Proposed Rule2026-02510
Mammoth Cave National Park; Bicycling and Horses
Primary source
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Published
February 9, 2026
Issuing agencies
Interior DepartmentNational Park Service
Abstract
The National Park Service (NPS) proposes to amend the special regulations for Mammoth Cave National Park to allow bicycle use on approximately 37 miles of multi-use trails throughout the park. The proposed rule also would allow visitors to ride horses on the 5.4-mile Houchin Ferry North/Ollie Road.
Full Text
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<title>Federal Register, Volume 91 Issue 26 (Monday, February 9, 2026)</title>
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[Federal Register Volume 91, Number 26 (Monday, February 9, 2026)]
[Proposed Rules]
[Pages 5700-5704]
From the Federal Register Online via the Government Publishing Office [<a href="http://www.gpo.gov">www.gpo.gov</a>]
[FR Doc No: 2026-02510]
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DEPARTMENT OF THE INTERIOR
National Park Service
36 CFR Part 7
[NPS-MACA-DTS#0041023; PPSEMACAS0 PPMPSPD1Z.YM0000 255P103601]
RIN 1024-AE93
Mammoth Cave National Park; Bicycling and Horses
AGENCY: National Park Service, Interior.
ACTION: Proposed rule.
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SUMMARY: The National Park Service (NPS) proposes to amend the special
regulations for Mammoth Cave National Park to allow bicycle use on
approximately 37 miles of multi-use trails throughout the park. The
proposed rule also would allow visitors to ride horses on the 5.4-mile
Houchin Ferry North/Ollie Road.
DATES: Comments on the proposed rule must be received by 11:59 p.m.
eastern time on April 10, 2026.
ADDRESSES:
Written Comments: You may submit comments by one of the following
methods:
(1) Electronically: Go to the Federal eRulemaking Portal: <a href="https://www.regulations.gov">https://www.regulations.gov</a>. In the Search box, enter 1024-AE93, the RIN for
this rulemaking. On the resulting page, select the Dockets tab and then
click on the title of the rule. Next, click the
[[Page 5701]]
``Open for Comments'' box, then click the blue ``Comment'' box and
follow the instructions for submitting comments.
(2) By hard copy: Mail to: Superintendent, Mammoth Cave National
Park, P.O. Box 7, Mammoth Cave, KY 42259.
Document Availability: The ``Mammoth Cave National Park
Comprehensive Land and River Trails Plan and Environmental Assessment''
and the ``Finding of No Significant Impact'' provide information and
context for this proposed rule. Both documents are available online at
<a href="https://parkplanning.nps.gov/maca">https://parkplanning.nps.gov/maca</a> by clicking the link entitled
``Develop Land and River Trail Management Plan for Mammoth Cave
National Park'' and then clicking the link entitled ``Document List.''
Instructions: Comments will not be accepted by fax, email, or in
any way other than those specified above. All submissions received must
include the words ``National Park Service'' or ``NPS'' and must include
the docket number or RIN (1024-AE93) for this rulemaking. Comments
received may be posted without change to <a href="https://www.regulations.gov">https://www.regulations.gov</a>,
including any personal information provided.
Docket: For access to the docket to view the proposed rule and
comments received, go to <a href="https://www.regulations.gov">https://www.regulations.gov</a> and search for
``1024-AE93.'' Be sure to check the Dockets Tab, Documents Tab, and
Comment Tab for possible results.
FOR FURTHER INFORMATION CONTACT: Barclay Trimble, Superintendent,
Mammoth Cave National Park; (202)-758-2180; <a href="/cdn-cgi/l/email-protection#edaf8c9f8e818c94b2b99f84808f8188ad839d9ec38a829b"><span class="__cf_email__" data-cfemail="db99baa9b8b7baa2848fa9b2b6b9b7be9bb5aba8f5bcb4ad">[email protected]</span></a>.
