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National Parks
and
Conservation Association
Heartland Regional Office *
Written Testimony
of the National Parks and Conservation Association
on Proposed Changes for
Voyageurs National Park,
including H.R-1310
before the
U.S. House Resources Committee
Subcommittee on National Parks, Forests, and Lands
August 30, 1995
The National Parks and Conservation Association (NPCA) is opposed to recent
proposals for changes in park management structure and standards at Voyageurs
National Park. These proposals include HR-1310 and certain other proposals which
severely and unjustifiably weaken resource management standards and park
visitors' experience by shifting the current balance away from wilderness
preservation toward unprecedented levels of motorized recreational use,
resulting in a national park which will not meet the high standards that the
American public has come to expect of a national park of Voyageurs National
Park's stature. NPCA supports current management by the National Park Service to
ensure national park standards continue to be met.
The National Parks and Conservation Association is America's only private
nonprofit citizen organization dedicated solely to protecting, preserving, and
enhancing the U.S. National Park System. An association of "Citizens
Protecting America's Parks", NPCA was founded in 1919 and has over 450,000
members.
Background
Voyageurs National Park has been plagued by controversy over its purpose and use
even prior to its formal congressional establishment as a national park. The
area which is now within the park contained spectacular scenery and wildlife
habitat, in addition to its appeal to local outdoor enthusiasts. Recognizing the
diversity and quality of park resources, compromise was struck at the time of
the park's creation which created opportunities for wilderness enthusiasts and
motorized recreational users alike. The legislation creating Voyageurs National
Park recognized that preservation and recreation were not mutually exclusive
goals; that, in fact, these are complementary goals if the balance is maintained
in such a way that recreation does not threaten to undermine the primary goal of
preserving the park's resources for present and future generations to enjoy.
* Current National Park Service management of Voyageurs National Park ensures
the Park continues to be managed according to National Park Standards as
determined by the Organic Act of 1916 and the Voyageurs enabling legislation.
The National Park Service has met its park management mandates well, and
preservation and motorized recreation have successfully coexisted up to this
point in time. Under current National Park Service management, recreational
opportunities exist for both wilderness enthusiasts and motorized recreation
enthusiasts alike. Current proposals for change will upset this fragile balance
and tip it much further in favor of motorized uses within the park than was
originally intended.
The Organic Act of 1916 serves as the foundation for National Park Service
management of all units in the National Park System, including Voyageurs. The
Act not only guides systemwide management of national parks, but reflects the
purpose behind their establishment and their importance as nationally
significant resources. The 1916 Act created the National Park Service in the
Department of Interior to:
"promote and regulate the use of the Federal areas known as national
parks, monuments, and reservations ... by such means and measures as to
conform to the fundamental purpose of said parks, monuments, and
reservations, which purpose is to conserve the scenery and the natural and
historic objects and the wild life therein and to provide for the enjoyment
of the same in such manner and by such means as will leave them unimpaired
for the enjoyment of future generations." (16 USC 1).
This section of the Organic Act makes it clear that both preservation and
recreation are important goals of the National Park System, but conditions
enjoyment of park resources upon the observation of a preservation ethic —that
park use will not impair or destroy the physical park resource or the character
of that resource in any way that prevents future generations from experiencing
and enjoying it.
In addition, the Voyageurs enabling legislation builds upon the mandates of the
Organic Act by recognizing the unique resources of Voyageurs National Park.
Recognizing both the outstanding natural scenery and the public recreational
opportunities within the park, both motorized and non-motorized, the legislation
creates a standard for management that mandates wilderness identification and
preservation, and permits motorized recreation where it is appropriate and will
not interfere with wilderness preservation. There are several key excerpts from
the legislative record on the Voyageurs National Park enabling legislation which
indicate that, although certain recreational opportunities were envisioned for
Voyageurs National park, the primary purpose and overriding principle of park
management is resource preservation.
The House Committee Report accompanying the Voyageurs legislation, H.R.-10482
(Committee Report #91-1552) contains several references to this wilderness
emphasis.
