VstrCntr_Pol-DS-Guide_complete_(09-07-07).pdf

Visitor Center Policy, Directive and Standard, and Guidelines

U.S. Department of the Interior Bureau of Reclamation Denver, Colorado August 2007

U.S. Department of the Interior Bureau of Reclamation Denver, Colorado August 2007

Visitor Center Policy, Directive and Standard, and Guidelines

Visitor Center i August 2007

TABLE OF CONTENTS

Page

Policy

Directive and Standard

Guidelines

Introduction Planning To Build or Not to Build: Criteria for Supporting Visitor Center

Proposals Interpretive Master Planning Interpretive Planning Process Site Design Building Design Visitor Center and Tour Security Interpretive Media Cooperating Partnerships Helpful Resources

POLICY

LND P13

Reclamation Manual Policy

Subject: Visitor Centers

Purpose: Establishes Bureau of Reclamation policy for planning, developing, interpreting, managing, and operating visitor centers at Reclamation projects. The benefit of this Policy is to ensure that visitor centers are planned and developed according to the geographic location and the anticipated visitation. In addition, through interpretation, visitor centers will provide Reclamation an opportunity to educate the public about Reclamation’s mission.

Authority: Reclamation Act of 1902, as amended and supplemented; Randolph

Sheppard Act of 1936 (Public Law 74-732); Land and Water Conservation Fund Act of 1964 (Public Law 88-578); Federal Water Project Recreation Act of 1965, as amended (Public Law 89-72);

National Historic Preservation Act of 1966 (Public Law 89-665);

Architectural Barriers Act of 1968; Rehabilitation Act of 1973 (Public Law 93-112); National and Community Service Act of 1990 (Public Law 101-610); Energy and Water Development Appropriations Act of 1990 (Public Law 101-101-Volunteer Program); American’s with Disabilities Act of 1990 (Public Law 101-336); Sundry Civil Appropriations Act of 1992 (Public Law 66-389); Reclamation Projects Authorization Act of 1992 (Public Law 102-575); Educate America Act of 1994 (Public Law 103-227); Hoover Dam Miscellaneous Sales Act of 2000 (Public Law 106-461); Federal Lands Recreation Enhancement Act of 2004 (Public Law 108-477); Department of the Interior Volunteer Recruitment Act of 2005 (Public Law 109-125);

43 Code of Federal Regulations 17, subparts B and E; Department of the Interior Manual, Part 471 (Audiovisual Media and Publications), Chapter 3 (Production and Use of Exhibits).

Approving Official: Commissioner

Contact: Office of Program and Policy Services; Land Resources Office, 84-53000

1. Visitor Center Goals and Objectives. Reclamation and, where applicable, its managing partners (including nonprofit organizations) will ensure that visitor centers are planned, developed, interpreted, managed, and operated in an appropriate and cost-effective manner.

As authorized by the authorities listed above, and based on the principles contained in this Policy, Reclamation may develop visitor centers with appropriate facilities, services, and programs for the purposes of:

A. Informing the public about Reclamation and water projects;

B. Enhancing the quality of recreation and tourism opportunities for all visitors, including those with physical, sensory, and cognitive impairments;

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C. Describing other opportunities and facilities that are available within the project;

D. Providing information and interpretation on the recreational, natural, cultural, and historical resources within the project area and regionally;

E. Helping to provide for visitor safety and enjoyment; and

F. Educating the public about water resources, water conservation, and water safety.

2. Definitions.

A. Visitor Center. A visitor center is a public educational facility or dedicated space within a building for interpretive displays, programs, services, and information.

Visitor centers generally have support facilities and conveniences for the traveling public.

B. Interpretation. Interpretation is a combination of educational activities designed to reveal meanings and relationships through the use of presentations, original objects, firsthand experience, graphic illustrations, activities, or media designed to help people understand, appreciate, and care for the natural and cultural environment.

3. Visitor Center Principles. The following principles must be considered prior to planning, developing, upgrading, managing, and operating visitor centers:

A. Through information, education, and interpretation, Reclamation has an opportunity to protect, conserve, and enhance recreational, natural, historical, and cultural resources.

Visitor centers enhance the public’s awareness and understanding of Reclamation’s mission and stewardship responsibilities.

B. The appropriateness and suitability of a visitor center and the type of visitor center at a project will be assessed through a systematic and comprehensive interpretive planning process that defines the visitor center’s messages, interpretive themes, interpretive tools and techniques, displays, programs, and services, consistent with Reclamation’s Visual Identity Program Online Manual and inclusive of all potential visitor needs, including those with disabilities.

C. Visitor center design, construction, and maintenance will strive to integrate the principles of universal and sustainable design and energy conservation as appropriate and feasible.

D. Reclamation will strive to integrate authorized income-generating programs and services for the purposes of sustaining and enhancing the visitor center’s programs, educational and interpretive activities, and operations, where authorized.

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E. Reclamation and its partners, where appropriate, will strive to implement donation activities and a volunteer program for the purposes of developing and maintaining a visitor center and its program and services.