Individuals in the United States who are deaf, deafblind, hard of
hearing, or have a speech disability may dial 711 (TTY, TDD, or
TeleBraille) to access telecommunications relay services. Individuals
outside the United States should use the relay services offered within
their country to make international calls to the point-of-contact in
the United States. In compliance with the Providing Accountability
Through Transparency Act of 2023, the plain language summary of the
proposal is available on <a href="http://Regulations.gov">Regulations.gov</a> in the docket for this
rulemaking.
SUPPLEMENTARY INFORMATION:
Background
History, Establishment and Purpose of the Park
Mammoth Cave National Park comprises more than 52,000 acres of land
within Edmondson, Hart, and Barron Counties in Kentucky. Within Mammoth
Cave National Park is Mammoth Cave. Named for the enormity of its
subterranean vaults and the unparalleled extent of its passages,
Mammoth Cave is the longest known cave system in the world with over
400 miles surveyed to date. The geologic features within the extensive
cave system are the product of a unique set of conditions found nowhere
else, all of which contribute to the largest, most complex, and best-
known karst area in the world. Karst is a geologic term that refers to
areas of irregular limestone in which erosion has produced features
such as fissures, sinkholes, underground streams, sinking springs, and
caverns. The land above the underground formations is characterized by
rugged hills, valleys, and forests.
Congress authorized the establishment of the park in 1926, which
was officially established in 1941 and added to in 1961 with the
acquisition of Great Onyx Cave and Crystal Cave. The legislative
history of the establishment of the park recognized the need to protect
and conserve the stunning and unique underground formations of the cave
system, but also opportunities for recreation that could be provided by
lands above ground. The park's enabling legislation directs the NPS to
administer the park in accordance with the laws generally applicable to
the National Park System, including the NPS Organic Act. That act
requires the NPS to promote and regulate the scenery, natural and
historic objects, and wild life in parks and to provide for the
enjoyment of the same in such manner and by such means that will leave
them unimpaired for the enjoyment of future generations. 54 U.S.C.
100101.
In 2014, the NPS published the foundation document for the park.
The document states that the park's purpose is to preserve, protect,
interpret, and study the internationally recognized biological and
geologic features and processes associated with the longest known cave
system in the world, the park's diverse forested, karst landscape, the
Green and Nolin rivers, and extensive evidence of human history; and to
provide and promote public enjoyment, recreation, and understanding.
Today, visitors are drawn to the park by its caves, scenic river
valleys, bluffs, forests, and abundant wildlife. Above ground, the park
offers opportunities for ranger-led tours, surface walks, camping,
hiking, horseback riding, bicycling, scenic drives, canoeing and
kayaking, fishing, accessible trails, and picnicking.
Trail Use in the Park
Bicycling is allowed on approximately 19 of the 85 miles of land-
based trails within the park. These multi-use trails are the Connector
Trail from the Big Hollow Trailhead to the Maple Springs Trailhead
(Maple Springs Connector Trail), the Big Hollow Trail, the Mammoth Cave
Railroad Bike & Hike Trail, and the White Oak Trail. Bicycles also are
allowed on roads that are open to public motor vehicle traffic and on
four administrative roads that are closed to motor vehicle use by the
public but open to motor vehicle use by the NPS for administrative
purposes (the Crystal Cave, Great Onyx, Three Springs, and Union City
administrative roads).
Trails, public roads, and administrative roads that are open to
traditional bicycles also are open to two-wheeled electric bicycles (e-
bikes). Trail-use of three-wheeled e-bikes is limited to the Mammoth
Cave Railroad Bike & Hike Trail and the Maple Springs Connector Trail.
The use of traditional bicycles and e-bikes is governed by State law
and NPS regulations that address topics such as speed limits, operation
during periods of low visibility, obeying traffic control devices, and
unsafe operation. See 36 CFR 4.30.
In addition to opportunities for hiking and bicycling, visitors can
ride horses on 54 miles of trail within the park, featuring wooded
backcountry routes suitable for different skill levels and ages. The
trails include wide, smooth dirt paths that accommodate two riders as
well as narrower, single-file ridgeline trails. Horseback riding is
prohibited on all park roads pursuant to NPS general regulations that
prohibit the use or horses on park roads except in limited
circumstances. See 36 CFR 2.16.
