Modern Recreation Policy in America

Defining Ideas and Gaining Consensus

Key Milestones in Recreation Polices on Public Lands

• Turn of the century – the 20th Century– New lands systems created, including wildlife

refuges and national forests– Areas set aside assembled into national park

system in 1916

• The Depression: a Boon for the Outdoors

• Direction was largely through the Executive Branch

Demand Surged Post WW II

• And Congressional interest followed

• Key action in the late 1950’s, led by Congressional leader like Scoop Jackson and national figures like Laurance Rockefeller – Outdoor Recreation Resources Review Commission

• 8 of 15 commissioners were Congressionals

Bipartisan From the Start

• Created by a Democratic Congress, appointed and staffed by a Republican Administration (Eisenhower)

• Congressional delegation divided by party, actively engaged

• Extensive effort to think systems and forecast demand – first ever national survey of recreation participation

Recommendations Offered to New Administration

• Work continued during transition from Eisenhower to Kennedy Administrations

• Recommendations presented in 1962, in a report authored by Henry Diamond – loaned to the commission by Nelson and Laurance Rockefeller

• The strategy to promote recommendations was carefully crafted – from pre-release meetings with Stuart Udall to creation of CCORRR and help in unifying groups into NRPA

ORRRC Legacy

• New federal structures: Bureau of Outdoor Recreation within Interior; a White House-level National Recreation Council; a periodic National Outdoor Recreation Plan

• A major new funding strategy: the Land and Water Conservation Fund, adding new federal lands and assisting states

Land and Water Conservation Fund

• Initially funded by fees and surplus property sales, soon shifted to OCS royalties and payments

• Reached nearly $1 billion annually in 1960’s, early 1970’s

• Federal support to states was for acquisition and development, required SCORPs and future focus

• Total spending of some $10 billion

ORRRC Focused on Federal Programs

• Central role in key new laws:

National Wilderness Protection Act

National Trails System Act

Wild and Scenic Rivers Act

National Historic Preservation Act

Concessions Policy Act

Congressional Leaders Flourish, Expansion is the Focus

• Scoop Jackson

• Mo Udall

• Phil Burton

• New urban national parks and national recreation areas

• Alaska

• NEPA protects parks from highways

The 1980’s Brought Changes

• Began with funding cutbacks, economic and mobility concerns

• BOR (morphed into HCRS) was abolished

• Major commodity thrust – especially timber in national forests

• Awareness that ORRRC had underestimated demand for outdoor recreation

Key Leaders Call for New Vision

• ARC led efforts in Reagan Administration transition process, plus at 12/80 National Conference on Sustainable Natural Resources

• ARC, NRPA, Rockefeller join forces in 1982• Legislation passes Senate, “quarantined” in

House• Senior public figures issue call• President Reagan approached directly in

summer 1984 an EO creation promised through Interior Secretary Bill Clark

EO Issued, Implementation Challenges Arise

• New Interior Secretary undertakes shuttle mission to create bi-partisan support

• Recruitment of Chairman adds new twists – including a new name: PCORRR becomes President’s Commission on Americans Outdoors

• Congressional role diminished – 4 of 15 – but remains senior and bipartisan

• New focus on grassroots efforts, partners

PCAO Legacy• Fees – fee demo and FLREA• Specialized funds – Wallop/Breaux, National

Recreational Trails Fund, scenic byways grants• New systems: greenways, scenic byways• New focus on “seamless” systems and

partnerships extending beyond natural resources, including transportation

• Urban America needs and outdoor ethics• Volunteerism boost

Recreation and the 21st Century

• New consensus on priorities – including on revitalization or replacement of LWCF

• New awareness of potential for partnerships from health, education, justice and economic development communities

• Concerns about connection between young Americans/fastest growing ethnic groups and the Great Outdoors

Lamar Alexander Calls for New Commission

• Suggests several areas of focus, including future of Land and Water Conservation Fund

• Call receives polite response but no outcry of support

• Alexander meets with key interests and seeks advice, support and visions

Key Issues

• Timing: when would recommendations be most valuable to a new Administration and Congress

• Creation: ORRRC was created by statute, PCAO by Executive Order. What are the trade-offs? What if the commission was created by leading non-government officials, or by the National Governors Association?

• Key themes and issues: should the new commission emphasize recreation’s role in health, education, drug and violence deterrence, economic sustainability of communities and more rather than specific recreation infrastructure goals?

More Key Issues• How should the Congress be involved?• What structure will be needed to get

recommendations addressed when the report is completed?

• Has the lure of the outdoors peaked, unable to compete with electronic games and other leisure options?

• How can public recreation programs be funded long-term? If they aid health, should the nation’s health budget be tapped? Same for education, criminal justice budgets …

Special Opportunity

• Senator Alexander is now playing a key role in Republican policy formulation.

• He has been a White House staffer, a governor, a Senator – understands structures.

• Philosophically attuned to bipartisanship.

• Personal commitment to the outdoors.