Under the subtitle "Administration" (Committee Report, p. 3), the
committee proposes amendatory legislation which states that Section 301 (b) of
the bill should read as follows:
"Within four years from the date of establishment, the Secretary of
the Interior shall (emphasis added) review the area within the
Voyageurs National Park and shall report to the President ... his
recommendation as to the suitability or nonsuitability of any area within
the lakeshore for preservation as wilderness, and any designation of any
such area as wilderness may be accomplished in accordance with ... the
Wilderness Act."
In contrast, the committee reports as follows the provision establishing the
Secretary of Interior's authority to permit snowmobiling and other motorized
activities within the park:
"The Secretary may (emphasis added), when planning for
development of the park, include appropriate (emphasis added)
provisions for (1) winter sports, including the use of snowmobiles, (2) use
by seaplanes, and (3) use by all types of watercraft, including houseboats,
runabouts, canoes, sailboats, fishing boats, and cabin cruisers."
(Section 303).
It is clear that, when reading these two provisions together, the mandate for
the wilderness study in Section 301(b) takes precedence over Section 303's
provision for outdoor recreational opportunities. Section 301(b) uses the term
"shall" to refer to the Secretary's duty to complete a wilderness
study within four years of passage of the Voyageurs Act.
This means the Secretary must complete the study and must
report these recommendations to Congress and the President for consideration.
Recognizing the high potential wilderness value of Voyageurs National Park,
Congress mandated that the Secretary complete the wilderness study in accordance
with the Wilderness Act of 1964. Clearly, the identification, designation, and
preservation of wilderness areas within the park is a primary purpose of the
park's creation, and was given careful congressional consideration through the
Voyageurs legislation.
Compare this to Section 303, which pertains to recreational opportunities. The
Secretary of the Interior is delegated complete discretionary authority by the
Congress to determine when, where, and even if certain recreational
opportunities, including snowmobiling, are to be allowed within Voyageurs
National Park. There is no congressional oversight needed for these decisions.
In fact, the Secretary does not even have to consider or make provisions for
these specific types of activities within the park, although the Secretary has
chosen to permit such activities within definite parameters consistent with the
overall objective of resource protection and preservation.
Legislative history also refers to the importance of maintaining Voyageurs'
wilderness characteristics. In the committee's description of the area, the
committee states: "In addition to the geological and natural values which
this part of the country offers, it has a rich historical background. Here,
before the West was settled, the French-Canadian Voyageurs paddled and portaged
their canoes in search of firs . ... [A]long the way. these early adventurers
plied their way among the maze of lakes and streams which gives this place its
fame and gives the park its name . ... The Voyageurs are gone, but the lands and
waters they knew and traversed remain. Some places have been substantially
altered by man in the decades that followed, but the, forests and shorelines,
and islands within the proposed park boundaries which are characteristic of the
places they knew can depict this phase of our cultural inheritance" (emphasis
added). (Committee Report, p. 4).
It seems logical to conclude from this statement the committee recognized the
need to preserve places relatively unimpaired by certain human activities that
might detract from the experience of those visitors who wish to experience the
park as the Voyageurs did, in a wilderness-like setting free from the roar of
snowmobiles and motorboats. Some areas of silence and solitude are crucial for
providing this type of opportunity for visitors.
In addition, the committee concluded that "if this area is to become the
Voyageurs National Park, then the provisions of H.R.-10482 should not derogate
from that status. Our national parks and monuments are our most cherished
natural and scientific areas. They, more than any other nationally designated
areas, must be outstanding and superlative in every respect. Other
designations are available for areas where deviations from the usual restrictive
standards are permitted, but the Congress does not —and should not— allow
exceptions for areas designated as national parks" (emphasis added).
(Committee Report, p. 6). Although the committee referred to activities such as
hunting, trapping, commercial fishing, and timber harvesting, any activities
that are allowed to a degree that jeopardizes the park's integrity, including
the integrity and protection of wilderness areas, must be seen as deviating from
national park standards.
From these legislative sources, it is clear that both natural resource
preservation and recreational opportunities were anticipated, but it is also
clear that recreation was only to be permitted within the parameters of sound
resource management principles. Long recognized as the stewards of national park
lands, the National Park Service has the expertise in resource management that
ensures protection of the resource in a manner befitting a national park of
Voyageurs' stature. Proposals expanding motorized use to nearly all of the park,
or those proposing to turn management of the park over to other governmental or
non-governmental entities, will jeopardize the continued maintenance of these
traditionally high standards.
