and Performance Information

Fiscal Year 2014

BUDGET

JUSTIFICATIONS

The United States

Department of the Interior

NOTICE: These budget

justifications are prepared

 for the Interior, Environment 

and Related Agencies 

Appropriations Subcommittees. 

Approval for release of the 

justifications prior to their 

printing in the public record of 

the Subcommittee hearings 

may be obtained through 

the Office of Budget of the 

Department of the Interior.

BUREAU OF 

LAND MANAGEMENT

Table of Contents

Bureau of Land Management 2014 Budget Justifications

Table of Contents Page - i

TABLE OF CONTENTS

I. Executive Summary....................................................................................................... I-1

Mission ............................................................................................................................ I-1

Bureau Overview ............................................................................................................. I-1

2014 Budget Overview..................................................................................................... I-1

Increasing Stresses on the Landscape ............................................................................ I-2

A Strong Value Proposition for the Public ........................................................................ I-4

2014 Budget Request ...................................................................................................... I-5

II. Summary of Program and Legislative Changes ..........................................................II-1

America’s Great Outdoors................................................................................................II-2

Cooperative Landscape Conservation .............................................................................II-2

Land Acquisition – America’s Great Outdoors..................................................................II-4

New Energy Frontier........................................................................................................II-4

Youth in the Great Outdoors ............................................................................................II-5

Other Program Changes..................................................................................................II-5

Program Decreases .........................................................................................................II-7

Permanent Reprogrammings and Internal Transfers........................................................II-7

Fixed Costs......................................................................................................................II-8

Legislative and Administrative Changes...........................................................................II-8

III. Performance Overview .................................................................................................III-1

Priority Goals ..................................................................................................................III-1

The BLM’s Contribution to the Department’s Strategic Plan............................................III-5

Goal Performance Table.................................................................................................III-6

IV. Crosscutting Programs ............................................................................................... IV-1

National Landscape Conservation System..................................................................... IV-1

Funding Sources for the National Landscape Conservation System................... IV-2

Units of the National Landscape Conservation System ...................................... IV-3

Wild and Scenic Rivers....................................................................................... IV-4

National Scenic and Historic Trails ..................................................................... IV-6

Service First...................................................................................................................IV-9

Volunteers.................................................................................................................... IV-10

Partnerships................................................................................................................. IV-11

Education..................................................................................................................... IV-12

Interpretation................................................................................................................ IV-13

Youth in the Great Outdoors – America’s Great Outdoors............................................ IV-14

Landscape Approach to Managing the Public Lands.................................................... IV-16

VI. Budget at a Glance .......................................................................................................V-1

VII. Collections ...................................................................................................................VI-1
2014 Budget Justifications Bureau of Land Management

Page - ii Table of Contents

VII. Management of Lands and Resources......................................................................VII-1

Appropriations Language..............................................................................................VII-1

Justification of Proposed Language Change.................................................................VII-1

Appropriation Language Citations .................................................................................VII-3

Authorizations ...............................................................................................................VII-3

Summary of Requirements .........................................................................................VII-25

Justification of Fixed Costs and Related Changes ...................................................... VII-29

Activity: Land Resources.............................................................................................VII-31

Subactivity: Soil, Water, and Air Management................................................. VII-33

Subactivity: Rangeland Management ..............................................................VII-39

Subactivity: Public Domain Forest Management.............................................. VII-47

Subactivity: Riparian Management ..................................................................VII-51

Subactivity: Cultural Resources Management ................................................. VII-55

Subactivity: Wild Horse & Burro Management ................................................. VII-59

Activity: Wildlife and Fisheries Management ...............................................................VII-63

Subactivity: Wildlife Management....................................................................VII-65

Subactivity: Fisheries Management.................................................................VII-75

Activity: Threatened and Endangered Species Management ...................................... VII-79

Activity: Recreation Management................................................................................VII-83

Subactivity: Wilderness Management..............................................................VII-85

Subactivity: Recreation Resources Management ............................................ VII-89

Activity: Energy and Minerals Management ................................................................VII-95

Subactivity: Oil and Gas Management............................................................. VII-97

Subactivity: Coal Management...................................................................... VII-107

Subactivity: Other Mineral Resources............................................................ VII-111

Subactivity: Renewable Energy Management ............................................... VII-115

Activity: Realty and Ownership Management............................................................ VII-119

Subactivity: Alaska Conveyance and Lands .................................................. VII-121

Subactivity: Cadastral Survey........................................................................ VII-127

Subactivity: Lands and Realty Management.................................................. VII-131

Activity: Communication Site Management ............................................................... VII-135

Activity: Resource Protection and Maintenance ........................................................ VII-139

Subactivity: Resource Management Planning ............................................... VII-141

Subactivity: Abandoned Mine Lands.............................................................. VII-147

Subactivity: Resource Protection and Law Enforcement................................ VII-151

Subactivity: Hazardous Materials Management............................................. VII-155

Activity: Transportation and Facilities Maintenance................................................... VII-161

Subactivity: Deferred Maintenance................................................................ VII-163

Subactivity: Annual Maintenance and Operation Costs ................................. VII-167

Activity: National Landscape and Conservation System............................................ VII-171

Activity: Challenge Cost Share.................................................................................. VII-177

Activity: Workforce and Organizational Support ........................................................ VII-179

Subactivity: Information Systems Operations ................................................ VII-189

Subactivity: Administrative Support ............................................................... VII-191

Subactivity: Bureauwide Fixed Costs............................................................. VII-195

Subactivity: Information Technology Management ........................................ VII-199

Activity: Mining Law Administration ........................................................................... VII-203

Budget Schedules.....................................................................................................VII-207
Bureau of Land Management 2014 Budget Justifications

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VIII. Construction ..............................................................................................................VIII-1

Appropriations Language.............................................................................................VIII-1

Authorizations ..............................................................................................................VIII-1

Summary of Requirements ..........................................................................................VIII-2

Activity: Construction ...................................................................................................VIII-3

Budget Schedules........................................................................................................VIII-5

IX. Land Acquisition.......................................................................................................... IX-1

Appropriations Language............................................................................................... IX-1

Appropriation Language Citations and Authorizations.................................................... IX-1

Summary of Requirements ............................................................................................ IX-3

Justification of Fixed Costs and Related Changes ......................................................... IX-3

Activity: Land Acquisition ............................................................................................... IX-5

Subactivity: Land Acquisition.............................................................................. IX-7

Subactivity: Inholding, Emergency and Hardship.............................................. IX-35

Subactivity: Acquisition Management ............................................................... IX-37

Budget Schedules........................................................................................................ IX-39

X. Oregon and California Grant Lands.............................................................................X-1

Appropriations Language................................................................................................X-1

Appropriations Language Citations and Authorization.....................................................X-1

Summary of Requirements .............................................................................................X-3

Justification of Fixed Costs and Related Changes ..........................................................X-4

Appropriation Description................................................................................................X-5

Activity: Western Oregon Acquisition ............................................................................X-13

Activity: Western Oregon Transportation and Facilities Maintenance............................ X-15

Subactivity: Deferred Maintenance....................................................................X-17

Subactivity: Operations and Annual Maintenance..............................................X-19

Activity: Western Oregon Resources Management.......................................................X-21

Subactivity: Forest Management .......................................................................X-23

Subactivity: Reforestation and Forest Development ..........................................X-27

Subactivity: Other Forest Resources Management............................................X-31

Subactivity: Resource Management Planning ...................................................X-35

Activity: Western Oregon Information and Data Systems..............................................X-39

Activity: Western Oregon National Landscape Conservation System............................ X-41

Budget Schedules.........................................................................................................X-43

XI. Range Improvements...................................................................................................XI-1

Appropriations Language...............................................................................................XI-1

Appropriations Language Citations and Authorizations ..................................................XI-1

Summary of Requirements ............................................................................................XI-3

Activity: Range Improvements........................................................................................XI-5

Budget Schedules..........................................................................................................XI-8

XII. Service Charges, Deposits, and Forfeitures .............................................................XII-1

Appropriations Language..............................................................................................XII-1
2014 Budget Justifications Bureau of Land Management

Page - iv Table of Contents

Appropriations Language Citations and Authorizations .................................................XII-1

Summary of Requirements ...........................................................................................XII-3

Appropriation: Service Changes, Deposits, and Forfeitures (Indefinite)......................... XII-4

Budget Schedules.........................................................................................................XII-7

XIII. Miscellaneous Permanent Payments .......................................................................XIII-1

Appropriations Language.............................................................................................XIII-1

Explanation..................................................................................................................XIII-1

Authorizations ..............................................................................................................XIII-2

Summary of Requirements ..........................................................................................XIII-6

Appropriation: Miscellaneous Permanent Payments .................................................... XIII-7

2011 Total Payments of BLM Receipts to States and Counties.................................. XIII-13

Budget Schedules......................................................................................................XIII-14

XIV. Permanent Operating Funds.....................................................................................XIV-1

Appropriations Language.............................................................................................XIV-1

Explanation..................................................................................................................XIV-1

Authorizations ..............................................................................................................XIV-1

Summary of Requirements ..........................................................................................XIV-5

Appropriation: Permanent Operating Funds.................................................................XIV-6

Budget Schedules......................................................................................................XIV-14

XV. Miscellaneous Trust Funds......................................................................................XV-1

Appropriations Language..............................................................................................XV-1

Explanation...................................................................................................................XV-1

Authorizations ...............................................................................................................XV-2

Summary of Requirements ...........................................................................................XV-3

Activity: Miscellaneous Trust Funds (Current and Permanent)......................................XV-4

Budget Schedules.........................................................................................................XV-6

XVI. Helium Fund and Operations..................................................................................XVI-1

Appropriations Language.............................................................................................XVI-1

Explanation..................................................................................................................XVI-1

Summary of Requirements ..........................................................................................XVI-1

Activity: Helium Fund and Operations ..........................................................................XVI-2

Budget Schedules........................................................................................................XVI-4

XVII. Administrative Provisions......................................................................................XVII-1

Appropriations Language............................................................................................XVII-1

Appropriations Language Citations .............................................................................XVII-1

XVIII. Appendices ...........................................................................................................XVIII-1

Table of Organization ..............................................................................................XVIII-1

Employee Count by Grade.......................................................................................XVIII-2
Executive Summary

Bureau of Land Management 2014 Budget Justifications

Chapter I – Executive Summary Page I - 1

EXECUTIVE SUMMARY

Mountain Pond in the Colorado Rockies

Gunnison Field Office, Colorado 

MISSION

Sustain the health, diversity, and productivity of public lands for present and future generations.

BUREAU OVERVIEW

The BLM is the Nation’s largest land management agency and has responsibility for managing 

248 million surface acres, primarily in 11 Western States, including Alaska, and 700 million 

acres of Federal onshore mineral estate, as well as the responsibility for mineral operations and 

cadastral surveys on 56 million acres of Indian trust lands. In other words, the BLM is entrusted 

with managing 13 percent of the United States land mass and more than 40 percent of all 

federally-managed lands. These lands encompass a broad range of habitats, including desert, 

grassland, sage-steppe, forest, high-mountain, and arctic tundra. BLM management benefits

conservation and traditional land users, while contributing to the vitality of State and local 

economies and delivering benefits to all Americans through outdoor recreation, livestock 

grazing, mineral development, and energy production.

2014 BUDGET OVERVIEW

The 2014 Bureau of Land Management (BLM) budget request is $1.2 billion, an increase of

$32.6 million or 2.9 percent above the 2012 enacted budget. The budget proposes $980.2 

million for the Management of Land and Resources appropriation and $115.5 million for the 

Oregon and California Grant Lands appropriation, the BLM’s two operating accounts. 
2014 Budget Justifications Bureau of Land Management

Page I - 2 Chapter I – Executive Summary

The BLM’s Unique Mission:

The Federal Land Management Policy Act

The Federal Land Management Policy Act of 

1976 (FLPMA) recognized the value of public 

lands, provided a framework to manage those 

lands for the benefit of present and future 

generations and defined a new concept for public 

lands – multiple use. That unique multiple use 

mandate is now recognized as the BLM’s greatest

strength, allowing the BLM to meet the many and 

varied demands of the changing West. FLPMA 

provides the BLM with tools to cooperatively and 

creatively manage the public lands and provide 

stewardship permitting a variety of uses and 

resources to co-exist. The multiple use approach 

emphasizes the interconnectedness and 

interdependence of the public lands and people 

who benefit from them. This balances the 

diversity of interests and values associated with 

the public lands through a comprehensive 

landscape approach to land management.

The BLM’s budget request translates to a net

cost per acre of about $4.50 to American 

taxpayers.

1 DOI estimates that BLM lands 

contribute $151 billion in economic output 

and support over 756,000 jobs through 

extractive and non-extractive uses of public 

lands.2

Investment in landscape management 

provides sustainable benefits across the 

West. It maintains working landscapes for 

grazing, timber and recreation. Additionally, 

these lands provide ecosystem services to 

society and are measurable in the value they 

have to people, including the availability of 

stocks of natural capital, clean water that 

feeds reservoirs, clean air, carbon 

sequestration, nutrient cycling and cultural 

preservation.

The BLM is an excellent investment for 

America. BLM managed lands generated an 

estimated $4.6 billion in revenues in 2012, returning more than four dollars for every dollar 

invested. Beyond the efficient production of non-tax revenue for the U.S. Treasury, the BLM’s 

management of public lands supports significant economic activity and hundreds of thousands 

of good-paying, secure jobs for Americans. Through its multiple-use mission, the BLM has an 

outsized effect in many economic sectors, from recreation to minerals, timber, renewable 

energy and agriculture through rangeland resource management.

INCREASING STRESSES ON THE LANDSCAPE

The 2012 fire season was the worst on record for rangelands and woodlands in the lower 48 

States. A decade-long drought, as determined by 

the USDA National Drought Mitigation Center,

coupled with the continued proliferation of nonnative plant species and accumulation of 

hazardous fuels in forests and rangelands, 

resulted in wildfires in the West that burned more 

than 3.3 million acres of BLM-managed land. This 

includes about 2.0 million acres of priority Sagegrouse habitat and 400,000 acres of herd 

management areas, home to America’s wild 

horses and burros. Fires also burned 

approximately 18 percent of BLM-managed 

grazing allotments, which are critical to the 

 1 FY 2014 proposed Direct Appropriations

2 Department of the Interior Economic Impact Report, 2011 (page 16)

Wildfire Burns Sagebrush in the Great Basin
Bureau of Land Management 2014 Budget Justifications

Chapter I – Executive Summary Page I - 3

economic well-being of ranchers and rural communities. These issues along with competing 

demands for multiple uses continue to stress BLM-managed public lands.

The BLM manages about half of the remaining sagebrush habitat in the United States. The 

Greater Sage-grouse, an obligate resident of the sagebrush biome, is a candidate species for 

listing under the Endangered Species Act (ESA). The BLM is working to maintain and restore 

sagebrush landscapes on public lands to conserve Sage-grouse populations. An ESA listing of 

Sage-grouse would significantly affect many facets of public land use, including oil and gas 

exploration and production, communication towers, electrical lines, grazing, and recreation. 

While not fully quantified, the impact of listing would be widespread across Western 

communities where the varied uses of public lands are linchpins of local economies.

The BLM is working to ensure viability of the sagebrush habitat and balance resource use with

conservation. Restoring sagebrush habitat is challenging. Low precipitation, fragile soils, 

competition from invasive plants and availability of material restrict the number of acres where

work can be undertaken. Therefore, the BLM works to preserve existing high-quality sagebrush 

biomes and the Sage-grouse population. However, the combined effects of drought, wildfire, 

invasive species and new parasites and pathogens, such as West Nile Virus, work against 

these efforts. 

The combined effects of drought and wildfire have also increased the cost burden for managing 

Wild Horse and Burro populations. Current 

populations exceed appropriate management levels 

by 41 percent.3 Those levels assumed conditions on 

the rangeland superior than those that currently exist. 

Combined, the increased herd sizes and the 

decreased ability of drought-stricken land to support 

planned herd sizes, stresses the rangelands further, 

necessitating removal of some horses for the health 

of the animals and lands.

Meanwhile, the BLM faces increased public scrutiny 

of and litigation over gather and removal methods, increasing costs of these operations. Once 

animals are removed from the range, the BLM faces 

escalating feed prices for animals in short-term 

holding and decreased availability of long-term holding solutions. On the range, herds can 

double in size every four years. The removal of excess animals from the range exceeds 

consumer demand for adopting these animals. In 2012, removals exceeded adoption rates by 

nearly three and a half to one.

The growth in population in the western U.S., and increased demands on public lands, are an 

increasing challenge for multiple-use public land management. Sixteen major urban areas are 

within a day’s drive of over 100 million acres of BLM-managed lands and five of the six fastest 

growing States in the Nation contain significant percentages of Federal land. In 2011, 59 million 

visitors to BLM lands participated in recreational activities such as hiking, camping, hunting, 

fishing and rafting. In many parts of the West, the relative importance of resource extraction in 

the local economy is declining, while amenity values such as scenic landscapes and recreation 

areas are supporting service-related industries such as health care, restaurants and hotels.

 3 February 2012 estimate of 37,550 wild horses and burros on the range and an AML of 26,550

Wild Horse Herd on Wyoming Grasslands
2014 Budget Justifications Bureau of Land Management

Page I - 4 Chapter I – Executive Summary

A STRONG VALUE PROPOSITION FOR THE PUBLIC

Based on DOI estimates, BLM’s work supported $151 billion in economic output in 2011, slightly 

more than one percent of U.S. Gross Domestic Product (GDP),4 at a cost of $1.6 billion in total 

bureau outlays and 0.05% of all FY 2012 Federal outlays.5

BLM oil, gas, coal, and non-metallic mineral activities 

supported an estimated:

• 92,000 jobs and $16.3 billion in economic output 

for New Mexico,

• 44,000 jobs and $10.8 billion in economic output 

for Colorado,

• 130,000 jobs and $30.9 billion in economic output 

for Wyoming, and

• 21,000 jobs and $4.4 billion in economic output for 

California.6

Additionally, DOI estimates that the BLM’s management of oil and gas leasing of the Federal 

mineral estate in Montana and North Dakota, including the Bakken Play, supported nearly 

30,000 jobs and $6.1 billion in economic output.7

The BLM continues its important role in America’s electrical infrastructure. In addition to recent 

increased demand for natural gas, including gas produced on Federal onshore leases, coal 

produced from BLM’s Federal mineral estate powered approximately 22 percent of U.S.

electrical generation.

8 Since 2009, the BLM has approved 41 renewable energy projects, 

including 23 utility-scale solar facilities, eight wind farms and 10 geothermal plants, with 

associated transmission corridors and infrastructure to connect to established power grids. If all 

of these projects are built, they could provide more than 12,000 megawatts of power, or enough 

electricity to power nearly four million homes, and support an estimated 14,000 construction and 

operations jobs. In 2013 and 2014, the BLM has identified 23 renewable energy projects for 

review, including 14 solar facilities, six wind farms and three geothermal plants.

BLM timber activities, concentrated in Oregon, support about 3,400 jobs and about $670 million 

in economic activity. Stewardship contracts managed by the BLM make forests and rangelands 

more resilient to natural disturbances, while allowing local businesses and communities to retain 

forest and rangeland products in exchange for services like thinning trees and brush and 

removing hazardous fuels. These projects foster public-private partnerships that conserve the 

public lands, support local economies and restore forest and rangeland health at a savings to 

taxpayers. 

DOI estimates BLM grazing supports about 17,000 jobs and about $1.4 billion in economic 

activity, predominantly in Idaho, Montana, New Mexico and Oregon. By providing livestock-

 4 Department of the Interior Economic Impact Report, 2011 (page 16)

5 Sources: Budget Enforcement Act Baseline/Policy Comparison Report (FY 2011) from OMB MAX Database – BLM outlays, BLM; FY 2013 

President’s Budget, Summary Tables -- total outlays and GDP 6 Department of the Interior Economic Impact Report, 2011 (pages 141-144) 7 Department of the Interior Economic Impact Report, 2011 (pages 141-144) 8 Federal Coal Production – Information Collected by Department of the Interior, Office of Natural Resource Revenue; Total National Coal Consumption 

- http://www.eia.gov/totalenergy/data/annual/pdf/sec7_9.pdf; Coal Tonnage Consumed to Generate Electricity -

http://www.eia.gov/electricity/monthly/pdf/chap2.pdf ; Percentage of Electrical Generation from Coal - 

http://www.eia.gov/electricity/data.cfm#consumption; 

Pump Unit Producing Coal Bed 

Methane near Price, Utah
Bureau of Land Management 2014 Budget Justifications

Chapter I – Executive Summary Page I - 5

based economic opportunities in rural communities, the BLM contributes to and preserves the 

social fabric and identity of the American West. Together, public lands and the adjacent private 

ranches maintain open spaces in the fast-growing West, provide habitat for wildlife, offer a 

myriad of recreational opportunities and help preserve the character of the rural West.

Nationwide, recreation on BLM-managed lands 

supported an estimated 58,000 jobs and contributed 

over $7.0 billion in economic output. For example, 

public lands managed by the BLM in and around 

Moab, Utah received over 1.2 million visits in 2010,9

with non-local visitors spending an estimated $169 

million and supporting over 2,400 local jobs (over 40 

percent of the Grand County, Utah labor force). The 

BLM supports recreational land use in the Moab 

area for about $3.65 per visitor. These metrics 

compare favorably to costs for other federallymanaged lands in the Moab area of $7.89 per visit.

2014 BUDGET REQUEST

The 2014 budget request reflects tough, yet careful decisions, made within a fiscally constrained 

environment and supports the BLM’s core function - managing resources on the landscape for 

the present and for posterity. To do so, the 2014 budget reflects deliberate consideration of 

many alternatives made to maintain viability of Administration and Secretarial initiatives and 

meet the Bureau’s highest priority requirements.

New Energy Frontier– The 2014 budget request continues strong support for the New Energy 

Frontier, which invests in renewable energy options for the Nation, advances the 

Administration’s energy goals and strengthens management of onshore oil and gas 

development. The request provides a $7.1 million program increase for renewable energy 

environmental studies and geothermal management and provides $6.0 for energy transmission

to communities across the West, supporting continued economic growth while sustaining the 

health of lands, water, and air for the present and future.

While this request recognizes renewable energy is increasingly critical in meeting the Nation’s 

energy needs, the onshore Federal mineral estate remains a critical component of America’s 

economic engine. The budget request enhances BLM's ability to support oil and gas 

development on Federal lands. The request for Oil and Gas Management represents a total 

program increase of $23.0 million over the 2012 enacted level. This includes a $10.0 million 

increase over the 2012 enacted level to fully implement the leasing reforms instituted in May 

2010, of which $5.0 million restores a 2012 funding reduction that impeded BLM's ability to 

implement these reforms and diminished BLM's general oil and gas oversight capabilities. The 

additional $5.0 million increase in 2014 will allow the BLM to more fully achieve the goal of the 

leasing reforms without sacrificing other program goals, such as providing industry with timely 

access to Federal oil and gas resources. The increased opportunity for public participation and 

a more thorough environmental review process and documentation required by BLM’s leasing 

reforms have increased BLM’s costs. The additional funds will enable the BLM to conduct 

defensible and timely lease parcel environmental analyses. The 2014 request includes an 

 9 The last year for which statistics are available

Mountain Bikers in Moab, Utah
2014 Budget Justifications Bureau of Land Management

Page I - 6 Chapter I – Executive Summary

America’s Great Outdoors:

Sandy River Basin Restoration 

The Sandy River, located within 30 minutes of onethird of Oregon’s population, is the primary fishproducing river for the Sandy River Basin. The 

ongoing restoration, a watershed-scale partnership 

with the Western Rivers Conservancy, The Nature 

Conservancy, and other, will improve salmon 

spawning habitat, while acquisitions along Boulder 

Creek in the Wild and Scenic River corridor will 

protect critical habitat for the spring Chinook, winter 

Steelhead, and winter Coho. Special recreation 

permits, river access, and trail construction 

provides access to rafters, kayakers and bikers.

additional $3.0 million increase for large, regional-scale studies and environmental impact 

statements for conventional energy issues. 

The 2014 budget request also proposes to expand and strengthen BLM’s oil and gas 

inspections and oversight capability through new fees on industry that are comparable to those 

now assessed for offshore inspections. The fee schedule included in the budget is estimated to 

generate $48.0 million in collections, which would offset a proposed reduction of $38.0 million in 

appropriated funds and provide for a net increase of $10.0 million in funds available for this 

critical BLM management responsibility. Increased funding is aimed at correcting deficiencies 

identified by the Government Accountability Office in its February 2011 report, which designated 

Federal management of oil and gas resources, including production and revenue collection as 

high risk. It will help the BLM to more fully implement its new risk-based inspection strategy to 

improve production accountability, safety, and environmental protection of oil and gas 

operations. 

Coal produced from Federal lands is the source of more than 20 percent of U.S. electricity and 

public lands account for 13 percent of domestic natural gas production. The 2014 request 

restores Coal Program funding to nearly FY 2011 levels to ensure coal production on Federal 

lands is rational, conscientious and remains available to power the Nation’s economic recovery.

America’s Great Outdoors – On April 16, 2010, President Obama announced the America’s 

Great Outdoors initiative, launching the development of a 21st century conservation and 

recreation agenda. The result is a call for a grassroots approach to protecting our lands and 

waters and connecting all Americans to their natural and cultural heritage. The AGO initiative 

seeks to empower all Americans to share in the responsibility to conserve, restore, and provide 

better access to our lands and waters to leave a healthy, vibrant outdoor legacy for generations 

to come. Funding for the initiative is broadly 

defined to capture programs that are key to 

attaining conservation goals. That includes 

funding to operate and maintain our public 

lands; expand and improve recreational 

opportunities at the State and local level; 

protect cultural resources; and conserve 

and restore land, water, and native species.

In 2013 and 2014, the urban parks and 

greenspaces goals of AGO will receive 

additional attention. As part of this effort, 

the Department will release a report in 2013 

that will capture the following –

(1) An inventory of existing Interior 

urban assets, programs and funding opportunities;

(2) An assessment and recommendations on ways to reduce barriers to Interior working in 

urban areas;

(3) Identification of twenty signature Interior urban projects; and 

(4) Alignment, value and communication of our urban work as a core part of the Department 

and Bureau’s missions.

Given the proximity to so many Americans and the broad range of recreational and other 

opportunities on BLM-managed lands, the BLM is key to connecting Americans to the outdoors. 

The America’s Great Outdoors (AGO) initiative promotes the BLM’s multiple-use mission by 
Bureau of Land Management 2014 Budget Justifications

Chapter I – Executive Summary Page I - 7

expanding opportunities for the scope of activities – including hunting, fishing and off-road 

vehicle use – that have a place on the public lands.

