Contents

• NPS Discretionary Appropriations Totals
• Individual NPS Accounts
• Operation of the National Park System Account
• Construction Account
• National Recreation and Preservation Account
• Historic Preservation Fund
• Land Acquisition and State Assistance
• National Recreation and Preservation Account
Centennial Challenge
• NPS Appropriations in Context
• Size of the National Park System
• Visits to the National Parks
• National Park Service Staffing
• Conclusion
Summary

Summary

The National Park Service (NPS) generally receives appropriations in the annual Interior, Environment, and Related Agencies appropriations bill. This report examines trends in NPS appropriations over the past decade (FY2009-FY2018), as well as changes during the decade in the size of the National Park System, numbers of recreational visits to the parks, and NPS staffing levels.

During this period, NPS's discretionary appropriations were organized primarily in five accounts. A sixth account (Centennial Challenge) was funded only in certain years. Regular appropriations fluctuated over the decade for all the accounts, and the extent to which an account increased or decreased also was affected by supplemental appropriations. With supplementals included, two accounts received more funding in FY2018 than in FY2009 in real (inflation-adjusted) terms, including one account that funds federal land acquisition and outdoor recreation assistance to states and one that provides grants to states and tribes for historic preservation activities. Three other accounts received less funding in FY2018 than in FY2009 in inflation-adjusted dollars—including NPS's largest account, which funds basic park operations, as well as the account that funds construction and major repairs and the account for NPS assistance to nonfederal entities. Excluding supplementals, funding still grew in real terms for the land acquisition and historic preservation accounts, but it also grew for the operations and construction accounts, declining only for assistance to nonfederal entities. The operations and construction accounts are partially used to address NPS's deferred maintenance backlog, which has grown throughoutOver the past decade (FY2010-FY2019), NPS received both regular (annual) appropriations and, in some years, supplemental appropriations to address damage from natural disasters. The agency also has some mandatory sources of funding. NPS's regular appropriations mainly declined in the first part of the decade and increased in the second part, resulting in near parity at the beginning and end of the period when amounts are adjusted for inflation. The FY2019 regular appropriation was 17% higher than FY2010 in nominal dollars but less than 1% higher in inflation-adjusted dollars. NPS also received supplemental appropriations for response to damage from hurricanes and other natural disasters in FY2013 (P.L. 113-2), FY2018 (P.L. 115-123), and FY2019 (P.L. 116-20). These funds were provided outside of regular appropriations laws and were not subject to discretionary spending caps. With supplemental appropriations included, NPS's FY2019 funding was 22% higher than FY2010 in nominal dollars and 4% higher in inflation-adjusted dollars. During this period, NPS's discretionary appropriations generally were organized in six accounts. Appropriations fluctuated over the decade for all the accounts. With supplemental appropriations included, four accounts received more funding in FY2019 than FY2010 in real (inflation-adjusted) terms. These included accounts that fund construction and major repairs, federal land acquisition and outdoor recreation assistance to states, grants to states and tribes for historic preservation activities, and grants to spur partner donations for park improvements. Two accounts received less funding in FY2019 than FY2010 in inflation-adjusted dollars—including NPS's largest account, which funds basic park operations, and an account covering other NPS assistance programs for nonfederal entities. A significant issue for NPS throughout the decade was the agency's multibillion-dollar backlog of deferred maintenance (i.e., infrastructure maintenance and repairs that were not performed as scheduled or as needed). Combined funding for two budget activities that primarily address the backlog (within larger budget accounts) grew in real terms over the decade.

The funding changes took place in the context of relative stability in the size of the National Park System, which was about 85 million acres throughout the decade, with slight growth (+0.8%). The total consisted of roughly 80a total growth of 1% from the beginning to the end of the period. The system consists of roughly 81 million acres of federal land, with the remainder nonfederal. Although system acreage remained relatively stable, 2628 new units —many of relatively small size—were added to the system during the decade. NPS staffing levels hovered around 20,000 and were highesthigher in the first part of the decade, stemming partly from the economic stimulus measures in FY2009 than the last. Visits to the parks increased over the decade10-year period, peaking at approximately 331 million visits in 2016.

