooperative program" of the Forest service was cited as an example program currently in place. far beyond The hope was expressed that the stewardship the land needs goes One day service what can be accomplished in a one day service project setting. long term or projects are a good place to start but the opportunity for will do alot more to demonstrate to local agency people your ongoing service challenging element of integrating programs commitment to stewardship. The outing can be significant service into the short term outdoor recreation Losing time from your planned program is inevitable difficult for programs. is integrated into the whole so it is important that the service element Students will be more committed to service work when experience successfully. Service learning is an as an integral part of a greater whole. it is seen service to the learning educational method that focuses on the connection of with the experience at hand. Significant service work and partnership programs or tacked onto the outings just added agencies will not succeed if they are without being integrated into the program. to Service work contribution to the resource was also mentioned as a way be subtracted off the earn user day credits that in some instances can information on this idea annual use figures reported on the permit. Detail was a little lacking. 55 happening about ways to keep the information exchange We closed thinking Munsell wants to create a targeted professionals. between interested of permits most to college programs to see what type survey to distribute News what their current land use issues are. schools have and especially Jim the AORE newsletter would be helpful. updates in the ORCA flash or needs to join the land use task force Rodgers implored the group that someone effort. to organize the AORE 57 ERIC U.S. Department of Education Office of Educational Research and Improvement (OEM) Educational Resources Information Center (ERIC) REPRODUCTION RELEASE (Specific Document) I. DOCUMENT IDENTIFICATION: oce. Or\ 0 o+jkoor-lC(e,ifins-, Title: irikrticishanS Co rrOCeedlijj 04 -04- (TT 5 CA nct GAO C_ct4-161- ..---- rFeA 4' .koesler ct (kJ. Tor\ WA t-t-cA Author(s): Publication Date: Corporate Source: lath Tr,,z,rD S4,1,4) iSk V't c (Ns, II. 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