F. Reclamation will follow current professional interpretive practices, Federal accessibility regulations, and Reclamation’s Visual Identity Program Online Manual in the design, fabrication, installation, and maintenance of interpretive displays, programs, and services.

G. Visitor centers will comply with the requirements and Accessibility Standards as set forth in the Architectural Barriers Act of 1968, which provides for minimum access for visitors with disabilities.

H. Where feasible, visitor centers will be coordinated or integrated with those of Federal, state, or local agencies in the same geographic area.

I. Visitor centers will implement a periodic evaluation process to measure the effectiveness of the visitor center and its displays, programs, and services.

J. Reclamation will incorporate security into the design and operation of the visitor center. Visitor center staff will work with their regional security officers to ensure security of the site, employees, the visiting public, and any sensitive Reclamation information or property.

4. Visitor Center Planning and Administration.

A. Reclamation and its managing partners will assess the current and potential recreation opportunities in the region through a formal planning process. The level of planning will be commensurate with the potential size, location, regional significance, anticipated visitation, or a combination of factors. This assessment must determine the availability of existing visitor centers and related facilities and programs (including fee systems) managed by local communities, state, and Federal agencies, and the private sector and consider alternatives to collaborate, where mutually beneficial. Where appropriate, Reclamation will partner with Federal and non-Federal entities, nonprofit cooperating associations, local community and civic groups, individual volunteers, and the private sector.

B. Reclamation’s level of approval authority and oversight for the planning and administration of visitor centers with Federal and non-Federal partners will be addressed in a management agreement. The partnership arrangement will be defined in writing and include, at a minimum:

(1) performance specifications for the roles, responsibilities, and activities for all entities;

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(2) the requirements for an annual program review, independent financial audits, and annual financial reports; and

(3) the means and timetable to modify or end the partnership arrangement.

5. Supporting Laws, Regulations, Rules, Policies, and Directives and Standards. This

Policy is supported by the following:

A. Accessibility Standards as set forth in the Architectural Barriers Act of 1968;

B. Randolph Shepard Act of 1936, as amended;

C. Concession Management Policy, LND P02;

D. Concession Management by Reclamation, LND 04-01;

E. Concession Management by Non-Federal Partners, LND 04-02;

F. Cultural Resources Management Policy, LND P01;

G. Cultural Resources Management Directives and Standards, LND 02-01;

H. Recreation Management Policy, LND P04;

I. Implementation of the Cost-Sharing Authorities for Recreation and Fish and

Wildlife Enhancement, LND 01-01;

J. Visitor Center Directives and Standards, LND 13-01;

K. Visual Identity Policy, ADM P05;

L. Visual Identity Directives and Standards, ADM 02-01; ADM 02-02; ADM 02-05;

ADM 03-01; ADM 05-01; ADM 05-02; ADM 05-03; ADM 05-04; CMP 03-01;

M. Occupational Safety and Health Program Policy, SAF P01;

N. Occupational Safety and Health Program Directives and Standards, SAF 01-01;

O. Visual Identity Program Online Manual; and

P. Departmental Manual, Museum Property Manual 411.

6. Supporting Guidelines. This Policy is supported by the following:

A. Accessibility Program Guidance Manual;

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B. Concession Management Guidelines;

C. Recreation Facility Design Guidelines;

D. Sign Guidelines; and

E. Visitor Center Guidelines.

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DIRECTIVE AND STANDARD

LND 13-01

Directives and Standards

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Subject: Visitor Centers

Purpose: Prescribes requirements and responsibilities for the Bureau of

Reclamation. The benefits of this Directive and Standard (D&S) are that everyone will know who is responsible for interpretation and education responsibilities within Reclamation, the goals of interpretation are established, and approval requirements for new visitor centers are clearly specified.

Authority: Reclamation Act of 1902, as amended and supplemented; Randolph

Sheppard Act of 1936 (Public Law 74-732); Land and Water Conservation Fund Act of 1964 (Public Law 88-578); Federal Water Project Recreation Act of 1965, as amended (Public Law 89-72);

National Historic Preservation Act of 1966 (Public Law 89-665);

Architectural Barriers Act of 1968; Rehabilitation Act of 1973 (Public Law 93-112); National and Community Service Act of 1990 (Public Law 101-610); Energy and Water Development Appropriations Act of 1990 (Public Law 101-101-Volunteer Program); American’s with Disabilities Act of 1990 (Public Law 101-336); Sundry Civil Appropriations Act of 1992 (Public Law 66-389); Reclamation Projects Authorization Act of 1992 (Public Law 102-575); Educate America Act of 1994 (Public Law 103-227); Hoover Dam Miscellaneous Sales Act of 2000 (Public Law 106-461); Federal Lands Recreation Enhancement Act of 2004 (Public Law 108-477); Department of the Interior Volunteer Recruitment Act of 2005 (Public Law 109-125);

43 Code of Federal Regulations 17, subparts B and E; Department of the Interior Manual, Part 471 (Audiovisual Media and Publications), Chapter 3 (Production and Use of Exhibits).

