Vixen Tor has been closed to the public since May 2003
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Plans to force a landowner to sell a well-known Dartmoor landmark and allow public access may have to be put aside, the National Park Authority (NPA) says.
Mary Alford, owner of Vixen Tor, ended access to the site in 2003, saying she feared being held liable for accidents.
The tor had been open to the public for 30 years previously, but the NPA has been told it may not be able to carry out a compulsory purchase of the land.
Lawyers have told the NPA negotiations with the owner may be the only option.
The park is also looking to open up a nearby area under the Rights of Way Act.
After buying the tor, which is sometimes known as the Sphinx of Dartmoor by ramblers, Mrs Alford put up barbed wire fences and "keep out" signs on the land.
It was then listed for public access under the Right to Roam legislation, but she appealed against that and won.
Ramblers had called for the authority to carry out a compulsory purchase of the tor, but after taking legal advice the park's officers think the authority may not have the powers it needs to take control of it.
John Skinner of the Ramblers' Association said: "We are disappointed but not surprised at this news.
"I do know that access orders under the legislation, which is the 1947 National Park and Access to the Countryside Act, are very, very rare."
BBC South West Environment Correspondent Adrian Campbell said: "When the park authority debates this issue this week, it will be told that a voluntary agreement and possible arbitration with the owner remains one of the best options in re-establishing public access to the tor.
"In the meantime, the authority will continue to work on seeking to secure public access to what is known as field six, next to the tor, at the earliest opportunity under the Countryside and Rights of Way Act."
Mrs Alford was unavailable for comment.