National Park System: What Do the Different Park Titles Signify?
Congressional research reportNov 15, 2023
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National Park System:
What Do the Different Park Titles Signify?
Updated November 15, 2023
Congressional Research Service
https://crsreports.congress.gov
R41816
National Park System: What Do the Different Park Titles Signify?
Summary
Congress names individual units of the National Park System in the enabling legislation for each
unit. In so doing, Congress establishes the range of titles used in the park system. The system’s
425 units currently bear a wide range of titles—national park, national monument, national
preserve, national historic site, national recreation area, national battlefield, and many others.
This report addresses the significance of the different designations and discusses potential
advantages and disadvantages of systemwide recommendations to simplify park nomenclature.
Legislators are concerned with park titles in several ways. First, Congress must determine
appropriate designations for individual units when parks are established. Although the laws,
regulations, and policies governing the National Park System generally apply to all units
regardless of title, some meaningful differences nonetheless exist among the designations.
Congress has grouped similar units under similar titles and has authorized resource-intensive
activities, such as sport hunting or off-road vehicle use, in some types of units more than in
others. For instance, legislators generally have not permitted such activities in national parks but
have authorized them in national preserves, national recreation areas, and national seashores and
lakeshores, among other areas. A few unit titles are further associated with specific statutory
authorities that govern their creation or development. National monuments, for example, can be
proclaimed by the President under the Antiquities Act of 1906 (whereas other types of units
cannot). National scenic trails and wild and scenic rivers are subject to requirements of the
National Trails System Act of 1968 (P.L. 90-543) and the Wild and Scenic Rivers Act of 1968
(P.L. 90-542), respectively, as well as general park authorities.
In addition to naming units when they are established, Congress considers proposals to retitle
existing park units. For example, in the 117th Congress, P.L. 117-328 redesignated the Pullman
National Monument as a national historical park. In the 118th Congress, H.R. 1479 and S. 736
would redesignate the Chiricahua National Monument as a national park, H.R. 1647 and S. 961
would redesignate Salem Maritime National Historic Site as a national historical park, and
H.J.Res. 76 and S.J.Res. 35 would redesignate the Arlington House Robert E. Lee Memorial as a
national historic site. Among other things, such proposals may aim to increase visitation at a
given unit and thus to boost local and regional economies. In particular, some studies have
suggested that the “national park” title may attract visitors and bring economic benefits. Those
opposing redesignations may be concerned that unwanted restrictions would be pursued along
with a change in title.
Some observers have suggested that the current wide array of park titles should be consolidated.
The National Parks Second Century Commission, and the National Park Service (NPS) itself,
have recommended reducing the number of park titles to better “brand” the units and make them
more recognizable as part of the park system. Such branding could potentially bring more visitors
to under-recognized units and thus help businesses in surrounding communities. Some also
contend that, by drawing visitors to lesser-known parks, such a strategy could help reduce
overcrowding at better-known parks. On the other hand, the current, more loosely structured
system maximizes Congress’s flexibility to title units to reflect their unique features.
Congressional Research Service
National Park System: What Do the Different Park Titles Signify?
Contents
What Are the Park Titles? ................................................................................................................ 1
What Do the Titles Mean? ............................................................................................................... 3
Type and Size of Resource ........................................................................................................ 3
A Part of the National Park System? ......................................................................................... 4
Authority to Establish the Unit ................................................................................................. 5
Permitted and Prohibited Uses .................................................................................................. 6
Management Arrangements ...................................................................................................... 7
Relation to Other Land Management Systems .......................................................................... 7
How and Why Are Park Titles Changed? ........................................................................................ 8
Why Change a Park Title?......................................................................................................... 8
Concerns in Changing Park Titles ........................................................................................... 10
Are Multiple Park Titles Necessary? ..............................................................................................11
Tables
Table 1. Selected Titles Within and Outside the National Park System .......................................... 4
Contacts
Author Information........................................................................................................................ 12
Congressional Research Service
National Park System: What Do the Different Park Titles Signify?
T
he 425 units of the National Park System bear a wide range of titles—national park,
national monument, national preserve, national historic site, national recreation area, and
national battlefield, among many others. What is indicated by these different titles? Are the
units managed differently under different designations? Do some types of units receive
more protection with respect to use or development? This report addresses questions that
legislators have asked about park unit titles, when considering proposals to establish new park
units, redesignate existing units, or change provisions governing a unit.1 It also discusses potential
advantages and disadvantages of systemwide recommendations to simplify park nomenclature.
There are no definitive criteria for naming a park unit. Bills to designate new units of the National
Park System, or to rename existing units, may specify any title, even one not previously used in
the park system. The statutory authorities and management policies of the National Park Service
(NPS) generally apply to all park system units, regardless of title.2 Also regardless of title,
Congress may specify exceptions to NPS laws, regulations, and policies in a given unit—for
example, Congress may authorize hunting or mining, generally prohibited in the National Park
System, in a particular unit.
While few statutory distinctions exist among the designations, their differences can nonetheless
be meaningful. In practice, Congress has grouped similar units under similar titles, and often has
followed precedents regarding the activities authorized in particular types of units. The
designations thus have developed distinctive characteristics. In addition, a park’s title can
influence public perceptions of the park. Changes in designation may affect visitation patterns,
which may have local and regional economic repercussions. Finally, a few designations indicate
that units, in addition to being in the National Park System, also are part of other legislatively
established systems that confer their own protections.