The 2014 budget requests an increase of $6.0 million for the National Landscape Conservation 

System (NLCS) and $2.0 million in Recreation Resource Management. The increase for NLCS 

supports travel management planning that addresses all resource use aspects, increases

support for habitat conservation and remediation, and provides additional law enforcement in 

targeted areas across the 27 million acres and 887 recognized areas of the NLCS. The increase 

proposed for Recreation Resources Management will strengthen scientific analysis 

underpinning recreation management practices and policies. BLM will also participate in 

interagency AGO projects to demonstrate ecosystem and landscape-scale conservation. The 

BLM budget request includes an increase of $1.1 million for the BLM to collaborate with other 

AGO partners to advance community-based landscape-scale conservation in the Southwest 

Deserts, the Crown of the Continent, and the Grasslands of the Northern Great Plains.

The 2014 budget also includes increases for land acquisition programs, including those funded 

through the Land and Water Conservation Fund (LWCF). These acquisitions are a vital 

component of the America’s Great Outdoors initiative. 

Youth in the Great Outdoors – Funds proposed in the FY 2014 President’s Budget Request 

will expand BLM youth programs and partnerships to accomplish high priority projects, and 

promote quality participant experiences and pathways to careers. The request includes an 

increase of $2.8 million for expanded youth 

programs and partnerships, including the proposed 

21st Century Conservation Service Corps. The BLM

continues to provide youth education, engagement

and employment programs. Special consideration is 

given to those programs that involve hiring young 

people ages 15 to 25 through various student 

employment programs, youth corps, and other youth 

partnership organizations. The BLM is also 

emphasizing hiring youth from diverse backgrounds. 

Programs for school age youth such as Hands on 

the Land and Conservation Corps and internship 

programs expose young people to natural and 

cultural resources and to career pathways in those 

fields. In 2014, the BLM will work with partners to support projects that leverage private sector 

contributions to engage and employ youth in conservation activities, including the proposed 21st

Century Conservation Service Corps. The request includes an increase of $1.5 million for the 

National Fish and Wildlife Foundation (NFWF), adding to the $1.0 million in BLM’s base NFWF 

budget that is currently dedicated to advancing the Youth Initiative.

Secretary’s Western Oregon Strategy -- The Oregon and California Grant Lands (O&C) are a 

critical component of the Pacific Northwest economy. The BLM manages these lands for forest 

diversity and sustainability, while providing a broad range of uses to the local communities. 

Congress, through The O&C Act of 1937, has vested the BLM with managing these lands for 

sustained yield of timber production. The 2014 budget requests an increase of $3.5 million for 

implementing the Secretary’s Western Oregon Strategy for resource management on the O&C 

lands. This includes an increase of $1.8 million in the O&C Forest Management program to 

increase timber volumes offered for sale while increasing surveys of rare and endangered 

species and facilitating recovery of the northern spotted owl. The request also funds a $1.7 

Members of the Lopez Island Conservation 

Corps Repair a BLM Campsite on Patos 

Island, Washington
2014 Budget Justifications Bureau of Land Management

Page I - 8 Chapter I – Executive Summary

million increase in the O&C Resource Management Planning program for the preparation of six 

new Western Oregon Resource Management Plans (RMP) announced by the Secretary in

February 2012 to replace the 1994 Northwest Forest Plan.

Cooperative Landscape Conservation – The 2014 BLM budget request includes a $2.5 

million increase to support an integrated collaborative effort to implement the Department's 

climate change adaptation policy and an increase of $776,000 to implement programs that 

improve the utility of Rapid Ecoregional Assessments in land use decisions. 

National BLM Foundation – Additionally, the BLM proposes a one-time expenditure of $1.0 

million, in Administrative Support, to establish a Congressionally-chartered National BLM 

Foundation. The creation of the Foundation provides opportunities to leverage private funding to 

support public lands, achieve shared outcomes, and focus public support on the BLM mission. 

Several examples illustrate the benefits of this type of foundation, including Congressionallychartered foundations of the National Park Service, the U.S. Fish and Wildlife Service, and the 

U.S. Forest Service.

Land Acquisition – Public land consolidation increases the efficiency of pursuing land 

management goals, allowing the BLM to leverage funds spent on the landscape, provide 

recreation opportunities, preserve natural and cultural heritage resources and protect sensitive 

and at-risk habitats in order to maintain functioning ecosystems. The budget proposes $48.9 

million for BLM Land Acquisition, including $32.6 million in requested discretionary 

appropriations and $16.3 million in mandatory funding. The 2014 request represents an 

increase of $26.6 million over the 2012 enacted level. The discretionary request for line-item 

acquisition projects is $29.3 million, which will fund core projects in four States. The BLM 

requests $1.6 million for Emergencies and Hardships and $1.9 million for Acquisition 

Management. The $16.3 million in mandatory funding, to be allocated to the BLM from a 

proposed new mandatory LWCF account in the Office of the Secretary, would fund projects in 

seven States. Eight projects, totaling an estimated $11.5 million, are associated with hunter or 

angler access.

Other Program Increases – Recognizing that protecting the Nation’s natural and cultural 

resources and landscapes is essential to sustaining not only the U.S. economy but also the 

American people’s quality of life, the 2014 budget prioritizes critical issues on the western 

landscape.

The 2014 budget provides an increase of $15.0 million over 2012 enacted levels to support 

work to enhance the viability of the sagebrush biome, which is critical habitat for the Greater 

Sage-grouse. The BLM is working to maintain and restore sagebrush landscapes on public 

lands to conserve Sage-grouse populations. The request maintains funding for Sage-grouse 

conservation activities at the 2013 Operating Plan level. In March 2010, the U.S. Fish and 

Wildlife Service (FWS) found ESA listing to be “warranted but precluded” and deferred final 

decision on listing until 2015. In its decision, the FWS found that the BLM was not fully 

implementing the regulatory mechanisms available to ensure species conservation. A planning 

process, formally initiated in late 2011, funded in the 2013 Operating Plan, and carried forward 

into 2014, will enable the BLM to address FWS concerns. As many as 98 BLM RMPs, in 68 

planning areas, will address Sage-grouse. The BLM will also conduct on-the-ground restoration 

projects to improve key Sage- grouse habitat and continue inventory, monitoring, and mapping 

efforts to delineate areas of highest priority habitat across Sage-grouse range.
Bureau of Land Management 2014 Budget Justifications

Chapter I – Executive Summary Page I - 9

Resource management planning is the basis for successful management of multiple uses of 

public lands and it is the basis for every management action taken on those lands. Keeping 

plans current in an era of evolving demands for use, changes in ecological condition and 

continued population growth is a precondition to the BLM’s success in achieving its mission. 

The 2014 budget provides an increase of $4.0 million for these efforts, including the initiation of 

several plan revisions in 2014 and plan evaluations and implementation strategies. 

The budget includes a program increase of $2.0 million for Wild Horse and Burro Management 

to implement recommendations of the forthcoming National Academy of Sciences study of the 

program. This maintains funding for the Wild Horse and Burro Management Program level with 

the 2013 Operating Plan, which included a $2.0 million increase for research and development 

on population control.

The BLM requests an increase of $3.5 million for applied science, in addition to the $2.0 million 

for science in Recreation Resources Management that is mentioned in the America’s Great 

Outdoors section above. This includes $2.5 million in the Soil, Water, and Air Management 

Program for applied science projects and information aimed at improving BLM understanding 

and management of public lands. This effort will help address complex resource management 

challenges. The remaining $1.0 million, in Riparian Management, provides support to improve 

the effectiveness of riparian habitat conservation and restoration projects. 

Additionally, the request for Soil, Water, and Air Management includes an increase of $500,000 

for activities related to the Klamath Agreements authorized under existing law. 

The BLM requests program increases of $2.0 million in the Other Mineral Resources 

Management Program, returning funding to roughly the 2011 enacted levels. 

The request includes an $8.2 million program increase in the Bureau-wide Fixed Cost Program 

to cover costs previously funded through program assessments. The request will properly align 

these costs, obviating the need to fund these costs through program assessments. 

The BLM will use a requested increase of $1.3 million in Deferred Maintenance to improve 

management of the BLM’s Land Mobile Radio facilities, including modernizing and consolidating 

facilities and infrastructure.

The FY 2014 President’s Budget Request includes $0.6 for BLM participation in the 

Department’s IT Transformation efforts through the Department’s Working Capital Fund. These 

funds will support IT Transformation project-level planning and coordination and the 

implementation of enterprise IT services. 

Program Reductions and Proposals to Offset Costs – The BLM was able to fund the 

priorities previously described by proposing to reduce funding for select programs and shifting

the cost of some commercial activities on public land to users profiting directly from those uses. 

As mentioned above under New Energy Frontier, the 2014 budget proposes to shift a significant 

share of the cost of the oil and gas inspection activity to industry. Through new inspection fees, 

this plan saves taxpayers $38 million and provides $48 million in offsetting fees, for a net 

increase of $10.0 million in program resources. These funds will enhance the BLM’s inspection

and enforcement capacity and address deficiencies identified by the Government Accountability 

Office (GAO) that have led the GAO to apply a “high risk” designation to management of 

Federal oil and gas resources since 2011. 
2014 Budget Justifications Bureau of Land Management

Page I - 10 Chapter I – Executive Summary

A $14.1 million program decrease is proposed in the Rangeland Management program for 

grazing administration. However, the impact of this funding decrease will be mitigated by a new 

grazing administration fee of $1 per animal unit month that the BLM proposes to implement on a 

pilot basis, estimated to generate $6.5 million in 2014 for processing grazing permits. 

The budget also requests a $12.3 million reduction for Alaska conveyance in BLM’s 

discretionary appropriation, while proposing to use a portion of receipts from the National 

Petroleum Reserve – Alaska to complete program conveyances.

The BLM proposes to reduce funding of Information Technology Management funding by $2.1 

million. This savings supports government-wide efforts to control IT costs. 

The BLM proposes to eliminate the Construction appropriation account, with a proposed 

reduction of $3.6 million. Beginning in 2014, all BLM construction projects will be funded in the 

Management of Lands and Resources (MLR) Deferred Maintenance and Capital Improvements 

subactivity. This elimination, along with the proposal to shift funding for O&C deferred 

maintenance to the MLR Deferred Maintenance and Capital Improvements subactivity allows

project prioritization across the public lands.

Proposal for Oil and Gas Leasing Reforms – The Administration proposes a package of 

legislative and administrative proposals to reform the management of Interior's onshore and 

offshore oil and gas programs, with a key focus on improving the return to taxpayers from the 

sale of these Federal resources and on improving transparency and oversight. Proposed 

changes fall into three general categories: advancing royalty reforms; encouraging diligent 

development of oil and gas leases; and improving revenue collection processes.

Royalty reforms include evaluating minimum royalty rates for oil, gas and similar products; 

adjusting onshore royalty rates; analyzing a price-based tiered royalty rate; and repealing 

legislatively-mandated royalty relief. Diligent development requirements include shorter primary 

lease terms, stricter enforcement of lease terms, and monetary incentives to get leases into 

production (e.g., a new per-acre fee on nonproducing leases). Revenue collection 

improvements include simplification of the royalty valuation process, elimination of interest 

accruals on company overpayments of royalties, and permanent repeal of DOI's authority to 

accept in-kind royalty payments. Collectively, these reforms will generate roughly $2.5 billion in 

net revenue to the Treasury over 10 years, of which an estimated $1.7 billion will result from 

statutory changes. Many States will also benefit from higher Federal revenue sharing payments 

as a result of these reforms. In addition, the Department will continue to evaluate the use of 

internet-based oil and gas lease auctions.

The Budget also proposes to extend and revamp the oil and gas permitting pilot office authority 

established under the Energy Policy Act of 2005. Under the proposal, the BLM would have 

flexibility to relocate pilot offices as needed based on changing permitting demands over time. 

The Administration continues to seek repeal of the Energy Policy Act’s prohibition on the BLM 

establishing cost recovery fees for processing applications for oil and gas permits to drill as well 

as the diversion of mineral leasing receipts from the Treasury to the mandatory BLM Permit 

Processing Improvement Fund. On repeal of these Energy Policy Act provisions, the BLM will 

promulgate regulations to establish cost recovery fees for applications for permits to drill. These 

fees would help replace the termination of mandatory funds, which would become effective in 

2015.
Bureau of Land Management 2014 Budget Justifications

Chapter I – Executive Summary Page I - 11

Hardrock Mining Reforms – The 2014 budget includes two legislative proposals to reform 

hardrock mining on public and private lands by addressing abandoned mine land hazards and 

providing a better return to the taxpayer from hardrock production on Federal lands. 

The first component of this reform addresses abandoned hardrock mines across the Country 

through a new AML fee on hardrock production. Just as the coal industry is held responsible for 

abandoned coal sites, the Administration proposes to hold the hardrock mining industry 

responsible for abandoned hardrock mines. The legislative proposal will levy an AML fee on 

uranium and metallic mines on both public and private lands. The proposed AML fee on the 

production of hardrock minerals will be charged on the volume of material displaced after 

January 1, 2014. The receipts would be split between Federal and non-Federal lands. The 

Secretary would disperse the share of non-Federal funds to each State and Tribe based on 

need. Each State and Tribe would select its own priority projects using established national 

criteria. The proposed hardrock AML fee and reclamation program will operate in parallel with 

the coal AML reclamation program as part of a larger effort to ensure the Nation’s most 

dangerous abandoned coal and hardrock AML sites are addressed by the industries that 

created the problems.

The second legislative proposal institutes a leasing process under the Mineral Leasing Act of 

1920 for certain minerals, gold, silver, lead, zinc, copper, uranium, and molybdenum, currently 

covered by the General Mining Law of 1872. After enactment, mining for these metals on 

Federal lands would be governed by the new leasing process and subject to annual rental 

payments and a royalty of not less than five percent of gross proceeds. Half of the receipts 

would be distributed to the States in which the leases are located and the remaining half would 

be deposited in the Treasury. Existing mining claims would be exempt from the change to a 

leasing system, but would be subject to increases in the annual maintenance fees under the 

General Mining Law of 1872. However, holders of existing mining claims for these minerals 

could voluntarily convert their claims to leases. The Office of Natural Resources Revenue will 

collect, account for, and disburse the hardrock royalty receipts. 

Helium Program Reauthorization and Restructuring – The 2014 budget includes a 

legislative proposal to reauthorize the BLM’s Federal Helium program to facilitate a gradual exit 

from the helium market, while ensuring the short-term availability of sufficient helium supplies to 

meet government and industry demand. Under current law, once the helium program debt is 

retired, the authority for the helium production fund terminates and the program will no longer 

have the funding resources to continue operations. The Secretary will be making the final 

repayment on the helium debt at the beginning of 2014.

Alaska Land Conveyance and Remediation of Legacy Wells - The 2014 budget includes a 

legislative proposal to make mandatory funding available for two BLM activities of high priority to 

the State of Alaska, the Alaska Conveyance program and BLM's efforts to remediate legacy 

wells on the Alaska North Slope. The proposal would revise the current revenue sharing 

arrangement for NPR-A revenue to direct 50 percent of the revenue stream to a special Alaska 

Land Conveyance and Remediation Fund, which would be used to supplement discretionary 

funds in the BLM budget for these two activities, enabling the BLM to accelerate its progress in 

completing the final transfer of lands to Alaska Native Corporations, individual Alaska Natives, 

and the State of Alaska and in addressing legacy wells that pose a threat to the fragile North 

Slope environment. The regular 50/50 revenue sharing arrangement would resume once the 

work on these two activities is complete. 

Federal Land Transaction Facilitation Act – The 2014 budget proposes to reauthorize the 
2014 Budget Justifications Bureau of Land Management

Page I - 12 Chapter I – Executive Summary

Act, which expired in July 2011, and allow lands identified as suitable for disposal to be sold. 

Revenues will fund acquisition of environmentally sensitive lands and the administrative costs 

associated with conducting sales.

The tables below summarize the BLM 2014 budget request by major appropriations:

($000) 2013 Full 

Year CR

2012 

Enacted

2014 President's Budget

vs. 2012 Requested

CURRENT DISCRETIONARY

 Management of Land and Resources (MLR) 966,238 960,361 +19,867 980,228

 Oregon and California Grant Lands 112,549 111,864 +3,679 115,543

 Land Acquisition 22,481 22,344 +10,274 32,618

 Construction 3,592 3,570 -3,570 0

 Service Charges, Deposit, and Forfeitures [31,965] [32,448] [+17] [32,465]

TOTAL - Current Discretionary 1,104,860 1,098,139 +30,250 1,128,389

CURRENT MANDATORY

Range Improvements 10,000 10,000 0 10,000

Miscellaneous Trust Funds 23,125 20,815 +2,310 23,125

TOTAL - Current Mandatory 33,125 30,815 +2,310 33,125

TOTAL - CURRENT 1,137,985 1,128,954 +32,560 1,161,514

OFFSETTING COLLECTIONS*

 Mining Law Administration 39,696 39,696 0 39,696

 Communications Sites Management 2,000 2,000 0 2,000

 Applications for Permit to Drill (APD Fees) 32,500 32,500 0 32,500

 Onshore Oil and Gas Inspection Fees 0 0 +47,950 47,950

 Service Charges, Deposit, and Forfeitures 31,965 32,448 +17 32,465

TOTAL Funds Available from Offsets 106,161 106,644 47,967 154,611

($000) 2012 

Actual

2013 

Estimated

2014 President's Budget

vs. 2013 Requested

PERMANENT FUNDS

 Miscellaneous Permanent Payment Accounts 43,766 45,729 -41,360 4,369

 Permanent Operating Funds 56,993 65,342 -4,166 61,176

 Miscellaneous Trust funds (Permanent) 3,264 1,800 0 1,800

 Land Acquisition 0 0 +16,308 16,308

TOTAL - Permanent Funds 104,023 112,871 -29,218 83,653

OFFSETTING COLLECTIONS*

 Helium Fund 198,419 212,000 -28,064 170,335

TOTAL Funds Available from Offsets 198,419 201,000 -28,064 170.335

* This category of funding lists major programs in which BLM has additional spending capacity, but does not affect appropriation 

totals because funding is offset by collections.

2013 

Estimated

2012 

Actual

2014 President's Budget

vs. 2012 Requested

FTEs** 10,301 10,565 -274 10,291

** This includes: 2012 – 2,353 FTEs funded though the Department’s Wildland Fire appropriation account (“Fire FTEs”); 2013 –

2,253 Fire FTEs; and 2014 – 2,114 Fire FTEs

Administration’s Management Agenda
Bureau of Land Management 2014 Budget Justifications

Chapter I – Executive Summary Page I - 13

Enterprise Reforms – The Department of the Interior supports the President’s Management 

Agenda to cut waste and implement a government that is more responsive and open. The BLM

budget supports the Department’s plan to build upon the Accountable Government Initiative 

through a set of integrated enterprise reforms designed to support:

• Collaborative, evidence-based resource management decisions;

• Efficient Information Technology (IT) Transformation; optimized programs, business 

processes, and facilities; and 

• A network of innovative cost controlling measures that leverage strategic workforce 

alignment to realize an effective 21st Century Interior organization.

Campaign to Cut Waste – The Department of the Interior has committed to reducing 

administrative spending by $217 million by the end of FY 2013 through targeted reductions in 

high-priority areas including travel, transportation of things, advisory and assistance services, 

contractual services, supplies, and other administrative expenses. The Department is 

aggressively working to meet the required 20% reduction by building on the Department’s other 

ongoing efficiency initiatives such as Information Technology Transformation and Strategic 

Sourcing. The BLM is committed to achieving specific reductions during FY 2013 and sustaining 

them in FY 2014 in the amounts described below:

• The BLM will achieve $5.0 million savings in travel during FY 2013 and sustain this 

reduction during FY 2014 through increased use of technology, including 

teleconferencing, video conferences, shared web sites, and web conferences as well as 

enhanced management attention and internal controls.

• The BLM supports the Department’s goal to reduce spending on advisory and 

assistance contracts by 20 percent by the end of FY 2013 and sustained into 2014. The 

BLM will achieve $26.8 million savings in advisory and assistance services/other 

contractual services by monitoring spending, implementing requirements for justifications 

and higher-level approvals, designating a central location for justification documentation, 

and conducting regular review of contracts to identify consolidation opportunities.

• The BLM will achieve $3.5 million in combined savings on supplies and equipment by 

leveraging strategic sourcing contracts and the FedBid Reserve Auction tool for the 

purchases of commercial products/services by the end of FY 2013 and sustained into 

2014.

The BLM is controlling other administrative expenses by initiating internal controls requiring 

senior-level preapproval of conference-related spending and tracking/reporting funds spent on 

conferences. Further, the BLM is committed to limiting the publication and printing of hard copy 

documents in support of more efficient spending practices, while continuing to effectively 

communicate necessary data for public consumption. Finally, the BLM is actively engaged in 

reducing funds spent on promotional materials as specified by Departmental policy guidance 

issued March 29, 2012.

Real Property – In support of the Administration’s real property cost savings efforts, the 

Department issued a policy restricting the maximum amount of Bureau/Office-leased and GSAprovided space to FY 2010 levels and reducing the target utilization rate (sq. ft. per person) for 

office space by 10 percent. Through actions such as consolidations, collocations, and disposals, 

the BLM plans to achieve a utilization rate of 209 usable sq. ft. per person by the end of FY 

2014.
2014 Budget Justifications Bureau of Land Management

Page I - 14 Chapter I – Executive Summary

The Department has a moratorium on construction of new facilities and required each 

Bureau/Office to set aside a minimum of 3 percent of its construction budget request for 

disposal activities that support real property cost savings goals. In FY 2014, these efforts will 

result in the BLM achieving a net reduction of 20,921 gross square feet and an annual cost 

savings in Operations and Maintenance of $ 48,813 that will be redirected to the 

Bureau’s/Office’s higher priority facilities.

Data Center Consolidation – As part of the Administration’s Management Priorities, the 

Department has initiated a plan for Information Technology (IT) Transformation designed to 

reduce spending by the consolidation of IT infrastructure and services under a single Chief 

Information Officer. The new IT shared services organization will transform the way that IT is 

delivered to over 70,000 DOI employees, using advances in technology to provide better 

services for less. The BLM supports the Department’s initiative to reduce 95 data centers by FY 

2015 without disruption to mission. As part of this initiative, Interior is planning to consolidate 14 

data centers during 2014, none of which are managed by the BLM.
Summary of Program Changes

Bureau of Land Management 2014 Budget Justifications

Chapter II – Summary of Program and Legislative Changes Page II - 1

SUMMARY OF PROGRAM AND 

LEGISLATIVE CHANGES

The following describes the major increases, decreases, transfers, legislative and administrative 

changes and management efficiencies in the BLM’s 2014 budget. Funding increases and 

decreases are summarized in the table and described more fully below.

Table 3: BUREAU OF LAND MANAGEMENT BUDGET REQUEST SUMMARY ($000) 

FY 2012 Enacted (current appropriation) 1,128,954

2014 Program Changes

America's Great Outdoors +9,144

• Soil, Water and Air Management : America's Great Outdoors Demonstration Landscapes +1,100

• Recreation Resources Management: Program Increase - Applied Science +2,000

• National Monuments & National Conservation Areas: Program Increase - America's Great Outdoors +6,044

Cooperative Landscape Conservation +3,276

• Soil, Water and Air Management: Cooperative Landscape Conservation/REAs +776

• Soil, Water and Air Management: Climate Adaptation +2,000

• Rangeland Management: Climate Adaptation - Invasive Species +500

Land Acquisition - America's Great Outdoors +10,253

• Land Acquisition - LWCF: Increase Landscape Acquisition Projects +10,135

• Land Acquisition - LWCF: Inholding, Emergency and Hardship General Program Increase +118

New Energy Frontier -17,829

• Oil and Gas Management: Leasing, Oversight, and Environmental Studies +8,000

• Oil & Gas Management: Leasing Reform +5,000

• Oil & Gas Management: Inspection and Enforcement - Shift Cost to Fees -37,950

• Oil & Gas Management: Inspection and Enforcement – Inspection Fees/Offsetting Collections [+47,950]

• Renewable Energy Management: Geothermal Energy Management and Renewable Energy Studies +7,121

Youth in the Great Outdoors +2,750

• Soil, Water and Air Management: Youth in the Great Outdoors +1,250

• Wildlife Management: Youth in the Great Outdoors (NFWF) +1,500

Other Program Increases +51,673

• Soil, Water and Air Management: Applied Science +2,500

• Soil, Water, and Air Management: Klamath Basin Restoration +500

• Riparian Management: Applied Science +1,000

• Wild Horse and Burro Management: Implementation of NAS Recommendations +2,032

• Wildlife Management: Sage Grouse Conservation Activities +15,000

•Coal Management: Inspections and Enforcement +2,421

• Other Mineral Resources Management: Inspections and Enforcement +2,025

• Lands and Realty Management: Transmission Corridors +6,000

• Resource Management Planning: High Priority Planning Efforts +4,000

• Deferred Maintenance and Capital Improvements: Land Mobile Radio +1,250

• Administrative Support: National BLM Foundation +1,000

• Bureau-wide Fixed Costs: Realign base funding +8,164

• O&C Forest Management: Increase Base Funding for Secretary's Western Oregon Strategy +1,801
Bureau of Land Management 2014 Budget Justifications

Chapter II – Summary of Program and Legislative Changes Page II - 2

• O&C Resource Management Planning: Increase Base Funding for Secretary's Western Oregon 

Strategy +1,670

• Miscellaneous Trust Funds +2,310

Program Decreases -32,027

• Rangeland Management: Grazing Permit Renewal and Monitoring -14,065

• Rangeland Management: Propose New Grazing Administration Fee [+6,500]

• Alaska Conveyance: General Program Decrease -12,320

• Information Technology: General Program Decrease -2,072

• Construction: Program Elimination -3,570

Permanent Reprogrammings and Internal Transfers 0

• Transfer Geothermal funds from Oil & Gas Management to Renewable Energy [2,000]

• Transfer Land and Resources Information System funds to Lands and Realty Management [3,000]

• Create new Information Technology Management subactivity [27,500]

• Transfer O&C Deferred Maintenance to MLR Deferred Maintenance [1,039]

• Create new O&C Operations and Annual Maintenance subactivity [9,945]

Fixed Costs 5,320

• General Fixed Costs (Salary and Benefits; Rents/Leases, Workers Comp, Unemployment Comp; 

Working Capital Fund (WCF), etc.) 5,320

Total FY 2014 Budget Request 1,161,514

AMERICA’S GREAT OUTDOORS

Soil, Water and Air Management: America’s Great Outdoors Demonstration Landscapes 

(+$1,100,000/0 FTE) – The 2014 budget request includes a $1.1 million increase to support 

integrated, multi-partner, landscape-scale restoration efforts, including restoration of sage-grouse 

habitat. 

Recreation Resources Management: Program Increase – Applied Science 

(+$2,000,000/0FTE) - Funding increases totaling $2.0 million is for science-related crosscutting 

initiatives.

National Monuments & National Conservation Areas: Program Increase – America’s 

Great Outdoors (+$6,044,000/+2 FTE) –The requested increase in funding will strengthen the 

BLM’s management of the 40 separate units within the National Monuments and NCA program 

and will enhance the BLM’s ability to conserve, protect, and restore congressionally and 

presidentially designated areas. Specifically, funds will be used to enhance monitoring of 

natural and cultural values, improve the use of landscape scale scientific data and increase the 

presence of law enforcement officers for public health and safety.