The National Park Service (NPS) administers the National Park System, which covers 85 million acres of land and consists of 417419 diverse units valuedincluded for their natural, cultural, and recreational importance. NPS generally receives appropriations in the annual Interior, Environment, and Related Agencies appropriations bill. This report examines trends in the agency's discretionary appropriations over the past decade (FY2009-FY2018FY2010-FY2019) and related issues and congressional actions. It also discusses changes in the size of the National Park System, numbers of recreational visits to the parks, and NPS staffing levels during that period.

NPS Discretionary Appropriations Totals

NPS's discretionary appropriations fluctuated during the past decade (FY2009-FY2018). Appropriations in the decade's first and last years were highest, partially owing to supplemental appropriations in both years. With the supplementals included,FY2010-FY2019). Regular discretionary appropriations totaled $3.2762.744 billion in FY2009FY2010 and $3.460223 billion in FY2018. The FY2018FY2019. The FY2019 figure was 5.617% higher than FY2009FY2010 in nominal dollars but 8.0% lowerless than 1% higher when adjusted for inflation. In both nominal and inflation-adjusted dollars, the general trend was an annual decline between FY2010 and FY2013 and increases thereafter. NPS also received supplemental appropriations for response to natural disasters in FY2013 (P.L. 113-2), FY2018 (P.L. 115-123), and FY2019 (P.L. 116-20). These funds were provided outside of regular appropriations laws and were not subject to discretionary spending caps. With supplementals included, NPS's FY2019 discretionary appropriations totaled $3.351 billion, 22% higher than FY2010 in nominal dollars and 4% higher when adjusted for inflation (Figure 1 and Table 1).¹ when adjusted for inflation (Figure 1 and Table 1).¹ Excluding supplementals, NPS's FY2018 appropriations were 26.8% higher than FY2009 appropriations in nominal dollars and 10.5% higher in inflation-adjusted dollars. In either case, the main trend was decline in the first part of the decade and increase in the second part.

Figure 1. NPS Discretionary Appropriations, FY2009-FY2018 FY2010-FY2019 ($ billions, in nominal and inflation-adjusted 20092010 dollars)

Sources: FY2009-FY2014 dataData for FY2010-FY2014 and FY2019 are from annual House Appropriations Committee detailed tables for NPS. FY2015-FY2017 dataData for FY2015-FY2018 are from NPS budget justifications for FY2017-FY2019. FY2018 data are from annual House Appropriations Committee detailed tables for NPSFY2020. Notes: See footnote 1 for additional information on this figure.

Individual NPS Accounts

During the decade, NPS's appropriations were primarily organized in fivesix accounts that cover basic park operations (Operation of the National Park System, or ONPS, account); construction and repair of infrastructure (Construction account); assistance to state, local, tribal, and private land managers (National Recreation and Preservation account); grants to states and localities for historic preservation (Historic Preservation Fund); and land acquisition by both NPS and the states (Land Acquisition and State Assistance account);² and matching grants primarily to address the high backlog of deferred maintenance on NPS infrastructure (Centennial Challenge account).³.² By far the largest share of NPS's discretionary appropriations—7275% in FY2019% in FY2018³—went to the ONPS account, which covers basic park operations (Figure 2 and Table 2). In addition to these five accounts, during five years of the past decade (FY2010 and FY2015-FY2018), Congress appropriated funds for a sixth account, the Centennial Challenge account.⁴ The account provides the federal share of matching grants for "signature" park projects and programs, primarily aimed at addressing the agency's substantial backlog of deferred maintenance on its infrastructure.⁵

Figure 2. NPS's FY2018 Discretionary Appropriations by Account

Source: P.L. 115-123; and P.L. 115-141, Division G, Explanatory Statement, Congressional Record, March 22, 2018, pp. H2609-H2694. Notes: ONPS = Operation of the National Park Service; NR&P = National Recreation and Preservation; HPF = Historic Preservation Fund; LASA = Land Acquisition and State Assistance. These data exclude permanent budget authorities and generally do not reflect scorekeeping adjustments. The data reflect supplemental appropriations for hurricane recovery in P.L. 115-123, including $207.6 million for the Construction account and $50.0 million for the HPF account.