What Are the Park Titles?
The units of the National Park System vary widely in their physical features and the purposes for
which they were designated. These differences are reflected in the titles Congress has bestowed
when creating units. More than 20 different designations have been used.
•
•
National parks. The 63 national parks contain some of the country’s best-known
natural attractions. They typically are large, diverse areas with outstanding
natural features and ecological resources. They tend to be among the most strictly
protected park units, in that Congress has historically been reluctant to authorize
consumptive activities such as mining or hunting in the national parks.
National monuments. National monuments may be established by Congress or
proclaimed by the President under the Antiquities Act of 1906.3 Many of the park
system’s 84 national monuments contain historical or archaeological artifacts, but
others are notable for their natural features or recreational opportunities.
1 For information on the process for establishing new park units, see CRS Report RS20158, National Park System:
Establishing New Units, by Laura B. Comay.
2 See National Park Service, Management Policies 2006, p. 2, as well as Introduction, Section 1.4.3.1, and Section 2.2,
at http://www.nps.gov/policy/mp2006.pdf. Also see National Park Service Act of 1916 (16 U.S.C. §1) and National
Park Service General Authorities Act of 1970 (16 U.S.C. §1a-1), which reinforced that all park units have equal legal
standing in terms of resource protection and are part of a single, unified system.
3 54 U.S.C. §§320301-320303. For more information, see CRS Report R41330, National Monuments and the
Antiquities Act, by Carol Hardy Vincent. Agencies other than the Park Service, including the U.S. Forest Service, the
Bureau of Land Management, and the Fish and Wildlife Service, also administer national monuments.
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•
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National preserves. The 19 national preserves are similar to national parks in
their size and natural features but typically allow uses (such as hunting or oil and
gas exploration) that Congress considered incompatible with national park
designation. Many preserves adjoin and share a name with a national park (e.g.,
Denali National Park and Preserve).
National reserves. The two national reserves are similar to national preserves
except that both are managed in partnership with state, local, or private entities.4
National recreation areas. NPS manages 18 national recreation areas.5 This
designation originally was given to areas that surround Bureau of Reclamation
reservoirs and feature water-based recreation; it has since been used for
recreational units in or near urban centers. Activities such as boating, fishing, or
hunting may be explicitly authorized in establishing legislation.
National lakeshores and national seashores. The 10 national seashores are on
the Atlantic, Gulf, and Pacific coasts, and the 3 national lakeshores are on the
Great Lakes. Both recreation and natural resource preservation are prioritized in
these units. A number of national seashores and lakeshores permit hunting.
National rivers and wild and scenic rivers. Under the Wild and Scenic Rivers
(WSR) Act of 1968, Congress has preserved rivers in a free-flowing state
(unaltered by dams or channels).6 The National Park Service manages 10 wild
and scenic rivers as stand-alone park units, and others as parts of broader units.
Also, four national rivers or riverways were designated outside the WSR Act.
The rivers offer hiking, canoeing, and other outdoor activities (sometimes
including hunting).
National trails. Congress has established national trails under the National Trails
System Act of 1968.7 NPS manages three national trails as full park units; all are
designated as “national scenic trails” and wind through multiple states. The trails
are managed for recreational use, primarily hiking. Other national scenic and
historic trails are managed by NPS as parts of other units.
National parkways. The four national parkways encompass roads and
surrounding parkland. Sites of cultural interest lie along their routes. The
parkways were designed for recreational driving through scenic countryside,
although the George Washington Memorial Parkway in Virginia has become a
heavily used commuter route.
National and international historic sites. The 74 national historic sites and
1 international historic site designate places significant to U.S. history.8 Many are
structures of historical interest, such as the homes of notable Americans, or
buildings where important events occurred.
4 National Park Service, The National Parks: Index 2012-2016 (Washington, DC, 2016), p. 9, at https://www.nps.gov/
aboutus/upload/NPIndex2012-2016.pdf; hereinafter referred to as NPS, Index 2012-2016.
5 The U.S. Forest Service also administers many national recreation areas. For more information, see CRS Report
R41285, Congressionally Designated Special Management Areas in the National Forest System, by Katie Hoover.
6 P.L. 90-542. For more information, see CRS Report R45890, Wild and Scenic Rivers: Designation, Management, and
Funding, by Anne A. Riddle.
7 P.L. 90-543. For more information, see CRS Report R43868, The National Trails System: A Brief Overview, by Mark
K. DeSantis.
8 The international historic site is St. Croix Island, site of an early French settlement on the Canadian border. NPS
manages the unit in cooperation with Parks Canada, and parts of the park lie on both sides of the border.
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•
•
•
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National historical parks. Like historic sites, the 63 national historical parks are
notable for their connection with events or people of historical interest. These
entities usually extend beyond a single building or property.
National battlefields, national battlefield sites, national battlefield parks, and
national military parks. The 11 national battlefields, 1 national battlefield site,
4 national battlefield parks, and 9 national military parks all designate locations
of significant military actions. They include landscapes where battles occurred
(primarily during the American Revolution and the Civil War) and military and
civil structures in those areas.
National memorials. National memorials need not be located at historically
significant sites. Instead, many of the 31 national memorials, such as the
Washington Monument or the Thomas Jefferson Memorial in Washington, DC,
are structures erected to commemorate people or events.