Comprehensive Land and River Trails Plan and Environmental Assessment
In 2022, the NPS began developing a new land and river trails
management plan for the park. The NPS initiated this planning process
because previous plans had become outdated, and the condition of the
park's trail system had deteriorated in a way that was adversely
impacting park resources and the experience of trail users. The new
plan would guide trail management for several decades with the purpose
of improving access to high-quality land and river-based recreational
opportunities for a diverse group of trail users, including hikers,
equestrians, mountain bikers, and paddlers.
After the conclusion of a preliminary planning phase that sought
feedback
[[Page 5702]]
from trail users, community groups, and the general public, the NPS
published the ``Mammoth Cave National Park Comprehensive Land and River
Trails Plan and Environmental Assessment'' in 2024. The environmental
assessment (EA) analyzed the potential environmental impacts of a no-
action alternative that would have continued current management of the
trail system and an action alternative that was identified as the NPS's
preferred alternative. Under the action alternative, the NPS would add
approximately 66 miles of land-based trails to the park trail system.
This 72 percent increase in trail mileage would create new
opportunities for hiking, horseback riding, and bicycling.
Specific to bicycle use, under the preferred alternative, the NPS
would (1) discontinue bicycle use on the White Oak Trail; (2) close and
restore to natural conditions the Maple Springs Connector Trail; and
(3) construct eight new multi-use trails where bicycle use would be
allowed, resulting in a total of approximately 37 miles of trail open
to bicycle use.
As described in the EA, trail construction activities would use
sustainable trail techniques to manage water and limit erosion, such as
trail hardening, grade reversals, outslopes, and other earthwork
strategies that improve drainage. These measures would minimize trail
widening and trail braiding on new and rehabilitated trails, resulting
in less vegetation trampling. The NPS would implement mitigation
measures to minimize the impact on native vegetation during
construction.
In addition to evaluating the potential impacts of trail
construction and modification activities, the EA evaluated the
potential impacts of allowing bicycles on the new trails. The EA and an
associated written determination required by NPS regulations evaluate
the suitability of trail surfaces and soil conditions for accommodating
bicycle use; life cycle maintenance costs, safety considerations,
methods to prevent or minimize user conflict, and methods to protect
natural and cultural resources and mitigate impacts from bicycle use.
Under the preferred alternative, the NPS would convert a one-mile
section of the Ugly Creek Road from a public road to an administrative
road that is closed to motor vehicle use other than vehicles used by
the NPS for administrative purposes. Hiking and bicycling would be
allowed on the converted section of this road.
The preferred alternative also would open the Houchin Ferry North/
Ollie Road (5.4 miles) to horseback riding. This change would improve
the experience of equestrians by providing multiple opportunities for
longer loop rides, and a new opportunity to ride to the river and back
from the northern boundary of the park. The NPS does not anticipate
there will be conflicts between vehicles, equestrian users, hikers, and
bicyclists because the road is used rarely by motor vehicles. All other
public and administrative roads would continue to remain closed to
equestrian use.
The NPS accepted public comments on the EA for 30 days. In December
2024, following a recommendation by the park superintendent, the
Regional Director for Interior Region 2, South Atlantic--Gulf, signed a
finding of no significant impact on the human environment (FONSI) that
identified the preferred alternative in the EA as the selected
alternative. As stated in the FONSI, the NPS believes the selected
alternative will improve the conditions and sustainability of the
aboveground land and water trail networks in the park and enhance the
diversity and quality of visitor experiences while protecting natural
and cultural resources. Implementation of the selected alternative will
expand opportunities for visitors to enjoy and recreate within the
park.
Proposed Rule
This rule would implement part of the selected alternative in the
FONSI by amending the special regulations for the park in 36 CFR 7.36.