Approving Official: Director, Office of Program and Policy Services

Contact: Land Resources Office, 84-53000

1. Scope. This D&S applies to all Reclamation-managed visitor centers, regardless of their source of funding, size, location, regional significance, or anticipated visitation; and includes exhibits, displays, signage, and supporting material such as publications and videos.

2. Definitions.

A. Visitor Center. A visitor center is a public educational facility or dedicated space within a building for interpretive displays, programs, services, and information. Visitor centers generally have support facilities and conveniences for the traveling public.

B. Interpretation. Interpretation is a combination of educational activities designed to reveal meanings and relationships through the use of presentations, original objects, firsthand experience, graphic illustrations, activities, or media designed to help people understand, appreciate, and care for the natural and cultural environment.

C. Donations.

(1) For purposes of this D&S, the term “donation” includes gifts and refers to something of value received from an outside source without consideration or an exchange of value. Funds or other items received as a result of a competitively awarded grant from a foundation are also covered by the term “donation.”

(2) The following is not considered a donation and, therefore, not included in the definition: in-kind services or contributions in which the entity providing the service or contribution is receiving a benefit in exchange for the service or contribution, or is required pursuant to a cost-share or other agreement or requirement to provide the service or contribution.

3. Responsibilities.

A. Chief of Public Affairs. The Chief of Public Affairs has oversight responsibility for the coordination and approval of exhibits, publications, audiovisual materials, and other materials throughout Reclamation. See Reclamation Manual Directives and Standards, Audiovisual, Multimedia, Still Photography, and Related Equipment (ADM 05-01).

The Chief of Public Affairs will:

(1) Ensure that all messages in the visitor center are consistent with Reclamation and the Department of the Interior policy.

(2) Review the master plan; other supporting documentation; DI-551 (Audiovisual

Authorization Request), if needed; and DI-552 (Exhibit Production Authorization Request) for each visitor center to ensure it meets the goals and objectives of Reclamation identified in Reclamation Manual Policy, Visitor Centers (LND P13). If it does meet these goals and objectives, the Chief of Public Affairs will sign the DI-551 and DI-552.

(3) Maintain a file of the DI-551s and DI-552s throughout Reclamation.

B. Regional Public Affairs Officers. The regional public affairs officers have oversight responsibility for the coordination and approval of exhibits, publications, and other materials throughout their region. They will:

(1) Ensure that the provisions contained within this D&S are followed.

(2) Review the master plan, other supporting documentation, DI-551, and DI-552 for each visitor center to ensure it meets the goals and objectives identified in LND P13. If approved, forward the materials to the Chief of Public Affairs.

(3) Maintain a file of all the visitor center master plans and DI-551 and DI-552 of visitor centers throughout their region.

C. Reclamation Directors, Area Office Managers, and Supervisors. All Reclamation directors, area office managers, and supervisors are responsible for ensuring that all offices and personnel are familiar with and follow the provisions of this D&S and Reclamation’s Visual Identity Program Online Manual.

4. Planning.

A. Each visitor center must have a master plan that addresses the visitor center facilities and program requirements, including compliance with accessibility standards. The master plan must address each of the items listed below and be approved by the regional security officer, regional public affairs officer, and the Chief of Public Affairs.

(1) An inventory and analysis of current visitors and projected visitation levels;

(2) An inventory and analysis of existing resources to be interpreted in the visitor center;

(3) The layout of the visitor center;

(4) Interpretive themes and goals and a description of the method that will be used to achieve effective communication;

(5) Detailed recommendations for proposed interpretive exhibits and programs

(universally accessible for persons with mobility, hearing, speech, sight, or cognitive disabilities);

(6) A staffing plan to operate the visitor center, taking into consideration whether, and how, volunteers will be used;

(7) Equipment needed to support exhibits and programs;

(8) Budget required for operation and management;

(9) Use of fees, if authorized;

(10) Any partnerships supporting the visitor center;

(11) Visitor center review schedules; and

(12) Security measures and procedures at the visitor center, including any necessary physical and technical upgrades.

B. During the planning process for developing or renovating a visitor center, compliance with the National Historic Preservation Act (NHPA), the National Environmental Policy Act, and other applicable environmental laws and regulations is required, as applicable. NHPA compliance will include consideration of effects to any archaeological sites and effects to existing buildings and structures.

C. The design of all elements for visitor centers will comply with Reclamation’s Visual

Identity Program Online Manual.

D. Museum property used in visitor center operations, interpretation, and outreach must be managed according to standards promulgated in Departmental Manual Part 411, and 36 Code of Federal Regulations Part 79.