Other designations. The National Park Service administers a number of areas in
the Washington, DC, region that do not fit into the above classifications. The
Park Service classifies these 11 units as having “other designations” than the
standard types, and they bear a variety of names.9
What Do the Titles Mean?
For the most part, the different park titles signify different types of resources and attractions: a
visitor expects to find historic buildings at a national historic site, natural attractions at a national
park, and recreational opportunities at a national recreation area. In some cases, the title also may
signal information about who established the unit (Congress or the President), who manages it,
and what activities Congress has permitted or prohibited in the unit. Within each designation, the
characteristics of units may vary considerably, complicating a clear meaning for any designation.
Type and Size of Resource
Most designations give a sense of the type of attraction to be found in the park unit, whether
primarily natural (e.g., national parks or preserves), historical (e.g., national historic sites or
historical parks), military (e.g., national battlefields or battlefield parks), or recreational (e.g.,
national recreation areas). However, these distinctions are not absolute; units set aside primarily
for one type of attraction may also contain other types. Many national parks, for example, are
notable for their historical and cultural artifacts and recreational opportunities as well as for their
natural features.
The National Park Service has recognized this mix of resources in park units. At one point in its
history, the Park Service had separate management tracks for primarily “natural” areas, primarily
“recreational” areas, and primarily “historical” areas. These were abolished in favor of an
integrated approach that focuses on all park resources, regardless of a park’s title or the way in
which it became part of the National Park System.10
9 NPS, National Park System, at https://www.nps.gov/aboutus/national-park-system.htm. The 11 areas are Constitution
Gardens, the National Capital Parks, the National Mall, Rock Creek Park, and the White House, all in the District of
Columbia; Catoctin Mountain Park, Fort Washington Park, Greenbelt Park, and Piscataway Park in Maryland; and
Prince William Forest Park and Wolf Trap National Park for the Performing Arts in Virginia.
10 The system of three separate management tracks was in use during the 1960s. It was abolished after passage of the
General Authorities Act of 1970, which emphasized the uniformity of the park system. See Richard West Sellars,
(continued...)
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Some of the finer title distinctions may signal differences in the size of otherwise similar park
units. For example, a national historical park generally is larger than a national historic site. The
single national battlefield site is smaller than most national battlefields,11 whereas the four
national battlefield parks are larger. However, these size distinctions are far from absolute.
Several national historical parks, for example, are less than 10 acres in size,12 while a few national
historic sites are unusually large, exceeding the size of many national historical parks.13 Similarly,
while the “national park” designation usually has been used for large natural areas, Gateway Arch
National Park—a former national memorial redesignated by an act of Congress in 2018—is
smaller than many national historical parks and some national historic sites.14
A Part of the National Park System?
NPS’s main responsibility is to administer the 425 units of the National Park System, but it also
manages or assists other areas outside the system (often nonfederally owned) that are “linked in
importance and purpose” to the National Park System.15 In most cases, an area’s title indicates
whether it is part of the National Park System or one of these “related areas.” In other cases, it
may not be possible to tell from the title whether the area is in the park system, because the title
applies to both park system units and related areas. Separately, some NPS designations also are
used for sites managed by other federal agencies, such as the Forest Service or the Bureau of
Land Management. Table 1 lists selected park titles and indicates whether they refer to units of
the National Park System and/or other areas.
Table 1. Selected Titles Within and Outside the National Park System
Are sites with this
title ...
... units of the
National Park System?
National Battlefield
x
National Battlefield Park
x
National Battlefield Site
x
National Heritage Areaa
... NPS related areas?
... managed by federal
agencies other than NPS?
x
National Historic Site
x
National Historical Park
x
National Lakeshore
x
x
xb
Preserving Nature in the National Parks: A History (New Haven, CT: Yale University Press, 1997), Chapter 6,
subsection on “Policies: New and Old,” at https://www.nps.gov/parkhistory/online_books/sellars/chap6.htm; and
National Park Service, “Resource Topics for Parklands: Parks Etc.” (brochure, undated). For the current policy, see
National Park Service, Management Policies 2006, p. 2, at https://www.nps.gov/subjects/policy/upload/MP_2006.pdf.
11 Mississippi’s Brices Cross Roads National Battlefield Site contains only one building.
12 For example, Louisiana’s New Orleans Jazz National Historical Park occupies 5 acres, and New York’s Women’s
Rights National Historical Park occupies 7 acres.
13 Examples include Montana’s Grant-Kohrs Ranch National Historic Site (1,618 acres), North Dakota’s Knife River
Indian Villages National Historic Site (1,751 acres), and Colorado’s Sand Creek Massacre National Historic Site
(12,583 acres).
14 P.L. 115-128 redesignated the 193-acre Jefferson National Expansion Memorial as Gateway Arch National Park.
15 For more information on NPS’s involvement in areas outside the National Park System, see CRS In Focus IF11281,
National Park Service Affiliated Areas: An Overview, by Mark K. DeSantis; and CRS Report RL33462, National
Heritage Areas: Background and Issues for Congress, by Mark K. DeSantis.
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Are sites with this
title ...
... units of the
National Park System?
... NPS related areas?
... managed by federal
agencies other than NPS?
