Introduction

This manual describes a diverse array of potential strategies and tactics for managing off-road vehicle (ORV) use in Big Cypress National Preserve. It is designed to serve as a comprehensive reference guide of management practices, intended to assist ORV planning and management decision making both now and in the future. It serves in a supporting role to the ORV Management Plan, which will review ORV legislative and management policies, scientific literature on environmental and social effects or ORV use, and prescribe management alternatives derived from selections of the strategies and tactics presented in this document. This manual does not prescribe or advocate one management practice over another but rather compiles and describes an array of potential practices. The manual provides guidance in identifying and selecting effective and efficient practices with the goal of fostering high-quality ORV recreational experiences while managing that use to avoid or minimize associated environmental effects (e.g. vegetation and soil disturbance) or social effects (e.g. visitor crowding and conflict). Laws passed by the U.S. Congress requires National Park Service managers to both protect park resources and natural processes and to provide for appropriate recreational activities and experiences. Off-road vehicle use in the Preserve must be consistent with resource protection mandates.

This manual is organized into three sections. The first section describes a decision making process recommended to guide the selection of ORV management strategies and tactics. The second section provides an overview of 12 general strategies available for managing ORV use. These strategies are more fully described in the final section which provides descriptions for each of 41 specific ORV management tactics. A standardized table format is used to present information for each tactic, including its purpose, description, costs to ORV visitors, costs to management, effectiveness, and comments. Ratings for the cost and effectiveness topics are often subjective and represent the opinions of the author, as modified through public review and comment of this manual. While the manual is focused on ORV management it is recognized that other Preserve visitors will be affected by many ORV management actions. For example, while a requirement to use only designated routes represents a "cost" to ORV visitors this action might be a "benefit" to non-ORV visitors who can more easily avoid areas where designated routes exist. Costs to the resource, reflected by listings under the "effectiveness" topic, must also be considered in light of agency mandates, policies, and objectives.

The comprehensive nature of this presentation of tactics also limits the inclusion of more detailed information and discussions within individual topics. As described in the following section, prior to the selection and implementation of tactics it is expected that managers and other decision-making participants will more thoroughly describe and discuss the issues or concerns that require action, the relative merits of alternative tactics, and how such tactics might be specifically implemented. This manual provides only a starting point and should be revised periodically to reflect new knowledge from research, management, and visitors.

A Process for Selecting ORV Management Practices

Strategies are broad approaches that address underlying causes of problems (Manning 1979). Tactics are the specific means or actions used to implement a strategy (Cole and others 1987). Generally, a variety of strategies and tactics may be applicable in managing recreational visitation and resolving associated issues or concerns. Selection of preferred approaches must necessarily involve many considerations. Often a set of supporting strategies and tactics will prove most effective. For example, a tactic that promotes concentration of ORV traffic onto a common set of routes also requires communication of the policy to inform riders, selection and marking of resistant routes, and maintenance of the routes to sustain heavy traffic. Consideration of secondary effects (side effects) associated with an action is also essential. Relative to our example, tactics that promote concentration of ORV traffic must also be accompanied by tread maintenance efforts to prevent deep rutting.

The U.S. Congress has delegated responsibility for managing Big Cypress National Preserve and its recreational uses to the National Park Service. However, decision making for selecting the most appropriate and effective ORV management practices should consider, and where appropriate involve, representatives of the public and affected stakeholders. We recommend a six-step process as outlined below. This document provides supporting information for step 2:

1. Review existing resource and social conditions and recreation management needs in light of legal mandates, agency administrative policies, and management objectives to identify issues and concerns requiring action. Clearly describe and communicate these issues to the public. Develop knowledge and understanding of the underlying causes by investigating research findings and/or consulting with scientists, ORV riders, and others with relevant knowledge.

2. Identify and describe all strategies and tactics that are potentially applicable to the issues or concerns. Discuss the pros, cons, and perceived effectiveness of alternative approaches, involving representatives of the public where possible or appropriate.

3. Select one or more preferred strategies and tactics that appears most appropriate. Choose strategies that attack the primary causes of issues and tactics that do not conflict with management objectives, that are realistic given the visitor use, environment, and management situation, and that minimize costs to visitors and avoid or reduce unwanted side effects (Cole, Petersen, and Lucas 1987). Describe the specifics of a proposed implementation process along with a supporting rationale. Communicate proposal to the public requesting their review and comment.

4. Revise proposal based on public comment and prepare action plans to implement specific tactic(s).

5. Implement action plans, working cooperatively with individuals, organized groups, and commercial interests where appropriate.

6. Monitor effectiveness of implemented tactics and modify them as necessary. If the target problem is not adequately resolved, return to step 3 and select a different set of proposed strategies and/or tactics.

This decision process and the format of this manual are adapted from a recreation use management publication by Cole, Petersen, and Lucas (1987).

It is important to emphasize several points associated with this recommended decision process. First, ORV management issues and concerns are defined by considering relevant congressional mandates, administrative policies, and management objectives in a careful review of recreation management needs and resource and social conditions. The responsibility for interpreting laws and agency policies to evaluate non-compliant conditions lies with agency managers. Secondly, numerous strategies and tactics may be potentially applicable or effective in resolving any given issue. Selection of a preferred set of tactics requires consideration of many factors and is most optimal when stakeholders are involved in an open participatory process. Public participation may greatly increase the effectiveness of corrective efforts and may reduce the need for more restrictive tactics and/or long-term costs. Finally, this decision process is cyclical. If the objective of an action is not achieved by the first set of tactics a different set may be implemented. Tactics that are judged to be potentially effective yet entail the least "cost" to visitors (for example, educational approaches) are often selected first. However, if these tactics fail to resolve the issues or concerns then more restrictive tactics (e.g., regulations or reduction of use) become both necessary and justifiable.