* H.R.-1310 contradicts the original wilderness purpose of Voyageurs National
Park and will not serve as a compromise bill. Rather, H.R 1310 will undermine
National Park Standards at both Voyageurs and throughout the rest of the
National Park System.
One argument proposing change of management at Voyageurs National Park, embodied
in Congressman Oberstar's bill, H.R. 1310, alleges that Voyageurs has become a
"single use" or "single purpose" park, alluding that
wilderness has been preserved at the expense of park users. In defense of his
bill, Congressman Oberstar asserts that H.R.-1310 returns the park to its
original purpose. Nothing could be further from the truth.
On its face, H.R.-1310 looks like a compromise bill —an attempt to reconcile
differences between interests who favor deauthorization and those who wish to
preserve Voyageurs as one of America's premier wilderness parks. In truth,
however, H.R.-1310 would maintain Voyageurs as a national park in name only. If
passed, the bill would open the door for the management of all our national
parks to the exclusive benefit of motorized recreational interests, at the
expense of resource integrity and visitor enjoyment.
The Oberstar bill actually precludes the original primary purpose of the
Voyageurs legislation, wilderness identification and protection.
There has been some controversy over the original purpose of Voyageurs
National Park. Congressman Oberstar's bill is based on the foundation that the
park's original purpose dictates a higher level of motorized use than that
currently offered by the National Park Service. Congressman Oberstar made a
reference to this during the August 18, 1995 field hearing in International
Falls when he described the mandate for the wilderness study of Voyageurs
National Park as an afterthought, a legislative addition that was included as a
routine piece of legislative language common during the early 1970s that was
relatively meaningless.
As mentioned previously in this statement, the legislative history of
Voyageurs shows the wilderness study and recommendation provision was anything
but routine. It was the overriding principle for park establishment, taking
precedence over motorized recreation. In fact, H.R.-1310 directly contradicts
the wilderness study mandate in the original Voyageurs bill and the Secretary's
discretionary authority to permit or deny motorized access to certain areas in
keeping with resource preservation.
H.R.-1310 undermines national park management standards. Derogation of national
park management standards at Voyageurs National Park diminishes the integrity of
the entire National Park System. For example, H.R.-1310 requires the National
Park Service to grant access to 200 houseboats within the park, regardless of
impacts and typical "carrying capacity" principles which would allow
the Park Service to make these determinations independently of some arbitrary
congressionally-imposed quota.
The bill also authorizes expanded access to snowmobiles, notwithstanding any
provision of law, including the Endangered Species Act. Snowmobilers already
have open access to more than 78,000 acres of frozen lake surfaces and 120 miles
of overland trails within the park —almost twice as much as any other national
park. Passage of H.R.-1310 could open up more than 90 percent of the park to
snowmobiles. Increased emissions of ozone, nitrous oxides, unburned
hydrocarbons, and carbon monoxide, as well as increased noise, will disturb park
visitors and wildlife alike. In view of the extremely disruptive nature of
snowmobiles, current National Park System-wide regulations allow snowmobiles
only when their use is consistent with the park's natural, cultural, scenic and
aesthetic values and will not disturb wildlife or damage park resources.
It is impossible to believe that a bill that repeals the original mandate for
wilderness study, invalidating the completed study, in favor of increased
motorized access in any way brings the management of Voyageurs National Park
closer to its original intent or purpose.
- Continued National Park Service management of Voyageurs National Park
ensures that all citizens have a stake in its continued management as a
national park consistent with high national park standards.
Alternative management proposals for Voyageurs National Park focus on greater
local control of park resources and park management, including an emphasis on
providing significantly greater levels of motorized use. The argument set forth
is based on the premise that regulations on activities within the park directly
affect local citizens, and that for this reason local public opinion is the
yardstick by which park resource management should be measured.