National Memorial
x
x
xc
National Military Park
x
National Monumentd
x
National Park
x
National Parkway
x
National Preserve
xe
National Recreation Area
x
National Reserve
x
National River
x
National Seashore
x
National Trailh
x
x
x
National Wild and Scenic
Riveri
x
x
x
x
xf
xg
Source: CRS. For more information on these and other federal land designations, see CRS Report R45340,
Federal Land Designations: A Brief Guide, coordinated by Laura B. Comay.
a. For more on national heritage areas, see CRS Report RL33462, National Heritage Areas: Background and
Issues for Congress, by Mark K. DeSantis.
b. Grey Towers National Historic Site in Pennsylvania is administered by the U.S. Forest Service as part of the
National Forest System.
c. For discussion of national memorials administered by various federal agencies, see CRS Report R45741,
Memorials and Commemorative Works Outside Washington, DC: Background, Federal Role, and Options for
Congress, by Jacob R. Straus and Laura B. Comay.
d. For discussion of national monuments administered by various federal agencies, see CRS Report R41330,
National Monuments and the Antiquities Act, by Carol Hardy Vincent.
e. Valles Caldera National Preserve in New Mexico was formerly administered by the U.S. Forest Service but
was established as a unit of the National Park System, under NPS management, by P.L. 113-291.
f.
For discussion of national recreation areas managed by the U.S. Forest Service, see CRS Report R41285,
Congressionally Designated Special Management Areas in the National Forest System, by Katie Hoover.
g. The Pinelands National Reserve in New Jersey is a nonfederally managed NPS “affiliated area.”
h. For discussion of national trails, see CRS Report R43868, The National Trails System: A Brief Overview, by
Mark K. DeSantis
i.
For discussion of wild and scenic rivers, see CRS Report R45890, Wild and Scenic Rivers: Designation,
Management, and Funding, by Anne A. Riddle.
Authority to Establish the Unit
Today, only one type of National Park System unit may be established by an entity other than
Congress. National monuments may be proclaimed on federal lands by the President, under the
Antiquities Act of 1906, as well as by Congress.16 Some other types of park units were
16 16 U.S.C. §§431-433. For more information on presidentially proclaimed monuments, see CRS Report R41330,
National Monuments and the Antiquities Act, by Carol Hardy Vincent. Some presidentially proclaimed monuments are
(continued...)
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established in the past by entities other than Congress or the President. The Secretary of the
Interior designated some national historic sites under authority of the Historic Sites Act of 1935.17
This authority was limited in 1992 by an amendment to the act stipulating that Congress must
authorize the appropriation of any funds used to carry out secretarial designations. Also in the
past, some units were administratively transferred to NPS from other agencies. For example,
some national recreation areas were originally established through interagency agreements with
the Bureau of Reclamation.18
Permitted and Prohibited Uses
National Park System units are among the most strictly protected federal lands, as compared to
those administered by other agencies such as the Bureau of Land Management or the Forest
Service. Under laws applying to all National Park System units, park administrators must manage
activities in the parks to avoid derogation or impairment of park resources. Thus, activities that
may consume or damage resources—including hunting, grazing, mining, logging, and off-road
vehicle use, among others—generally are limited or prohibited.19 However, Congress may
authorize a desired activity at a specific unit, typically by including provisions in the unit’s
enabling legislation to permit the activity.20
Although Congress may authorize specific land uses in any type of park unit, in practice,
activities that might damage or consume resources (sometimes called “consumptive” activities)
are more often permitted in some types of units than in others. In particular, Congress has tended
against allowing consumptive uses in national parks. For example, Congress has not authorized
sport hunting in any national park, whereas this activity is authorized in some other types of units,
including some national recreation areas, national preserves, national rivers, national monuments,
and national seashores and lakeshores.21 Similarly, off-road vehicle use typically is not permitted
in national parks, although it may be allowed in national recreation areas, national seashores and
lakeshores, and national preserves.22
administered by agencies other than NPS. In some cases, Congress has affirmed presidential monument protections by
reestablishing monuments in legislation as national parks or other types of NPS units. Among other examples, Grand
Canyon National Park, Olympic National Park, and Joshua Tree National Park all initially were presidentially
proclaimed monuments.
17 54 U.S.C. Chapter 3201.
18 P.L. 79-633 of 1946 provided general authority for NPS to manage national recreation areas added to the system
through cooperative agreements with other agencies.
19 Various laws, regulations, executive orders, departmental directives, and management policies govern specific
activities within the parks. The Park Service’s Management Policies 2006, Chapter 8, at http://www.nps.gov/policy/
mp2006.pdf, allow hunting and trapping only when specifically authorized or mandated by law (§8.2.2.6). Fishing is
allowed if not specifically prohibited by law and if determined by NPS to be “appropriate” (§8.2.2.5). Agricultural
grazing is allowed when authorized by law or under certain other conditions, such as when it is necessary to maintain
“an historic scene” (§8.6.8.2). Mineral exploration is allowed for operators that hold rights to valid mining claims,
federal mineral leases, or nonfederally owned minerals, but new mining claims are typically prohibited (§8.7).
Commercial logging, a resource use on some other federal lands, is not permitted in the National Park System and is
not specifically covered in the Management Policies.
20 Such provisions might apply to all park visitors or might be restricted to parties who were using the land prior to its
addition to the park system. For example, those with existing grazing or mining leases might be accommodated, while
any new activity might be prohibited.
21 Although sport hunting is not authorized in any national parks, some national parks (in Alaska) allow subsistence
hunting by local residents. Also, where animal overpopulation is a problem, a controlled hunt may be authorized.
22 National Park Service regulations, at 36 C.F.R. §4.10(b), limit off-road vehicle use to these four types of park units.