COOPERATIVE LANDSCAPE CONSERVATION

Soil, Water and Air Management: Cooperative Landscape Conservation/REAs 

(+$776,000/0 FTE) – The 2014 budget request includes a $776,000 increase for 

Cooperative Landscape Conservation/Rapid Ecoregional Assessments to evaluate the 

first seven REAs and develop decision models for how managers can effectively use 
Bureau of Land Management 2014 Budget Justifications

Chapter II – Summary of Program and Legislative Changes Page II - 3

data from the Rapid Ecoregional Assessments and other large scale assessments to 

answer critical management questions.

Soil, Water and Air Management: Climate Adaptation (+$2,000,000 /0 FTE) – The 2014 

budget request for Soil, Water & Air Management includes a $2.0 million increase for three 

climate adaptation efforts (listed in the table above) that aim to fill data gaps for climate 

adaptation planning, provide decision support for invasive species management, and support 

regional coordination by aligning bureau and interagency resources and actions in the Great 

Basin. These efforts include: 

• Vegetation surveys ($500,000): As part of the effort to determine vulnerabilities, the 

Interagency Land Management Adaptation Group identified the incomplete coverage of 

vegetation inventories as a major gap for adaptation planning. The BLM has taken the 

lead and is coordinating with NRCS, USFS and USGS to develop a plan to extend 

existing vegetation surveys to cover all lands in the lower 48 States, to synthesize data 

from the major surveys to support preparation of regional analyses across all vegetation 

communities, and to use the data to enhance the accuracy of LANDFIRE. The resulting 

information will provide baseline data essential for adaptation planning and will allow 

agencies to more systematically monitor changes in vegetation, including trends in biocarbon sequestration. 

• Regional coordination pilot/sage grouse ($1,000,000): There is considerable groundlevel work necessary to ensure DOI bureaus and their partners in the field are able to turn 

information and strategy into coordinated, effective management actions that build 

resilience to changing conditions. 

The Great Basin faces numerous land health stressors, is well-suited for the 

development of renewable energy, and will soon have the benefit of a Rapid Ecoregional 

Assessment for climate-related information and science. There is also an existing interbureau collaboration regarding sage grouse habitat, and engagement from the Great 

Basin Landscape Conservation Cooperative, the Northwest and Southwest Climate 

Science Centers and NOAA. Aligning bureau and interagency resources and actions in 

this region will provide a model for regional climate adaptation coordination that can be 

exported to the large landscape demonstration areas of the America’s Great Outdoors 

initiative, and may inform the eventual expansion of the AGO portfolio. This effort would 

be led by the BLM with ongoing participation from other Interior bureaus and partner 

agencies. 

• National landscape decision tool pilot ($500,000): Analytical tools must be designed 

to help predict the spread of invasive species on lands and waters managed by the 

Department. The Department’s Landscape Decision Tool (LDT) provides a common 

platform for such tools. Though it has been populated with an extensive collection of 

Department databases, the predictive tools have not yet been built or acquired to 

anticipate the spread of invasive species and predict the outcomes of management 

actions. The Department will develop the analytical tools that take advantage of this 

storehouse of information to provide decision support for managers and their partners. 

Rangeland Management: Climate Adaptation – Invasive Species (+$500,000/0 FTE) – The 

2014 budget request includes a $500,000 increase for climate adaptation efforts related to 

invasive species. 
Bureau of Land Management 2014 Budget Justifications

Chapter II – Summary of Program and Legislative Changes Page II - 4

LAND ACQUISITION – AMERICA’S GREAT OUTDOORS

Landscape Acquisition Projects (+$10,135,000/0 FTE) – In 2014, the BLM will acquire high 

priority acquisition projects in the core and collaborative landscape planning land acquisition 

programs. The 2014 core program is $5.5 million and will fund three of BLM’s highest priorities. 

The collaborative landscape planning component builds on efforts started in 2011 to 

strategically invest in interagency landscape-scale conservation projects while continuing to 

meet bureau-specific programmatic needs. The 2014 request includes a total of $23.6 million for 

2 collaborative landscape planning projects. 

Emergencies and Hardships (+$118,000/0 FTE) – The BLM will continue to acquire lands 

available on short notice on a case-by-case basis. Funding will prevent adverse land use that 

may conflict with management objectives for adjacent public lands.

NEW ENERGY FRONTIER

Oil and Gas Management – General Program Increase: Leasing, Oversight, and 

Environmental Studies (+$8,000,000/+49 FTE) – A $5.0 million program increase restores the 

BLM’s leasing and oversight capacity to the 2011 enacted level. This additional funding in 2014 

will allow BLM to more fully achieve the goal of the leasing reforms and to effectively oversee 

energy permitting and development activities, given the larger onshore well inventories, with 

more sophisticated operations that include complicated completions for the newer horizontal 

drilling and hydraulic fracturing taking place. In addition, the BLM is requesting an additional 

$3.0 million for large, regional-scale analysis and studies, including environmental impact 

statements, for conventional energy issues.

Oil and Gas Management: Leasing Reform (+$5,000,000/+20 FTE) – A $5.0 million 

programmatic increase is requested to enable the BLM to effectively implement its leasing 

reforms without sacrificing other program needs, such as providing industry with timely access 

to Federal oil and gas resources. The increased opportunity for public participation, 

transparency and a more thorough environmental review process with the appropriate 

documentation required by BLM leasing reforms have increased operational costs. The 

additional funds will enable the BLM to conduct defensible and timely lease parcel 

environmental analysis as a heavily scrutinized portion of the program.

Oil and Gas Management: Decrease Base Funding for Inspections/Shift Cost to Fees

(-$37,950,000/-162 FTE) - The 2013 budget proposes shifting a significant share of the cost of 

oil and gas inspections to industry fees, for a savings of $38.0 million in requested funding. 

Renewable Energy Management: Geothermal Energy Management and Renewable 

Energy Studies (+$7,121,000/+51 FTE) – The 2014 budget proposes an increase of $7.1 

million in new funding and 51 FTE. This will enable the BLM to continue ongoing program 

management responsibilities associated with geothermal energy development by replacing 

mandatory funding previously provided for this purpose through the Geothermal Steam Act 

Implementation Fund, which has expired. New deposits into this Fund ceased in 2010. These 

funds will also support additional environmental studies, environmental reviews, and planning 

efforts to accelerate the identification of prime areas for utility scale renewable energy 

development. 
Bureau of Land Management 2014 Budget Justifications

Chapter II – Summary of Program and Legislative Changes Page II - 5

YOUTH IN THE GREAT OUTDOORS

Soil, Water and Air Management: Youth in the Great Outdoors (+$1,250,000 /0 FTE) –

Youth in the Great Outdoors (+$1,250,000 /0 FTE) – The 2014 budget request includes a 

$1.3 million increase for the Secretary’s Youth Initiative in the Soil, Water & Air Management 

Program. Funding will allow the BLM to expand efforts to educate, engage, and employ young 

people. Special consideration will be given to those programs that provide youth from diverse 

backgrounds with hands-on learning in the sciences.

Wildlife Management: Youth in the Great Outdoors (+$1,500,000 /0 FTE) – The 2014 

Budget includes a program increase of $1.5 million to support efforts to involve America’s youth 

in the management and enjoyment of America’s public lands. The additional funding will be 

provided to the National Fish and Wildlife Foundation to provide more youth with outdoor work 

experience and implementing wildlife habitat restoration and improvement projects on public 

lands. 

OTHER PROGRAM INCREASES

Soil, Water and Air Management: Applied Science (+$2,500,000/0 FTE) – The 2014 budget 

request includes a $2.5 million increase for applied science. This funding increase will be 

directed to efforts that will help inform the development and effective implementation of 

management strategies.

Soil, Water and Air Management: Klamath Basin Restoration (+$500,000/0 FTE) – The 

2014 budget request includes an increase of $500,000 for activities related to the Klamath 

Agreements that are authorized under existing law. The BLM is collaborating with other Federal 

agencies and stakeholders on this effort. Funds will support planning, technical analyses, and 

interagency coordination efforts. 

Riparian Management: Applied Science (+$1,000,000/0 FTE) – The 2014 budget request

includes a $1.0 million increase for science-related crosscutting initiatives. .

Wild Horse and Burro Management: Implementation of NAS Recommendations 

(+$2,032,000/+0FTE) – Funding increases totaling $2.0 million are for new and existing applied 

research towards the development of tools intended to improve wild horse and burro 

management and rangeland health. The multi-year research studies will primarily focus on 

developing more effective and longer lasting fertility control agents and techniques for 

suppressing population growth, and determining their relative efficacy and effects. Additional 

projects will include research on human dimensions and socio-economic factors related to the 

program. This funding will also be used in consideration of a forthcoming National Academy of 

Sciences (NAS) report on the WHB Program, which is currently scheduled for release in June 

2013

Wildlife Management: Sage-grouse Conservation Activities (+$15,000,000/+2 FTE) – The

budget includes a $15.0 million increase over the 2012 enacted level to allow the BLM to 

continue implementing sage-grouse conservation and restoration measures to help prevent the 

future listing of the species for protection under the Endangered Species Act.

Coal Management: Inspections and Enforcement (+$2,421,000/+6 FTE) – The 2014 budget 

proposes an increase of $2.4 million to be used for inspection and enforcement of coal 
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production on Federal and Indian lands, returning the program to a level near its 2011 enacted 

level of $9.7 million. The BLM will continue efforts to pursue new cost recovery within this 

program. By statute, cost recovery fees from Indian lessees go to the Treasury and are not 

available for accomplishing program workloads.

Other Minerals Management: Inspections and Enforcement (+$2,025,000/+7 FTE) – The 

2014 budget proposes an increase of $2.0 million to be used for inspection and enforcement of 

other minerals activities on Federal and Tribal Lands. The requested increase will fund the 

program at approximately the 2011 level. 

Lands and Realty Management: Transmission Corridors (+$6,000,000/0 FTE) - The 2014 

budget proposes a $6.0 million increase to enhance BLM’s ability to identify and designate 

energy corridors in low conflict areas and site high-voltage transmission lines, substations, and 

related infrastructure in an environmentally sensitive manner.

 

Resource Management Planning: High Priority Planning Efforts (+$4,000,000/+8 FTE) –

The BLM is requesting an increase of $4.0 million to support high-priority planning efforts, 

including the initiation of several new plan revisions in 2014, as well as plan evaluations and 

implementation strategies. 

Deferred Maintenance and Capital Improvements: Land Mobile Radio (+$1,250,000 /0 FTE)

–This increase of $1.25 million supports an Interior-wide, integrated approach to manage the 

Land Mobile Radio (LMR) facilities, launch efforts to consolidate radio infrastructure, and 

leverage resources through better coordination. These funds will be coordinated with the 

Department’s corporate approach to achieve critical program components such as establishing 

user priorities, inventorying sites, establishing coverage models, assessing condition and 

remediating findings at retained sites, identifying redundancies, and disposal of facilities that are 

no longer needed.

Administrative Support: National BLM Foundation (+$1,000,000/0 FTE) – The BLM 

proposes an increase of $1.0 million to establish a congressionally-chartered BLM Foundation. 

This foundation is an opportunity to leverage private funding to support public lands, achieve 

shared outcomes, focus public support of the BLM mission, and improve messaging.

Bureau-wide Fixed Costs: Realign Base Funding (+$8,164,000/0 FTE) – The program 

increase of $8.2 million will fund certain increased fixed costs funded through program 

assessments in FY 2012. The increase will continue investments in management tools that 

cannot be identified as benefiting any one program (e.g., Activity Based Cost-Management 

System) and other expenses, many mandated by statute or regulation, which benefit all bureaus 

and bureau programs. This also includes increased document storage costs paid to the 

National Archives and Records Administration (NARA) as result of a litigation hold preventing 

the BLM from destroying old records per NARA government-wide document retention policies.

O&C Forest Management: Increase Base Funding for the Secretary’s Western Oregon 

Strategy (+$1,801,000/ 0 FTE) – The strategy aims to increase the volume of timber offered for 

sale; increase survey of rare, uncommon, or endangered species; facilitate the development 

and implementation of a recovery plan for the northern spotted owl; and provide landscape-level 

timber sale project environmental analyses.

O&C Resource Management Planning: Increase Base Funding for the Secretary’s 

Western Oregon Strategy (+$1,670,000/0 FTE) – The funding will implement a new process to 
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respond to protests, appeals, and litigation, support an early consultation team involving 

NOAA/FWS for successful ESA consultation for the RMPs for Western Oregon. The funding will 

be used to increase support for analytical model review in order to properly validate model 

inputs and outputs, expand outreach efforts and coordination to stakeholders and the State of 

Oregon regarding potential solutions for forest management in western Oregon and the 

relationship with the BLM planning effort.

Miscellaneous Trust Funds (+$2,310,000/0 FTE) – The 2014 President’s Budget assumes 

increased revenue compared with the 2012 enacted level within the Miscellaneous Trust Funds 

account. 

PROGRAM DECREASES

Rangeland Management: Grazing Permit Renewal and Monitoring (-$14,065,000/-46 FTE)

– In 2012, the BLM received an increase in appropriations to address numerous challenges, 

including completion of grazing permit renewals, allotment monitoring, and quality 

environmental documents related to livestock grazing. In 2014, the BLM requests a reduction to 

this amount. The BLM will address similar issues by use of a permit administrative fee that will 

result in collections of $6.5 million in 2014 (see Legislative Changes section below for a detailed 

description of the proposed administrative fee). 

Alaska Conveyance: General Program Decrease (-$12,320,000/-60 FTE) – The BLM is 

reducing base funding for the Alaska Conveyance and Lands Program as part of its continued 

effort to reevaluate and streamline the conveyance process. Additional funds will be available 

for conveyance activities if Congress accepts the Department’s separate mandatory proposal to 

temporarily reallocate the state share of NPR-A receipts to fund Alaska-specific BLM needs 

(discussed further below).

Information Technology Management: General Program Decrease (-$2,072,000/-22 FTE) –

The BLM will continue the national data center consolidation started in 2010. 

Construction: Program Elimination (-$3,570,000/-12 FTE) – The budget eliminates the 

Construction Appropriation account with a proposed reduction of $3.6 million. Beginning in 

2014, construction projects undertaken by the BLM will be funded in the newly named Deferred 

Maintenance and Capital Improvements Program in the Management of Land and Resources

appropriation.

PERMANENT REPROGRAMMINGS AND INTERNAL TRANSFERS

Transfer Geothermal funds to Renewable Energy (+2,000,000/+10 FTE) – The 2014 

President’s Budget proposes a transfer of $2.0 million of geothermal base funding from the Oil 

and Gas Management Program into the more appropriate Renewable Energy Management 

Program. 

Transfer Land Resource Information Systems funds to Lands and Realty Management 

Subactivity (+$3,000,000/+0 FTE) – The budget transfers $3.0 million from Land and Resource 

Information Systems to the Lands and Realty Management subactivity for the funding of lands 

and realty information systems. This business practice is consistent with the ownership, 

management, and funding of other BLM information systems by benefitting programs.
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Create New Information Technology Management Subactivity (+$27,500,000/+152 FTE) –

The 2014 budget request proposes transferring a total of $27.5 million and 152 FTE from two 

subactivities—$12.8 million and 96 FTE from Land and Resource Information Systems and 

$14.7 million and 56 FTE from Information Systems Operations—to create a new Information 

Technology Management subactivity. The establishment of a unified subactivity will allow the 

BLM to more effectively implement the Department of the Interior’s Information Technology 

Transformation initiative, and more efficiently manage its IT funding overall.

Transfer of funds from O&C Deferred Maintenance (+$1,039,000 /+3 FTE) –The 2014 

budget request includes a transfer of +$1.0 million from the O&C Deferred Maintenance 

subactivity to the MLR Deferred Maintenance and Capital Improvements subactivity. Beginning 

in 2014 all construction, deferred maintenance and capital improvement projects on all BLMmanaged lands will be funded in this account in the MLR appropriation.

Create New O&C Operations and Annual Maintenance Subactivity (+$10,063,000/+76 FTE) 

– The 2014 budget includes a transfer of $2.1 million into this new subactivity from the former 

Operations subactivity and a transfer of $7.9 million from the former Annual Maintenance 

subactivity. The consolidation of these two subactivities into one will promote program 

management efficiencies and better recognize the overlap between the type of work that is 

funded and performed within these two programs.

FIXED COSTS

Fixed Costs Increases (+$5,320,000/+0 FTE) – Requested fixed cost increases include costs 

such as planned pay increases, space rental costs, retirement system costs, health plan costs, 

workers compensation costs, unemployment compensation costs, and specified Department of 

the Interior costs funded through the Department’s Working Capital Fund.

LEGISLATIVE AND ADMINISTRATIVE CHANGES

Grazing Administrative Processing Fee – The budget includes appropriations language for a 

three-year pilot project to allow BLM to recover some of the costs of issuing grazing 

permits/leases on BLM lands. BLM would charge a fee of $1 per Animal Unit Month, which 

would be collected along with current grazing fees. The budget estimates the fee will generate 

$6.5 million in 2014, and that it will assist the BLM in processing pending applications for 

grazing permit renewals. During the period of the pilot, the BLM would work through the 

process of promulgating regulations for the continuation of the grazing administrative fee as a 

cost recovery fee after the pilot expires. 

Oil and Gas Inspection Fee – The 2014 budget proposes to shift a significant share of the cost 

of the inspections activity to industry fees, for a savings of $37,950,000 in requested 

appropriations. The estimated collections generated from the proposed inspection fees will total 

$47,950,000, fully offsetting the proposed reduction in appropriated funding and providing for a 

net increase of $10.0 million in funds available for this critical BLM management responsibility. 

The increased funding is aimed at correcting deficiencies identified by the Government 

Accountability Office in its February 2011 report, which designated Federal management of oil 

and gas resources, including production and revenue collection, as high risk. The increase will 

help BLM achieve the high-priority goal of increasing the completion of inspections of Federal 

and Indian high-risk oil and gas cases by nine percent over 2012 levels. The BLM will also 

complete more environmental inspections to ensure environmental requirements are being 
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followed in all phases of development. The BLM anticipates adding approximately 55 FTE with 

this increased funding capacity.

Proposal for Oil and Gas Leasing Reforms - The Administration proposes a package of 

legislative and administrative proposals to reform the management of Interior's onshore and 

offshore oil and gas programs, with a key focus on improving the return to taxpayers from the 

sale of these Federal resources and on improving transparency and oversight. Proposed 

changes fall into three general categories: advancing royalty reforms; encouraging diligent 

development of oil and gas leases; and improving revenue collection processes.

Royalty reforms include evaluating minimum royalty rates for oil, gas, and similar products; 

adjusting onshore royalty rates; analyzing a price-based tiered royalty rate; and repealing 

legislatively-mandated royalty relief. Diligent development requirements include shorter primary 

lease terms, stricter enforcement of lease terms, and monetary incentives to get leases into 

production (e.g., a new per-acre fee on nonproducing leases). Revenue collection 

improvements include simplification of the royalty valuation process, elimination of interest 

accruals on company overpayments of royalties, and permanent repeal of DOI's authority to 

accept in-kind royalty payments. Collectively, these reforms will generate roughly $2.5 billion in 

net revenue to the Treasury over 10 years, of which an estimated $1.7 billion will result from 

statutory changes. Many States will also benefit from higher Federal revenue sharing payments 

as a result of these reforms. In addition, the Department will continue to evaluate the use of 

internet-based oil and gas lease auctions.

The Budget also proposes to extend and revamp the oil and gas permitting pilot office authority 

established under the Energy Policy Act of 2005. Under the proposal, BLM would have 

flexibility to relocate pilot offices as needed based on changing permitting demands over time. 

The Administration continues to seek repeal of the Energy and Policy Act’s prohibition on BLM 

establishing cost recovery fees for processing applications for oil and gas permits to drill as well 

as the diversion of mineral leasing receipts from the Treasury to the mandatory BLM Permit 

Processing Improvement Fund. On repeal of these EPAct provisions, BLM will promulgate 

regulations to establish cost recovery fees for applications for permits to drill. These fees would 

help replace the termination of mandatory funds, which would become effective in 2015.

NPR-A State Share of Revenues to Alaska Programs – The Budget proposes to temporarily 

halt revenue sharing payments to the State of Alaska from NPR-A oil and gas development in 

order to reallocate these resources to a new Alaska Land Conveyance and Remediation Fund. 

This fund would be used to address priority BLM program needs in Alaska, specifically the 

remediation of oil and gas legacy wells in the NPR-A and the completion of remaining land title 

conveyances to the State of Alaska, Alaska natives, and native corporations. This approach of 

suspending revenue sharing payments is similar to the approach taken several years ago to 

address priority site remediation needs in the Naval Oil Shale Reserve No. 3 located in the 

State of Colorado. Deposits of $3 million are estimated in 2014 and are expected to increase to 

$28.5 million in 2021. By that time, the remediation of legacy wells and conveyance of Alaska 

lands will be completed and the NPR-A revenues would again be paid to the State of Alaska.

Helium Fund- The 2014 President’s Budget includes a proposal to re-authorize the BLM's 

Helium Fund in combination with substantive reforms to BLM helium sales based on recent 

recommendations from the National Academy of Sciences. 

This proposal will allow continued operations of the Helium program while facilitating a gradual 

exit from the helium market. To minimize impacts to the helium market, the proposal will 
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gradually increase the sales price of helium while reducing the total volume of helium sold each 

year, until the amount in storage reaches 3,000,000,000 standard cubic feet. At that point, the 

remaining helium will be reserved for Federal users. The proposal would enable the sale of 

helium and related products and deposits of net proceeds to the Treasury.

Geothermal Revenue Sharing with Counties – The Administration proposes to repeal 

Section 224(b) of the Energy Policy Act of 2005. Prior to passage of this legislation, geothermal 

revenues were split between the Federal government and States, with 50 percent directed to 

States, and 50 percent to the General Fund of the U.S. Treasury. The Energy Policy Act of 2005 

changed this distribution beginning in 2006 to direct 50 percent to States, 25 percent to 

counties, and for a period of five years, 25 percent to a new BLM Geothermal Steam Act 

Implementation Fund. The allocations to the new BLM geothermal fund were discontinued a 

year early through a provision in the 2010 Interior Appropriations Act. The repeal of Section 

224(b) will permanently discontinue payments to counties and restore the disposition of Federal 

geothermal leasing revenues to the historical formula of 50 percent to the States and 50 percent 

to the Treasury. This results in estimated savings of $4.0 million in 2014 and $48.0 million over 

ten years.

Federal Land Transaction Facilitation Act (FLTFA) – The Administration proposes to 

reauthorize FLTFA, which expired July 25, 2011, and allow lands identified as suitable for 

disposal in recent land use plans to be sold using the Act’s authority. FLTFA’s sales revenues 

would continue to be used to fund the acquisition of environmentally sensitive lands and the 

administrative costs associated with conducting sales. Reauthorization of FLTFA will provide the 

BLM, NPS, USFWS, and USFS with an alternate funding source dedicated to the acquisition of 

environmentally sensitive lands. During its 11-year history, the FLTFA provided for the 

acquisition of over 18,000 acres of high-value conservation lands. 

Mandatory Funding of Land Acquisition Appropriation – The 2014 President’s Budget 

proposes to permanently authorize annual mandatory funding for the Land and Water 

Conservation Fund programs of the Departments of Agriculture and the Interior, beginning in 

fiscal year 2014. The mandatory appropriation from the Land and Water Conservation Fund for 

the Bureau of Land Management in 2014 is estimated to be $16.3 million. Supporting a 

mandatory FY2014 funding level of $16.3 million will increase stability in the BLM’s land 

acquisition program.

Recreation Fees Mandatory Appropriation – The Administration proposes to permanently 

reauthorize the Department of the Interior's and the Department of Agriculture's recreation fee 

programs under the Federal Lands Recreation Enhancement Act, which is set to expire on 

December 8, 2014.

Reauthorization of Secure Rural Schools payments –

In 2012 under PL 112-141, the Secure Rural Schools Act was reauthorized for one year (2012). 

The payments made to counties in 2013 (for 2012) again used a formula based on acreage of 

Federal land, previous payments, and per capita personal income. The President’s budget 

includes a legislative proposal to reauthorize the Secure Rural Schools (SRS) Act with funding 

through mandatory U.S. Forest Service appropriations. This SRS proposal revises the allocation 

split between the three portions of the program from the current authority emphasizing 

enhancement of forest ecosystems, restoration and improvement of land health and water 

quality, and the increase of economic activity. 

If no proposal is enacted, payments to O&C and CBWR counties in 2014 would be under the 
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1937 and 1939 statutes.. For more information on this proposal, see the U.S. Forest Service 

2014 Budget Justification.

Stewardship Contracting Timber Sales – The 2014 President’s Budget proposes to 

permanently authorize stewardship contracting authority for both BLM and the Forest Service 

through a proposal in the Forest Service budget request. In 2014, the BLM plans to offer new 

stewardship contracts and agreements. The agreements allow the BLM to pool resources with 

other groups to work towards common goals and have resulted in very successful forest 

restoration and wildlife habitat improvement projects. The BLM will accomplish this through 

sales and stewardship contracts to achieve desired future conditions on the 58 million acres of 

forests and woodlands in the Public Domain, offering economic benefits present and managing 

forest health for the future.
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Performance Overview

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Chapter III – Performance Overview Page III - 1

PERFORMANCE OVERVIEW

This section discusses the BLM’s Priority Goals and their relationship to the BLM’s major 

initiatives, and the BLM’s contributions to the Department of the Interior’s Strategic Plan.

PRIORITY GOALS

The four areas where BLM contributes toward DOI’s success in meeting its priority goals are:

Renewable Energy,

Climate Change Adaptation,

Youth in the Great Outdoors, and

Improved Management of Federal Oil & Gas Resources.

The BLM programs affected include: Soil, Water, and Air Management; Range Management; 

Forestry; Riparian Management; Wildlife and Fisheries Management; Threatened and 

Endangered Species Management; Wild Horse and Burro Management; Recreation 

Management; National Monuments and Conservation Areas; Wilderness Management; Oil and 

Gas Management; and Renewable Energy Management.

Renewable Energy – By September 30, 2013, the Department of the Interior will increase the 

approved capacity authorized for renewable (solar, wind, and geothermal) energy resources 

affecting Department of the Interior managed lands, while ensuring full environmental review, by 

at least 11,000 megawatts. By the end of 2014, the approved capacity authorized through the 

Priority Goal for renewable energy affecting DOI managed lands and waters is targeted to reach 

over 15,000 MW cumulatively since the start of 2010. 

o Impact Statement: Increase the approved capacity for production of energy from 

domestic renewable resources to support a growing economy and protect our 

national interests while reducing our dependence on foreign oil and climate-changing 

greenhouse-gas emissions.