This rule would authorize the superintendent to designate approximately
37 miles of multi-use trails for bicycle use in the park. The rule
would identify 12 distinct trails that could be designated for bicycle
use. Two trails currently designated for bicycle use--the Maple Springs
Connector Trail and the White Oak Trail--would be removed, consistent
with plans to close those trails to bicycle use under the selected
alternative. Another currently designated trail--the Mammoth Cave
Railroad Bike & Hike Trail--will remain on the list and another--the
Big Hollow Trail--will be listed as three separate segments as
identified on park maps.
The rule would add the following eight new trails that will be
constructed under the selected alternative:
<bullet> Brooks Knob Road Cemetery Trail;
<bullet> Brooks Knob Road Trail (up to gate);
<bullet> Crystal Cave Road Trail;
<bullet> East Entrance Trail;
<bullet> Little Hope Cemetery Trail;
<bullet> Sugar Sink Connector Trail;
<bullet> Sugar Sink Trail; and
<bullet> West Entrance Trail.
The rule would include the approximate mileage of all of the
identified trails. The rule would require the superintendent to notify
the public of designated trails through one or more of the methods
identified in 36 CFR 1.7, including publication in the superintendent's
compendium (or written compilation) of discretionary actions and on
maps available at the visitor center and on the park website. NPS
regulations at 36 CFR 4.30(i) authorize superintendents to allow
electric bicycles on park roads, parking areas, and administrative
roads and trails that are otherwise open to traditional bicycles.
Accordingly, the superintendent may decide to allow electric bicycles
on any of the trails identified in the rule that are open to
traditional bicycles and will notify the public pursuant to 36 CFR 1.7.
NPS general regulations in 36 CFR 2.16(c) prohibit the use of
horses or pack animals on a park road, except where such travel is
necessary to cross to or from designated trails, areas, or privately
owned property when no alternative trails or routes have been
designated, and when the road is closed to motor vehicles. Neither of
these exceptions to the general rule apply to riding horses on the
Houchin Ferry North/Ollie Road, which is called for in the selected
alternative. Special regulations for the park, however, can amend,
modify, relax, or make more stringent general regulations in 36 CFR
parts 1 through 5 and part 12. See 36 CFR 1.2(c). Accordingly, this
rule would add a new paragraph (d) to the special regulations for the
park that would allow equestrian use on the approximately 5.4-mile
Houchin Ferry North/Ollie Road.
Compliance With NPS Bicycle Regulations
The EA constitutes the planning document and evaluates the criteria
required by the NPS's general bicycle regulations at 36 CFR 4.30. Under
the selected action in the FONSI, the NPS would allow bicycle use on
approximately 37 miles of multi-use trails in the park. The EA
evaluates the suitability of each trail surface and soil conditions for
accommodating bicycle use; and life cycle maintenance costs, safety
considerations, methods to prevent or minimize user conflict, and
methods to protect natural and cultural resources and mitigate impacts
associated with bicycle use.
The final trail alignments shown on the maps in the EA are based on
field surveys and geographic information system (GIS) analysis. The new
trail alignments have been determined at the
[[Page 5703]]
corridor level, defined as a 60-foot-wide corridor within which the new
trail would be constructed. Final trail alignments would be determined
on the ground upon implementation and in consultation with park natural
and cultural resources specialists, which could result in minor
adjustments to the trail locations shown on the maps. If a need existed
to align a trail outside of the identified corridor, the amended
alignment would undergo additional review to avoid or minimize impacts
on sensitive resources, and the change would be documented as an
amendment to the trails management plan.
The superintendent of the park has signed a written determination
that bicycle use on all of the trails identified in this proposed rule
and certain administrative roads that would be open to bicycle use
under the selected action in the FONSI, is consistent with the
protection of the park's natural, scenic, and aesthetic values; safety
considerations; management objectives; and will not disturb wildlife or
park resources, as required by 36 CFR 4.30. This written determination
is available on the park's planning website at the URL listed in the
ADDRESSES section. The NPS is not publishing the written determination
separately in the Federal Register but welcomes comments on the written
determination during the public comment period for this proposed rule.
Compliance With Other Laws, Executive Orders and Department Policy
Regulatory Planning and Review (Executive Orders 12866 and 14192)
This rule has been determined to be not significant for purposes of
Executive Order (E.O.) 12866. This rule is an E.O. 14192 deregulatory
action.