For more information, see CRS Report R42955, Motorized Recreation on National Park Service Lands, by Laura B.
Comay, Carol Hardy Vincent, and Kristina Alexander.
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Congress has been especially open to consumptive uses in certain types of park units. The main
example is the national preserves. Many of the preserves adjoin national parks and might have
been incorporated in the parks were it not for interest in activities such as hunting, trapping, and
oil and gas exploration on the land. Congress has accommodated such activities in the enabling
legislation for national preserves, in distinction from the more restrictive national parks. Some
park types also explicitly encourage general recreational development and use, as seen in the
enabling statutes for national recreation areas, national seashores, and national lakeshores.23
Management Arrangements
Traditionally, units of the National Park System are managed solely by NPS, but Congress also
has legislated partnership management arrangements with both federal and nonfederal land
managers in some units.24 Although partnership management spans multiple unit types, NPS has
noted that one type of park, the national reserve, is specifically associated with management
partnerships with state, local, and/or private entities.25 At some national recreation areas and
national seashores, NPS manages units in cooperation with federal agency partners.26
Relation to Other Land Management Systems
All NPS units are part of the National Park System, but a few types of units also belong to other
land management systems with their own requirements and protections. Units titled “wild and
scenic rivers” are established under the Wild and Scenic Rivers Act of 1968, which preserves
free-flowing rivers in their natural state (i.e., without new dams or diversions).27 Depending on
how the river is classified—as wild, scenic, or recreational—the act restricts development and
protects water rights on the river to a greater or lesser degree. Not all wild and scenic rivers are
assigned to NPS, and of those that are, only three constitute full park units; others are contained
within larger park units and managed as part of those units.28
The three park system units titled “national scenic trails” were established under the National
Trails System Act of 1968.29 This law provides for four categories of trails: scenic trails, historic
23 For example, the statute for Lake Mead National Recreation Area (P.L. 88-639, §§4 and 5) states that the unit “shall
be administered by the Secretary of the Interior for general purposes of public recreation, benefit, and use, and in a
manner that will preserve, develop, and enhance, so far as practicable, the recreation potential.” In addition to “general
recreation use, such as bathing, boating, camping, and picnicking,” the legislation specifically authorizes hunting,
fishing, trapping, grazing, mineral leasing, and use of vacation cabins. Also see, for example, provisions for Canaveral
National Seashore (16 U.S.C. §459j-3), Assateague Island National Seashore (16 U.S.C. §459f-4), Cape Lookout
National Seashore (16 U.S.C. §459g-3), and Apostle Islands National Lakeshore (16 U.S.C. §460w-4).
24 For more information, see CRS Report R42125, National Park System: Units Managed Through Partnerships, by
Laura B. Comay.
25 Ibid., and NPS, Index 2012-2016, p. 9. There are only two national reserves in the park system (City of Rocks
National Reserve in Idaho and Ebey’s Landing National Historical Reserve in Washington).
26 Lake Mead, Curecanti, and Lake Meredith National Recreation Areas, among others, are co-managed with the
Bureau of Reclamation. Assateague Island and Cape Hatteras National Seashores encompass national wildlife refuges
managed by the Fish and Wildlife Service.
27 P.L. 90-542; 16 U.S.C. §§1271 et seq. For more information on the National Wild and Scenic Rivers System, see
CRS Report R45890, Wild and Scenic Rivers: Designation, Management, and Funding, by Anne A. Riddle; and CRS
Report R46369, Section 7 of the Wild and Scenic Rivers Act: In Brief, by Anne A. Riddle.
28 The Bureau of Land Management, Forest Service, and Fish and Wildlife Service also manage wild and scenic rivers.
Additionally, the act allows rivers to be nominated by state governors and approved by the Secretary of the Interior;
these rivers are managed by the states.
29 P.L. 90-543; 16 U.S.C. §§1241 et seq. For more information on the National Trails System, see CRS Report R43868,
The National Trails System: A Brief Overview, by Mark K. DeSantis.
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trails, recreational trails, and connecting or side trails. Depending on the type of trail, certain
activities may be prohibited (e.g., use of motorized vehicles) or encouraged (e.g., trail
development for hiking, biking, horseback riding, or cross-country skiing). As with wild and
scenic rivers, trails designated under the act are not necessarily managed by NPS.30 NPS manages
three trails as full park units, and manages other trails within broader units or as “related areas.”
Finally, in some park units, special protections to restrict development are provided by wilderness
designation.31 Federal lands designated as wilderness areas under the 1964 Wilderness Act
generally prohibit commercial activities, roads and motorized access, and structures and facilities.
Congress can designate wilderness in any type of park unit, as well as on federal lands outside the
park system. A high number of national parks contain wilderness areas, but not all do, and other
types of park units—including some national monuments, national preserves, and national
seashores—also have designated wilderness areas.
How and Why Are Park Titles Changed?
A change to the title of a park unit requires an act of Congress. Bills to change unit
designations—for example, to redesignate a national monument as a national park—are common.
In the 118th Congress, H.R. 1479 and S. 736 would redesignate the Chiricahua National
Monument as a national park, H.R. 1647 and S. 961 would redesignate Salem Maritime National
Historic Site as a national historical park, and H.J.Res. 76 and S.J.Res. 35 would redesignate the
Arlington House Robert E. Lee Memorial as a national historic site. In the 117th Congress, P.L.
