Reference Manual 2 – Chapter 4: NPS Planning Processes

As defined in Chapter 1: Background and Purpose, National Park Service (NPS) planning helps establish the set of resource conditions, visitor experiences, and management actions that collectively achieve the mandate to preserve resources unimpaired for the enjoyment of both present and future generations.

According to Chapter 2 of the Management Policies, planning processes typically follow a progression from broad, comprehensive planning to more specific stages, including strategic planning, implementation planning, and annual performance planning and reporting.

Under the planning portfolio approach, comprehensive planning usually begins with the foundation document. Subsequent planning aligns to the foundation document. Additional planning may not occur at the unit-wide level, and some steps may be iterative. For instance, planning may focus on specific areas, resources, or topics identified as unit priorities through strategic planning, civic engagement, and coordination with agency leadership. Once priorities are established, the NPS unit develops or confirms comprehensive planning elements such as vision, zoning, and desired conditions. This process can involve civic engagement and consultation with tribal nations.

Civic engagement and tribal consultation, combined with the review of existing plans, data, and expert discussions, helps to identify issues and potential solutions during implementation planning. This phase can result in the development of preliminary proposed actions, which are subsequently refined and ultimately evaluated through the National Environmental Policy Act (NEPA) process and executed through annual work planning and performance reporting.

DO-12, along with the NPS NEPA Handbook, provides the guidelines for selecting the appropriate NEPA pathway, documentation, and data required to initiate the NEPA process. Generally, the NEPA process begins once the NPS unit refines preliminary proposed actions and alternatives and gathers the necessary data for evaluation. NPS Unit Managers should follow established regional review and approval processes for commencing environmental assessments, and DOI processes for commencing EISs.

To support the development of planning documents that are useful and a wise use of time and funds, NPS unit managers should combine elements of strategic, comprehensive, and implementation plans in one plan, when appropriate.

To support the development of planning documents that are useful and a wise use of time and funds, NPS unit managers should combine elements of strategic, comprehensive, and implementation plans in one plan, when appropriate.

4.1 Preliminary Planning

Before beginning a new planning process, NPS unit managers work with regional planners, regional environmental coordinators, subject matter experts, and program managers related to the topics being addressed to clarify the goals for the project and potential ways to achieve the goals. The NPS often calls this phase pre-NEPA planning, preliminary planning, or preliminary project planning.

To start with the end in mind, managers first identify the desired condition, end state, or management prescription that best meets the mission of the NPS unit as articulated in its foundation document. Then, NPS unit managers can consult with experts, stakeholders and the public to identify potential alternatives, environmental issues, and other considerations. Through this agile process, managers can then decide whether strategic planning, civic engagement to further inform or resolve a planning issue, or a simpler NEPA process can meet the immediate needs. This collaboration happens before entering into contracts or agreements or announcing the initiation of a planning process (i.e., an announcement that the NPS is beginning preparation of a specific planning document).

Additionally, subject matter experts support NPS unit managers during this phase, and throughout the planning process, to determine when and how to address other legal requirements such as the National Historic Preservation Act (NHPA), required consultation (e.g., tribal consultation), and other regulations.

Also, during this phase, NPS unit managers should work with NPS leadership, using standard briefing and (if applicable) policy review processes, to confirm whether investing the staff time and funds on the planning process itself is a priority for the NPS (see section 2.5).

Ultimately, planning processes are:

  • Focused on priority needs
  • Efficient
  • Flexible and adaptable
  • Affordable and economically sustainable
  • Collaborative
  • Interdisciplinary.

4.2 Selecting the Planning Horizon

When starting a planning process, NPS unit managers consider the time period they anticipate the plan will remain relevant. This is commonly referred to as the planning horizon. While the NPS recommends not explicitly stating an expiration date or planning horizon in the plans themselves as the associated NEPA review does not expire, to begin the process with the end in mind, the NPS unit considers how long actions or guidance should remain useful. Based on the planning horizon, the NPS unit can complete the appropriate type of plan or planning elements accordingly. The following information can guide NPS units on the appropriate planning horizon for each type of plan:

  • Comprehensive plans, or comprehensive planning elements, outline a broad vision for the NPS unit that can guide the NPS unit manager for 20 years or more. Comprehensive plans articulate desired conditions at a level of detail that can withstand evolving visitor preferences, emerging technologies, changing environments, resource conditions, threats, and financial realities.
  • Strategic plans have the shortest planning horizon, often five years or less. Strategic plans are responsive to the current suite of challenges and opportunities while keeping an eye toward meeting the unit’s mission as articulated in the foundation document and comprehensive plans.
  • The time horizon of implementation plans vary depending on the specific issue, activity, or project (see section 2.5).

Last updated: January 17, 2025

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