Regulatory Flexibility Act (RFA)
This proposed rule would not have a significant economic effect on
a substantial number of small entities under the RFA (5 U.S.C. 601 et
seq.). No small entities would be directly regulated by the proposed
rule, which would allow bicycle use on approximately 37 miles of multi-
use trails throughout the park and allow visitors to ride horses on the
5.4-mile Houchin Ferry North/Ollie Road. This action would not impose
restrictions on local businesses in the form of fees, training, record
keeping, or other measures that would increase costs. Rather, this
action could lead to a slight increase in park visitation and thereby
generate benefits for businesses, including small entities, through
increased visitor spending. Therefore, the NPS certifies that, if made
final, this proposed rule would not have a significant economic impact
on a substantial number of small business entities.
Congressional Review Act
This proposed rule, if finalized, would not be a major rule under 5
U.S.C. 804(2). This proposed rule:
(a) Would not have an annual effect on the economy of $100 million
or more.
(b) Would not cause a major increase in costs or prices for
consumers, individual industries, Federal, State, or local government
agencies, or geographic regions.
(c) Would not have significant adverse effects on competition,
employment, investment, productivity, innovation, or the ability of
U.S.-based enterprises to compete with foreign-based enterprises.
Unfunded Mandates Reform Act
This proposed rule would not impose an unfunded mandate on State,
local, or Tribal governments or the private sector of more than $100
million per year. This proposed rule would not have a significant or
unique effect on State, local or Tribal governments, or the private
sector. It addresses public use of national park lands and imposes no
requirements on other agencies or governments. A statement containing
the information required by the Unfunded Mandates Reform Act (2 U.S.C.
1531 et seq.) is not required.
Takings (E.O. 12630)
This proposed rule would not effect a taking of private property or
otherwise have takings implications under E.O. 12630. A takings
implication assessment is not required.
Federalism (E.O. 13132)
Under the criteria in section 1 of E.O. 13132, this proposed rule
would not have sufficient federalism implications to warrant the
preparation of a federalism summary impact statement. This rule would
only affect use of federally administered lands and waters. It would
have no direct effects on other areas. A federalism summary impact
statement is not required.
Civil Justice Reform (E.O. 12988)
This proposed rule complies with the requirements of E.O. 12988.
This proposed rule:
(a) Meets the criteria of section 3(a) requiring that all
regulations be reviewed to eliminate errors and ambiguity and be
written to minimize litigation; and
(b) Meets the criteria of section 3(b)(2) requiring that all
regulations be written in clear language and contain clear legal
standards.
Consultation With Indian Tribes (E.O. 13175 and Department Policy)
The Department of the Interior strives to strengthen its
government-to-government relationship with Indian Tribes through a
commitment to consultation with Indian Tribes and recognition of their
right to self-governance and sovereignty. The NPS has evaluated this
proposed rule under the criteria in E.O. 13175 and under the
Department's Tribal consultation policy. As a result, the NPS
determined that Tribal consultation is not required because this rule,
if finalized, will have no substantial direct effect on federally
recognized Indian Tribes.
Nevertheless, in support of the Department of the Interior's and
the NPS's commitment to government-to-government consultation, the NPS
initiated Tribal consultation for the EA on April 30, 2024, by sending
letters to the following Native American Tribes affiliated with lands
and waters within the park and inviting consultation: Absentee Shawnee
Tribe (Absentee-Shawnee Tribe of Indians of Oklahoma); The Chickasaw
Nation; Cherokee Nation; Eastern Band of Cherokee Indians; Eastern
Shawnee Tribe of Oklahoma; The Osage Nation; Shawnee Tribe; and United
Keetoowah Band of Cherokee Indians in Oklahoma.
The NPS will continue to consult with Tribes through the rulemaking
process. Additionally, the NPS developed a phased programmatic
agreement to guide the treatment of cultural resources in the different
project areas identified in the EA. The NPS invited each of these
Tribes to sign on to the phased programmatic agreement. None chose to
do so. The Cherokee Nation responded that they would consult with the
NPS when there are defined undertakings for any project involving
ground disturbance. No other Tribal responses were received.