BLM Contribution: The BLM’s renewable energy program contributes to the Secretary’s New 

Energy Frontier Initiative. Public lands managed by the BLM in the western United States have 

high potential for wind, solar and geothermal energy production. Public lands also provide 

crucial transmission corridors for renewable energy generated on non-Federal lands. The BLM 

has identified approximately 20 million acres with wind energy potential in eleven western 

States, 22 million acres with solar energy potential in six southwestern States, and 149 million 

acres with geothermal potential in several western States and Alaska. The 2014 President’s 

Budget requests $29.1 million for Renewable Energy Management, an increase of $9.4 million 

over the 2012 enacted budget. The total increase includes a program increase of $7.1 million 

and an internal transfer of $2.0 million in geothermal program funding formerly in the Oil and 

Gas Management subactivity. The request also includes an increase of $237,000 for fixed 

costs.

Implementation Strategy: In 2014, the BLM will continue work on implementation actions

resulting from the solar energy development Programmatic Environmental Impact Statement. 

The Record of Decision on the Solar PEIS includes 17 solar energy zones, totaling about 

285,000 acres potentially available for solar energy development. Making these lands available 
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for BLM leasing proposals will provide for the best siting locations for environmentally-sound 

solar energy development projects. The BLM will initiate this leasing program through a 

nomination and request for proposal process, ultimately ending in a competitive leasing program 

to accelerate the process of offering public lands for solar energy development. The BLM is also 

working on a rulemaking effort to establish the regulatory framework for a solar and wind energy 

leasing program under current FLPMA authority.

The funding requested in the 2014 President’s Budget for planning studies of regional wind 

energy zones will update the previous analysis in Wyoming done under the Wind Energy

Programmatic EIS completed in 2005 in order to address a greater level of wind energy 

development and will further streamline the environmental review of site-specific wind projects. 

It will also include analysis of additional planned transmission development.

Performance Metrics: The Department is presently employing a set of internal measures and 

milestones to monitor and track achievement of the priority goals. Progress in these areas is 

reported and reviewed throughout the year by the Deputy Secretary’s Principals Operations 

Group to identify and address any need for enhanced coordination or policy measures to 

overcome barriers to the achievement of the priority goal. The BLM has identified the following 

existing Strategic Plan measure that relates to this priority goal: “Number of megawatts of 

approved capacity authorized on public land for renewable energy development while ensuring 

full environmental review.” This Strategic Plan measure cumulatively includes all megawatts of 

capacity on Federal lands which were authorized prior to the development of the Secretary’s 

Priority Goal, in contrast to the Priority Goal which tracks megawatts authorized since the start 

of fiscal year 2010. Through the end of 2012, the BLM issued decisions on solar, wind, and 

geothermal energy development project proposals with a combined capacity of more than 9,800

megawatts. Projects approved in 2013 and 2014 are projected to provide sufficient additional 

capacity to reach the goal of over 15,000 megawatts of capacity.

Climate Change Adaptation – By September 30, 2013, for 50 percent of the Nation, the 

Department of the Interior will identify resources that are particularly vulnerable to climate 

change, and implement coordinated adaptation response actions. In 2014, progress for 

improved climate change adaptation and collaboration across the Department of the Interior will 

include pursuing the following significant milestones:

o Establishment of climate change adaptation guidance in all of the Interior land 

management bureaus, distributed throughout each bureau’s regional offices and 

individual management units;

o Establishment of climate adaptation networks within each bureau and across the 

Department, with individual performance measures in place;

o New climate change adaptation data and decision tools relating to:

 predicting and anticipating wildland fire trends,

 predicting the spread or introduction of invasive species, and 

 tracking changed in wildlife abundance and distribution;

o Integrated vegetation surveys representing the entire lower 48 states; and 

o Creation of a web-based searchable database of the vulnerability assessments 

prepared across all federal land management agencies.

BLM Contribution: The BLM has incorporated this priority goal into its Cooperative Landscape 

Conservation Initiative. To address the landscape-scale changes associated with climate 

change, the BLM is adopting a multi-level approach to management. This approach involves 

assessing conditions and potential risks at a landscape scale; developing management 

strategies to help geographically focus development, conservation, and adaptation activities; 
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implementing these strategies through changes in land use allocations, development of new 

best management practices, and on-the-ground treatments and projects; and systematically 

monitoring to determine the effectiveness of management actions. The development and 

implementation of many conservation and adaptation activities will be coordinated with Climate 

Science Centers (CSCs) and the Landscape Conservation Cooperatives (LCCs). These 

strategies will be focused initially on those Eco regions with significant BLM management 

responsibilities, energy development potential, and climate change vulnerabilities. The 2014

BLM budget request includes $20.8 million for the Cooperative Landscape Conservation 

initiative.

Implementation Strategy: In 2014, the BLM will release three Rapid Eco regional Assessments

(REAs) with a goal of four additional REAs in 2015, and will begin to implement adaptation 

strategies in the seven Eco regions with REAs released in 2013. The REAs will help create 

systematic baseline information and help inform the development of adaptive management 

strategies for eight LCCs: Great Basin, Desert, Southern Rockies, Great Northern, Plains and 

Prairie Potholes, Great Plains, Western Alaska, and NW Interior Forests (AK). They will also 

help identify critical indicators for systematically monitoring the effectiveness of management 

activities in these LCCs. With the additional funding provided in 2014, the BLM will evaluate the 

first seven REAs for lessons learned and best management practices. It will also develop a 

plan to extend existing vegetation surveys to cover all lands in the lower 48 States and

synthesize the data from the major surveys. The BLM will also develop the analytical tools to 

help predict the spread of invasive species. A pilot project will be developed which aligns

bureau and interagency resources and actions in the Great Basin to provide a model for 

regional climate adaptation coordination. The pilot will focus on sage grouse habitat in the 

Great Basin; looking at existing planning decisions, developing climate adaptation plans, and 

how those documents can be used to improve the coordination and integration of regional 

decision making. 

Performance Metrics: The Department is presently employing a set of internal measures and 

milestones to monitor and track achievement of the priority goals. Progress in these areas will 

be reported and reviewed throughout the year by the Deputy Secretary’s Principals Operations 

Group to identify and address any need for enhanced coordination or policy measures to 

overcome barriers to the achievement of the priority goal.

Youth in the Great Outdoors – By September 30, 2013, the Department of the Interior will

maintain the increased level of employment of individuals between the ages of 15 to 25 that was 

achieved in FY 2010 (35 percent increase in total youth employment over 2009) to support the 

Department’s mission of natural and cultural resource management. For FY 2014, the 

Department is expecting to sustain a level of youth engagement similar to that achieved in FY 

2010 (35% increase in total youth employment over FY 2009), based on estimated funding and 

participation from partners through the 21st Century Conservation Service Corps (CSC). Funds 

proposed in the FY 2014 President’s Budget Request will expand the BLM’s youth programs 

and partnerships to accomplish high priority projects, and promote quality participant 

experiences and pathways to careers. The request includes an increase of $1.3 million for 

expanded youth programs and partnerships, including the proposed 21st Century Conservation 

Service Corps.

o Impact Statement: Build the next generation of conservation and community leaders 

by supporting youth employment at the Department of the Interior.

BLM Contribution: The BLM has incorporated this priority goal into its Youth in the Great 

Outdoors Initiative. The Bureau will continue to focus on providing a continuum of experiences 
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through its youth education, engagement, and employment programs. Special consideration is 

given to those programs that involve hiring young people ages 15 to 25 through various student 

employment programs, youth corps, and other youth partnership organizations. BLM is also 

emphasizing hiring youth from diverse backgrounds. Programs for school age youth such as 

Hands on the Land and conservation corps and internship programs for high school and older 

youth expose young people to natural and cultural resources and to career pathways in those 

fields. The 2014 BLM budget request includes $11.4 million for the Youth in the Great Outdoors 

initiative, which includes an additional $2.8 million above the 2012 enacted level.

Implementation Strategy: In 2014, BLM will continue to pursue opportunities to facilitate, 

develop, and sustain partnership activities to support BLM’s mission and will continue pursuing 

collaborative opportunities to educate, engage, and employ youth, particularly throughout the 

National Landscape Conservation System. The BLM will use $1.5 million of the additional 

funding to work with the National Fish and Wildlife Foundation to support projects that leverage 

private sector contributions to engage and employ youth in wildlife conservation activities.

Performance Metrics: The Department is presently employing a set of internal measures and 

milestones to monitor and track achievement of the priority goals. Progress in these areas will 

be reported and reviewed throughout the year by the Deputy Secretary’s Principals Operations 

Group to identify and address any need for enhanced coordination or policy measures to 

overcome barriers to the achievement of the priority goal.

Improved Management of Federal Oil and Gas Resources – By September 30, 2013, the 

BLM will increase the completion of inspections of Federal and Indian high-risk oil and gas 

cases by 9 percent over FY 2011 levels, which is equivalent to covering as much as 95 percent

of the potential high-risk cases. In FY 2014, the Bureau of Land Management is targeting to 

maintain inspection of 95% of the potential high risk cases. 

o Impact Statement: Improve production accountability, safety, and environmental 

protection of oil and gas operations through increased inspection of high-risk oil 

and gas production cases.

BLM Contribution: The inspection of high-risk-producing oil and gas cases ensures that 

hydrocarbon production on Federally-managed lands is properly accounted for and results in 

accurate royalty payments to the public and Indian owners of the minerals. Oil and gas 

production on Federally-supervised lands represents a significant part of the Nation’s 

hydrocarbon production. Operating regulations at 43 CFR 3161.3 (a) require the BLM to inspect 

all leases which produce high volumes of oil or natural gas and those leases that have a history 

of non-compliance at least once a year. By focusing on high-risk-producing cases, rather than 

randomly selecting producing cases for inspection, the BLM’s resources are more efficiently 

used. The high-risk cases account for about 13 percent of the total cases but account for over 

60 percent of the oil and gas produced on Federal and Indian mineral estates. This effort is a 

component of addressing the deficiencies identified in the GAO High Risk report, including 

ensuring data on production verification and royalties are consistent and reliable, meeting goals 

for oil and gas verification inspections, and ensuring that informal employee training is 

supported by formalized training courses offered on a consistent basis. The 2014 President’s 

Budget proposes to shift a significant share of the cost of the inspections activity to industry 

fees. The estimated collections generated from the proposed inspections fees will total $48.0

million. This will allow for a reduction of $38.0 million in requested appropriations and will 

provide an additional $10.0 million in resources for BLM inspections and oversight. The 2014
Bureau of Land Management 2014 Budget Justifications

Chapter III – Performance Overview Page III - 5

budget also proposes a programmatic increase to enable the BLM to effectively implement its 

leasing reforms.

Implementation Strategy: High-risk cases are determined by seven risk factors, four generated 

by the BLM and three derived from the Office of Natural Resources Revenue risk model. The 

four BLM factors are: production rating; number of missing Oil and Gas Operations Reports 

(OGOR); non-compliance rating; and last production inspection date rating. The Field Offices 

inspect the cases throughout the year, which are then entered into the Automated Fluid 

Minerals Support System (AFMSS). The Washington Office then runs reports from AFMSS 

showing the number of high-risk-production inspections completed. The number of high-riskproduction cases is determined by the individual Field Offices, based on the Bureau’s riskbased inspection strategy. The milestones for 2013 and 2014 will be 95 percent or above at the 

end of the year.

Performance Metrics: The BLM is presently employing the following milestones to monitor and 

track achievement of this priority goal: 1) Revising Onshore Oil and Gas Orders 3, 4 and 5

which cover how oil and gas is measured and stored in a secure facility to prevent theft and 

mishandling of production; 2) Evaluating and adjusting onshore royalty rates; and 3) Reinstating

training for managers on oil and gas operations. Progress in these areas is reported and 

reviewed throughout the year by the Deputy Secretary’s Principals Operations Group to identify 

and address any need for enhanced coordination or policy measures to overcome barriers to 

the achievement of the priority goal. 

THE BLM’S CONTRIBUTION TO THE DEPARTMENT’S STRATEGIC PLAN

The FY 2011-2016 DOI Strategic Plan, in compliance with the principles of the GPRA 

Modernization Act of 2010, provides a collection of mission objectives, goals, strategies and 

corresponding metrics that provide an integrated and focused approach for tracking 

performance across a wide range of DOI programs. While the DOI Strategic Plan for 2011 –

2016 is the foundational structure for the description of program performance measurement and 

planning for the 2014 President’s Budget, further details for achieving the Strategic Plan’s goals 

are presented in the DOI Annual Performance Plan and Report (APP&R). Bureau-and programspecific plans for 2014 are fully consistent with the goals, outcomes, and measures described in 

the 2011-2016 version of the DOI Strategic Plan and related implementation information in the 

Annual Performance Plan and Report (APP&R).
Bureau of Land Management 2014 Budget Justifications

Chapter III – Performance Overview Page III - 6
Bureau of Land Management 2014 Budget Justifications

Chapter III – Performance Overview Page III - 7

GOAL PERFORMANCE TABLE

Target Codes: SP = Strategic Plan measure, BUR = Bureau specific measure

Type Codes: C = Cumulative measure, A = Annual measure

Supporting

Performance

Measures

Type

2009

Actual

2010

Actual

2011

Actual

2012 

Actual

2013 

Full Year 

CR

2014 

President's 

Budget

Long-term 

Target

2016

Mission Area 1: Provide Natural and Cultural Resources Protection and Experiences

Goal 1: Protect America's Landscapes

Strategy 1: Improve land and water health by managing the more than 400 million acres of wetlands, uplands, and riparian areas that comprise our national parks, 

wildlife refuges, and BLM lands. 

Percent of DOI stream/shoreline 

miles that have achieved desired 

conditions where condition is known 

and as specified in management 

plans. (SP) 

C

91% 

130,146/ 

143,290

85% 

131,976/ 

154,976

85% 

132,466/ 

154,976

86% 

133,055/ 

155,274

86%

133,000

154,976

86%

133,000

154,976

91%

141,000

155,000

Contributing Programs: Land Resources; Wildlife and Fisheries Management; O&C Resources; Contributed Funds; Challenge Cost Share; and Other 

Subactivities.

Percent of DOI acres that have 

achieved desired conditions where 

condition is known and as specified in 

management plans. (SP)

C

58%

147,325,000/

253M

59% 

149,206,024/ 

253M

63% 

155,970,340/ 

248M

66% 

163,558,379/ 

248M

69% 

170,652,00

0/ 248M

66% 

164,000,000/ 

248M

72% 

179,086,000/ 

248M

Contributing programs: Land Resources; Wildlife Management; O&C Resources Management; Contributed Funds/Reimbursables; and Other Subactivities. 

Percent of baseline acres infested 

with invasive plant species that are 

controlled. (SP)

C

1.2%

411,388/

35,762,000

1.21% 

433,905 / 

35,762,000

0.99% 

333,177/ 

35,762,000

0.57% 

204,667/ 

35,762,000

0.58%

205,000/

35,762,000

0.39%

143,000/

35,762,000

0.83% 

300,000/ 

35,762,000

Contributing Programs: Land Resources; Burned Area Rehabilitation; O&C Resources Management; Challenge Cost Share; and Other Subactivities.
Bureau of Land Management 2014 Budget Justifications

Chapter III – Performance Overview Page III - 8

Target Codes: SP = Strategic Plan measure, BUR = Bureau specific measure

Type Codes: C = Cumulative measure, A = Annual measure

Supporting

Performance

Measures

Type

2009

Actual

2010

Actual

2011

Actual

2012 

Actual

2013 

Full Year 

CR

2014 

President's 

Budget

Long-term 

Target

2016

Percent of invasive animal species 

populations that are controlled. (SP) A

New

in 2011

New

in 2011

8% 

15/182

8% 

15/182

8% 

15/182

8% 

15/182

8% 

15/182

Number of DOI riparian 

(stream/shoreline) miles restored to 

the condition specified in 

management plans. (SP)

A 779 1,734 749 867 749 749 788

Contributing Programs: O&C Resources Management; Land Resources; Wildlife Management; Reimbursables; Challenge Cost Share and Contributed Funds; and 

Range Improvements.

Number of DOI acres restored to the 

condition specified in management 

plans. (SP)

A 950,157 1,136,759 848,477 556,457 511,000 500,000 700,000

Comment: In 2014, BLM will continue to prioritize its permit renewal activities, which will result in a decrease in the number of acres restored. Those projects 

initiated will address Habitat Restoration and Improvement. This funding will restore and improve key greater sage-grouse habitat for the benefit of sage grouse 

populations.

Contributing Programs: Land Resources; Wildlife Management; O&C Resources Management; Range Improvements; Forest Ecosystems; SNPLMA Conservation; 

Resource Management Planning; Forestry Pipeline Restoration; NM&NCA's; Other Reimbursables. 

Percent of surface waters (acres) 

managed by BLM that meet State 

(EPA-approved) water quality 

standards. (BUR)

A

87% 

283,616/ 

324,628

87% 

283,616/ 

324,628

87% 

283,616/ 

324,628

91% 

335,765/ 

371,060 

87% 

283,616/ 

324,628

90% 

11,631,022/ 

12,923,358

87% 

283,616/ 

324,628

Comment: In 2014, BLM will include data from Alaska, which had been underreported in the past due to the challenges of calculating and assessing remote rivers 

and lakes. Improvements in inclusion and access to data from the National Hydrologic Database and GIS mapping have allowed for the incorporation of Alaska 

data at this time.
Bureau of Land Management 2014 Budget Justifications

Chapter III – Performance Overview Page III - 9

Target Codes: SP = Strategic Plan measure, BUR = Bureau specific measure

Type Codes: C = Cumulative measure, A = Annual measure

Supporting

Performance

Measures

Type

2009

Actual

2010

Actual

2011

Actual

2012 

Actual

2013 

Full Year 

CR

2014 

President's 

Budget

Long-term 

Target

2016

Contributing Programs: Land Resources; Wildlife Management; O&C Resources Management; Range Improvements; Forest Ecosystems; SNPLMA Conservation; 

Resource Management Planning; Forestry Pipeline Restoration; NM&NCA's; Other Reimbursables. 

Percent of surface waters (stream 

miles) managed by BLM that meet 

State (EPA-approved) water quality 

standards. (BUR)

91% 

124,188/ 

136,327

91% 

124,188/ 

136,327

91% 

124,188/ 

136,327

89% 

103,700/ 

116,937 

91% 

124,188/ 

136,327

91% 

221,722/ 

243,706

91% 

221,722/ 

243,706

Percent of Wild Horse and Burro Herd 

Management Areas (HMAs) 

achieving appropriate management 

levels. (BUR)

A 44%78/ 180 41%74/ 179 39% 

69/179

40% 

72/179

31% 

55/179

34% 

60/179

31% 

55/179

Comment: In 2014, the program can no longer maintain the existing population levels on the range due principally to holding space limitations. As a result, the 

program will continue to decrease the number of animals removed from the range resulting in an increase in on-the-range population.

Percent of Resource Management 

Plans completed within four years of 

start. (BUR)

A

44% 

28 / 63

39% 

28/ 71

41% 

28/ 69

39% 

28/72 

37% 

28/76

32% 

30/95

32% 

30/95

Comment: The 2012 planned performance denominator number was incorrectly set at 75; only two of the plans originally scheduled for completion in FY12 could 

have met the criteria for completion within four years of start. As a result the actual performance revised the denominator downward from 75 to 72. The ratio 

represents the total number of Resource Management Plans (RMPs) completed in 4 years divided by the total number of RMPs completed, so the denominator 

increases over time. 

Percent of Resource Management 

Plan evaluations completed within 5 

years. (BUR) 

C

19%

26/ 136

30%

40/ 136

41%

56/ 136

44% 

65/149

42%

69/164

45%

73/164

45%

73/ 164

Comment: The 2012 planned performance denominator number was incorrectly set at 157 for this measure. As a result, the actual performance revised the 

denominator downward from 157 to 149.
Bureau of Land Management 2014 Budget Justifications

Chapter III – Performance Overview Page III - 10

Target Codes: SP = Strategic Plan measure, BUR = Bureau specific measure

Type Codes: C = Cumulative measure, A = Annual measure

Supporting

Performance

Measures

Type

2009

Actual

2010

Actual

2011

Actual

2012 

Actual

2013 

Full Year 

CR

2014 

President's 

Budget

Long-term 

Target

2016

Percent of Resource Management 

Plans with Implementation Strategies. 

(BUR)

C

16% 

22/ 136

34% 

47/ 136

36% 

49/ 136

38% 

56/149

34%

55/164

34% 

55/164

34%

55/164

Comment: The 2012 planned performance denominator number was incorrectly set at 157 for this measure. As a result, the actual performance revised the 

denominator downward from 157 to 149.

Percent of Resource Management 

Plans evaluated as making significant 

progress toward achieving riparian 

condition goals. (BUR)

A

New Measure 

in 2010

5.9% 

8 / 136

18% 

24/136

22% 

33/149

25% 

40/156

28% 

44/160

28% 

44/160

Comment: The 2012 planned performance denominator number was incorrectly set at 157 for this measure. As a result the actual performance revised the 

denominator downward from 157 to 149. 

Percent of public lands where Visual 

Resource Management data have 

been recorded in digital format for 

both inventory and management 

classes. (BUR)

C

39%

99,624,251/

256M

49% 

124,744,373/ 

256M

71% 

177,427,913/ 

248M

76% 

187,663,813/ 

248M

79%

195,384,13

9/

248M

93%

230,115,997/

248M

93%

230,115,997/

248M

Comments: Actual results for FY2011 and FY2012 incorrectly included new inventories for which management classes have not yet been established. The results 

for those two years have been adjusted downward to show the correct number. 

Percent of sites (acres) reclaimed or 

mitigated from the effects of 

degradation from past mining. (BUR)

A

58%

2,239/ 3,831

71% 

2,718/ 3,831

32% 

3,046/ 9,262

51% 

4,723/ 9,262 

29% 

4,058/ 

13,747

14% 

3,670/ 

27,002

80% 

30,520/ 

37,801

Comments: In 2014, the AML program will report fewer acres remediated due to additional site inventory along with monitoring and maintenance work required on 

sites remediated in prior years. The AML program has completed its 2009 American Recovery and Reinvestment Act (ARRA) projects. The ARRA funding caused 

a significant, but temporary increase in the number of reported accomplishments through 2012. 
Bureau of Land Management 2014 Budget Justifications

Chapter III – Performance Overview Page III - 11

Target Codes: SP = Strategic Plan measure, BUR = Bureau specific measure

Type Codes: C = Cumulative measure, A = Annual measure

Supporting

Performance

Measures

Type

2009

Actual

2010

Actual

2011

Actual

2012 

Actual

2013 

Full Year 

CR

2014 

President's 

Budget

Long-term 

Target

2016

Percent of known contaminated sites 

remediated on BLM-managed land. 

(BUR)

C

17% 

46/ 272

23% 

63/ 272

34% 

92/ 272

39% 

108/ 272

44% 

122/ 272

49% 

131/269

44% 

122/ 272

Percent of physical and chemical 

hazards mitigated in appropriate time 

to ensure visitor or public safety. 

(BUR)

A

82%917/ 

1,114

91%1,518/ 

1,676

92% 

740/800

91% 

9601/1,052

93% 

1,034/1,112

90% 

1,098/1,220

93% 

1,034/1,112

Number of incidents/investigations 

closed for natural, cultural, and 

heritage resources offenses.(BUR)

A

New Measure 

in 2011

New Measure 

in 2011 4,744 4,450 4,700 4,700 Baseline Established

Number of natural, cultural, and 

heritage resource crimes detected 

that occur on BLM lands.(BUR)

A

New Measure 

in 2011

New Measure 

in 2011 9,438 9,434 9,400 9,400 Baseline Established

Cumulative number of Herd 

Management Areas (HMAs) treated, 

or where population suppression 

techniques were conducted. (BUR) 

A

New Measure 

in 2012

New Measure 

in 2012

New Measure 

in 2012

76% 

26/34

57% 

12/21

75% 

15/20

Baseline 

Established

Strategy 2: Sustain fish, wildlife, and plant species by protecting and recovering the Nation’s fish and wildlife, in cooperation with partners, including States. 

Number of threatened and 

endangered species recovery 

activities implemented. (SP) 

A

New

in 2011

New

in 2011 1,328 1,921 1,500 1,400 1,400

Contributing Programs: Threatened and Endangered Species Management; O&C Wildlife Habitat Management, and NM&NCA's.
Bureau of Land Management 2014 Budget Justifications

Chapter III – Performance Overview Page III - 12

Target Codes: SP = Strategic Plan measure, BUR = Bureau specific measure

Type Codes: C = Cumulative measure, A = Annual measure

Supporting

Performance

Measures

Type

2009

Actual

2010

Actual

2011

Actual

2012 

Actual

2013 

Full Year 

CR

2014 

President's 

Budget

Long-term 

Target

2016

Percent of populations of species of 

management concern that are 

managed to desired condition. (BUR)

C

51% 

306/ 595

52% 

310/ 595

52% 

312/ 595

52% 

312/ 595

52% 

312/ 595

45% 

268/595

45% 

268/ 595

Contributing Programs: Wildlife and Threatened and Endangered Species Management provide results for this measure. Other contributors include: O&C Wildlife 

Habitat Management; Challenge Cost Share; Fisheries Management; NM&NCA's; Reimbursable and Contributed Funds; Land Resources; and Other Resources.

Number of (stream/shoreline) miles of 

habitat restored or enhanced that 

directly support ESA-listed and 

Bureau sensitive species 

conservation or recovery. (BUR)

A 314 253 418 225 225 208 208

Contributing Programs: Fisheries; Wildlife Management; Threatened and Endangered Species Management; O&C Wildlife Management; and NM&NCA's. 

Number of acres of habitat restored 

or enhanced that directly support 

ESA-listed and Bureau sensitive 

species conservation or recovery. 

(BUR) 

A 284,261 266,174 295,799 250,000 250,000 231,250 231,250

Contributing Programs: Wildlife; Fisheries; T&E Management; O&C Wildlife Management; and NM&NCA's. 

Goal 2: Protect America’s Cultural and Heritage Resources

Strategy 1: Protect and maintain the Nation's most important historic areas and structures, archeological sites, and museum collections.
Bureau of Land Management 2014 Budget Justifications

Chapter III – Performance Overview Page III - 13

Target Codes: SP = Strategic Plan measure, BUR = Bureau specific measure

Type Codes: C = Cumulative measure, A = Annual measure

Supporting

Performance

Measures

Type

2009

Actual

2010

Actual

2011

Actual

2012 

Actual

2013 

Full Year 

CR

2014 

President's 

Budget

Long-term 

Target

2016

Percent of archaeological sites on 

DOI inventory in good condition (SP) C

83%

48,980/

58,837

84% 

52,620/ 

62,987

84% 

60,521 

71,644

86% 

69,362/ 

80,653

85% 

61,200/ 

72,000

84% 

60,703/ 

72,265

85% 

68,000/

80,000 

Percent of historic structures on DOI 

inventory in good condition (SP) C

49% 

187/ 380

49% 

192/ 390

48% 

193/ 400

48% 

197/410

48% 

196/ 408

47% 

192/408

50%

205/ 410

Percent of collections on DOI 

inventory in good condition. (SP) C 100% 3 / 3

100% 

3/3

83% 

118 / 142

83% 

120/144

83% 

122/ 147

82% 

121/147

85% 

136 / 160

Comment: The overall percentage is directly affected by the number of collections added to the inventory each year. 

Percent of paleontological localities in 

BLM inventory in good condition. 