Operation of the National Park System Account

Appropriations for the largest NPS account, entitled Operation of the National Park System (ONPS), support the activities, programs, and services that form the day-to-day operations of the National Park System. Including supplemental appropriations for economic stimulus, ONPS funding was $2.278262 billion in FY2009FY2010 and increased in nominal dollars to $2.478503 billion in FY2018FY2019 (see Table 2 and Figure 3). When adjusted for inflation, however, this represents a decrease of 5.2%. With supplemental appropriations excluded, the FY2009 funding was less ($2.132 billion), and by this measure funding for the account increased over the decade in real terms, by 1.3% in inflation-adjusted dollars. %. As a percentage of total NPS appropriations, the ONPS share grew slightly over the decade if supplemental appropriations are counted, increasing from 69.5decreased over the decade from 82% of total funding in FY2009 to 71.6% in FY2018. Without supplementals, the ONPS share was 84% of total funding in FY2009 and 77% in FY2018, representing a decrease in share.FY2010 to 75% in FY2019. The ONPS account was not affected by supplemental appropriations during the decade.⁴

The majority of ONPS funds are provided directly to managers of individual park units. Activities covered under the account include visitor services, resource stewardship, park protection (including the U.S. Park Police), facility operations and maintenance, and park support,⁶ as well as "external administrative costs" for services provided by outside entities.⁷ Among these activities, funding for facility operations and maintenance, park support, and external administrative costs grew over the decade, whereas collective funding for the remaining activities—resource stewardship, visitor services, and park protection—declined.⁸ (These calculations do not reflect supplementals, because the supplemental funds were not assigned at the subaccount level.)

Figure 3. Appropriations for NPS's Operation of the National Park System (ONPS) Account, FY2009-FY2018 ($ millions, in nominal and inflation-adjusted 2009 dollars)

Sources: FY2009-FY2014 data are from annual House Appropriations Committee detailed tables for NPS. FY2015-FY2017 data are from NPS budget justifications for FY2017-FY2019. FY2018 data are from annual House Appropriations Committee detailed tables for NPS. Notes: See footnote 1 for additional information on this figure.

Construction Account

The second-largest NPS account, titled Construction, funds new construction projects as well as repairs and improvements to existing facilities, among other activities. Appropriations to the account for the first and last years of the decade (FY2009 and FY2018), along with the appropriation for FY2013, were considerably higher than construction appropriations in intervening years, in all three cases owing to supplemental appropriations related to economic stimulus (FY2009) or hurricane recovery (FY2013 and FY2018). With the supplementals included and adjusting for inflation, the FY2018 appropriation was 39.8% lower than the FY2009 appropriation (see Figure 4 and Table 2). Construction appropriations accordingly represented a smaller portion of total NPS appropriations in FY2018 (16.4%) than they did in FY2009 (25.0%). Excluding supplementals, funding for the account grew over the decade by 34.8% in inflation-adjusted dollars, and Construction's share of total funding also rose (from 9.2% in FY2009 to 11.2% in FY2018).

Figure 4. Appropriations for NPS's Construction Account, FY2009-FY2018 ($ millions, in nominal and inflation-adjusted 20095 Among these activities, funding for three activities (visitor services, resource stewardship, and park protection) decreased over the decade in inflation-adjusted dollars, whereas funding for two activities (park support and external administrative costs) grew in inflation-adjusted dollars. Funding for the remaining activity—facility operations and maintenance—was nearly even in FY2019 as compared with FY2010, when adjusted for inflation.6 Figure 3. Appropriations for NPS's Operation of the National Park System (ONPS) Account, FY2010-FY2019 ($ millions, in nominal and inflation-adjusted 2010 dollars)

Sources: FY2009FY2010-FY2014 data are from annual House Appropriations Committee detailed tables for NPS. FY2015-FY2017FY2018 data are from NPS budget justifications for FY2017-FY2019. FY2018FY2020. FY2019 data are from annual House Appropriations Committee detailed tables for NPS. Notes: See footnote 1 for additional information on this figure.

Among the specific activities funded in the Construction account, the largest is line-item construction and maintenance, which covers construction of new facilities and rehabilitation and replacement of existing facilities.⁹ In recent years, NPS has planned no new facility construction, in order to prioritize deferred maintenance. Projects are prioritized based on their contribution to NPS mission factors and cost-benefit considerations.¹⁰ Other activities funded in the Construction account include emergency and unscheduled construction, repair and replacement of employee housing, dam safety, equipment replacement, construction planning and program management, development of general management plans for park units, and preparation of special studies of areas (for instance, to assess their potential for inclusion in the National Park System).