Paperwork Reduction Act of 1995 (44 U.S.C. 3501 et seq.)
This proposed rule contains no new information collections. All
information collections require approval under the Paperwork Reduction
Act of 1995 (PRA; 44 U.S.C. 3501 et seq.). The NPS may not conduct or
sponsor, and you are not required to respond to a collection of
information unless it displays a currently valid OMB control number.
National Environmental Policy Act of 1969 (NEPA; 42 U.S.C. 4321 et
seq.)
The NPS prepared the EA to determine whether this proposed rule
[[Page 5704]]
would have a significant impact on the quality of the human environment
under NEPA. This proposed rule would not constitute a major Federal
action significantly affecting the quality of the human environment. A
detailed statement under NEPA is not required because the EA resulted
in FONSI. A copy of the EA and FONSI are available online at <a href="https://parkplanning.nps.gov/maca">https://parkplanning.nps.gov/maca</a> by clicking the link entitled ``Develop Land
and River Trail Management Plan for Mammoth Cave National Park'' and
then clicking the link entitled ``Document List.''
Effects on the Energy Supply (E.O. 13211)
This proposed rule is not a significant energy action under the
definition in E.O. 13211. The Office of Information and Regulatory
Affairs (OIRA) determined this proposed rule is not significant under
E.O. 12866. Consequently, this proposed rule does not meet the first
criteria of a significant energy action. Also, the OIRA Administrator
has not otherwise designated this proposed rule as a significant energy
action. A statement of energy effects in not required.
List of Subjects in 36 CFR Part 7
National parks, Reporting and recordkeeping requirements.
In consideration of the foregoing, the National Park Service
proposes to amend 36 CFR part 7 as set forth below:
PART 7--SPECIAL REGULATIONS, AREAS OF THE NATIONAL PARK SYSTEM
0
1. The authority citation for part 7 continues to read as follows:
Authority: 54 U.S.C. 100101, 100751, 320102; Sec. 7.96 also
issued under D.C. Code 10-137 and D.C. Code 50-2201.07.
0
2. In Sec. 7.36:
0
a. Revise paragraph (c)(1); and
0
b. Add new paragraph (d).
The revision and additions read as follows:
Sec. 7.36 Mammoth Cave National Park.
* * * * *
(c) Bicycle Use. (1) The Superintendent may designate all or a
portion of the following trails as open to bicycle use. A map showing
trails open to bicycle use will be available at the park visitor center
and posted on the park website, and all trails or portions of trails
designated for bicycle use will be published in the Superintendent's
Compendium (or written compilation) of discretionary actions referred
to Sec. 1.7(b).
(i) Big Hollow North (approximately 5.0 miles);
(ii) Big Hollow North Shortcut (approximately 0.1 miles);
(iii) Big Hollow South (approximately 3.7 miles);
(iv) Brooks Knob Road Cemetery Trail (approximately 0.4 miles);
(v) Brooks Knob Road Trail (up to gate) (approximately 0.2 miles);
(vi) Crystal Cave Road Trail (approximately 0.1 miles);
(vii) East Entrance Trail (approximately 2.8 miles);
(viii) Little Hope Cemetery Trail (approximately 0.1 miles);
(ix) Mammoth Cave Railroad Bike & Hike Trail (approximately 9.3
miles);
(x) Sugar Sink Connector (approximately 0.2. miles)
(xi) Sugar Sink Trail (approximately 3.8 miles)
(xii) West Entrance (approximately 11.2 miles)
* * * * *
(d) Horses. Equestrian use is allowed on Houchin Ferry North/Ollie
Road (approximately 5.4 miles).
Kevin J. Lilly,
Principal Deputy Assistant Secretary, Exercising the Delegated
Authority of the Assistant Secretary for Fish and Wildlife and Parks.
[FR Doc. 2026-02510 Filed 2-6-26; 8:45 am]
BILLING CODE 4312-52-P
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