(BUR) 

C

95% 

19,421/ 

20,337

98% 

24,926/ 

25,436

95% 

26,643/ 

27,230

99% 

26,376/ 

26,621

98% 

23,030/ 

23,500

97% 

22,795/ 

23,500

98% 

24,500/ 

25,000

Miles of National Scenic and Historic 

Trail inventory completed to 

standards. (BUR) 

C

New Measure 

in 2011

New Measure 

in 2011 384 222 769 97 120

Comment: In 2014 the target for National Scenic and Historic Trails will change from being calculated in number of miles to number of units, due to a change in 

policy. Mileage is now collected as a part of the inventory process, not as a basis for it. 

Miles of National Scenic and Historic 

Trail monitoring completed to 

standards. (BUR) 

C

New Measure 

in 2011

New Measure 

in 2011 1,320 2,542 1,695 210 210
Bureau of Land Management 2014 Budget Justifications

Chapter III – Performance Overview Page III - 14

Target Codes: SP = Strategic Plan measure, BUR = Bureau specific measure

Type Codes: C = Cumulative measure, A = Annual measure

Supporting

Performance

Measures

Type

2009

Actual

2010

Actual

2011

Actual

2012 

Actual

2013 

Full Year 

CR

2014 

President's 

Budget

Long-term 

Target

2016

Comment: In 2014 the target for National Scenic and Historic Trails will change from being calculated in number of miles to number of units, due to a change in 

policy. Mileage is now collected as a part of the inventory process, not as a basis for it. 

Percent of designated Wild and 

Scenic River miles achieving goals, 

objectives, and desired conditions in 

maintaining, protecting, and/or 

enhancing river-related values. (BUR)

C

New Measure 

in 2011

New Measure 

in 2011

94 % 

2,512/2,681

 

88%

2,371/2,681

95%

2,547 / 

2,681

 

88%

2,371/2,681

95%

2,547 / 2,681

Percent of acres of Wilderness areas 

under BLM management meeting 

their heritage resource objectives 

under the authorizing legislation. 

(BUR)

A

New Measure 

in 2011

New Measure 

in 2011

100% 

8,736,691/ 

8,736,691 

100% 

8,736,691/ 

8,736,691 

100%

8,736,691/ 

8,736,691

100%

8,736,691/ 

8,736,691

100%

8,736,691/ 

8,736,691

Goal 3: Provide Recreation and Visitor Experience

Strategy 1: Enhance the enjoyment and appreciation of our natural and cultural heritage by creating opportunities for play, enlightenment, and inspiration.

Percent of visitors satisfied with the 

quality of their experience. (SP) A

94% 

94/ 100

94% 

94/ 100

95% 

95/ 100

94% 

94/100

92% 

92/100

92% 

92/100

92% 

92/100

Comment: Customer surveys have a variance of +/- 6%. 

Percent satisfaction among visitors 

served by facilitated programs. (SP) A

96% 

96/ 100

98% 

98 / 100

90% 

90/ 100

97% 

97/100

94% 

94/100

94% 

94/100

94% 

94/ 100

Comment: The data for this measure is compiled using the BLM Visitor Survey report prepared by the University of Idaho. Customer surveys have a variance of 

+/- 6%. 
Bureau of Land Management 2014 Budget Justifications

Chapter III – Performance Overview Page III - 15

Target Codes: SP = Strategic Plan measure, BUR = Bureau specific measure

Type Codes: C = Cumulative measure, A = Annual measure

Supporting

Performance

Measures

Type

2009

Actual

2010

Actual

2011

Actual

2012 

Actual

2013 

Full Year 

CR

2014 

President's 

Budget

Long-term 

Target

2016

Percent of customers satisfied with 

the value for fee paid. (BUR) A 82% 79% 88% 70% 70% 70% 70%

Percent of recreation fee program 

receipts spent on fee collection. 

(BUR)

A 3% 3% 3% 3% 3% 3% 3%

Mission Area 2: Sustainably Manage Energy, Water, and Natural Resources 

Goal 1: Secure America's Energy Resources

Strategy 1: Ensure environmental compliance and the safety of energy development.

Percent of oil and gas acres 

reclaimed to appropriate final land 

condition. (SP) 

A

25%

1,678/

6,751

25% 

1,713 / 

6,801

23% 

2,327/ 

10,062

23% 

1,949/ 

8,651

21%

1,440/

6,960

21%

1,416/

6,670

25%

2,482/

9,905

Percent of producing fluid mineral 

cases that have a completed 

inspection during the year. (SP)

A

New

In 2011

New

In 2011

36% 

9,869/ 

27,419

33% 

10,297/ 

27,419

32%

9,500/

29,478

31%

9,400/

30,000

44%

12,116/

27,719

Percent of required coal inspection 

and enforcement reviews completed. 

(BUR)

A

101% 

2,828/ 

2,799

99.21% 

2,777/ 

2,799

93% 

2,513/ 

2,700

101% 

2,731/ 

2,700

100% 

2,600/

2,600

100% 

2,600/ 

2,600

100% 

2,600/ 

2,600

Percent of Federal oil and gas lease 

assignments processed. (BUR) A

New Measure 

in 2011

New Measure 

in 2011

90%

27,548/

30,611

90%

12,706/

14,087

90%

12,706/

14,087

86%

12,000/

14,000

90%

27,548/

30,611

Strategy 2: Develop Renewable Energy Potential
Bureau of Land Management 2014 Budget Justifications

Chapter III – Performance Overview Page III - 16

Target Codes: SP = Strategic Plan measure, BUR = Bureau specific measure

Type Codes: C = Cumulative measure, A = Annual measure

Supporting

Performance

Measures

Type

2009

Actual

2010

Actual

2011

Actual

2012 

Actual

2013 

Full Year 

CR

2014 

President's 

Budget

Long-term 

Target

2016

Number of megawatts of approved 

capacity authorized on public land 

and the Outer Continental Shelf 

(OCS) for renewable energy 

development while ensuring full 

environmental review.

(SP)

C 2,448 2,532 8,005 9,844 14,784 17,409 15,526

Comment: The Strategic Plan measure includes all MW of capacity on Federal lands which were authorized prior to the development of the Secretary’s Priority 

Goal. 

Strategy 3: Manage Conventional Energy Development

Percent of coal lease applications 

processed. (SP) A

5%

2/38

5% 

2/39

7% 

3/42

18% 

8/45

15% 

6/40

9% 

4/43

13% 

5/40

Comment: Coal lease application environmental analyses have expanded to consider coal bed methane and down-stream gas production from federal coal uses 

resulting in lease sale delays due to litigation.

Percent of pending fluid mineral 

Applications for Permit to Drill (APDs) 

which are processed. (SP)

A

50%

5,306/

10,676

54%

5,237/

9,621

56% 

5,200/ 

9,308

61% 

5,861/ 

9,549

56% 

4,600/ 

8,180

56% 

4,500/ 

8,083

65% 

5,950/ 

9,134

Comment: This is a new Strategic Plan Measure; however, the historical data for this measure is available and is shown above.

Number of coal post-leasing actions 

approved for energy minerals. (BUR) A 319 320 345 375 315 315 315
Bureau of Land Management 2014 Budget Justifications

Chapter III – Performance Overview Page III - 17

Target Codes: SP = Strategic Plan measure, BUR = Bureau specific measure

Type Codes: C = Cumulative measure, A = Annual measure

Supporting

Performance

Measures

Type

2009

Actual

2010

Actual

2011

Actual

2012 

Actual

2013 

Full Year 

CR

2014 

President's 

Budget

Long-term 

Target

2016

Percent of pending cases of right-ofway permits and grant applications in 

backlog status. (BUR)

A

51%

1,525/

2,965

53% 

1,558/ 

2,965

92% 

1,872/ 

2,041 

47% 

1,380/ 

2,965

50% 

1,500/ 

3,000

48% 

1,446/ 

2,989

50% 

1,500/ 

3,000

Percent of oil and gas Reservoir 

Management Agreements processed. 

(BUR)

A

100%

4,975/ 

4,960

122%

4,086/ 

3,358

90% 

2,944/ 

3,265

82% 

3,605/ 

4,385

88%

3,500/ 

4,000

88%

3,400/ 

3,900

91%

3,050/ 

3,350

Goal 3: Sustainably Manage Timber, Forage, and Non-Energy Minerals

Strategy 1: Manage Timber and Forest Products Resources

Percent of allowable sale quantity 

timber offered for sale consistent with 

applicable resource management 

plans. (SP)

A

31%

155/ 502

86% 

174/203

70% 

143/ 203

85% 

172/ 203

72% 

146/ 203

72% 

146/ 203

74% 

150/ 203

Comment: Modifications to existing timber sale contracts resulted in increased volume offered in 2012. In 2013, BLM will return to 146 MMBF.

Volume of wood products offered 

consistent with applicable 

management plans (Public Domain & 

O&C) (SP)

A 270 296 240 242 209 222 239

Contributing Programs: O&C Forest Management; Forestry Management
Bureau of Land Management 2014 Budget Justifications

Chapter III – Performance Overview Page III - 18

Target Codes: SP = Strategic Plan measure, BUR = Bureau specific measure

Type Codes: C = Cumulative measure, A = Annual measure

Supporting

Performance

Measures

Type

2009

Actual

2010

Actual

2011

Actual

2012 

Actual

2013 

Full Year 

CR

2014 

President's 

Budget

Long-term 

Target

2016

Administrative cost per thousand 

board feet of timber offered for sale. 

(BUR)

A $228 $182 $217 $194 $200 $200 $200 

Volume of wood products offered 

(biomass for energy) consistent with 

applicable management plans. (BUR)

A 103,300 355,000 119,000 157,751 55,000 108,000 120,000 

Contributing Programs: Forestry Management; Hazardous fuels; O&C Resources Management; and Forest Ecosystem Health. 

Percent of forestry improvements 

(acres) completed as planned. (BUR) A

85%

21,929/

25,700

89%

22,833/

25,700

67% 

17,301/ 

25,700

62% 

15,906/ 

25,700

29% 

7,345/ 

25,700

94% 

15,000/ 

16,000

29% 

7,345/ 

25,700

Comment: In 2014, the Public Domain Forest Management program will return to 2012 funding levels. Program emphasis will remain on using sales and 

stewardship contracts to achieve desired future conditions on the 58 million acres of forests and woodlands in the Public Domain.

Strategy 2: Provide for Sustainable Forage and Grazing

Percent of grazing permits and leases 

processed as planned consistent with 

applicable resource management 

plans. (SP)

A

44%

2,554/

5,835

30% 

1,933 / 

6,484

36% 

1,945/ 

5,383

22% 

1,491/ 

6,685

33% 

2,100/ 

6,300

33% 

2,100/ 

6,300

55% 

2,500/ 

4,500

Contributing Programs: Range Land Management; National Monuments and National Conservation Areas; O&C Range Management. 
Bureau of Land Management 2014 Budget Justifications

Chapter III – Performance Overview Page III - 19

Target Codes: SP = Strategic Plan measure, BUR = Bureau specific measure

Type Codes: C = Cumulative measure, A = Annual measure

Supporting

Performance

Measures

Type

2009

Actual

2010

Actual

2011

Actual

2012 

Actual

2013 

Full Year 

CR

2014 

President's 

Budget

Long-term 

Target

2016

Number of grazing administration 

actions conducted. (BUR) A

New Measure 

in 2011

New Measure 

in 2011

96% 

30,006/ 

31,102

108% 

34,200/ 

31,617

96% 

27,000/ 

28,000

96% 

27,000/ 

28,000

96% 

27,000/ 

28,000

Contributing Programs: Range Land Management; National Monuments and National Conservation Areas; O&C Range Management. 

Strategy 3: Manage Non-Energy Mineral Development

Percent of non-energy mineral 

exploration and development 

requests processed. (SP)

A Newin 2011 Newin 2011 5% 

27/572

11% 

73/ 645

10% 

50/475

10% 

50/475

10% 

50/475

Number of mined acres reclaimed to 

appropriate land condition and water 

quality standards. (SP) 

A 8,315 3,556 1,317 1,408 1,300 1,400 3,500

Comment: When the demand for mineral materials, locatable minerals and non-energy leasable minerals is high, fewer mined sites are closed and reclaimed. 

Out-year targets have been adjusted to reflect this demand. Reclamation is performed by the users.

Percent of Mineral Material permits 

and contracts processed for nonenergy minerals. (BUR)A

46% 

948/ 2,081

34% 

664/ 1,925

52% 

1,225/ 2,340

37% 

740/ 2,000

35% 

700/ 2,000

35% 

700/ 2,000

35% 

700/ 2,000

Percent of Reclamation Bond 

Adequacy. (BUR) A

95% 

1,323,887,069/ 

1,392,917,134

99% 

1,676,987,850/

1,686,971,962

105% 

2,027,497,506/1

,937,402,788

98% 

$2,363,046,865/ 

$2,404,511,715

98%

1,960,000,000/

2,000,000,000

98%

1,960,000,000/

2,000,000,000

98%

1,960,000,000/

2,000,000,000
Bureau of Land Management 2014 Budget Justifications

Chapter III – Performance Overview Page III - 20

Target Codes: SP = Strategic Plan measure, BUR = Bureau specific measure

Type Codes: C = Cumulative measure, A = Annual measure

Supporting

Performance

Measures

Type

2009

Actual

2010

Actual

2011

Actual

2012 

Actual

2013 

Full Year 

CR

2014 

President's 

Budget

Long-term 

Target

2016

Average time for processing Plans of 

Operation for locatable minerals. 

(BUR)

A 11 mo 17 mo 22 mo 14 mo 14 mo 14 mo 14 mo 

Percent of Notices and Plans of 

Operations inspected. (BUR) A

46% 

1,347 / 2,924

66% 

2,049/3,090

56% 

1,734/3,092

44% 

1,338/3,039

50% 

1,450/ 3,050

50% 

1,525/ 3,050

50% 

1,525/ 3,050

Percent of Mineral Material trespass 

actions resolved for non-energy 

minerals. (BUR)

A

27% 

44 / 163

28% 

44/ 156

31% 

40/ 127

23% 

42/ 180

25% 

45/ 180

25% 

45/ 180

25% 

45/ 180

Number of mining notices processed. 

(BUR) A 544 487 603 525 540 520 540

Cumulative percent of original helium 

debt repaid at end of fiscal year. 

(BUR)

C

58.6%

$804M/

$1,373M 

68% 

$934M/ 

$1,373M

84% 

$1,149M/ 

$1,373M

96.8% 

$1.33M/ 

1.373M

100% 

$1,373M/ 

$1,373M

100% 

$1,373M/ 

$1,373M

100% 

$1,373M/ 

$1,373M

Percent of time the Crude Helium 

Enrichment Unit (CHEU) was 

operating during the fiscal year. 

(BUR)

A

101%

342/ 340

100% 

356/ 356

95% 

345/365

105% 

357/340

100% 

340/ 340

100% 

340/ 340

100% 

340/ 340

Comment: The percent equals 100 times the number of actual days (DA) the CHEU was operating during the fiscal year, divided by the planned days of operation 

of the CHEU (DP). The number of days the CHEU operates varies from year to year. Natural events such as fires, floods, high winds and other unforeseen 

events will cause the Unit to be shut down. The CHEU is shut down from 5 to 7 days each year for routine maintenance.
Bureau of Land Management 2014 Budget Justifications

Chapter III – Performance Overview Page III - 21

Target Codes: SP = Strategic Plan measure, BUR = Bureau specific measure

Type Codes: C = Cumulative measure, A = Annual measure

Supporting

Performance

Measures

Type

2009

Actual

2010

Actual

2011

Actual

2012 

Actual

2013 

Full Year 

CR

2014 

President's 

Budget

Long-term 

Target

2016

Number of Mineral Material 

inspections and production 

verifications. (BUR)

A 3,160 3,112 3,319 3,076 3,100 3,100 3,100

Number of Non-energy Solid Mineral 

inspections and production 

verifications. (BUR)

A 1,240 1,220 1,391 1,817 1,200 1,800 1,200

Mission Area: Building a 21st Century Department of the Interior 

Goal 5: Improving Acquisition & Real Property Management

Strategy 1: Effective Management of Facilities

Percent of buildings maintained in 

adequate condition, determined by 

Facilities Condition Index (FCI) < 

0.15. (BUR)

C New in 2012 New in 2012 90% 

4,480/ 4,949

92% 

4,546/4,971

90% 

4,441/ 

4,955

91% 

4,551/ 4,974

89% 

4,441/ 4,955

Percent of sites maintained in 

adequate condition, determined by 

Facilities Condition Index (FCI) < 

0.15. (BUR)

C New in 2012 New in 2012 89% 

3,064/3,431

89% 

3,079/3,464

89% 

3,056/3,438

89% 

3,085/3,474

88% 

3,056/3,438

Number of lane miles of roads 

maintained in adequate condition. 

(BUR)

A 36,123 35,303 32,059 34,376 35,000 34,000 35,000

Comment: All measures are included the Operations and Annual Maintenance subactivities in the Oregon & California Grant Lands appropriation.
Bureau of Land Management 2014 Budget Justifications

Chapter III – Performance Overview Page III - 22

Target Codes: SP = Strategic Plan measure, BUR = Bureau specific measure

Type Codes: C = Cumulative measure, A = Annual measure

Supporting

Performance

Measures

Type

2009

Actual

2010

Actual

2011

Actual

2012 

Actual

2013 

Full Year 

CR

2014 

President's 

Budget

Long-term 

Target

2016

Number of Deferred Maintenance and 

Construction projects completed. 

(BUR)

A

New Measure 

in 2011

New Measure 

in 2011 116 311 19 320 19

Increase the percentage of BLM 

organizational units rated in good 

safety, health, and environmental 

condition (CASHE). (BUR)

A

93%

112/ 120

91% 

111 / 120

93% 

111/ 120

96% 

115/ 120

89% 

116/ 120

89% 

117/ 120

93% 

111/ 124

Comment: The Deferred Maintenance and Capital Improvements Program is project specific and planned performance varies significantly from year to year 

depending on the scope of planned projects.

Number of public land title records 

posted on the Internet to assist title, 

survey, historical, and genealogical 

research and retrieval. (BUR)

A 244,359 531,813 228,845 250,844 229,500 229,500 229,500

Percent of survey projects of Federal 

and Indian Trust lands that are 

funded. (BUR)

23%336/1,43

5

31% 

401/1,304

22% 

338/1,570 

20% 

317/1,570

9% 

143/1,570

9% 

143/1,570

9% 

143/1,570

Percent of cadastral surveys 

approved within 18 months of the 

funding date. (BUR)

A

83%

530/636

49% 

301/611

78% 

320/409

82% 

335/409

38% 

156/409

55%

225/409

55%

225/409

Percent of land patented to the State 

and Alaskan Native Corporations as 

required by statute. (BUR)

A

56%

84,011,156/ 

150,497,040

58% 

86,980,542/ 

150,149,007

59% 

88,341,737/ 

150,149,836

63% 

94,244,957/ 

150,149,836

66%

99,244,957

150,149,836

67%

101,244,957

150,149,836

69%

104,244,957/

150,149,836
Bureau of Land Management 2014 Budget Justifications

Chapter III – Performance Overview Page III - 23

Target Codes: SP = Strategic Plan measure, BUR = Bureau specific measure

Type Codes: C = Cumulative measure, A = Annual measure

Supporting

Performance

Measures

Type

2009

Actual

2010

Actual

2011

Actual

2012 

Actual

2013 

Full Year 

CR

2014 

President's 

Budget

Long-term 

Target

2016

Comment: Performance change in this measure occurs about two years after the funding change due to the processing time between the final patent and survey 

completion. Patents are typically issued 18 to 24 months after surveying. For instance, work funded in 2014 will affect performance shown in 2016. The 

denominator in this measure is subject to change as estimates of entitlement acreages are replaced with actual sizes following cadastral survey. 

Increase the acreage of land 

disposals and conveyances 

completed outside Alaska. (BUR)

A 44,948 27,790 111,556 110,249 13,857 13,857 13,857

Number of acres conveyed out of 

public ownership through sale or 

exchange. (BUR)

A 17,098 70,432 36,910 20,491 21,502 40,947 40,947

Number of acres acquired to 

consolidate ownership and improve 

management. (BUR)

A

28% 

3,296/ 11,849

71% 

8.404/ 11,849

4% 

454 /11,849

1% 

111/ 11,849

64% 

7,591/ 

11,849

64% 

7,591/ 11,849

64% 

7,591/ 11,849

Note: In this table the 2013 performance level is based on the 2013 annualized CR funding numbers per subactivity. The 2014 targets are based on the 

President's Budget.
Bureau of Land Management 2014 Budget Justifications

Chapter III – Performance Overview Page III - 24

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Cross Cutting Programs

Bureau of Land Management 2014 Budget Justifications

Chapter IV – Crosscutting Programs Page IV - 1

CROSSCUTTING PROGRAMS

The BLM has a number of programs that are funded through multiple sources, including the 

National Landscape Conservation System (NLCS). Its components are described below. In 

addition, the BLM has partnership, education, and volunteer programs that are supported by a 

number of funding sources. Service First and BLM’s partnership program provide tools to BLM 

managers to more efficiently and effectively use funding and to provide results on the ground.

NATIONAL LANDSCAPE CONSERVATION SYSTEM

Program Overview

The BLM is unique in its legacy of managing the public lands for multiple uses, including 

conservation. More than 27 million acres of BLM-managed land is recognized for outstanding 

conservation values and designated for special management by Acts of Congress or 

presidential proclamations. 

The BLM manages these special areas to maintain and enhance their conservation values and 

allow for multiple, sustainable uses of the land. The BLM’s goal is to conserve, protect, and 

restore these important landscapes and their outstanding cultural, ecological, and scientific 

values. These areas range from broad Alaskan tundra to red-rock deserts and from deep river 

canyons to rugged ocean coastlines and include some of America’s finest natural and cultural 

treasures. 

The diverse ecosystems designated in the NLCS protect a myriad of endangered species and 

habitats, and help to ensure the Nation’s extraordinary biodiversity will be sustained for present 

and future generations to enjoy. As landscape pressures associated with drought, climate 

change and other stressors on species habitat and migration corridors continue to be of 

concern, the NLCS lands offer opportunities for scientists to conduct important research and 

data collection. Additionally, the NLCS contains over 30 percent of all special-status animal

species found on BLM lands. 

Also preserved within the NLCS are priceless artifacts from the Nation’s history, including 

explorer William Clark’s 1806 signature on a sandstone bluff in Montana; this signature is the 

only on-site physical evidence of the Lewis and Clark expedition. Millions of years ago, 

dinosaurs and other prehistoric species left myriad evidence of their passing through NLCS 

lands. Many of their fossils are now displayed in visitor centers and cooperating museums.

As wide-open spaces and opportunities for natural exploration continue to dwindle, the NLCS 

conserves over 27 million acres of rugged landscapes for the public to explore and enjoy and 

hosts more than one-fourth of all recreation on BLM lands. These diverse lands provide 

activities for recreationists of all kinds, from white-water rafters and rock climbers to hunters and 

fishermen, hikers and skiers to boaters and off-highway vehicles (OHV) riders. The NLCS 

manages units that include over 2,700 recreation sites and 22 visitor centers, and serves 

approximately 14 million visitors annually. Because of the high rate of visitation, the 

communities surrounding NLCS designated units reap significant economic benefits by 

providing tourism services. In southeast Nevada, Red Rock Canyon National Conservation 

Area alone serves over one million visitors each year. These visitors generate more than $1.7
Bureau of Land Management 2014 Budget Justifications

Chapter IV – Crosscutting Programs Page IV - 2

million in recreation fees that are reinvested in the unit and directly contribute to the regional 

economy, benefitting local communities and businesses located there.

The BLM, in cooperation with local communities, supports the creation of recreation and visitor 

facilities in nearby gateway communities rather than building extensive facilities within NLCS 

units. In New Mexico, the BLM is working with the Las Cruces Museum of Nature and Science 

to locate a small visitor center within the city’s museum. The new visitor center will provide 

educational opportunities about BLM-managed resources at the nearby Prehistoric Trackways 

National Monument. These facilities also draw additional tourism that supports the local 

economy and creates economic diversity. 

These lands are critical to the implementation of important Administration initiatives, including 

America’s Great Outdoors (AGO) and Let’s Move Outside. Also, the NLCS connects youth, 

veterans, and families to the outdoors through a number of programs and recreational 

opportunities including internship opportunities for students, employment and training 

opportunities for veterans, and volunteer opportunities on NLCS designated units. The 

incredible beauty and sense of adventure provided by NLCS lands entice both individuals and 

families to get outside and get moving.

In addition to the revenue generated by tourism, the NLCS lands also provide revenue from 

energy development, ranching, mineral extraction, and art. While these lands must be 

conserved for the future, the BLM promotes sustainable use of NLCS lands as supported 

through the proclamation or designating legislation. Funding for the NLCS is portrayed below 

and includes only recurring base-funds. 

2013 Full 

Year CR

2012 

Actual

2014 Change 

from 

2012 

Enacted

(+/-) 

Fixed Costs & 

Related 

Changes (+/-)

Program 

Changes

Budget 

Request

National Monuments and 

National Conservation Areas 

(MLR Appropriation) a 32,088 31,819 +489 +6,044 38,352 +6,533

National Monuments and 

National Conservation Areas 

(O&C Appropriation)

757 748 +13 0 761 +13

Wilderness Management 

(MLR Appropriation) 18,561 18,392 +295 0 18,687 +295

National Scenic and Historic Trails b 6,743 6,743 0 -248 6,495 -248

National Wild and Scenic Rivers 7,267 7,267 0 0 7,267 + 0

TOTAL 65,198 64,969 +797 + 5,796 71,562 +6,593

Footnotes—

a. The National Monuments and National Conservation Areas subactivity also receives a small amount of funds from other 

programs for Bureau-wide priority projects. Funding amounts vary significantly each year as a result of project selection in 

priority areas and individual state requests.

b. The National Scenic and Historic Trails funding levels for prior years represents various one-time increases that may not be 

present in 2014.
Bureau of Land Management 2014 Budget Justifications

Chapter IV – Crosscutting Programs Page IV - 3

Units of the National Landscape Conservation System

The following table displays the individual units, by designation type, included in BLM’s National Landscape Conservation System. The NLCS includes 

National Monuments, National Conservation Areas and Similar Designations, Wilderness Areas, Wilderness Study Areas, National Wild and Scenic 

Rivers, National Historic Trails, National Scenic Trails, and Other Congressional Designations.

221 Wilderness

Areas

8,736,691

acres

545 Wilderness Study 

Areas

12,835,035

acres

69 National Wild and 

Scenic Rivers 2,416 miles

1,164,894 acres (20% of the national system)

11 National Historic 

Trails 5,343 miles 

California 1,493 miles

El Camino Real de 

Tierra Adentro 60 miles

Iditarod 418 miles

Lewis and Clark 369 miles

Mormon Pioneer 498 miles

Nez Perce 70 miles

Oregon 848 miles

Pony Express 596 miles

San Juan Bautista De Anza 103 miles

Old Spanish 887 miles

Washington Rochambeau

Revolutionary Route 1 mile

5 National Scenic 

Trails 667 miles

Arizona 31 miles

Continental Divide 389 miles

Pacific Crest 233 miles

Pacific Northwest 12 miles

Potomac Heritage 2 miles

Other Congressional 

Designations

California Desert*

10,671,080 

acres

*The lands of the California Desert are 

congressionally designated, but are not a part of 

the National Landscape Conservation System.