National Recreation and Preservation Account

The National Recreation and Preservation (NR&P) account funds NPS programs that primarily assist state, local, tribal, and private land managers with outdoor recreation planning, natural and cultural resource preservation, environmental compliance, and other activities outside the National Park System. Appropriations for the account ranged from $55 million to $65 million throughout the decade. Comparing FY2018 with FY2009 shows a growth in nominal dollars, from $58.4 million in FY2009 to $63.6 million in FY2018. Adjusted for inflation, however, this represents a decline of 5.0% (Figure 5 and Table 2). The portion of total NPS funding used for the NR&P account (1.8%) was the same at the beginning and end of the decade. The NR&P account was not affected by supplemental funding during the decade.

Figure 5. Appropriations for NPS's National Recreation and Preservation (NR&P) Account, FY2009-FY2018 ($ millions, in nominal and inflation-adjusted 2009 dollars)

Sources: FY2009-FY2014 data are from annual House Appropriations Committee detailed tables for NPS. FY2015-FY2017 data are from NPS budget justifications for FY2017-FY2019. FY2018 data are from annual House Appropriations Committee detailed tables for NPS. Notes: See footnote 1 for additional information on this figure.

Historic Preservation Fund

The Historic Preservation Fund (HPF), established in 1976,¹³. Historic Preservation Fund The Historic Preservation Fund (HPF), established in 1976, is administered by NPS through appropriations to the agency's HPF account. In accordance with the purposes of the National Historic Preservation Act (NHPA; P.L. 89-665; 54 U.S.C. §§300101 et seq.),),¹⁰ the fund primarily provides grants-in-aid to state and tribal historic preservation offices for conservation of cultural and historical assets and sites. Grants are typically awarded onThese grants are awarded by formula and require a 60% federal–40% state matching share basis. The HPF is funded by revenues from oil and gas activities on the U.S. outer continental shelf. Funding was reauthorized through FY2023 in P.L. 114-289.¹⁴

Appropriations for the HPF account varied during the decade and were highest in FY2013 ($100.4 million) and FY2018 ($146.9 million), in both cases due to supplemental appropriations for hurricane recovery (see Figure 6 and Table 2).¹⁵ This supplemental funding was primarily to assist recovering states and territories with compliance activities related to Section 106 of the NHPA. (Under Section 106, projects that receive federal funds or permits—such as many hurricane recovery projects—must be assessed for their potential effects on historic properties.) The account also received some supplemental funding as part of the economic stimulus package in FY2009. With supplementals included, the FY2018 appropriation was 52.4% higher in inflation-adjusted dollars than the FY2009 appropriation, and the account represented 2.6% of the total NPS appropriation in FY2009 and 4.2% in FY2018. With supplementals excluded, the FY2018 appropriation was 22.4% higher than in FY2009, and the account's share of total NPS appropriations was 2.7% in FY2009 and 3.0% in FY2018.

Figure 6. Appropriations for NPS's Historic Preservation Fund (HPF) Account, FY2009-FY2018 ($ millions, in nominal and inflation-adjusted 2009 dollars)

Sources: FY2009-FY2014 data are from annual House Appropriations Committee detailed tables for NPS. FY2015-FY2017 data are from NPS budget justifications for FY2017-FY2019. FY2018 data are from annual House Appropriations Committee detailed tables for NPS The HPF receives $150 million annually in deposits from offshore oil and gas revenues, but the funding is available only to the extent appropriated by Congress. Annual appropriations from the account were less than the deposited amount throughout the decade, except in FY2019 (counting supplementals). Regular appropriations for the account declined after FY2010 but then grew in the latter part of the decade (Figure 6 and Table 2). The FY2019 appropriation was 10% higher in inflation-adjusted dollars than the FY2010 appropriation, not including supplemental appropriations. With the supplemental included, the FY2019 appropriation was 64% higher than FY2010. The HPF account represented approximately 3% of the total NPS appropriation in FY2010 and 5% in FY2019 (including supplementals). The largest activity in the HPF account is grant funding for state historic preservation offices, which declined by 9% in inflation-adjusted terms over the decade. Grants for tribal historic preservation offices, on the other hand, rose by 25% after adjusting for inflation. The account also funded various competitive grant programs in particular years. For FY2019, these included grants for historically black colleges and universities (HBCUs), historic designation of properties associated with underrepresented communities, preservation of sites and stories associated with the civil rights movement, and the Save America's Treasures program to restore nationally significant historic structures and artifacts. Supplemental appropriations augmented regular appropriations for the HPF account in three years—FY2013, FY2018, and FY2019—and were targeted primarily to hurricane recovery.11 The funding was mainly to assist recovering states and territories with compliance activities related to Section 106 of the NHPA.12 Under Section 106, undertakings that receive federal funds or permits—including some hurricane recovery activities—must be evaluated for their potential effects on historic properties. Figure 6. Appropriations for NPS's Historic Preservation Fund (HPF) Account, FY2010-FY2019 ($ millions, in nominal and inflation-adjusted 2010 dollars) Sources: FY2010-FY2014 data are from annual House Appropriations Committee detailed tables for NPS. FY2015-FY2018 data are from NPS budget justifications for FY2017-FY2020. FY2019 data are from annual House Appropriations Committee detailed tables for NPS and P.L. 116-20. Notes: See footnote 1 for additional information on this figure.