117-328 redesignated the Pullman National Monument as a national historical park. Laws enacted
in the 116th Congress (P.L. 116-6, P.L. 116-9, P.L. 116-260, P.L. 116-328, P.L. 116-341)
redesignated several units as national historical parks, one unit as a national historic site, one unit
as a national park, and one unit as a national park and preserve. Previous Congresses have made
similar title changes to other units.
Why Change a Park Title?
In many cases, the motivation to redesignate a unit under a new title may be economic. This is
especially the case with measures to adopt the title “national park” for units that have previously
borne other titles. Many of the country’s best-known natural attractions lie in national parks, and
visitors planning travel itineraries often target the national parks over other units of the park
system. Members of Congress and other stakeholders may seek to retitle a unit as a national park
to draw more visitors to the site and to give surrounding communities a financial boost.
For example, when P.L. 116-260 redesignated the former New River Gorge National River as the
New River Gorge National Park and Preserve, congressional supporters stated, “This National
Park and Preserve designation will bring in visitors from across the country to experience the
beauty and rich history of the New River Gorge, while also contributing to local economies.”32
Concerning P.L. 112-245, which redesignated the former Pinnacles National Monument as a
national park, a supporting Senator stated, “Now we will attract even more Americans and
30 Other trails are administered by the Forest Service or the Bureau of Land Management, depending, in part, on which
agencies’ lands are traversed by the trails.
31 Wilderness Act, P.L. 88-577, 16 U.S.C. §§1131-1136. For more information, see CRS Report RL31447, Wilderness:
Overview, Management, and Statistics, by Anne A. Riddle and Katie Hoover.
32 Senators Shelley Moore Capito and Joe Manchin, “Capito, Manchin Unveil New Sign at New River Gorge National
Park and Preserve,” press release, May 5, 2021, at https://www.capito.senate.gov/news/press-releases/capito-manchinunveil-new-sign-at_new-river-gorge-national-park-and-preserve.
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visitors from around the world.... This bill will ensure that [the park] gets the recognition it
deserves while also boosting the area’s tourism economy.”33 Stakeholders may hope that the
change will benefit the park itself, as well as the surrounding community. For instance, if a
redesignation drew more visitors to a park that charged an entrance fee under the Federal Lands
Recreation Enhancement Act (FLREA; 16 U.S.C. §§6801-6814), this could provide added
funding to be used directly at the park.34
Evidence is mixed as to the effectiveness of such redesignations as a way of increasing tourism at
a unit and in surrounding communities. On the one hand, NPS visitor statistics show that national
parks indeed receive more visitors on average than most other types of units.35 On the other hand,
units redesignated as national parks have not always shown subsequent increases in visitation.
One in-depth study of eight national monuments that were redesignated as national parks,
conducted in 2005, found that the name change accounted for an additional 13,000 visitors
annually per site, on average, when controlling for other variables.36 (To put an increase of 13,000
visitors in context, visits to these eight national parks ranged between 140,000 and 3.1 million in
2022.) However, gains from a name change did not always make up for losses from other factors,
so overall visitation did not always increase. A 2018 study found “no clear distinct designation
effect such as immediately increased visits after redesignation” but found higher visitation on
average across the system for national parks than for national monuments, as well as higher
overnight visits and spending per visitor. Further, this study found that from 2000 to 2016,
recreation visits to national parks increased while visits to national monuments decreased.37 A
2019 study by the same organization similarly found mixed trends in visitation at individual parks
after redesignations, while also finding that, in NPS’s Intermountain West region, recreation visits
33 Senator Barbara Boxer, “Boxer Praises Passage of Legislation Creating Pinnacles National Park,” press release,
December 30, 2012.
34 Under FLREA, NPS sites retain anywhere from 60% to 100% of revenues at the park site where the revenue was
collected. For more information, see CRS In Focus IF10151, Federal Lands Recreation Enhancement Act: Overview
and Issues, by Carol Hardy Vincent.
35 Analysis of NPS visitor statistics for 2022, the most recent year available (see https://irma.nps.gov/Stats/, report on
“Annual Visitation by Park Type or Region”), shows that national parks received an average of 1.4 million visitors per
unit, whereas most other types of units received fewer visitors, including national monuments (average of 0.3 million
visitors per unit), national memorials (1.3 million), national historical parks (0.5 million), national historic sites (0.1
million), national battlefields (0.2 million), and national military parks (0.5 million), among others. A few types of
units received more average visitors per unit than national parks, including national recreation areas (2.8 million),
national seashores (2.1 million), and national parkways (7.7 million).
36 Stephan Weiler, A Park by Any Other Name: National Park Designation as a Natural Experiment in Signaling,
Federal Reserve Bank of Kansas City, Economic Research Development, RWP 05-09, December 2005, at
https://www.sciencedirect.com/science/article/abs/pii/S0094119006000143. The eight parks examined were Biscayne
National Park (FL), Black Canyon of the Gunnison National Park (CO), Channel Islands National Park (CA), Death
Valley National Park (CA), Great Basin National Park (NV), Great Sand Dunes National Park (CO), Joshua Tree
National Park (CA), and Saguaro National Park (AZ). Also see Sarah A. Cline, Stephan Weiler, and Ayse Aydin, “The
Value of a Name: Estimating the Economic Impact of Public Land Designation,” Social Science Journal 48, 2011, pp.
681-692; and Stephan Weiler and Andrew Seidl, “What’s in a Name? Extracting Econometric Drivers to Assess the
Impact of National Park Designation,” Journal of Regional Science 44 (2), 2004, pp. 245-262.