19 National Monuments

Arizona

Agua Fria 70,900 acres

Grand Canyon-Parashant 808,747 acres

Ironwood Forest 128,398 acres

Sonoran Desert 486,600 acres

Vermilion Cliffs 279,568 acres

California

California Coastal

607 acres along 

840 miles of 

coastline

Carrizo Plain 204,107 acres

Fort Ord National Monument 7,205 acres

Santa Rosa-San

Jacinto Mtns. 94,055 acres

Colorado Canyons of the Ancients 163,892 acres

Idaho Craters of the Moon 274,693 acres

Montana Pompeys Pillar 51 acres

Upper Missouri River Breaks 374,976 acres

New Mexico

Kasha-Katuwe Tent Rocks 4,124 acres

Prehistoric Trackways 5,255 acres

Rio Grande del Norte 242,555 acres

Oregon Cascade-Siskiyou 55,930 acres

San Juan Islands 970 acres

Utah Grand Staircase-Escalante 1,866,134 acres

21 National Conservation

Areas and Similar Designations

Alaska Steese NCA 1,208,624 acres

Arizona

Gila Box Riparian NCA 21,767 acres

Las Cienegas NCA 41,972 acres

San Pedro Riparian NCA 55,495 acres

California

King Range NCA 56,167 acres

Headwaters Forest Reserve 7,542 acres

Piedras Blancas Historic Light 

Station Outstanding National Area 

(ONA)

18 acres

Colorado

McInnis Canyon NCA 123,750 acres

Gunnison Gorge NCA 62,844 acres 

Dominguez-Escalante NCA 212,074 acres

Florida Jupiter Inlet Lighthouse ONA 63 acres

Idaho Morley Nelson Snake River Birds of 

Prey NCA 470,840 acres

Nevada

Black Rock Desert High

Rock Canyon Emigrant

Trails NCA

799,165 acres

Red Rock Canyon NCA 198,065 acres

Sloan Canyon NCA 48,438 acres

New Mexico

Fort Stanton-Snowy River

Cave NCA 24,977

El Malpais NCA 231,230 acres

Oregon

Steens Mountain

Cooperative Management

and Protection Area

428,242 acres

Yaquina Head ONA 95 acres

Utah Red Cliffs NCA 44,839 acres

Beaver Dam Wash NCA 63,478 acres
Bureau of Land Management 2014 Budget Justifications

Chapter IV – Crosscutting Programs Page IV - 4

NATIONAL WILD AND SCENIC RIVERS PROGRAM

Program Overview

The National Wild and Scenic Rivers System (WSR) was created by Congress in 1968 to 

preserve rivers with outstanding natural, cultural, and recreational values in a free-flowing 

condition for the enjoyment of present and future generations. The Act is notable for 

safeguarding the special character of these rivers, while also recognizing the potential for their 

appropriate use and development. It encourages river management that crosses political 

boundaries and promotes public participation in developing goals for river protection. Through 

the AGO initiative, the President emphasized the value of rivers and waterways to our Nation’s 

history, economy, and way of life. Rivers connect people and communities to America’s great 

outdoors and are vital migration corridors for fish and wildlife. In the 21st century, healthy rivers 

will enhance the resilience of human and natural communities. Millions of people visit our 

WSRs annually either on their own or through hundreds of permitted commercial outfitters. This 

use provides significant economic impact to local communities and helps them to sustain the 

natural heritage of their wild and scenic rivers.

The BLM’s WSR program is part of the NLCS and engages local communities to help them 

foster a sense of shared stewardship and pride in their local wild and scenic rivers. 

The BLM has the responsibility to protect and enhance river values (free flowing condition, 

water quality, and outstandingly remarkable values) on 69 designated rivers in seven States 

covering over 2,400 miles and 1,165,000 acres (about 20 percent of the WSR ) and on 

hundreds of eligible and suitable rivers across the western States. The BLM’s WSR Program 

focuses on the protection and enhancement of river values with the following activities:

• Evaluate free flowing rivers to determine if they are eligible for inclusion within the WSR 

and assigning a tentative classification (wild, scenic or recreational) for rivers determined 

eligible;

• Submit recommendations resulting from studies on potential Wild and Scenic Rivers;

• Manage eligible, suitable or designated WSRs, to protect and enhance their free flowing 

character, water quality and identified outstandingly remarkable values;

• Develop and implement comprehensive river management plans that reflect the 

requirements of the WSR Act and national policies and guidance;

• Monitor WSR and eligible and suitable river segments to minimize noxious weed 

infestations, trespass activities, and the impacts from commercial and non-commercial 

recreation activities;

• Provide visitor services and public information and interpretation through publications, 

wayside exhibits, appropriate instructional signage, and river-related visitor centers;

• Restore riparian habitats to healthy and functioning condition by removing or modifying 

activities creating unacceptable impacts along rivers;

• Make determinations regarding the impacts of proposed water resources projects on 

designated WSR, congressionally authorized study rivers, and on rivers identified for 

study by the BLM; and

• Maintain relationships with tribal governments, other Federal agencies, State and local 

governments, friends’ groups and other non-profit organizations, and the general public 

concerned with comprehensive river-related plans, studies, and/or management.
Bureau of Land Management 2014 Budget Justifications

Chapter IV – Crosscutting Programs Page IV - 5

The BLM’s revised Wild and Scenic Rivers Manual, published in July 2012, provides policy and 

program direction for identification, evaluation, planning, and management of designated rivers, 

congressionally authorized study rivers, and BLM-identified eligible and suitable rivers. The 

BLM will continue to implement this updated policy and program guidance by developing 

training courses that enable staff and managers to work collaboratively with partners and 

communities to protect river values and manage river uses. The BLM will coordinate with other 

programs, agencies and organizations to strengthen and improve monitoring strategies and best 

management practices; using partnerships, science and outreach to help monitor and manage 

river values. 

The WSR program is critical to implementing the AGO Rivers Initiative through collaborative 

landscape and watershed protection and restoration work, improved recreation access and 

opportunities, and community partnerships that enhance quality of life outcomes for residents 

and visitors. The BLM is participating in key areas of the River Initiative including hosting six of 

51 River Demonstration Projects, three pilot rivers in the National Blueways System, and the 

National Water Trails System. The BLM will focus on protecting and restoring rivers for people 

and wildlife; enhancing river recreation which supports jobs in tourism and outdoor recreation; 

working with communities to take action to secure economic, social and ecological benefits of 

having a healthy river; and working collaboratively with local, State, tribal and other Federal 

agencies on river protection, restoration, and recreation access. 

Funding Sources

The Wild and Scenic River program uses a variety of means to conduct its work. Full use of 

partnerships, volunteers, scientific research, networking, and outreach provide the means to 

accomplish much of the work pertaining to management of the BLM’s WSR system with 

increased efficiency. The BLM is highly successful in leveraging and using resources and 

cooperates with the National Park Service (NPS), the U.S. Forest Service (USFS) and State 

agencies where river areas are co-managed. Donations of labor and contributed funds from 

river and other partnership organizations increase BLM’s capability and improve outcomes. 

The BLM’s WSR program is funded by multiple functional areas at $7.3 million (see table 

below). Fees collected at specific recreation sites and for Special Recreation Permits are 

returned to those locations to support management of WSRs. 
Bureau of Land Management 2014 Budget Justifications

Chapter IV – Crosscutting Programs Page IV - 6

FY2014 National Wild and Scenic Rivers Program Base Funding

Subactivity Amount (in 000s)

1010 – Soil, Water and Air Management 195

1020 – Range Management 506

1030 – Public Domain Forest Management 128

1040 – Riparian Management 453

1050 – Cultural Resources Management 346

1060 – Wild Horse and Burro Management 10

1110 – Wildlife Management 231

1120 – Fisheries Management 375

1150 – Threatened and Endangered Species Management 215

1220 – Recreation Resource Management 2,947

1310 – Oil and Gas Management 31

1410 – Alaska Conveyance and Lands 149

1430 – Lands and Realty Management 65

1640 – Hazardous Materials 131

1660 – Annual Maintenance and Operations 1,300

1820 – Administrative Support 61

6332 – Western Oregon Recreation Resources Management 124

Total 7,267

*This funding chart provides the major subactivities that contribute base funding to the 

National Scenic and Historic Trails program. This chart does not show certain contributing 

subactivities, one-time increases for land use planning efforts, or other one-time funding 

amounts.

NATIONAL SCENIC AND HISTORIC TRAILS

Program Overview

Congressionally designated National Scenic and Historic Trails (National Trails) are corridors of 

cultural heritage, resource conservation, and outstanding recreation opportunities. National 

Trails span thousands of miles in nearly all 50 States, crossing Federal, State, tribal, local 

government, and private lands. The National Trails System was established under the National 

Trails System Act of 1968. The National Trails’ program responsibilities include managing 

eighteen National Trails (five scenic and 13 historic) on the ground, crossing nearly 6,000 miles 

of BLM public lands in 14 States. The BLM serves as interagency Trail Administrator, or 

trailwide lead, for the Iditarod, Old Spanish, and El Camino Real de Tierra Adentro National 

Historic Trails. The BLM coordinates closely with the NPS and USFS Trail Administrators and 

other National Trail managing agencies to promote a seamless system of public trails. The 

Bureau also supports five National Trail-related visitor centers which tell the stories of the trails, 

fostering public enjoyment, appreciation, volunteerism, and learning while inspiring people to get 

outside to experience these National Trail treasures. 

The BLM safeguards the nature and purposes of National Trails, and protects the recreational, 

scenic, historic, natural, and cultural qualities of the areas through which the trails pass. The 

BLM strives to model the President’s AGO initiative along these trails in its work with volunteers, 

nonprofit trail groups, long-term partners, and willing landowners. National Trail work is guided 

by the 15-year NLCS Strategy and the 10-year National Trails Strategy.

National Scenic Trails provide outdoor recreation opportunities and public enjoyment, and 

promote conservation. They are planned, constructed, and maintained by the BLM and 
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Chapter IV – Crosscutting Programs Page IV - 7

volunteers to provide visitors with long-distance hiking, backpacking, day hiking, and horseback 

riding opportunities, and to support related recreational activities such as camping, fishing, 

hunting, wildlife observation, nature study, and photography. National Scenic Trails provide 

public access to some of the Nation’s most spectacular vistas, guide visitors through canyons, 

along arid deserts, across windswept tundra, and to the summit of snowcapped peaks.

National Historic Trails tell the iconic stories of America, including exploration, western 

expansion and settlement, economic development, cultural divides, and the pursuit of religious 

freedom. These pathways of history and the associated settings are identified, protected, 

restored, stabilized, and interpreted by the BLM and volunteers for future generations. Physical 

remnant and artifact discoveries include wagon ruts, swales, wagon train encampments, 

structures, and skirmish sites, and artifacts such as period coins, weapons, household items, 

tools, signature rocks, and pioneer grave sites. Public land visitors can experience National 

Historic Trails and the stories of the trails at visitor centers, wayside exhibits, historic sites, 

recreational trails, auto tour routes, and along intact trail segments. The BLM manages more 

miles of National Historic Trails than any other Federal agency.

Capacity-building and leveraging limited funding is critical to the BLM’s success. The BLM 

recognizes its charge under the National Trails System Act of 1968 in encouraging and assisting 

nonprofit organizations, and provides limited support for training, education, workshops, 

conferences, and youth apprenticeships. The development of a BLM National Trails 

Stewardship Program within existing and new cooperative agreements with trail partners will 

better acknowledge, support, and leverage shared work. As part of this effort, approximately 

twenty major nonprofit trail organizations, such as the Nez Perce Trails Foundation, OregonCalifornia Trails Association, National Pony Express Association, and the Pacific Crest Trail 

Association, contribute thousands of hours working with the BLM in National Trail planning, 

development, operations, maintenance, and acquisition. National Trail organizations add an 

estimated $1.0 million in annual program value through volunteer hours and monetary 

contributions. 

 

The new BLM National Trails System Manuals Series is the first of its kind for any Federal 

agency. The manuals provide the policy necessary to administer, inventory, plan, manage, and 

monitor National Trails and trails under study for designation. Under the National Trails System 

Act, the BLM may permit projects that do not substantially interfere with nature and purposes of 

the National Trails and must make efforts to avoid activities incompatible with National Trail 

purposes. The policy requires the BLM to safeguard the nature and purposes of National Trails, 

and protect the resources, qualities, values (recreational, scenic, historic, natural, and cultural), 

associated settings, and the primary trail use or uses through the land use planning process and 

during the environmental review process. 

 

BLM National Trail inventory and monitoring work is particularly important within the new policy 

for land use planning and proposed project review, such as for priority renewable and 

nonrenewable energy development and transmission projects. This work is readily identifiable 

and systematic within BLM budget and performance systems. Training course development for 

the new manual series and this work is underway at the BLM National Training Center.

 

Program Funding

The BLM National Trails Program is funded by multiple subactivities at $6.5 million within the 

MLR appropriation (see table below). Fees collected at National Trail Visitor Centers and 

specific recreation sites are returned to those locations. The BLM also leverages base funding 
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by matching volunteer labor and contributions; applying for grants or other Federal or State 

funding; and through cooperative agreements at the local, State, and national level.

FY2014 National Scenic and Historic Trails Program Base Funding

Subactivity Amount (in 000s)

1010 – Soil, Water and Air Management 121

1020 – Range Management 75

1040 – Riparian Management 22

1050 – Cultural Resources Management 602

1110 – Wildlife Management 100

1150 – Threatened and Endangered Species Management 100

1220 – Recreation Resource Management 4,397

1660 – Annual Maintenance and Operations 1,078

Total 6,495

*This funding chart provides the major subactivities that contribute base 

funding to the National Scenic and Historic Trails program. This chart does 

not show certain contributing subactivities, one-time increases for land use 

planning efforts, or other one-time funding amounts.
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Chapter IV – Crosscutting Programs Page IV - 9

SERVICE FIRST

Service First is a partnership authority (P.L. 106-291, as amended by P.L. 109-54 and further 

amended by P.L. 112-74) between the BLM, the NPS, the U.S. Fish and Wildlife Service (FWS), 

and the USFS. Service First authority was made permanent in the Consolidated Appropriations 

Act, 2012 (P.L. 112-74).

The BLM continues to strengthen partnerships between the NPS, the FWS, and the USFS to 

attain the three Service First goals of improving natural and cultural resource stewardship, 

enhancing customer service, and increasing operational efficiency. The four agencies provide 

national leadership, direction, and counsel on implementing the authorities and promoting the 

principles of Service First through the Service First Leadership Team (SFLT). The SFLT’s goals 

include enhancing each agency’s ability to meet its mission; increasing collective capacity to 

manage Federal resources on a landscape basis; overcoming institutional barriers that hinder 

interagency programs and initiatives; and improving constituent and customer service and 

resource management through streamlined processes, increased efficiencies, and use of 

emerging technologies.

In 2014, Service First will continue to focus on opportunities for co-location of agency facilities 

where feasible and appropriate. Co-location better facilitates inter-agency communication and 

results in integration of natural resource management across the landscape. It is one method for 

increasing coordination across resource 

programs that include conserving water, 

hazardous fuels reduction, landscape-scale 

species conservation, sustaining rural 

communities, nurturing youth through education 

and connections to the outdoors, and recreation 

management including OHV and trail 

management.

Service First will also continue to make advances 

in creating an integrated information technology 

system where employees will be able to access 

other agencies’ data and systems while 

maintaining appropriate security levels. Joint 

access to the more complex databases including 

geographic information system, invasive weed 

inventories, and other natural resource data will 

result in more seamless customer service and 

improve operational efficiency for shared 

employees and co-located offices.

Finally, the agencies plan to build a strong 

interagency network with focused tools and 

regular outreach and information exchange such as best practices on Service First 

opportunities, challenges, and successes.

Efficient Government through Service First

The BLM’s San Luis Valley Field Office is a Service 

First, dual-delegated unit. All line officers have both 

USFS and BLM management authorities and 

responsibilities. All units are made up of blended 

staff. One unit also has a FWS Ecological Services 

staff member that provides technical assistance and, 

on some projects, is an interdisciplinary team 

member. The BLM and the USFS share personnel 

and resources with the San Luis Valley National 

Wildlife Refuge Complex and Great Sand Dunes 

National Park and Preserve.

By integrating staff, budget, and other resources, the 

BLM and the USFS are able to effectively save 

approximately 10 FTE compared to separate units. 

This savings is possible by adding to the capacity of 

one agency or the other to complete priority projects. 

Either agency can purchase expertise from the 

other; eliminating the need for each agency to have 

all expertise on staff. Flexibility is gained by the 

ability to move personnel to the agency and program 

where the need and funding is greatest.
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Chapter IV – Crosscutting Programs Page IV - 10

VOLUNTEERS

The BLM Volunteer Program engages thousands of citizens nationwide each year and routinely 

provides a return of almost 14:1 on agency funds invested in program management, which 

includes volunteer recruitment, training, and recognition, as well as staff training and fulfillment 

of legal requirements, such as volunteer background checks. 

Volunteer contributions to the BLM are highly valued and vitally important to achieving agency 

goals. In 2012, volunteers contributed 1,146,434 hours to BLM lands and resources, including 

national monuments and national conservation areas, recreation areas and trails, wild and 

scenic rivers, rangelands, and wild horses and burros.

Priorities for 2014: develop volunteer training 

programs to expand the use of long-term, 

highly-skilled volunteers who work across 

several program areas; expand training of 

agency volunteer coordinators and staff who 

work with volunteers within the BLM; and fully 

utilize the interagency Volunteer.gov web portal 

to conduct targeted recruitment of volunteers.

National Public Lands Day

National Public Lands Day (NPLD) is the nation’s largest volunteer workday on behalf of the 

public lands. Each year, the BLM engages the services of about 10,000 NPLD volunteers at 

more than 135 sites managed by 90+ BLM field offices in 18-20 States. Those volunteers 

regularly produce public lands enhancements valued at more than $1 million, representing an 

annual return on investment of 5:1 or greater.

National Public Lands Day is a signature Take Pride in America program, as well as a 

contributor to the AGO, Let’s Move, and Take It Outside initiatives. As President Obama stated 

in his 2012 NPLD proclamation, “Our expansive landscapes remain an inspiration for all to 

behold, and as an essential piece of our heritage, it is incumbent upon us to protect them not 

only in our time, but for all time . . . The rugged grandeur of the American landscape has helped 

shape our character and our soul as a Nation. As we celebrate this National Public Lands Day, 

let us reflect on the lands and waters that so deeply enrich our experience, and let us renew our 

commitment to protecting them in the years to come.” 

Successful and diverse BLM volunteer projects address bureau and Departmental priorities 

across almost all BLM programs. As an example, Cathy Leonard of the BLM Glennallen Field 

Office logs well over 1,200 hours each year as the volunteer campground host at BLM-Alaska’s 

popular Sourdough Creek Campground. This campground provides access to the Gulkana Wild 

and Scenic River, one of the State’s few road-accessible waterways and a premier salmon 

At California's Big Morongo Canyon Preserve, volunteers 

remove invasive plants.
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Chapter IV – Crosscutting Programs Page IV - 11

fishing river. Cathy’s friendly face greets 20,000 campground visitors each year from May 

through September, when BLM-Alaska’s campgrounds are open. But she arrives early in the 

season to help ready all BLM-Glennallen recreation facilities and to assist with the clean-up and 

repairs needed to open the campground to eager fishermen and boaters. Besides serving as a 

host, Cathy assists with invasive weed control, routine campground maintenance, and the 

protection of cultural resources within the campground and on nearby public lands. She also 

stocks and distributes brochures in neighboring lodges and campgrounds, traveling over 400 

miles of rugged highways in each roundtrip. Additionally, Cathy serves as an educator at 

special events such as NPLD. She welcomes and connects with visitors of all ages, never 

hesitates to help anyone, and always has a smile on her face. This summer, she will assist with 

a re-vegetation project within the Delta Wild and Scenic River corridor at the newly renovated 

Tangle Lakes Campground. Over her term of service, Cathy has contributed well over 

$200,000 in time to the BLM. 

PARTNERSHIPS

The BLM helps foster partnerships to meet the challenges of conservation, improve 

opportunities and access for all to enjoy the great outdoors, help solidify the role of conservation 

on a landscape scale, and support diverse forms of recreation as part of the economics of local 

communities. Because of these benefits, partnerships are an integral part of the AGO initiative. 

Working with others is an increasingly important way for the BLM to leverage limited resources 

to address agency priorities, foster critical community-level support, meaningfully engage 

communities and stakeholders, attract and inform visitors, and resolve complex natural and 

cultural resource management issues. The BLM’s partners have demonstrated their 

commitment to these objectives through contributions to resource projects, engagement of 

volunteers to support community-based activities on public lands, efforts to educate and involve 

the public about the benefits of public lands and the importance of conservation, and donations 

of services and materials. Each year, hundreds of partner organizations help in a wide variety of 

the Bureau’s projects and efforts at the community, landscape, and national levels. 

In 2014, the BLM will further develop and bolster its capacity to support partnerships to 

continually improve the management of the nation’s public lands. To achieve this objective, the 

BLM will finalize a National Partnerships Program Strategy that will serve as a national 

framework for supporting, advancing, and strengthening the use of partnerships in programs 

throughout the BLM. The strategy and plan will build on the BLM’s extensive and successful 

partnership history and advance partnerships to the next level. The BLM will also provide 

partnership training opportunities for its managers and staff working at all levels and in all BLM 

programs.

Successful and diverse partnerships across many BLM programs address bureau and 

Departmental priorities. Some recent examples are:

• The long-standing Gila Watershed Partnership of Arizona includes more than 30 

government entities, a multitude of organizations, ranchers, businesses, educational 

institutions, and private landowners. This diverse group of stakeholders collaborates in 

consensus-driven efforts to develop solutions to watershed-level challenges. Partnership 

activities have helped catalyze trust among private and public interests and focus efforts 

on a shared goal of natural resource stewardship for the watershed. Projects have 

covered an array of activities, including sealing saline wells, studying geomorphology, 

erosion control, E. coli reduction, water education, youth involvement, and river cleanup.
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Chapter IV – Crosscutting Programs Page IV - 12

• The Ute Learning Garden (Colorado) is a conservation education program that 

connects Native American youth with traditional cultural practices and engages elders in 

the recollection of traditional practices and native plant uses. This knowledge is shared 

with school groups and the public through an urban garden and docent program in 

Grand Junction, Colorado. The garden also introduces diverse audiences to the Ute 

Indian Tribe’s relationship to the landscape of Mesa County, their traditional 

homeland. Partners include the Ute Indian Tribe of the Uintah and Ouray Reservation, 

BLM-Colorado, Colorado Master Gardener and Native Plant Master Programs, Colorado 

State University Extension, County and State agencies, and local businesses. 

• The Permian Basin Memorandum of Agreement Program (New Mexico), an 

innovative, collaborative partnership among the BLM, State historic preservation 

organizations, and the Mescalero Apache Tribe, uses geographic information system

technology and offsite mitigation to protect cultural resources while streamlining and 

facilitating energy development in culturally- and energy resource-rich southeastern New 

Mexico. Thirty-five different industry partners have utilized this voluntary program, 

contributing more than $3.3 million in pooled resources to fund key archaeological 

research and help establish a balance between resource protection and energy 

development on public lands.

EDUCATION

Through a wide range of programs and activities, the BLM engages, educates, and inspires 

people of all ages, teaching them about natural and heritage resources, encouraging healthy 

lifestyles through outdoor activities, fostering conservation and stewardship ethics, and nurturing 

the next generation of resource professionals. Engaging America’s youth with their public lands 

is a top priority for the BLM and the Department. 

The BLM’s umbrella education program includes three signature programs as well as additional 

products and programs to enhance educational offerings and build a cohesive approach to 

educating youth and adults throughout the BLM’s jurisdiction.

• Hands on the Land: Field offices collaborate with local schools and communities to 

educate thousands of students on the public lands through the national Hands on the 

Land network of outdoor classrooms.

• Project Archaeology: The BLM’s primary heritage education program, Project 

Archaeology, serves educators and their students through professional development for 

classroom teachers and informal educators, and through high-quality curricular 

materials. In addition to hosting professional development workshops for teachers, field 

offices incorporate Project Archaeology materials into programs such as Hands on the 

Land. 

• Take It Outside!: Opportunities for young people and families to informally learn about 

the public lands are offered through “Take It Outside!” events, and partnerships with 

organizations such as the Boy Scouts of America and Girl Scouts of the USA. Such 

organizations not only expose youth to the BLM’s natural and heritage resources, they 

also engage them in service projects to improve the public lands. “Take It Outside!” 

programs near urban areas provide opportunities for young people who might not 
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Chapter IV – Crosscutting Programs Page IV - 13

ordinarily have a chance to experience the outdoors or consider a career in natural 

resources. 

• Public Education Opportunities: Field trips, classroom visits by resource 

professionals, and service learning opportunities not only educate but also foster 

conservation and stewardship ethics. As appropriate, field offices link education efforts 

to special events, such as National Fossil Day and NPLD.

The BLM’s increased use of technology helps the agency reach a broad array of audiences to 

enhance public understanding, achieve management goals, foster stewardship, and build public 

support. Web pages provide information about specific public lands sites and topics for students 

of all ages. BLM offices also use social media and mobile technologies to provide educational 

programs and materials to an ever-expanding virtual audience

In 2014, the overarching priority is to implement the 2013-2018 Education, Interpretation, and 

Youth Engagement Strategy by establishing criteria for educational competencies and 

developing a core competency training plan for all staff, volunteers, and education partners who 

deliver educational programming; identifying relevant national and State education standards 

and best practices that will guide the development and evaluation of education products and 

programs and allow for the improvement of these programs; developing educational tools and 

resources; developing training to engage the public in stewardship of priority NLCS areas and 

other BLM lands through education; partnering with local schools and educators to provide 

educational programs that support local standards and curricula; and collecting data to assess 

education program costs, benefits, and effectiveness at both the state and national levels. 

INTERPRETATION

Interpretive programs and services connect public lands visitors to natural and cultural 

resources, enhance understanding of resource management issues, add to the quality of visitor 

experiences, and build public interest. Positive encounters resulting from high-quality 

interpretation programs also ultimately serve the public lands and resources themselves by 

increasing public support for their conservation.

The BLM’s field staffs employ a full range of interpretive techniques and media, including new 

and emerging technologies, to help the public relate to public lands, develop positive 

stewardship practices, provide safe experiences, and, in accordance with the Science Strategy 

of the NLCS, convey the results of scientific research. BLM visitor centers offer programs for 

children and families, such as Junior Explorer programs, and extend their outreach to youth 

groups and schools. 