5. Visitor Center Information.

A. Objectives.

(1) A visitor center operation can be a necessary and integral part of total project management. The primary purpose of a visitor center is to provide interpretive and educational information to the visiting public (including those with physical, sensory, and cognitive impairments) about the mission of Reclamation, the project and its facilities, visitor security and safety, the geographic area where the project is located, and the cultural and natural resources of the area. Visitor centers provide the necessary information for visitors to have a safe and enjoyable visit. Exhibits and other interpretive communications must be designed to stimulate interest and convey information. The interpretive objectives of visitor centers are to:

(a) Enhance the public’s understanding of Reclamation and its contribution to the Nation;

(b) Enhance the public’s understanding of the history, purpose, and operation of the project and its archaeological, historical, humanmade, natural, and cultural features;

(c) Develop public appreciation for the proper and safe use of project resources;

(d) Foster the spirit of personal stewardship of public lands;

(e) Orient the visitor to the project and its recreational opportunities; and

(f) Aid project personnel in accomplishing management objectives.

B. Presentation of Information.

(1) Reclamation will provide routine, non-sensitive information regarding its projects, recreation opportunities, and cultural and natural resources to the public at visitor centers located at dams and other projects in the western United States.

If available, this information will be provided to visitors in alternative formats to accommodate the needs of persons with disabilities. Consideration will be given to the information being communicated when determining effective formats to be developed and used to communicate with the public.

(2) The visitor center and equipment used in relation to it, both inside the visitor center and on the surrounding grounds, are subject to the highest standards of maintenance. All equipment used in visitor centers must be selected for dependability, ease of maintenance, accessibility, longevity, and low operating cost. For equipment that is critical to the visitor’s experience, a backup must be on hand, if possible.

(3) Audio and visual equipment purchased or upgraded must be highly dependable, fully accessible, off-the-shelf equipment that can be easily and cost effectively maintained, repaired, or replaced. See Reclamation Manual Directives and Standards, Audiovisual, Multimedia, Still Photography, and Related Equipment (ADM 05-01). All such equipment procured with Federal funds must meet the technical requirements of section 508 of the Rehabilitation Act of 1973, as amended, to provide for the needs of persons with disabilities.

C. Approvals.

(1) Before updating or developing a visitor center and before committing any public funds, a DI-552, will be submitted through the regional public affairs officer to the Chief of Public Affairs. The master plan and any other supporting documentation and approval forms will be submitted along with the DI-552.

(2) The Chief of Public Affairs will review the DI-552 and coordinate with the

Department of the Interior on any necessary approvals.

(3) If approved, work will proceed on developing a design, including the use of graphics and text.

(4) Before the construction of any display panels, the proposed text and graphics will be submitted through the regional public affairs officer to the Chief of Public Affairs. The Chief of Public Affairs will review the proposed text and graphics and coordinate with the Department of the Interior on any necessary approvals.

(5) If the proposed text and graphics are approved, development and construction of the necessary elements may proceed.

6. Reviews.

A. Visitor centers and their exhibits will be formally reviewed once every 5 years. The regional director or delegate will form an external team to conduct this formal review.

The external review will be conducted and documented by an interdisciplinary team of technical specialists who are not employees of the office directly responsible for managing the visitor center and who have the appropriate qualifications to conduct such a review. Using contract employees is encouraged for the interpretation part of the inspection.

B. The purpose of the review is to ensure that all facilities are safe, secure, accessible, and adequate; equipment is in operating condition; and audiovisual presentations, photographs, taped messages, and other interpretive materials are accurate, current, and communicated effectively. The review team will prepare a report that details its findings, including any recommendations for facility improvements or repairs or for updating exhibits. A copy of this report will be provided to the visitor center manager, area manager, regional director, regional public affairs officer, Chief of Public Affairs, regional security officer, and other appropriate individuals within Reclamation.

C. The official directly responsible for managing the visitor center will be responsible for determining what actions to take, in consultation with the regional office and review team, as a result of the review.

D. If the external review identifies operational or administrative deficiencies, a timetable in which to correct these deficiencies will be established by the office directly responsible for the visitor center and will be approved by the regional director or delegate.

7. Fees. Fees will be charged, if appropriate and authorized, for use and entry into the visitor center.

8. Items for Sale to the Public. Items made available to the public may be sold, where authorized. Examples of appropriate sale items include project memorabilia, educational materials, maps, food and beverages, film, and other customary supplies to support a safe and enjoyable recreation visit.

GUIDELINES

Visitor Center i August 2007

TABLE OF CONTENTS

Page

Guidelines

Introduction

Planning

To Build or Not to Build: Criteria for Supporting Visitor Center Proposals

Introduction Decision Criteria for Proposing a Visitor Center

Interpretive Master Planning Principles of Interpretive Planning

Interpretive Planning Process Purpose of Planning Inventory and Analysis

Resource Inventory and Analysis Facilities and Programs Inventory and Analysis Management Inventory and Analysis Audience and Stakeholder Inventory and Analysis Significant Themes and Visitor Experiences

Program, Product, and Service Recommendations Facilities Personal Programs Manufactured or Printed Products Electronic Technology Products

Site Design Overall Site Design Considerations

Site Selection Site Access Utilities and Waste Systems

Construction Methods and Materials

Building Design Overall Building Design Considerations Designing for Visitor Flow