Land Acquisition and State Assistance

The Land Acquisition and State Assistance (LASA) account represents NPS's share of appropriations from the Land and Water Conservation Fund (LWCF; 54 U.S.C. §§200301 et seq.). The LWCF, funded mainly from offshore oil and gas revenues, is the primary is the primary funding source for land acquisition funding for the four major federal land management agencies—NPS, the Bureau of Land Management, the Fish and Wildlife Service, and the Forest Service.¹⁶ In addition, the LWCF supports grants to states (and, through states, to localities) for assistance with recreation planning, acquiring recreational lands and waters, and developing outdoor recreational facilities.¹³ These 50/50 matching grants, administered by NPS, generally are allocated to states by formula. In recent years, a portion of the funding ($20.0 million for FY2018FY2019, out of a total of $124.0 million for state assistance) also has been appropriated for a nationally competitive grant program. Overall, the LWCF is authorized at $900 million annually, but The LWCF receives deposits of $900 million annually, primarily from offshore oil and gas revenues, but this funding is only available to the extent appropriated (at no point in the past decade was thisthe "full funding" appropriated).

($ millions, in nominal and inflation-adjusted 2010 dollars)

Sources: FY2010-FY2014 data are from annual House Appropriations Committee detailed tables for NPS. FY2015-FY2018 data are from NPS budget justifications for FY2017-FY2020. FY2019 data are from annual House Appropriations Committee detailed tables for NPS.

Notes: See footnote 1 for additional information on this figure.

Appropriations for the LASA account—comprising the NPS federal and state assistance portions of the LWCFincluding both NPS federal land acquisition and assistance to states—varied during the decade and rose overall, with the highest amounts appropriated in the past threefour years (see Figure 7 and Table 2). The appropriation rosegrew from $64.2126.3 million in FY2009 to $180.9 million in FY2018. (As with NR&P, supplemental appropriations did not affect the LASA account during the decade.) Adjusted for inflation, this is a growth of 145.6%. The growth is largely attributable to a significant increase in appropriations for state land acquisition in recent years. Altogether, the LASA account represented 2.0% of the total NPS appropriation in FY2009 and 5.2% in FY2018.

Both parts of the account—the funds for NPS land acquisition and for assistance to states—grew over the decade, but growth in the NPS portion was smaller (+9.8% in inflation-adjusted dollars) than in the state portion (+468.6%). State assistance was less than $20 million in FY2009, rose toFY2010 to $168.4 million in FY2019.¹⁴ Adjusted for inflation, this is a growth of 14%. The LASA account represented approximately 5% of the total NPS appropriation in both FY2010 and FY2019. The increase in funding for the account is largely attributable to higher appropriations for the state assistance program in recent years. The FY2019 appropriation for NPS federal land acquisition was 56% lower than FY2010 when adjusted for inflation. By contrast, the appropriation for NPS assistance to states grew over the decade by 165% in inflation-adjusted dollars. State assistance was roughly $40 million-$50 million annually for FY2010-FY2015, and more than doubled in nominal dollars, reaching $110 million-$125 million, for FY2016-FY2018FY2019. For land acquisition by NPS, annual funding the funding was $86 million in FY2010 and ranged between $4544 million and $65 million, except in FY2010, when it rose to $86 million.