Because Voyageurs National Park has been awarded national park status, it has
been determined to be a nationally significant resource that belongs to all
American citizens. All citizens have a vested interest in the park and
the way it is managed, and a small, vocal, localized constituency should not
control or dictate management standards to override the park's national
constituency. The long-term goal of resource preservation should not be
sacrificed to satisfy the selfish short-term interests of a few at the expense
of the many who wish to enjoy Voyageurs' pristine character and to preserve this
magnificent resource for those generations to come.
The position taken by some local citizens in the vicinity of the park is that
Voyageurs has not fully realized its economic potential, and that greater local
control —resulting in more motorized use— will yield greater economic
benefits for local communities. This position presents several problems. First,
national parks are not established as economic development tools. Their inherent
value springs from something more intangible, the preservation of our nation's
natural and cultural heritage which has been deemed to be of value for its own
sake rather than strictly on monetary terms. Second, national parks often bring
the added benefit of economic gain to private interests in the parks and gateway
communities. Voyageurs National Park is no exception. According to the
Environmental Impact Statement for the park's Wilderness Study, Voyageurs
produces $20 million in revenues for the local economy in return for an annual
budgetary investment of $2.3 million.
Some within the local citizenry propose that greater local control over park
decision-making, combined with greater motorized use, will bring in additional
park users and therefore more money to the local economy. This argument is
without merit. State Department Tourism data from a 1994 study of Minnesota
vacationers revealed that natural scenery and state and national parks ranked
much higher on a list of tourist attractions than motorized uses such as boating
and fishing.
In addition, a recent independent public opinion survey of Minnesota citizens
revealed that over half of those polled would be less likely, not more likely,
to visit the park if motorized use within the park is increased. Basic economic
principles would indicate that a more diverse tourism base will cater to a
broader park constituency and bring in more tourists and park users. By
shrinking this base and deleting wilderness from the tourism equation, local
businesses will likely see a decrease in business. Wilderness can be both a
natural and an economic resource. However, derogation of wilderness as a natural
resource will inevitably lead to declining economic values.
The perceived unrealized economic potential may be at least partially attributed
to a lack of wise tourism promotion of the park. In 1983, the National Park
Service implemented a tourism opportunities analysis with the participation of
local tourism entities to devise a plan to expand and diversify tourism
opportunities related to Voyageurs National Park. Apparently, these
recommendations have never been implemented. In contrast, the Gunflint Trail
Association has created a virtual tourism boom in the nearby Boundary Waters
Canoe Area Wilderness by catering to a broad spectrum of constituencies and
interests for area visitors. The Gunflint Trail Association's model could serve
as an example of successful tourism promotion of wilderness areas.
Under some of the alternative proposals put forth by local groups, the visitor
experience will likely deteriorate along with resource management principles.
Under the guise of cost savings, a proposal submitted by the Greater Northland
Coalition would produce its largest budgetary cut in the area of resource
management —a cut of 63 percent. Significant cuts would also be made in
interpretation. Although the Coalition claims its stewardship ethic is as strong
as the National Park Service, it is clear that its agenda does not promote
strong resource management. It is also unlikely that local control will result
in greater management efficiency. Not only is it hypocritical for locals to take
federal money for managing a national resource, but it is unlikely they will be
able to do more with less. The National Park Service has been holding the line
for years with dwindling budgets, but this has been no easy task.
Finally, there are the issues of legacy and stewardship. Although competing
values seem to be pulling the National Park System in the opposite directions of
preservation and recreational use, the question is one of values and
responsibility to others.
The National Park System has been called the greatest idea America ever had.
It is our contribution to the world community and to future generations of
Americans to whom we owe the responsibility of protecting these important pieces
of our national heritage. The strength of our stewardship ethic is being tested
by those who do not recognize the long-term value of these resources, but rather
seek short-term benefits without the foresight and long-range planning necessary
to guarantee their longevity. We should not forget these guiding principles when
we look to the future of Voyageurs National Park and the National Park System as
a whole.
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* Heartland Regional Office
P. O. Box 25354, Woodbury, MN 55125-0354
Tel: (612) 735-8008; Fax: (612) 735-8008
National Office
1776 Mass. Ave., N.W., Washington, D.C. 20036
Tel: (202) 223-6722; Fax: (202) 659-0650
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