First Impressions Interpretive Media and Program Areas Outdoor or Onsite Areas

Accessible Design Considerations Environmental Considerations

Temperature Sun Wind Moisture

Table of Contents – continued

Visitor Center ii August 2007

Storms/Hurricanes/Tornadoes Rainfall Topography Water Bodies Hydrology Seismic Pests Wildlife

Cultural Considerations Archeological Resources Local Architecture Historic Resources Anthropology/Ethnic Background/Religion/Sociology Arts and Crafts

Sensory Considerations Visual Sound Touch Smell Taste

Sustainable Design Considerations Cradle-to-Grave Analysis

Visitor Center and Tour Security Management Roles Visitor Centers

Design Considerations Security Measures

Tours Annual Meetings and Training International Visitors Additional Information

Interpretive Media Interpretation and Education

Visitors’ Bill of Rights Interpretive and Educational Media

Personal Interpretive Media Nonpersonal Interpretive Media

Visitor Studies and Audience Analysis Front End Evaluation Formative Evaluation Summative or Postinstallation Evaluation

Cooperating Partnerships Example 1 Example 2

Table of Contents – continued

Visitor Center iii August 2007

Helpful Resources References Suggested Web Sites Professional Associations

Association of Nature Center Administrators (ANCA) Association of Science-Technology Centers (ASTC) National Association for Interpretation (NAI)

Figures

1 Visitor center planning

Visitor Center 1 August 2007

INTRODUCTION

Visitor centers are a primary type of recreation development that the Bureau of Reclamation (Reclamation) defines as a publicly recognized educational facility or dedicated space for appropriate interpretive displays and programs. Visitor centers generally have support facilities (e.g., parking lots, attractive grounds, outdoor seating, walkways, and vistas) and conveniences for the traveling public (e.g., toilets, water, maps, literature, telephones, and vending machines).

Visitor centers (including their associated facilities, services, and programs) serve to:

Effectively communicate and inform the public about Reclamation and water projects.

Enhance the quality of recreation and tourism opportunities for all visitors, including those visitors with disabilities.

Describe other opportunities and facilities that are available within the project.

Provide information on the natural, cultural, and historical resources in the project area.

Help provide visitor safety and enjoyment.

Educate and promote water conservation and water safety.

Reclamation and its partners can use these guidelines to ensure that visitor centers are planned, developed, upgraded, managed, and operated in accordance with the philosophy, goals, methods, approach, and considerations of sustainable development and in an appropriate and cost-effective manner. Reclamation’s Visual Identity Program Online Manual; Museum Property Manual and Standards; and other Reclamation manuals will apply when planning, developing, and managing visitor centers.

These guidelines will be re-evaluated and revised as new information, technology, and materials are developed. Designers and engineers should note that site-specific architectural and engineering specifications are beyond the scope of this manual. This manual should be shared with all other Federal, State, Tribal, and local public agencies and cooperating associations that are helping to manage visitor centers on Reclamation project lands.

Visitor Center 3 August 2007

PLANNING

There are several tiers of guidance that may influence the planning, development, management, and operation of visitor center facilities at Reclamation projects.

Figure 1 displays the hierarchy of documents that can be referenced for visitor center planning purposes.

Authorizing legislation is the legal foundation for all project operations, facilities, programs, and services. Authorizing legislation provides justification and guidance for visitor centers. Planning and operating within the authorization is a legal responsibility of Reclamation managers.

The Resource Management Plan is the next level of guidance for planning and managing visitor centers. This plan provides comprehensive goals and objectives for project resources and can serve as a decision document to determine if a visitor center is appropriate and suitable.

A visitor center may (or may not) be an appropriate tool to achieve the project’s interpretive goals and objectives. Interpretive master planning is the primary process for assessing if a visitor center is appropriate at a project. If a visitor center is deemed appropriate, the interpretive planning process should also suggest what type of center would be suitable. Interpretive master planning is a process that enables managers to develop a systematic and comprehensive approach to interpretation for the project or site.

If a visitor center is deemed appropriate and suitable, the interpretive master planning process can also serve to define the visitor center messages, niche, uniqueness, accessibility, interpretive themes, interpretive tools and techniques, displays, programs, and services. These guidelines briefly describe the interpretive planning process but do not address the development of specific interpretive media (e.g., exhibits, signs, or brochures).

Visitor center architectural and engineering design is the next level of analysis.

Detailed guidance and specifications would be provided by the designer and are beyond the scope of this manual.1

1 The principles of Crime Prevention Through Environmental Design (CPTED) and Terrorism Prevention Through Environmental Design (TPTED), as outlined in the “Visitor Center Security” chapter of these guidelines, should be incorporated in the design.

Other Interpretive

Products and Services

Visitor Center Architectural and Engineering Design

Resource

Management Plan

Project Authorizing Legislation

Interpretive Master Plan

Figure 1.—Visitor center planning.