Figure 7. Appropriations for NPS's Land Acquisition and State Assistance (LASA) Account, FY2009-FY2018 ($ millions, in nominal and inflation-adjusted 2009 thereafter.15 National Recreation and Preservation Account The National Recreation and Preservation (NR&P) account funds NPS programs that primarily assist state, local, tribal, and private land managers with outdoor recreation planning, natural and cultural resource preservation, and other activities outside the National Park System. Appropriations for the account fluctuated during the decade and declined overall, by 20% in inflation-adjusted dollars (Figure 8 and Table 2). The portion of total NPS funding used for the NR&P account was roughly the same (2%) at the beginning and end of the decade. The NR&P account was not a recipient of supplemental funding during the decade. Figure 8. Appropriations for NPS's National Recreation and Preservation (NR&P) Account, FY2010-FY2019 ($ millions, in nominal and inflation-adjusted 2010 dollars)

Sources: FY2009Sources: FY2010-FY2014 data are from annual House Appropriations Committee detailed tables for NPS. FY2015-FY2017FY2018 data are from NPS budget justifications for FY2017-FY2019. FY2018FY2020. FY2019 data are from annual House Appropriations Committee detailed tables for NPS. Notes: See footnote 1 for additional information on this figure.

A variety of natural, cultural, and recreational assistance programs are funded in the NR&P account. The Heritage Partnership Program, which provides NPS assistance to national heritage areas, is the largest single program in the account.¹⁶ Its appropriations stayed relatively steady over the decade in inflation-adjusted dollars,¹⁷ despite budget requests from the Obama and Trump Administrations to significantly reduce it. There were 49 heritage areas for almost all of the decade, until Congress established 6 new heritage areas in March 2019 in P.L. 116-9. The NR&P account also has included other programs that assist nonfederal entities, such as the American Battlefield Protection Program;¹⁸ Rivers, Trails, and Conservation Assistance Program; National Natural Landmarks and National Historic Landmarks Programs; National Register of Historic Places; and Preserve America Program. The account further covers international park affairs, environmental and compliance review, and grants administration.

Centennial Challenge

The Centennial Challenge account was funded during certain years of the decade (FY2010 and FY2015-FY2018FY2019). The account consists of a matching-grant program to spur partner donations for park improvements, primarily aimed at addressing deferred maintenance.¹⁹ The name "Centennial Challenge" indicates the fund's origin as a program to improve the parks in anticipation of NPS's 2016 centennial anniversary and its second century of park management.²⁰ Both the Bush and Obama Administrations had proposed discretionary and mandatory funding for the fund prior to its legislative establishment in December 2016 (P.L. 114-289), and Congress had provided discretionary appropriations in some years, starting in FY2008. P.L. 114-289 codified the Centennial Challenge Fund and authorized it to receive federal revenues from certain sales of National Parks and Federal Recreational Lands Passes to seniors, in addition to discretionary appropriations. The senior pass revenues are provided as offsetting collections.¹⁷21 Revenues are to be matched on at least a one-to-one basis by nonfederal donations.

Figure 8 Figure 9. Appropriations for NPS's Centennial Challenge Account, FY2009-FY2018 FY2010-FY2019 ($ millions, in nominal and inflation-adjusted 20092010 dollars)

Sources: FY2009FY2010-FY2014 data are from annual House Appropriations Committee detailed tables for NPS. FY2015-FY2017FY2018 data are from NPS budget justifications for FY2017-FY2019. FY2018FY2020. FY2019 data are from annual House Appropriations Committee detailed tables for NPS. Notes: See footnote 1 for additional information on this figure.

During the past decade, Congress appropriated $5.0 million for the fund in 2010 and then did not make further appropriations until FY2015 (Table 2 and Figure 9). Starting in that year, Congress appropriated mainly increasing amounts, and the FY2019 appropriation represented an increase of 242% over FY2010 in inflation-adjusted dollars.²² The account represented less than 1% of total NPS appropriations in both FY2010 and FY2019. NPS Appropriations in Context

Changes in NPS appropriations can be considered in the context of the National Park System's size, the number of visits to the parks, and NPS staffing levels, among other factors. Over the past decade, the acreage of the National Park System remained relatively stable, growing by 0.81%, while 2628 new units were added.²³ Visitation peaked in 2016 and was generally higher in the second part of the decade than the first. Staffing levels fluctuated around 20,000 during the past 10 yearsfull-time equivalent (FTE) employees during the past 10 years and were lower at the end of the decade than at the beginning.