The BLM’s sites work collaboratively with internal and external groups to develop interpretive 

plans, and to assess the costs, benefits, and effectiveness of interpretive programming. The 

BLM serves audiences with diverse backgrounds, viewpoints, and abilities, and interpretation 

programs and materials can help to encourage public investment in public lands. 

In 2012, the Bureau presented over 18,000 interpretive programs that reached more than three

million visitors; customer satisfaction with these BLM programs was 92 percent. The BLM used 

interpretation programs and materials to enhance recreation experiences for visitors, promote 

responsible land management practices, develop after-school programs, and expose youth to 

career possibilities. The BLM offers interpretive programs at more than 75 interpretive and 

visitor centers, as well as through interpretive programs given at Field and District offices. The 
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Chapter IV – Crosscutting Programs Page IV - 14

BLM also greatly expanded its popular Junior Explorer Program to develop kid-friendly activity 

booklets for 37 new locations.

In 2014, the BLM Interpretation Program will focus on the implementation of the 2013-2018 

Education, Interpretation, and Youth Engagement Strategy. The program will identify and 

establish core competencies for interpretation, making use of existing courses while developing 

new strategies to train BLM staff, volunteers, and partners. The program will use comprehensive 

data collection techniques to assess interpretation program costs, benefits, and effectiveness at 

both the State and national levels. The audience for current interpretation, information, safety, 

and resource protection messages will be expanded through use of the BLM’s social media 

outlets and the web.

Award-winning interpretation and education programs within the Bureau include:

• Lovelock Cave Days, Winnemucca District Office, Nevada. Working with a large 

number of partner organizations, including local tribes, the Winnemucca District Office’s 

most effective outreach event combines Nevada’s 4th-grade state history curriculum 

requirement with the celebration of Nevada’s Archaeological Awareness and Historic 

Preservation Month. Lovelock Cave Days allows 4th-grade students from the Humboldt 

and Pershing County school districts to spend a full day participating in hands-on 

interactive learning sessions that incorporate the natural history of the area; Great Basin 

Native American history; and modern history, including the Emigrant Trail and mining 

activities. The experience provides students with a glimpse of their colorful local history 

and helps instill in them a sense of respect and stewardship for the cultural and natural 

resources found on public lands. 

• California Coastal National Monument (CCNM). BLM Staff teach Trinidad, California, 

6th-grade students to serve as ocean tide pool interpreters for other students from noncoastal towns. This exercise allows the Trinidad students an opportunity to become 

more knowledgeable about their local environment and become confident interpreters, 

while also allowing non-coastal students to learn from their peers. In addition, the 

CCNM works with partners to take students, many of whom have only seen the ocean 

from land, on a boat from Trinidad Harbor to learn about and identify local birds and 

marine mammals in their coastal backyards. Based on what they learn about the natural 

and cultural environment of the CCNM, students develop art projects that are then 

presented in an art show and judged by a team of BLM specialists and community 

members. All the art is displayed at a community event to raise awareness about and 

celebrate watershed activities in the area. 

YOUTH IN THE GREAT OUTDOORS- AMERICA’S GREAT OUTDOORS

With the launch of the 21st-Century Conservation Service Corps (21CSC), the Youth in the 

Great Outdoors initiative is on a well-defined path to creating the next generation of 

conservation leaders. The BLM has joined with its Federal and non-Federal partners to engage 

young people and Veterans in working to protect, restore, and enhance America’s Great 

Outdoors. Building on youth education and engagement programs that foster personal 

connections with our Nation’s public lands, the BLM is engaging youth aged 15-25, as well as 

veterans, in work that supports the multiple-use mission of the Bureau. Young people are 

employed in priority projects such as trail construction and maintenance, habitat restoration, and 

inventorying and monitoring in support of a wide range of program needs – from archaeological 

resources to wilderness characteristics to renewable energy compliance.
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The BLM’s new National Strategy on Education, Interpretation, and Youth Engagement 

envisions young people involved from an early age in learning and recreation on public lands, 

who then go on to become active stewards and conservation leaders as adults. As outlined in 

the Strategy, the BLM will provide a continuum of experiences focused on:

• Youth Engagement, including site-based Junior Explorer programs as well as volunteer 

and stewardship opportunities; 

• Youth Education, particularly the Hands on the Land network of outdoor classrooms and 

the Project Archaeology teacher training program; and

• Youth Employment, including project-based work experiences, internships, and entrylevel positions.

Since 2010, Interior has identified youth employment as a high-priority goal. The BLM has 

incorporated this priority goal into its Youth in the Great Outdoors initiative, expanding and 

enhancing partnerships with youth corps organizations, with a special emphasis on those 

organizations that meet the needs of underserved youth, including those from tribes and rural 

communities. In 2014, the BLM will continue to coordinate with all directorates to identify 

science and resource priorities that can be addressed through short- or long-term projects 

involving youth corps and Veterans crews, as well as volunteers, field schools, and interns. 

Funds proposed in the FY 2014 President’s Budget Request will expand the BLM’s youth 

programs and partnerships to accomplish high priority projects, and promote quality participant 

experiences and pathways to careers. The request includes an increase of $1.3 million for 

expanded youth programs and partnerships, including the proposed 21st Century Conservation 

Service Corps. In 2014, the BLM will also focus on identifying mission-critical jobs and skills that 

are needed for entry-level positions in those occupations. The BLM will expand efforts to create 

career pathways through the Office of Personnel Management’s new Pathways program for 

students and recent graduates. In addition, by expanding partnerships with universities and 

professional organizations, the Bureau will enable more young people to explore careers in 

Science, Technology, Engineering, and Mathematics (STEM), in alignment with DOI’s new 

Strategic Plan on STEM Education and Employment Pathways. Opportunities to pursue fieldbased investigations and experiences, such as those provided to college interns and to K-12 

students involved in the BLM’s Hands on the Land network of outdoor classrooms, can nurture 

and sustain student interest in pursuing STEM degrees and careers. This will not only assist 

with workforce planning but will also enable the BLM to contribute to the Cross-Agency Priority 

goal of increasing the number of graduates with STEM degrees by one-third over the next 10 

years. (see http://goals.performance.gov/content/science-technology-engineering-and-mathstem-education)

Program Performance

For 2014, the BLM will:

• Continue to implement the 21CSC and meet the Secretary's youth employment goal by 

strengthening and expanding partnerships that engage youth and Veterans in priority 

work that supports the BLM’s multiple-use mission; 

• Expand efforts to develop an inclusive, scientifically literate, and highly skilled 21stcentury workforce by working through partners to create internship opportunities, 

especially in mission-critical occupations; 
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Chapter IV – Crosscutting Programs Page IV - 16

• Ensure that youth have safe, quality career pathway experiences with the BLM by 

developing guidance and training for staff on youth protection, mentoring, and career 

development; and

• Increase opportunities for youth from diverse backgrounds, as well as Veterans and 

military families, to learn about and explore their public lands.

LANDSCAPE APPROACH TO MANAGING THE PUBLIC LANDS

Unprecedented environmental and human influences are shaping ecological conditions across 

the West, including prolonged drought, catastrophic wildland fire, invasive species, population 

growth, and conventional and renewable energy development. The Department of the Interior 

and the BLM are taking steps to manage the risks associated with these changes. On 

December 20, 2012, the Department released a Departmental Manual for Climate Change 

Policy (523 DM 1) which stated that it is the policy of the Department to effectively and efficiently 

adapt to the challenges posed by climate change to its mission, programs, operations, and 

personnel. Further, the Department will use the best available science to increase the 

understanding of climate change impacts, inform decision-making, and coordinate an 

appropriate response to impacts on land, water, wildlife, cultural and tribal resources, and other 

assets. Since 2010, the BLM has worked with tribal, State, Federal and nongovernmental 

partners, to develop a landscape approach to managing the public lands that uses broad 

ecological assessments to better understand resource conditions and trends and identify 

opportunities for resource conservation, restoration and development.

As shown on the diagram to the right, the

landscape approach to managing the 

Nation’s public lands consists of five 

interconnected actions, including regional 

assessments, regional strategies, field 

implementation, monitoring for adaptive 

management, and science integration. Taken 

together, these components will enable the 

BLM and its partners to evaluate and respond 

to land health concerns on multiple scales 

and across programmatic, organizational and 

administrative boundaries. 

The BLM will release seven Rapid Ecoregional Assessments (REAs) in 2013 and is currently 

planning to release three REAs in 2014 and an additional four REAs in 2015. Taken together, 

these 14 REAs cover over 700 million acres of public and non-public lands. The REAs are peerreviewed science products that synthesize existing information (including a significant amount of 

non-BLM data) about resource conditions and trends. They highlight and map areas of high 

ecological value; gauge potential risks from stressors including climate change; and establish 

landscape-scale baseline ecological data to gauge the effect and effectiveness of future 

management actions. The REAs and other sources for regional information, such as the 

Western Governors Association’s Crucial Habitat Assessment Tool, are foundational to the 

landscape approach. 

The 2014 budget request includes a $776,000 increase for Cooperative Landscape 

Conservation/Rapid Ecoregional Assessments to evaluate the first seven REAs and develop 

Monitoring for 

Adaptive Mgmt. 

Ecoregional

Strategies

Field Implementation

Ecoregional

Assessments

Science

Integration

(CSCs & LCCs)

Landscape Approach
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Chapter IV – Crosscutting Programs Page IV - 17

decision models for how managers can effectively use data from the Rapid Ecoregional 

Assessments and other large scale assessments to answer critical management questions.

Ecoregional Strategies are critical bridges between ecoregional assessments and land use 

planning and other decision making processes. These bridges are built when collaborative 

teams develop a shared understanding of the regional challenges and opportunities highlighted 

by the REAs and other large-scale assessments; identify what the BLM and its partners are 

already doing to address these challenges and opportunities; and outline additional actions that 

could be undertaken over the next five to ten years to further address these challenges and 

opportunities. Because the REA information will be publically available and be applied to many 

different types of management concerns, it is likely that more than one ecoregional strategy will 

be developed in each ecoregion. The BLM is working with the Climate Science Centers, the 

Landscape Conservation Cooperatives and other regional partnerships, to develop regional 

strategies for the seven ecoregions in which REAs will be completed during 2013. 

While these regional strategies are 

being developed, the BLM field 

offices will incorporate assessment 

information as appropriate into 

ongoing planning and other 

resource management activities. 

For example, data from completed 

REAs is being used to help inform 

the multi-State Greater SageGrouse planning initiative, to 

develop a regional mitigation plan 

for the Dry Lake Solar Energy Zone 

in Nevada, and to identify where 

NLCS units are important for 

resource protection and 

conservation within a broader 

landscape context. In 2014, the 

BLM will sponsor interagency 

teams to develop a number of 

decision support tools to help field 

managers effectively use the 

regional information being made 

available through the REAs and other large-scale assessments. 

Field implementation puts the management strategies into practice through existing BLM 

programs, including the public participation and intergovernmental coordination opportunities 

associated with land use planning and environmental impact assessment procedures. Examples 

of field implementation include establishing priority areas for development, restoration and 

conservation; developing multi-year programs of work for these priority areas to help focus and 

integrate the work of multiple resource programs; and incorporating into land use authorizations 

and on-the-ground projects strategies to manage the risks associated with regional change 

agents like prolonged drought and wildland fire. 

Healthy Landscapes (HL) is a critical BLM initiative to integrate and focus on-the-ground

restoration projects and is one component of field implementation. The initiative helps target 

project dollars from multiple BLM programs to fund work in identified, cross-jurisdictional, priority 

The landscape approach to public land management is 

a multi-year investment. The BLM anticipates that in 

each ecoregion it will take several years to implement 

this multi-scale approach to management.

• The first two years focuses on conducting 

REAs. In these assessments, the BLM and its 

partners evaluate significant ecological values 

such as native fish, wildlife, and plants; 

terrestrial condition; and aquatic condition; and 

four potential change agents (climate change, 

fire, invasive plants and animals, and urban and 

industrial development).

• The third year is the kick-off of efforts to develop 

proposed regional management strategies to 

respond to the assessment information.

• The next three to ten years are devoted to 

implementing planned actions and to 

effectiveness monitoring.
Bureau of Land Management 2014 Budget Justifications

Chapter IV – Crosscutting Programs Page IV - 18

areas for restoration. Since its inception in 2007, HL funds have been used in partnership with 

Federal and State agencies, non-governmental organizations, Tribes, and private individuals to 

complete landscape scale conservation projects throughout the western States. These projects 

include more than 1.7 million acres of treatments in New Mexico through the Restore New 

Mexico program; more than 1 million acres of treatments in Utah in partnership with the Utah 

Watershed Initiative; and hundreds of thousands of acres of restoration projects through such 

partnerships as the Wyoming Landscape Conservation Initiative, the Great Basin Restoration 

Initiative, and many lesser known projects coordinated at District Office levels. Although exact 

rates vary project to project, the BLM’s HL funds are typically leveraged by at least a 3:1 ratio. 

In 2014, the BLM’s HL program will select new focal areas that will be prioritized for funding 

between 2015 and 2019. 

Monitoring provides consistent, high-quality, quantitative data essential for informed decisionmaking and adaptive management.

The BLM Assessment, Inventory,

and Monitoring (AIM) Strategy is 

the framework for this data 

collection. This strategy outlines a 

process for using core indicators, 

standardized field methods, remote 

sensing, and a statistically valid 

study design to provide nationally 

consistent and scientifically 

defensible information to track 

changes on the public lands over 

time. The AIM Strategy is currently being implemented through five sets of interrelated projects. 

The first three are designed to help develop a West-wide monitoring framework that is 

coordinated, and where possible, integrated with the monitoring activities of other Federal, State 

and non-governmental partners. The other two are designed to help support immediate multiState and field office priorities. In 2014, these will include completing regional mitigation and 

monitoring strategies for the Solar Programmatic EIS and for the Greater Sage- Grouse 

Planning Initiative. 

General Guidance about BLM’s Landscape Approach 

to Managing the Public Lands can be found in the 

following locations: 

• Climate Change: BLM’s Response 

http://www.blm.gov/wo/st/en/prog/more/climat

echange/intro.html

• The BLM’s Proposed Landscape Approach for 

Managing the Public Lands 

http://www.blm.gov/wo/st/en/prog/more/Lands

cape_Approach.html

 
Bureau of Land Management 2014 Budget Justifications

Chapter IV – Crosscutting Programs Page IV - 19

Map of Rapid Ecoregional Assessments and Landscape Conservation Cooperatives

Seven REAs were initiated in 2010, for the Central Basin and Range, Mojave Basin and Range, Sonoran Desert, 

Northwestern Great Plains-Northwestern Glaciated Plains, Middle Rockies, and Colorado Plateau in the continental 

U.S., and the Seward Peninsula-Nulato Hills-Kotzebue Lowlands in Alaska. These ecoregions cover over 400 million 

acres of public and non-public lands. Three additional REAs were initiated in 2011: covering approximately 300 

million acres of land. The BLM’s REAs are geographically nested within the Landscape Conservation Cooperatives 

(LCCs) and data from them can serve to inform large portions of the LCC geography.
Bureau of Land Management 2014 Budget Justifications

Chapter IV – Crosscutting Programs Page IV - 20

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Budget at a Glance

Bureau of Land Management 2014 Budget Justifications

Chapter V – Budget at a Glance Page V - 1

BUDGET AT A GLANCE

Budget at a Glance

(Dollars in Thousands)

2013 Full 

Year CR

2012 

Enacted

Fixed 

Costs

Internal 

Transfers

Program 

Changes

2014 

President's 

Budget

Appropriation: Management of Lands and Resources

Land Resources

Soil, Water & Air Management 44,477 46,229 +467 +0 +8,126 54,822

Cooperative Landscape Conservation/REAs [+776]

Youth in the Great Outdoors [+1,250]

Applied Science [+2,500]

Climate Adaptation - Vegetation Survey [+500]

Climate Adaptation - Landscape Decision Tool [+500]

Climate Adaptation - Coordination Pilot/Sage Grouse [+1,000]

America's Great Outdoors Demonstration Landscapes [+1,100]

Klamath Basin Restoration [+500]

Range Management 81,490 87,392 +1,275 +0 -13,565 75,102

Grazing Permit Renewal and Monitoring [-14,065]

Climate Adaptation - Invasive Species [+500]

Grazing Permit Administration Fees 0 0 +0 +0 +6,500 6,500

Grazing Permit Administration Offset 0 0 +0 +0 -6,500 -6,500

Public Domain Forest Management 6,318 9,714 +124 +0 +0 9,838

Riparian Management 22,874 22,682 +327 +0 +1,000 24,009

Applied Science [+1,000]

Cultural Resources Management 16,234 16,105 +224 +0 +0 16,329
Bureau of Land Management 2014 Budget Justifications

Chapter V – Budget at a Glance Page V - 2

2013 Full 

Year CR

2012 

Enacted

Fixed 

Costs

Internal 

Transfers

Program 

Changes

2014 

President's 

Budget

Wild Horse & Burro Management 77,072 74,888 +325 +0 +2,032 77,245

Implementation of NAS Recommendations [+2,032]

Activity Total, Land Resources 248,465 257,010 +2,742 +0 -2,407 257,345

Wildlife & Fisheries Management

Wildlife Management 52,149 36,914 +424 +0 +16,500 53,838

NFWF/Youth Initiative [+1,500]

Sage Grouse Conservation Activities (non-add in 2013) [+15,000]

Fisheries Management. 13,442 13,333 +186 +0 +0 13,519

Activity Total, Wildlife & Fisheries Management 65,591 50,247 +610 +0 +16,500 67,357

Threatened & Endangered Species Management 21,807 21,633 +309 +0 +0 21,942

Recreation Management

Wilderness Management 18,561 18,392 +295 +0 +0 18,687

Recreation Resource Management 49,490 49,074 +745 +0 +2,000 51,819

Applied Science [+2,000]

Activity Total, Recreation Management 68,051 67,466 +1,040 +0 +2,000 70,506

Energy & Minerals Management

Oil & Gas Management 76,042 72,466 +1,183 -2,000 -24,950 46,699

Transfer Geothermal Funds to Renewable Energy Subactivity (non-add in 

2013) [-2,000] [-2,000]

General Program Increase: Leasing, Oversight and Environmental Studies [+8,000]

Leasing Reform [+5,000]

Decrease Base Funding for inspections/shift cost to fees [-37,950]

APD Fees +32,500 +32,500 +0 +0 +0 +32,500
Bureau of Land Management 2014 Budget Justifications

Chapter V – Budget at a Glance Page V - 3

2013 Full 

Year CR

2012 

Enacted

Fixed 

Costs

Internal 

Transfers

Program 

Changes

2014 

President's 

Budget

APD Offset -32,500 -32,500 +0 +0 +0 -32,500

O&G Inspection Fee +47,950 47,950

O&G Inspection Fee - Offsetting Collections -47,950 -47,950

Coal Management 8,103 7,043 +131 +0 +2,421 9,595

Inspections and Enforcement [+2,421]

Other Mineral Resources Management 9,478 8,402 +159 +0 +2,025 10,586

Inspections and Enforcement [+2,025]

Renewable Energy 22,826 19,703 +237 +2,000 +7,121 29,061

Transfer Geothermal Funds from Oil & Gas Management [+2,000] [+2,000]

Geothermal Energy Management and Renewable Energy Studies [+7,121]

Activity Total, Energy & Minerals Management 116,449 107,614 +1,710 +0 -13,383 95,941

Realty & Ownership Management

Alaska Conveyance 18,741 29,061 +235 +0 -12,320 16,976

General Program Decrease [-12,320]

Cadastral Survey 12,098 11,996 +181 +0 +0 12,177

Land & Realty Management 35,923 32,605 +557 +3,000 +6,000 42,162

Transfer Base Funding from Land & Resources Information System (nonadd in 2013) [+3,000] [+3,000]

Transmission Corridors [+6,000]

Activity Total, Realty & Ownership Management 66,762 73,662 +973 +3,000 -6,320 71,315

Communication Site Management 2,000 2,000 +0 +0 +0 2,000

Communication Site Management Offset -2,000 -2,000 +0 +0 +0 -2,000
Bureau of Land Management 2014 Budget Justifications

Chapter V – Budget at a Glance Page V - 4

2013 Full 

Year CR

2012 

Enacted

Fixed 

Costs

Internal 

Transfers

Program 

Changes

2014 

President's 

Budget

Resource Protection & Maintenance

Resource Management Planning 39,830 38,060 +444 +0 +4,000 42,504

High Priority Planning Efforts [+4,000]

Abandoned Mine Lands 17,903 19,819 +128 +0 +0 19,947

Resource Protection & Law Enforcement 27,170 27,024 +259 +0 +0 27,283

Hazardous Materials Management 16,749 16,641 +182 +0 +0 16,823

Activity Total, Resource Prot. & Maintenance 101,652 101,544 +1,013 +0 +4,000 106,557

Transportation & Facilities Maintenance

Operations Maintenance 0 0 +0 +0 +0 0

Annual Maintenance 0 0 +0 +0 +0 0

Deferred Maintenance & Capital Improvements 30,037 29,960 +120 +1,039 +1,250 32,369

Transfer from O&C Account +1,039

Land Mobile Radio [+1,250]

Annual Maintenance & Operations Costs 41,453 41,160 +532 +0 +0 41,692

Activity Total, Trans. & Fac. Maintenance 71,490 71,120 +652 +1,039 +1,250 74,061

Nat'l Landscape & Conservation System

Nat'l Monuments & Nat'l Conservation Areas 32,088 31,819 +489 +0 +6,044 38,352

General Program Increase - America's Great Outdoors [+6,044]

Land & Resource Information Systems 0 15,827 +0 -15,827 +0 0

Transfer Base Funding to Information Technology Management and Land 

& Realty Management (non-add in 2013) [-15,827] [-15,827]

Challenge Cost Share 2,588 7,455 +22 +0 +0 7,477
Bureau of Land Management 2014 Budget Justifications

Chapter V – Budget at a Glance Page V - 5

2013 Full 

Year CR

2012 

Enacted

Fixed 

Costs

Internal 

Transfers

Program 

Changes

2014 

President's 

Budget

Workforce & Organizational Support

Information Systems Operations 0 14,673 +0 -14,673 +0 0

Transfer Base Funding to Information Technology Management (non-add 

in 2013) [-14,673] [-14,673]

Administrative Support 49,488 49,130 +648 +0 +1,000 50,778

National BLM Foundation [+1,000]

Bureau-wide Fixed Costs 94,169 91,161 -6,424 +0 +8,164 92,901

Realign Base Funding [+8,164]

Information Technology Management 27,638 [27,500] +268 +27,500 -2,072 25,696

Transfer Base Funding from Information Systems Operation (non-add in 

2013) [+14,673] [+14,673]

Transfer Base Funding from Land & Resources Information System (nonadd in 2013) [+12,827] [+12,827]

General Program Decrease [-2,072]

Activity Total, Workforce & Organ. Support 171,295 154,964 -5,508 +12,827 +7,092 169,375

Mining Law Administration 39,696 39,696 +0 +0 +0 39,696

Mining Law Administration Offset -39,696 -39,696 +0 +0 +0 -39,696

Total, Management of Lands & Resources * 966,238 960,361 +4,052 +1,039 +14,776 980,228

Appropriation: Construction

Construction 3,592 3,570 +0 +0 -3,570 0

Eliminate Program [-3,570]

Total, Construction 3,592 3,570 +0 +0 -3,570 0
Bureau of Land Management 2014 Budget Justifications

Chapter V – Budget at a Glance Page V - 6

2013 Full 

Year CR

2012 

Enacted

Fixed 

Costs

Internal 

Transfers

Program 

Changes

2014 

President's 

Budget

Appropriation: Land Acquisition

Land Acquisition 19,083 18,969 +0 +0 +10,135 29,104

Collaborative Landscape Acquisition Projects [+23,318]

Core Projects [-13,183]

Emergencies & Hardships 1,506 1,498 +0 +0 +118 1,616

Acquisition Management 1,892 1,877 +21 +0 +0 1,898

Total, Land Acquisition 22,481 22,344 +21 +0 +10,253 32,618

Appropriation: Oregon & California Grant Lands

Western OR Construction & Acquisition

Acquisition 313 310 +5 +0 +0 315

Activity Total, Construction & Acquisition 313 310 +5 +0 +0 315

Western OR Transportation & Facilities Maintenance

Operations 0 2,081 +0 -2,081 +0 0

Create new Operations and Annual Maintenance Subactivity 

(non-add in 2013) [-2,081] [-2,081]

Annual Maintenance 0 7,864 +0 -7,864 +0 0

Create new Operations and Annual Maintenance 

Subactivity(non-add in 2013) [-7,864] [-7,864]

Deferred Maintenance 878 1,039 +0 -1,039 +0 0

Transfer to MLR Account [-1,039]

Operations and Annual Maintenance [10,030] [0] +118 +9,945 +0 10,063

Create new Operations and Annual Maintenance Subactivity

[+10,030

] [+9,945]

Activity Total, Trans. & Facilities Maint. 10,908 10,984 +118 -1,039 +0 10,063

Western OR Resources Management

Forest Management 32,301 32,060 +444 +0 +1,801 34,305
Bureau of Land Management 2014 Budget Justifications

Chapter V – Budget at a Glance Page V - 7

2013 Full 

Year CR

2012 

Enacted

Fixed 

Costs

Internal 

Transfers

Program 

Changes

2014 

President's 

Budget

Increase Base Funding for Secretary's Western Oregon Strategy [+1,801]

Reforestation & Forest Development 23,799 23,622 +229 +0 +0 23,851

Other Forest Resources 36,891 36,616 +369 +0 +0 36,985

Resource Management Planning 5,643 5,601 +52 +0 +1,670 7,323

Increase Base Funding for Secretary's Western Oregon Strategy +1,670

Activity Total, Resources Management 98,634 97,899 +1,094 +0 +3,471 102,464

Western OR Information & Data Systems 1,937 1,923 +17 +0 +0 1,940

Activity Total, Information & Data Sys. 1,937 1,923 +17 +0 +0 1,940

Western OR Nat'l Landscape Conservation System 757 748 +13 +0 +0 761

Activity Total, Nat'l Landscape Cons. Sys. 757 748 +13 +0 +0 761

Total, Oregon & California Grant Lands 112,549 111,864 +1,247 -1,039 +3,471 115,543

Appropriation: Range Improvements

Public Lands Improvement 7,873 7,873 +0 +0 +0 7,873

Farm Tenant Act Lands Improvement 1,527 1,527 +0 +0 +0 1,527

Administrative Expenses 600 600 +0 +0 +0 600

Total, Range Improvements 10,000 10,000 +0 +0 +0 10,000

Service Charges, Deposits, & Forfeitures 31,965 32,448 +0 +0 +17 32,465

Service Charges, Deposits, & Forfeitures Offset -31,965 -32,448 +0 +0 -17 -32,465

Miscellaneous Trust Funds 23,125 20,815 +0 +0 +2,310 23,125

Total, All Appropriations 1,137,985 1,128,954 +5,320 +0 +27,240 1,161,514
Bureau of Land Management 2014 Budget Justifications

Chapter V – Budget at a Glance Page V - 8

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Collections

Bureau of Land Management 2014 Budget Justifications

Chapter VI – Collections Page VI - 1

COLLECTIONS

BLM COLLECTIONS, 2011 - 2014 ($000)

Collection Source

2011

Actual 

Revised a/

2012

Actual

2013

Estimated

2014

Estimated

Sale of Public Lands 20,808 22,333 28,772 24,911

Miscellaneous Filing Fees 53 34 34 34

Mineral Leasing National Grasslands 2,237 1,859 1,859 1,859

Grazing Fees & Land Utilization Project Lands 12,930 12,888 12,305 12,205

Timber Sales & Vegetative Material 19,906 22,181 17,380 16,925

Recreational Use Fees 17,398 17,142 18,000 18,500

Earnings on Investments 2,585 752 1,000 1,220

Sale of Helium 201,262 198,419 212,000 180,355

Mining Claim & Holding Fees 64,139 64,362 58,297 58,833

Service Charges, Deposits and Forfeitures 30,813 32,448 31,965 32,465

Application for Permit to Drill Fees 31,227 33,986 34,000 34,000

Grazing Administrative Processing Fees 0 0 0 6,500

Onshore Oil and Gas Lease Inspection Fees 0 0 0 47,950

Other Collections 84,962 93,709 103,666 116,928

Total 488,320 500,113 519,278 552,685

*Note: a/ The revision to 2011 collection amounts include several corrections. First, “Timber Sales and Vegetative Materials” did not 

include collections for vegetative materials. Second, “Mining Claim & Holding Fees” did not include collections for location fees. 