37 Headwaters Economics, National Monuments Redesignated as National Parks: Insights for White Sands National
Monument, May 2018, p. 27, at https://headwaterseconomics.org/wp-content/uploads/national-monumentsredesignated-national-parks-white-sands.pdf. The study, aimed at assessing the potential economic effects of
redesignating White Sands National Monument as a national park (which later occurred with P.L. 116-92), suggested
that such a redesignation could increase visitor spending, local jobs, and labor income. The study found both increases
and decreases in visitation at national monuments that had been redesignated as national parks, with the variations
likely influenced by other factors (which the study did not control for) in addition to the name change.
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and overnight stays grew since 2000 at a significantly higher rate for national parks than for
national monuments.38
Beyond economic incentives, there may be other reasons for changing park unit designations. For
example, when reestablishing national monuments originally proclaimed by Presidents, Congress
often has used a different title that more clearly signals the type of attraction to be found in the
unit. Former national monuments have become national parks, national preserves, national
historic sites, national historical parks, in one case a national battlefield, and in another a national
scenic trail.
Concerns in Changing Park Titles
Measures to redesignate park units may face several challenges. In the case of attempts to adopt
the “national park” title, supporters may need to make a case that the attractions of the unit are
outstanding enough to warrant the national park label, which has traditionally been reserved for
the “crown jewels” of the National Park System. For instance, the National Park Service at one
point argued against redesignating Pinnacles as a national park, stating that the unit “does not
include the full range of resources usually found in national parks.”39 Similarly, NPS suggested
the Jefferson National Expansion Memorial should be redesignated as Gateway Arch National
Monument rather than Gateway Arch National Park, stating, “We believe that the Jefferson
National Expansion Memorial is too small and limited in the range of resources the site protects
and interprets to be called a national park.”40
Another concern is that measures to rename units could potentially be paired with other, more
controversial proposed changes, such as changes to park boundaries or management policies, or
wilderness designation. A redesignation in itself rarely changes the laws, regulations, and policies
governing a unit’s management.41 However, Congress may choose to change other provisions in
conjunction with a title change. For example, in discussions of the 116th Congress redesignation
of the New River Gorge National River as a national park, some stakeholders reportedly
expressed concerns about provisions in the legislation to change the amount of land available for
hunting in the unit.42 When stakeholders sought a redesignation of Colorado National Monument
38 Headwaters Economics, National Monuments Redesignated as National Parks: Insights for Bandelier National
Monument, March 2019, at https://headwaterseconomics.org/wp-content/uploads/national-monuments-redesignatednational-parks-bandelier.pdf. The study found an average visitation increase of 21% in the five years after
redesignation for eight NPS national monuments redesignated as national parks (Arches National Park, Black Canyon
of the Gunnison National Park, Capitol Reef National Park, Death Valley National Park, Great Sand Dunes National
Park and Preserve, Joshua Tree National Park, Pinnacles National Park, and Saguaro National Park). Despite the
average trend of increase, at three of the units, visits decreased in the five years after redesignation. The study did not
control for other factors that may have contributed to changes in visitation. For comparisons of growth in recreation
visits and overnight stays at Intermountain West national parks versus national monuments, see p. 23 of the study.
39 The Park Service later expressed support for the redesignation. See U.S. Congress, House Committee on Natural
Resources, Subcommittee on National Parks, Forests and Public Lands, hearing on H.R. 3444, 111th Cong., 1st sess.,
November 17, 2009; and U.S. Congress, Senate Committee on Energy and Natural Resources, Subcommittee on
National Parks, hearing on S. 3744, 111th Cong., 2nd sess., September 29, 2010.
40 NPS testimony in U.S. Congress, Senate Committee on Energy and Natural Resources, Subcommittee on National
Parks, legislative hearing, July 19, 2017, S.Hrg. 115-417, at https://www.congress.gov/115/chrg/CHRG-115shrg26868/
CHRG-115shrg26868.pdf. The unit was, however, redesignated as a national park in P.L. 115-128.
41 There are a few exceptions, in which regulations do vary by the type of park unit. For example, under 36 C.F.R.
§1.3(a), a violation in a national park is punishable by fines or imprisonment of not more than six months, while, under
36 C.F.R. §1.3(b), the same violation occurring in a national monument is punishable by fines or imprisonment of not
more than three months. Also see footnote 22.
42 See, for example, “Crowd Mostly Favors Bill to Redesignate New River Gorge,” Greenwire, October 11, 2019, at
(continued...)
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as a national park, concerns were expressed about whether this would bring new limits on road
access for local residents, and whether stricter air quality standards would be applied.43
(Redesignation as a national park would not inherently affect a unit’s classification under Clean
Air Act requirements for the prevention of significant deterioration of air quality, absent other
steps to pursue a new classification.)44 An initiative to redesignate Washington’s Mt. St. Helens
National Volcanic Monument as a national park was opposed by some congressional, state, and
local leaders because the change would transfer administrative responsibilities from the Forest
Service to NPS, with potential implications for management (including policies on hunting).45
Are Multiple Park Titles Necessary?
An issue faced by Congress is whether to continue using the current wide variety of park titles.