Size of the National Park System

National Park System acreage grew slightly over the decade, from 84.4 million acres to 85.01 million acres, a growth of 0.81%. (See Figure 910 and Table 3.) The percentage of National Park System lands owned by the federal government remained steady, at 95.3% of total system lands.¹⁹24 The remainder—the nonfederal land in the system—includes lands within park boundaries that are owned by state or local governments and by private landowners.

Although the overall size of the National Park System did not change significantly, 26A total of 28 units were added to the system in the FY2009-FY2018 period.²⁰FY2010-FY2019 period. Many were relatively small in acreage, such as Stonewall National Monument in New York (0.12 acres) and Belmont-Paul Women's Equality National Monument in Washington, DC (0.34 acres), which each consist of a single building. The largest units added to the system during the decade were Valles Caldera National Preserve in New Mexico (89,000 acres) and Katahdin Woods and Waters National Monument in Maine (87,563 acres). Other acreage changes resulted from boundary adjustments in existing parks.

Figure 910. Size of the National Park System, FY2009-FY2018 FY2010-FY2019 (in millions of acres)

Sources: NPS Land Resources Division, annual summaries of acreage, available on NPS Stats web page at https://irmawww.nps.gov/Stats/Reports/National. FY2018subjects/lwcf/acreagereports.htm. FY2019 figures are as of December 31, 20172018, the most recent data available. Notes: "Federal Landland" category includes NPS Fee Acres, Less Than Fee Acres, and Other Federal Fee Acres. "Nonfederal Landland" category includes Other Public Acres and Private Acres.

Visits to the National Parks

Numbers of recreational visits to the National Park System varied over the past 10 years but were generally higher toward the end of the decade. The highest numbers of visits were in 2016 (331.0 million visits) and 2017 (330.9 million visits; see Figure 1011 and Table 4). Visits at the end of the decade were 15.913% higher than at the beginning.²¹

Figure 10. Annual Recreational Visits to the National Park System, 2009-2018 (total visits in millions, by calendar year)

Source: National Park Service, NPS Stats, at https://irma.nps.gov/Stats/Reports/National. Notes: The figure for 2018 shows visits through May 2018 (104.4 million visits). For comparison with the previous year, visits through May 2017 totaled 110.3 million.

National Park Service Staffing

NPS's full-time equivalent (FTE) staffing levels were highest in the earlier part of the decade, starting with an FY2010 increase that followed economic stimulus measures in FY2009. Staffing. FTE staffing ranged from a high of 22,211 in FY2010 to a low of 19,359 in FY2015032 in FY2018 (Figure 11 and Table 5). NPS's staffing estimate for FY2018 would appear to be the second-lowest, but it may not fully capture staffing numbers because it was based on an appropriations baseline derived from a continuing resolution, whereas the final NPS appropriation was higher.

Figure 11. NPS Full-Time Equivalent (FTE) Staff, FY2007-FY2016

Sources: FY2009-FY2015 numbers from U.S. Department of the Interior, "Department of the Interior FTE History: Full-Time Equivalent Staff Year (FTE) Actual of Bureaus and Offices," at https://www.doi.gov/sites/doi.gov/files/uploads/fte-_history_table-20161108.pdf. FY2016-FY2018 numbers from NPS budget justifications. Note: NPS's FTE estimate for FY2018 was based on an appropriations baseline of $2.924 billion derived from a continuing resolution, whereas the final NPS appropriation was $3.202 billion, not including supplementals.

Conclusion

The funding changes took place in the context of a park system of relatively stable size and a staffing level that hovered around 20,000. Although park acreage grew only slightly, 26 units were added to the system during the decade. Visits to the parks generally were higher in the second half of the decade than the first and peaked in 2016 at approximately 331 million visits.

A major funding issue for NPS is infrastructure reinvestment. The agency's backlog of deferred maintenance and repairs for its infrastructure was estimated at $11.6192 billion for FY2017. Funding for both of the discretionary appropriations accountsFY2018. The identified backlog amount declined in inflation-adjusted dollars but grew in nominal dollars over the decade. Combined funding for two discretionary subaccounts that mainly address deferred maintenance (within the ONPS and Construction accounts) increased by about 50% in inflation-adjusted dollars over this periodONPS and Construction) decreased over the decade if supplementals are counted in the measurement but increased if supplementals are excluded. NPS's infrastructure needs continue to receive attention in the 115^116th Congress, both within and outside the annual appropriations process.

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Footnotes