Visitor Center 4 August 2007

Visitor Center 5 August 2007

TO BUILD OR NOT TO BUILD: CRITERIA FOR

SUPPORTING VISITOR CENTER PROPOSALS

Introduction

Constructing visitor centers is one method of providing an interpretive program.

Developing interpretive programs and products is limited only by one’s imagination. Some examples of common interpretive media are: wayside exhibits, kiosks, brochures, audiotapes, videos, displays, guided hikes, nature centers, living history programs, presentations, and visitor participatory projects.

Choosing the right interpretive medium depends on the goals of the interpretive program, the needs of the agency, the needs and types of visitors, and the resources to be interpreted.

Visitor centers are often recommended as the desired interpretive approach before proper consideration is given to other interpretive options. In the proper environment, a visitor center can be a very effective interpretive approach.

However, good interpretive planning is needed to determine if and when a visitor center should be used.

Below are questions that should be answered before a decision can be made as to whether a visitor center is the best interpretive option.

1. Is a visitor center the most effective interpretive medium to use for the specific location, audience, resources, and purpose of the interpretive program?

a. Has an interpretive plan been completed that identifies the interpretive program goals, objectives, and themes?

(1) A visitor center is an expensive interpretive tool and should be chosen only after it is determined to be the most cost-effective means of accomplishing the educational objectives of the project. This decision should be obtained through the development of an interpretive master plan that will help identify the interpretive goals, objectives, and themes for the overall interpretive program. The interpretive master plan should also identify areas, in addition to a visitor center, where interpretive media will be used to accomplish the program’s objectives.

Visitor Center 6 August 2007

(2) Before any design work is started on a visitor center, there should be clear goals, objectives, and themes developed for the purpose of the visitor center and the entire interpretive program. A facilities planning session should be held that includes all the involved resource and accessibility specialists and potential partners. Everyone should be clear about the purpose of the overall interpretive program and any proposed visitor center as part of that overall program.

(3) Interpretive themes should be coordinated between agencies and other local facilities so that the information is not repeated in each facility. Many regions of our country interpret unique topics, such as desert ecology, Lewis and Clark, Southwest Indian culture, the gold rush, and western settlement. Coordination with regional providers will help each facility complement the overall theme so the visitor has a more holistic understanding of the area.

(4) A visitor center can help implement an interpretive program. Visitor centers are very effective in providing a focus for the interpretive programs. Tours and special events are often easier to organize when there is a visitor center. Interpreters can use many of the visitor center exhibits to help explain concepts and ideas before going out on the trail or taking visitors on a tour. Visitor centers, however, should not be viewed as the interpretive program.

They are only one of many strategies for reaching the public with information and education about the project and the agency’s mission.

(5) Large visitor center projects often result from a proposal growing beyond its original intent or from an economic development project for a local community. The success of a visitor center as an economic development effort depends on many factors, such as proximity to major travel routes, promotional efforts, the quality of the exhibits and interpretive program, and the potential market for the topics in the visitor center. A market evaluation and cost-benefit analysis should be completed before design work starts on a visitor center that is to serve as an economic development project.

Visitor Center 7 August 2007

b. Has the Interpretive Master Plan analyzed the potential audiences?

(1) A market analysis or audience analysis regarding the types and diversity of potential visitors is critical to determining the need for a visitor center. (See Haas and Wells, 2006.)

Information may be collected using approved visitor survey instruments.

(a) Demographics: Demographics provide descriptive information about current and potential visitors (e.g., ages, genders, nationalities, incomes, disabilities, group sizes, how far they travel, as well as the social, physical, cultural, and economic factors of the area).

(b) Psychographics (interests, opinions, and expectations): Psychographics data are used to determine why visitors come to your site and what specific experiences are they seeking (e.g., being with friends and family, getting away from daily stresses, and seeking challenge in outdoor recreation).

(2) Type, placement, and design of a visitor center also depend on the interests, expectations, and abilities of visitors.

Visitor centers serve both an orientation function and an education function. Therefore, decisions about the best proportion of each function should be made during interpretive planning.

(a) Orientation: Visitor centers are very effective at orienting first-time visitors who are unfamiliar with an area and who wish to learn information about facilities, recreation opportunities, and the cultural and natural resources of an area. They are also very effective for repeat or recreational users who travel to an area for a specific recreation activity, such as rafting, fishing, or boating. These users typically have their equipment and are ready to start their recreation activity. Their main interest is to gain information on conditions related to their chosen recreation activity, such as where the fish are biting or the current river flows and conditions.