The National Parks Second Century Commission expressed concern that the range of park titles is
confusing to visitors, and recommended reducing the number of titles in order to enhance
recognition of the parks.46 In May 2010 testimony before the House Natural Resources
Committee, then-NPS Director Jonathan Jarvis also supported a simplified naming system:
People do not have a problem identifying Yosemite National Park or Yellowstone National
Park as parts of the national park system. But many people would be surprised to learn that the
Appalachian National Scenic Trail, Sleeping Bear Dunes National Lakeshore, and Saint Croix
National Scenic Riverway are also parts of the system. One of the recommendations of the
Second Century Commission that we believe has merit is to substantially reduce the more than
two dozen different park titles currently used for units of the national park system. We feel
strongly that a nomenclature with fewer titles would make the public more aware of the national
park system as a whole.47
Recommendations to consolidate park titles have been discussed along with other tools to
increase park visitation, such as use of the National Park System logo or public awareness
https://subscriber.politicopro.com/article/eenews/2019/10/11/crowd-mostly-favors-bill-to-redesignate-new-river-gorge023519. The unit was redesignated as a national park in P.L. 116-260.
43 For concerns about road access, see Jack Healy, “Disputing Whether a Treasure Needs a Name Upgrade,” New York
Times, June 16, 2012, at http://www.nytimes.com/2012/06/17/us/debating-if-colorado-national-monument-should-be-anational-park.html?_r=0. For concerns about new air quality regulations, see Bobby Magill, “Could a Name Change
Put a Colorado Landmark on the National Radar?” NewWest.Net, November 25, 2010; and Judith Kohler, “Supporters
Tout Colorado Monument as National Park,” Aspen Times, December 12, 2010, at https://www.aspentimes.com/news/
supporters-tout-colorado-monument-as-national-park/#.
44 For more information on Clean Air Act regulations, see CRS In Focus IF10496, Protecting Clean Air in National
Parks and Wilderness Areas, by James E. McCarthy and Laura B. Comay.
45 Barbara LaBoe, “Herrera Beutler won't pursue national park study for Mount St. Helens,” The Daily News (WA),
December 5, 2012, at http://tdn.com/news/local/herrera-beutler-won-t-pursue-national-park-study-for-mount/
article_f83540c8-3f2d-11e2-8e0c-001a4bcf887a.html; Eric Florip, “Herrera Beutler Won't Back National Park Study
for Volcano: She Says Her Constituents Want Forest Service to Maintain Role,” The Columbian (WA), December 5,
2012, at http://www.columbian.com/news/2012/dec/05/herrera-beutler-wont-back-national-park-study-for/.
46 National Parks Second Century Commission, Advancing the National Park Idea, 2009, pp. 14, 43, at
https://www.nps.gov/civic/resources/commission_report.pdf. The Second Century Commission was an independent
commission convened by the National Parks Conservation Association that worked to develop a 21st-century vision for
the National Park System. Some park user groups have also endorsed consolidation of park titles; see, for example,
National Parks Traveler, “What We'd Like to See Across the National Park System in 2010,” at
http://www.nationalparkstraveler.com/2010/01/what-wed-see-across-national-park-system-20105154.
47 Statement of Jonathan B. Jarvis, Director, National Park Service, Department of the Interior, before the
Subcommittee on National Parks, Forests, and Public Lands of the House Natural Resources Committee, May 25,
2010, at http://www.gpo.gov/fdsys/pkg/CHRG-111hhrg56648/pdf/CHRG-111hhrg56648.pdf.
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campaigns.48 In this view, increased recognition of the National Park System “brand” could
potentially boost visitation at under-recognized units, bringing consumers and jobs to surrounding
communities. Correspondingly, some observers have recommended title consolidation—in
particular, using the national park title for more units—as a way to address overcrowding in the
current set of national parks, by drawing visitors away from the best-known national parks toward
newly branded ones.49
On the other hand, it could be argued that a stricter nomenclature might reduce Congress’s
flexibility to choose park names that reflect a unit’s unique features. In certain units, prescribed
designations might not adequately convey to the public the full set of attractions to be found.50 A
few nonstandard names of park units—for example, the White House or the Washington
Monument—are iconic American symbols, and efforts to tailor them to a prescribed set of park
designations could prove unpopular. Moreover, as discussed above, opponents of efforts to
rename individual parks often express concern that unwanted restrictions could accompany title
changes. If, in consolidating park titles systematically, Congress also made new determinations
about what activities could take place in certain types of units, or altered other management
arrangements, these changes could potentially provoke opposition.
Author Information
Laura B. Comay
Specialist in Natural Resources Policy
Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan
shared staff to congressional committees and Members of Congress. It operates solely at the behest of and
under the direction of Congress. Information in a CRS Report should not be relied upon for purposes other
than public understanding of information that has been provided by CRS to Members of Congress in
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copy or otherwise use copyrighted material.
48 See, for example, National Parks Second Century Commission, Future Shape of the National Park System
Committee Report, p. 6; and Advancing the National Park Idea, 2009, p. 14, at https://www.nps.gov/civic/resources/
commission_report.pdf.
49 See, for example, Kyle Paoletta, “Give the People What They Clearly Need: More National Parks,” New York Times,
August 28, 2021, at https://www.nytimes.com/2021/08/28/opinion/national-park-nature.html.
50 For example, the Salt River Bay National Historical Park and Ecological Preserve, located in the Virgin Islands,
conveys in its name both the park’s historical interest (it is the only known site where the Columbus expedition set foot
in what would become U.S. territory) and its natural attractions (including mangrove forests and estuaries).
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