Visitor Center 8 August 2007

(b) Education: Visitor centers are also effective in reaching visitors with specific interests. Beyond orientation to a location, visitors are often interested in supplemental educational information about the site, its resources, or its functions. This information can include natural or cultural history, but at Reclamation sites it most often includes specific history of the area, specific functions of a dam (e.g., hydroelectric energy at Hoover Dam), special provisions at the site (e.g., fish ladders at Red Bluff), and so forth. Specific goals and objectives for this level of education should be addressed in an interpretive planning process.

c. Are visitor and Reclamation goals and objectives already being served by another facility in the area? Before a visitor center proposal is approved, there should be a thorough survey of other visitor centers and interpretive efforts in the region. This survey should identify whether visitor needs are already being met by other facilities and if Reclamation could more easily accomplish its mission by entering into a partnership with the existing facility managers. Whenever possible, visitor centers should be interagency centers. Visitors do not generally know or care about different agencies and boundaries. They usually go to a visitor center for orientation information about an area or resource that interests them.

d. Has the interpretive plan analyzed the best location for a visitor center? The purpose of the interpretive program and visitor center is the main criteria for deciding the best location of a visitor center. Orientation and information visitor centers are best located at places visitors encounter before deciding where to

go. If the visitor center was built to reflect a specific regional theme, the best location will probably be near the main access road. Visitors should be able to find the visitor center easily and shortly after they enter the area. In general, poor locations for visitor centers include the end of long dirt roads, more than a few miles off the main road, deep inside the area of interest, or away from the main entrance to a resource.

2. Does the proposed visitor center relate to Reclamation’s mission and management objectives?

a. There should be a direct relationship between Reclamation’s mission, the management objectives of Reclamation and the project, and the interpretive program.

Visitor Center 9 August 2007

b. An effective visitor center is supported by a resource management plan and is not a separate part of the overall visitor services effort.

The goals and objectives of building a visitor center should be clearly identified in planning documents related to the site and interpretive program. These goals include addressing some of the challenges visitor centers bring to an area, such as the potential to concentrate or coordinate visitor use.

c. An important objective of any Reclamation visitor center is to help the public appreciate and discover the resource diversity and recreation opportunities on Reclamation lands. In addition, helping visitors feel a sense of ownership and involvement in protecting the resources is appropriate. The visitor center should be supported by an appropriate array of accessible current publications, exhibits, and programs to help visitors discover and appreciate resources on nearby Reclamation lands.

3. Are there documents showing clear commitment of partners and

State and Federal congressional support for the visitor center?

a. A cost analysis should be done showing how the partners will share predicted costs. Cost sharing should be realistic, reflecting the true ability of partners to live up to their promises. For instance, if the project will be staffed by a private group, such as a cooperative association, it should be shown that the association is truly prepared and able to take on this responsibility. These partnerships and economic commitments can be used to explain the project to the Department of the Interior (Interior), the Office of Management and Budget, and the Congress.

b. The agreement should also clearly identify the responsibilities of each partner, including who is responsible for accessibility retrofits on identified deficiencies and expected in-kind services and procedures for maintaining and canceling the agreement.

c. Congressional members and State legislators should be able to show support for the project, including operations and maintenance funding. However, all congressional support should be consistent with the project management goals and should consider sound fiscal commitment.

d. The scope and magnitude of the project should be clear, so that it does not expand beyond fiscal reach. Often, as more partners get involved, more ideas are adopted and, as a result, the facilities grow bigger to accommodate these ideas. The interpretive plan should include discussion about the specific purpose and scope

Visitor Center 10 August 2007 of the project and should include criteria for making decisions that might affect the scope of the project. The proposed construction project should also be divided into phases to maximize funding options and accountability.

4. Is Reclamation prepared to accept the long-term commitment that a visitor center requires? Has a cost analysis been prepared that shows the following:

a. Have staffing needs been met?

(1) Visitor centers should be open when public demands are highest. Usually, this means weekends and late hours on Friday and Saturday. It is poor customer service to have the doors closed when visitors expect them open.

(2) Interpretive programs should be developed. These are needed especially by students. Teachers and students are better served when the ratio of students to interpreter does not exceed 10 to 1.

(3) Presentations should be given to the general public.

Visitors enjoy personal presentations that go beyond the materials in the exhibits and enable them to ask questions.

People also have different learning strategies and preferences. Some people learn best by reading the materials, others by listening, others through sign language or alternative formats, and others by experimental involvement. A successful program will use several different interpretive techniques, including those that take into account the needs of persons with sensory and cognitive impairments.

(4) Staff should help in scheduling interpretive events, managing volunteer programs, and coordinating special exhibits and events. Staff should be experienced and prepared to create temporary exhibits on the latest issues.

b. Is the operation and maintenance budget for the visitor center complete?

(1) Repairs are needed occasionally for all exhibits, and exhibits should generally be replaced every 10–12 years.

This means future funding commitments.

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(2) Printed posters, brochures, and other supplies are needed for the interpretive program, tours, and other activities. If there is a cultural theme to the interpretive program, there should be funds for purchasing sample artifact replicas and period dress.

(3) Additional funds are needed for electronic, technological, and mechanical equipment for the exhibits and interpretive programs that may wear out, become damaged, or break. A future funding commitment will be required.

(4) Maintenance is needed for the building and internal facilities, such as lights, heat, audiovisual equipment, assistive listening systems, and special lighting equipment.

c. Should fee collection facilities be considered in the design?

Almost all visitor centers collect revenues, whether they are in the form of donations, program fees, vending machine revenues, or sales.

d. Are there steps for a value engineering review of the project?

Value engineering should be done on all visitor centers to ensure that the proposed design of the building best serves the established goals and objectives of the facility. A value engineering study should address important issues, such as the location of the restrooms and any potential sales area.

e. Has a cost-benefit analysis been completed to show the long-term cost per visitor? During the first 5 years, there should be only minor repair and maintenance costs for the visitor center.

After 5 years, many of the exhibits will need updating, and major repairs may be needed for some of the exhibits and for the building itself.

Decision Criteria for Proposing a Visitor Center

Arbitrary decisions are those made without principle and reason. A list of explicit decision criteria can serve several important functions in proposing and planning a visitor center, such as helping to (a) make the decision process transparent and trackable; (b) develop a full set of reasonable alternatives; (c) ensure a full, fair, adequate, and deliberate evaluation of consequences of alternatives; (d) improve communication and increase meaningful public participation; and (e) create an administrative record.

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The decision criteria should fully reflect the circumstances at hand and be commensurate with the potential consequences of the decision to be made. The number of criteria needed to adequately assess development of a visitor center increases as the potential consequences of that decision increase. The following criteria are commonly used when proposing a visitor center.

1. Is a visitor center the most effective interpretive medium for the specific location, audience, and purpose of the interpretive program?

a. Does an interpretive plan or similar document provide specific rationale for why a visitor center is the best interpretive technique for the type of visitor interest and type of use in the area?

High – The interpretive plan provides sound rationale for why a visitor center is appropriate.

Medium – The interpretive plan provides some rationale for why a visitor center is one of many techniques that could be used to reach the intended audience, but other media may also be appropriate.

Low – No interpretive plan was completed; no proper visitor analysis of the intended audience was conducted; or a plan was completed, and other techniques are more appropriate.

b. Are the visitors’ and agency’s public information needs being served by other means (e.g., other regional visitor centers or visitor contact stations)?

High – Other centers and stations do not exist.

Medium – Other centers or stations are more than a day’s drive away.

Low – Other centers or stations are within a day’s drive.

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2. Does the proposed visitor center relate to Reclamation’s mission and management objectives?

a. Does the visitor center’s purpose relate directly to the mission of

Reclamation, its programs, or its legislative mandates?

High – The proposed center strongly relates to Reclamation’s mission.

Medium – The proposed center generally relates to Reclamation’s mission.

Low – The proposed center relates only slightly to Reclamation’s mission.

b. Does a publicly reviewed resource management plan, plan amendment, or other planning document identify a visitor center as part of the preferred management strategy?

High – Plan(s) recommend building a visitor center.

Medium – Plan(s) list a visitor center as a possible approach.

Low – Plan(s) state that a visitor center is not necessary or do not consider a visitor center.

3. Is there clear legislative authority and valid commitments from partners showing clear economic and congressional support for the visitor center?

a. Is there support from the congressional, State, and local representatives?

High – Documentation shows appropriate support from Congressional offices, State legislature, and local governmental entities.

Medium – Documentation shows some support from Congressional offices, State legislature, and local governmental entities.

Low – There is no clear commitment to the visitor center.

Visitor Center 14 August 2007

b. Is there a partnership agreement for operation and maintenance if partners are proposed?

High – A partnership agreement for more than 10 years contains clearly stated responsibilities for staffing and operation and maintenance costs. There are clear provisions for regular review and updating of the agreement.

Medium – A partnership agreement for more than 5 years contains stated responsibilities for staffing and operation and maintenance costs. There are some provisions for regular review and updating of the agreement.

Low – A partnership agreement for no more than 3 years states general responsibilities for staffing and operation and maintenance costs. There are poorly stated or nonexistent provisions for regular review and updating of the agreement.

c. Is there construction cost sharing with partners, including private, State, or Federal entities?

High – A cost-sharing agreement of 25 percent Federal and 75 percent partner(s) with procedures for regular review.

Medium – A cost-sharing agreement of 50 percent Federal and 50 percent partner(s) with procedures for regular review.

Low – A cost-sharing agreement of 75 percent Federal and 25 percent partner(s) with procedures for regular review.

4. Has Reclamation determined the long-term staffing, maintenance, and funding commitment required to support the visitor center?

a. Was a cost analysis completed that considered proper staffing and the operational and maintenance costs related to a visitor center?

High – A cost analysis was conducted. No problems are evident.

Medium – A cost analysis was conducted. Possible problems are evident.

Low – No cost analysis was conducted, or a cost analysis was conducted and problems are certain.

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b. Is there a process for conducting a value engineering review?

High – Funding for a value engineering review is available, and a review will be conducted.

Medium – A value engineering review is planned, but funding is not yet available.

Low – There is no plan for a value engineering review.

c. Has consideration been given to the benefits of contracting specific services such as maintenance and security?

High – A cost analysis was conducted. Benefits such as cost savings are evident.

Medium – A cost…