Finally, the amount of “Other Collections” attributable to under-reporting of non-operating revenues such as fines, certain forfeitures, 

and miscellaneous interest has been corrected. 

2014 COLLECTIONS

In 2014, the Bureau of Land Management (BLM) will collect an estimated total of $570.8 million

in revenue. Revenue is collected by the BLM from sources such as the sale of land and 

materials, grazing fees, timber sales, recreation use fees, and various filing fees. These 

collections assist State and local governments, support all programs funded from the General 

Fund of the U.S. Treasury, and offset charges for program operations where certain fees 

collected can be retained by the BLM. 

In addition, the Office of the Natural Resources Revenue (ONRR) will collect an estimated $4.5

billion in receipts from BLM onshore mineral leasing activities (bonuses, rents, and royalties) in 

2014. Because ONRR collects them, these mineral leasing receipts are reflected in the ONRR

budget materials (within the Office of the Secretary Budget Justification). 
Bureau of Land Management 2014 Budget Justifications

Chapter VI – Collections Page VI - 2

Collections from some sources, such as grazing fees, are expected to remain relatively level 

over the next two years. The amount of revenue expected to come from other sources varies 

for the reasons described below. 

Sales of Public Land – This category includes receipts from the sale of public land, including 

land sales in Clark County, Nevada. Excluded from this collection source are the sales of 

timber and vegetative materials from the public domain land, sale of land and timber and 

vegetative materials from the Oregon & California Grant Lands and Coos Bay Wagon Road 

Lands, sale of land from Land Utilization project lands, sale of land and materials from 

reclaimed lands (reserved or withdrawn), and sale of town sites and reclamation projects. 

The main sources of collections in the Sale of Public Land category are described below. The 

collection amounts described here represent 100 percent of the funds collected. In many cases, 

portions of the funds collected are distributed to State governments, the U.S. Treasury, or other 

entities, before the remaining portion is distributed to the BLM. The Management of Lands and 

Resources, Permanent Operating Funds, Miscellaneous Permanent Payments, and 

Miscellaneous Trust Funds chapters describe the portions allocated to the BLM and how the 

BLM uses the funds. 

• Southern Nevada Public Land Management Act (SNPLMA) Sales Proceeds – As 

amended, SNPLMA provides a process for the orderly sale of certain public lands in Clark 

County, Nevada, near the city of Las Vegas. Approximately 50,000 acres of public land are 

within the disposal boundary area. The BLM has conducted land sales for thirteen years 

under the authority of this statute. Collections in 2011 and 2012 were $6.8 million and $7.8 

million respectively. Sales in 2013 are projected to produce $14.9 million. The increase is 

due to a projected 873-acre modified competitive sale, a 2.5 acre direct sale, and 

Cooperative Management Area (CMA) Leases. Estimated collections for 2014 are expected 

to be $5.3 million generated by 10 acres each in modified competitive and direct sales, and 

by Cooperative Management Area (CMA) Leases. Collections are reported when payments 

are received regardless of when sales are held and the estimates make allowance for the 

normal lag of 180 days between sales and collections. For more information see SNPLMA 

Act, P.L. 105-263, as amended by P.L. 107-282.

• Southern Nevada Public Land Management and Lincoln County – Earnings on 

Investments –SNPLMA authorizes the Secretary to manage the collections account for the 

purposes set out above and is also authorized to use interest generated from the abovementioned funds. The BLM is authorized to invest the unspent balance of collections from 

SNPLMA and Lincoln County Lands Act land sale receipts. Earnings on investments for 

2011 and 2012 were $2.5 million and $718,000 respectively. Because of low interest rates 

only $1.0 million is estimated to be collected in 2013 and in 2014. Projected investment 

earnings take into account: (a) revenue from land sales, (b) earnings on investments, and 

(c) projected outlays. 

• Federal Land Transaction Facilitation Act (FLTFA) – Proceeds from the sale of land 

under the FLTFA, Title II of P.L. 106-248 in 2011 were $1.4 million. Because the authority 

expired in July 2011, the unobligated balance was transferred to the Land and Water 

Conservation Fund as required by law. The 2014 Budget includes a proposal to reauthorize

FLTFA and allow lands identified as suitable for disposal in current land use plans to be sold 

using the FLTFA authority. FLTFA sales revenues would continue to be used to fund the 

acquisition of environmentally-sensitive lands and the administrative costs associated with 

conducting sales. Estimated collections for 2014 are $5.0 million. The Permanent 
Bureau of Land Management 2014 Budget Justifications

Chapter VI – Collections Page VI - 3

Operating Funds section provides more information on the proposal. Four percent of FLTFA 

collections were paid to the State in which the land was sold. 

• Lincoln County Land Sales – No revenue was collected in 2012 from land sales under the 

Lincoln County Land Sales Act, P.L. 106-298, as amended. Receipts from smaller sales not 

close to Las Vegas are estimated to be $25,000 and $366,000 in 2013 and 2014, of which 

five percent and 10 percent will be paid to the State and County. 

• Owyhee Land Acquisition Account – Revenue collected prior to the enactment of the

Omnibus Public Land Management Act of 2009 in the amount of $2.5 million was deposited 

to this account in 2010. No revenue was collected in 2011 and 2012 and none is estimated 

to be collected in 2013. Sales in 2014 are estimated to produce $800,000. Four percent of 

those amounts are paid to the State. 

• Washington County, Utah Land Acquisition Account – No revenue was or is estimated 

to be collected in 2011, 2012, or 2013 from the sale of land under the Washington County, 

Utah Acquisition Account, P.L. 111-11, (Section 1978). Estimated collections in 2014 are 

$100,000. 

• Silver Saddle Endowment Account – No revenue was collected or is estimated to be 

collected between 2011 and 2014 from the sale of land under the Silver Saddle Endowment 

Account, P.L. 111-11, (Section 2601). Four percent of collections will be paid to the State.

• Carson City Special Account – No revenue was collected in 2011 and in 2012 from the 

sale of land under the Carson City Special Account, P.L. 111-11, (Section 2601). In 2013, 

collections are estimated to be $218,500 of which five percent will be paid to the State. No 

revenue is estimated to be collected in 2014.

Miscellaneous Filing Fees – Collections in this category are primarily from fees received for 

filing or recording documents; charges for registration of individuals, firms, or products; and 

requests for approval of transfer of leases or permits under statutory authorities that do not 

permit BLM to retain and spend those collections. 

Mineral Leasing-National Grasslands – ONRR is responsible for the collection and 

distribution of most mineral leasing receipts; however, the BLM administers and collects rentals 

from oil and gas pipeline rights-of-way associated with lands leased under the Mineral Leasing 

Act and the Mineral Leasing Act for Acquired Lands. Also, the BLM pays 25 percent of mineral 

leasing collections on acquired lands to counties where the collections were generated. The 

BLM continues to collect first-year rentals and initial bonuses from mineral leasing but transfers

these receipts to ONRR accounts. 

Grazing Fees from Public Lands and Land Utilization Project Lands – This category 

includes all grazing fees collected from public lands and Land Utilization Project lands 

administered by the BLM. It also includes mineral leasing and other receipts from Land 

Utilization Project lands. Grazing fees are collected under the authority of the Taylor Grazing 

Act, Federal Land Policy and Management Act, and the Public Rangelands Improvement Act of 

1978. For more information on the use of these fees see the Range Improvements section.
Bureau of Land Management 2014 Budget Justifications

Chapter VI – Collections Page VI - 4

Timber and Vegetative Material Sales – 

• Receipts from the Oregon and California and Coos Bay Wagon Road Grant Lands 

– In 2013, the BLM projects it will collect $16.4 million, mostly from timber receipts from 

Oregon and California and Coos Bay Wagon Road lands. Under current law, the Secure 

Rural Schools and Community Self-Determination Act of 2000, P.L. 106-393, as 

extended and amended by P.L. 110-343 and P.L. 112-141, expired in 2012, and final 

payments were made in 2013. (Payments are made in the year following the year for 

which they are authorized.) The Budget proposes a five-year reauthorization of the 

Secure Rural Schools Act with funding through mandatory U.S. Forest Service (USFS) 

appropriations. The USFS will make the Secure Rural Schools payments to western 

Oregon counties. This SRS proposal revises the allocation split between the three 

portions of the program from the current authority emphasizing enhancement of forest 

ecosystems, restoration and improvement of land health and water quality and the 

increase of economic activity. (Please refer to the Miscellaneous Permanent Payments 

section for more information about the Secure Rural Schools program and the USFS

budget for more information on the reauthorization proposal.) 

• Timber Receipts from the Public Domain Forest Lands – In 2014, the BLM expects 

to offer for sale 12 million board feet of timber products from public domain lands, and

estimates collections of $505,000 in timber sales receipts from public domain lands. 

Collections in 2012 and 2013 were $2.2 million and $960,000 respectively. These 

amounts include collections from salvage timber sale on public domain lands which were 

$1.6 million in 2012 and are estimated to be $600,000 in 2013 and $300,000 in 2014. 

• Stewardship Contracting Fund – With stewardship contracting, the BLM may apply the 

value of timber or other forest products removed as an offset against the cost of services 

received and monies from a contract under subsection (a) may be retained by the USFS 

and the BLM. These monies are available for expenditure without further appropriation 

at the project site from which the monies are collected or at another project site. In 

2012, the BLM deposited $208,000 to this fund and estimates deposits of $20,000 in 

2013 and 2014. The current authority under Public Law 105-277, Section 347, as 

amended by Public Law 108-7, Section 323, for the Stewardship “End Results” 

Contracting Fund expires on September 30, 2013. The 2014 President’s Budget 

includes a proposal seeking permanent authority to enter into stewardship contracts for 

both the BLM and the USFS. Please refer to the USFS Budget Justification for 

information on the Stewardship Contracting Permanent Authority proposal that will 

continue the BLM’s ability to utilize stewardship contracting as a tool for forest and 

rangeland restoration.

Recreation Use Fees – Recreation use fees are derived from collecting fees on public lands at 

recreation sites, issuing recreation use permits, and selling Federal recreation passports such 

as the Golden Eagle and Golden Age passes. These funds are used to improve recreation 

facility conditions and user services at recreation sites where the fees were generated. In 2012, 

recreation fee collections were $17.1 million. The BLM anticipates collecting $18.0 million in 

2013 and $18.5 million in 2014 under its recreation fee collection authorities. The use of 

recreation fee collections is described in the Permanent Operating Funds section. Authority for 

these collections expires in December 2013. The 2014 Budget proposes to permanently extend 

the authority to collect and spend these fees. 
Bureau of Land Management 2014 Budget Justifications

Chapter VI – Collections Page VI - 5

Naval Oil Shale Reserve – On August 7, 2008, the Secretaries of the Interior and Energy 

certified that sufficient funds had been collected to cover the cost of the cleanup and of 

equipment installed on the oil shale reserve. Because of the certification, no more deposits will 

be made to the Naval Oil Shale Reserve Fund. Instead, revenue from the site will be distributed 

under the Mineral Leasing Act. The unappropriated account balance is $76.7 million and will 

not change unless new legislation is enacted. 

Sales of Helium – The Helium Privatization Act of 1996 requires the Secretary to offer for sale 

a portion of the Conservation Helium stored underground at the Cliffside Field north of Amarillo, 

Texas. Revenue from sales in 2012 was $198.4 million. Collections from annual sales are 

projected to be $212.0 million in 2013 and $180.4 million in 2014. Authority for the Helium 

Revolving Fund will expire when the helium debt is fully repaid, which is anticipated to occur in 

2014. The 2014 Budget proposes to extend authority for the Helium Revolving Fund so that 

revenues in excess of the cost of operating the Helium Program will be deposited to the General 

Fund. Additional information is available in the Helium Program section.

Mining Claim-Related Fees – Authority to collect these fees was initially enacted in the

Department of the Interior and Related Agencies Appropriations Act for 1989 which provided 

that fees established by the Secretary of the Interior for processing actions relating to the 

administration of the General Mining Laws shall be immediately available to the BLM for Mining 

Law Administration program operations. 

The Omnibus Budget Reconciliation Act of 1993, P.L. 103-66, (Section 10101) provided for the 

annual $100 per claim maintenance fee for unpatented mining claims and sites that would 

continue through 1998. The authority has been modified and extended by Interior 

appropriations acts. The law allows a waiver from the fee for those claimants who hold 10 or 

fewer claims. The authority also established a $25 per claim location fee for new claims, to be 

paid at the time of recordation. The law requires that the fee be adjusted for inflation. The 

maintenance fee is currently $140 per claim and the location fee is currently $34 per claim. 

Collections in 2012 were $64.4 million and are estimated to be $58.3 million in 2013 and $58.9 

million in 2014. Additional information is included in the Mining Law Administration section. 

Service Charges, Deposits, and Forfeitures – These receipts include revenue from providing 

special program services, such as rights-of-way application processing fees; wild horse and 

burro adoption fees; fees charged to timber sale purchasers when the BLM performs work 

required by the contract; reimbursement to the government for damage to lands and resources; 

collections for processing disclaimers of interest applications; and photocopying fees. The 

collection and retention of each of these receipts are authorized through legislation. Collections 

in 2012 were $32.5 million and are estimated to be $32.0 million in 2013 and $32.5 million in 

2014. Additional information is included in the Service Charges, Deposits and Forfeitures 

section. 

Application for Permit to Drill Fees – The 2012 Interior, Environment, and Related Agencies 

Appropriations Act authorized the BLM to collect a processing fee when an application for a 

permit to drill for oil and natural gas is submitted. The fee is $6,500 per application. Collections 

are to be credited to the Management of Lands and Resources appropriation. Collections were 

$31.2 million and $34.0 million in 2011 and 2012. The 2014 President’s Budget proposes to 

continue one-year authority to collect these fees, which are estimated at $32.5 million in 2013 

and 2014. For more information please refer to the discussion in the Oil and Gas Management 

Program. 
Bureau of Land Management 2014 Budget Justifications

Chapter VI – Collections Page VI - 6

Onshore Oil and Gas Lease Inspection Fees – The 2014 Budget includes a new inspection 

fee for onshore oil and gas leases. The fee would support Federal efforts to provide services to

ensure the proper reporting of oil and gas production, protect human safety and the 

environment, and conserve energy resources. These fees will be credited to the Management 

of Lands and Resources appropriation. The estimate for 2014 is $48.0 million. 

Grazing Administrative Processing Fees – The Budget includes appropriations language for 

a three-year pilot project to allow the BLM to recover some of the costs of issuing grazing 

permits/leases on BLM lands. The BLM would charge a fee of $1 per Animal Unit Month, which 

would be collected along with current grazing fees. The fee will assist the BLM in processing 

pending applications for grazing permit renewals. During the period of the pilot, the BLM would 

promulgate regulations for the continuation of the grazing administrative fee as a cost recovery 

fee after the pilot expires. The fees will be credited to the Management of Lands and 

Resources appropriation. The estimate for 2014 is $6.5 million. 

Other Collections – Other receipts collected by the BLM are from land rentals for authorized 

commercial, industrial, and residential purposes; annual rentals from rights-of-way permits 

(except those issued under the authority of the Mineral Leasing Act); and from contributions. 

These consist of funds contributed to the BLM from non-Federal sources for projects or work 

authorized by the Federal Land Policy and Management Act, Taylor Grazing Act, Sikes Act, and 

other laws. Additional information on other collections is included in the Miscellaneous 

Permanent Payments, Permanent Operating Funds, and Miscellaneous Trust Fund sections. 

The estimates for 2013 and 2014 also include planned collections of $11.3 million and $17.4 

million respectively from wind and solar renewable energy rights-of-way rents. 

Amounts Not Included in Collections – Payments to western Oregon counties under the

Secure Rural Schools and Community Self-Determination Act of 2000, as amended, are made 

partially from receipts produced in those counties in the preceding year. Over half of the 

amounts paid, however, are derived from an appropriation from the General Fund. Of the total 

of $40.0 million paid to the western Oregon counties for 2012 in 2013, $28.2 million was

appropriated from the General Fund. That payment is the final payment under the current law. 

Secure Rural Schools payments were enacted by P.L. 106-393 for Fiscal Years 2002 through 

2006. They were extended for one year (FY 2007) by Public Law 110-28, May 25, 2007, 

extended for Fiscal Years 2008 through 2011 by Public Law 110-343, October 3, 2008; and 

were extended for one year through 2012 by Public Law 112-141. As noted above, the 2014 

Budget reflects a five-year reauthorization of funding through mandatory USFS appropriations

starting in FY 2013 (with payments to begin in 2014). 
Management of Lands and

Resources

Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 1

MANAGEMENT OF

LANDS AND RESOURCES

APPROPRIATIONS LANGUAGE

For necessary expenses for protection, use, improvement, development, disposal, cadastral 

surveying, classification, acquisition of easements and other interests in lands, and performance 

of other functions, including maintenance of facilities, as authorized by law, in the management 

of lands and their resources under the jurisdiction of the Bureau of Land Management, including 

the general administration of the Bureau, and assessment of mineral potential of public lands 

pursuant to Public Law 96-487 (16 U.S.C. 3150(a)), $980,228,000, to remain available until 

expended; of which $4,500,000 shall be available in fiscal year 2014 subject to a match by at 

least an equal amount by the National Fish and Wildlife Foundation for cost-shared projects 

supporting conservation of Bureau lands; and such funds shall be advanced to the Foundation 

as a lump-sum grant without regard to when expenses are incurred.

In addition, $32,500,000 is for the processing of applications for permit to drill and related use 

authorizations, to remain available until expended, to be reduced by amounts collected by the 

Bureau and credited to this appropriation that shall be derived from a fee of $6,500 per new 

application for permit to drill that the Bureau shall collect upon submission of each new 

application, and in addition, $47,950,000 is for conducting oil and gas inspection activities, to 

remain available until expended, to be reduced by amounts collected by the Bureau and 

credited to this appropriation that shall be derived from onshore oil and gas inspection fees that 

the Bureau shall collect, as provided for in this Act, and in addition, $6,500,000 is for the 

processing of grazing permits and leases, to remain available until expended, to be reduced by 

amounts collected by the Bureau and credited to this appropriation, which shall be derived by a 

$1.00 per animal unit month administrative fee, as provided for in this Act, and in addition, 

$39,696,000 is for Mining Law Administration program operations, including the cost of 

administering the mining claim fee program, to remain available until expended, to be reduced 

by amounts collected by the Bureau and credited to this appropriation from mining claim 

maintenance fees and location fees that are hereby authorized for fiscal year 2014 so as to 

result in a final appropriation estimated at not more than $980,228,000, and $2,000,000, to 

remain available until expended, from communication site rental fees established by the Bureau 

for the cost of administering communication site activities. Note.--A full-year 2013 appropriation 

for this account was not enacted at the time the budget was prepared; therefore, the budget 

assumes this account is operating under the Continuing Appropriations Resolution, 2013 (P.L. 

112-175). The amounts included for 2013 reflect the annualized level provided by the continuing 

resolution.

JUSTIFICATION OF PROPOSED LANGUAGE CHANGES

All changes are based on the Department of the Interior, Environment, and Related Agencies 

Appropriations Act, 2012.
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 2

1. $4,500,000 shall be available in fiscal year 2014 subject to a match by at least an equal 

amount by the National Fish and Wildlife Foundation for cost-shared projects supporting 

conservation of Bureau lands;

The budget increases pass-through funding to the National Fish and Wildlife Foundation 

from the 2012 level of $3,000,000 to $4,500,000. 

2. $47,950,000 is for conducting oil and gas inspection activities, to remain available until 

expended, to be reduced by amounts collected by the Bureau and credited to this 

appropriation that shall be derived from onshore oil and gas inspection fees that the

Bureau shall collect, as provided for in this Act,

This provision authorizes the BLM to spend revenues generated by a fee for oil and gas 

inspection activities. The BLM will collect and retain these fees in the Management of 

Lands and Resources account. The appropriations language authorizes the BLM to 

spend the estimated $47,950,000 in fee collections on inspection activities, regardless of 

the amount actually collected. The fee schedule is located in Section 112 of the Interior 

General Provisions in the FY 2014 President’s Budget and in the Oil and Gas 

Management Chapter of this Justification.

3. $6,500,000 is for the processing of grazing permits and leases, to remain available until 

expended, to be reduced by amounts collected by the Bureau and credited to this 

appropriation, which shall be derived by a $1.00 per animal unit month administrative 

fee, as provided for in this Act,

This provision authorizes the BLM to spend revenues generated by a pilot administrative 

processing fee to offset the increased cost of administering the livestock grazing 

program on public lands managed by the BLM. The three-year pilot project would allow 

BLM to recover some of the costs of issuing grazing permits/leases on BLM lands. BLM 

would charge a fee of $1 per Animal Unit Month, which would be collected along with 

current grazing fees. The fee will assist the BLM in processing pending applications for 

grazing permit renewals. During the period of the pilot, BLM would work through the 

process of promulgating regulations for the continuation of the grazing administrative fee 

as a cost recovery fee after the pilot expires. The fees will be credited to the 

Management of Lands and Resources appropriation. The fee schedule is located in 

Section 115 of the Interior General Provisions in the FY 2014 President’s Budget and in

the Rangeland Management Chapter of this Justification.
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 3

APPROPRIATION LANGUAGE CITATIONS

Alaska National Interest Lands Conservation Act, Public Law 96-487 (16 U.S.C. 3150(a))

established the Alaska mineral resource assessment program to assess the oil, gas, and other 

mineral potential on all public lands in the State of Alaska in order to expand the data base with 

respect to the mineral potential of such lands.

AUTHORIZATIONS

General Authorizing Legislation - The following authorize the general activities of the Bureau 

of Land Management or govern the manner in which BLM activities are conducted.

Reorganization Plan No. 

3 of 1946, §403

Establishes the BLM.

Federal Land Policy and 

Management Act of 

1976, as amended (43 

U.S.C. 1701 et seq.)

Outlines functions of the BLM, provides for administration of 

public lands through the BLM, provides for management of the 

public lands on a multiple-use basis, and requires land-use 

planning including public involvement and a continuing inventory 

of resources. The Act establishes as public policy that, in 

general, the public lands will remain in Federal ownership, and 

also authorizes: 

• Acquisition of land or interests in lands consistent with the 

mission of the Department and land use plans; 

• Permanent appropriation of road use fees collected from 

commercial road users, to be used for road maintenance;

• Collection of service charges, damages, and contributions 

and the use of funds for specified purposes;

• Protection of resource values;

• Preservation of certain lands in their natural condition;

• Compliance with pollution control laws;

• Delineation of boundaries in which the Federal government 

has right, title, or interest;

• Review of land classifications in land use planning; and 

modification or termination of land classifications when 

consistent with land use plans;

• Sale of lands if the sale meets certain disposal criteria;

• Issuance, modification, or revocation of withdrawals;

• Review of certain withdrawals by October 1991;

• Exchange or conveyance of public lands if in the public 

interest;

• Outdoor recreation and human occupancy and use;

• Management of the use, occupancy, and development of the 

public lands through leases and permits; 

• Designation of Federal personnel to carry out law 

enforcement responsibilities;

• Determination of the suitability of public lands for rights-ofway purposes (other than oil and gas pipelines) and 

specification of the boundaries of each right-of-way;

• Recordation of mining claims and reception of evidence of 
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Chapter VII – Management of Lands and Resources Page VII - 4

annual assessment work.

Omnibus Public Land 

Management Act, 2009 

(P.L. 111-11):

• Codified the 26 million acre National Landscape 

Conservation System as a permanent program in the BLM.

• Established one new National Monument in New Mexico.

• Established four new National Conservation Areas (NCAs): 

two in Utah, one in Colorado, and one in New Mexico.

• Added approximately 2 million acres to the National 

Wilderness Preservation System.

• Added approximately 1,000 miles to the National Wild and 

Scenic River System.

• Directed eight conveyances of public land out of Federal 

ownership.

National Environmental 

Policy Act of 1969 (42 

U.S.C. 4321 et seq.)

Requires the preparation of environmental impact statements for 

Federal projects which may have a significant effect on the 

environment. It requires systematic, interdisciplinary planning to 

ensure the integrated use of the natural and social sciences and 

the environmental design arts in making decisions about major 

Federal actions that may have a significant effect on the 

environment.

The Endangered 

Species Act of 1973, as 

amended (16 U.S.C. 

1531 et seq.)

Directs Federal agencies to ensure that their actions do not 

jeopardize threatened and endangered species and that through 

their authority they help bring about the recovery of these 

species.

Energy Policy Act of 

2005 (P.L. 109-58)

Directs Federal agencies to undertake efforts to ensure energy 

efficiency, and the production of secure, affordable, and reliable 

domestic energy.

An Act to Amend the 

Reclamation Recreation 

Management Act of 

1992 (P.L. 107-69)

Provides for the security of dams, facilities and resources under 

the jurisdiction of the Bureau of Reclamation. Authorizes the 

Secretary of the Interior to authorize law enforcement personnel 

from the Department of the Interior to enforce Federal laws and 

regulations within a Reclamation Project or on Reclamation 

lands.

The Civil Service 

Reform Act of 1978 (5 U. 

S. C. 1701)

Requires each executive agency to conduct a continuing 

program to eliminate the under-representation of minorities and 

women in professional, administrative, technical, clerical, and 

other blue collar employment categories within the Federal 

services.

The Civil Rights Act of 

1964, as amended (42 

U.S.C. 2000)

Requires development and maintenance of affirmative action 

programs to ensure non-discrimination in any employment 

activity.

The Paperwork 

Reduction Act of 1980 

Provides national Federal information policy, and requires that 

automatic data processing and telecommunication technologies 
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 5

(44 U.S.C. 3501-3520) be acquired and used to improve services, delivery, and 

productivity, and to reduce the information processing burden for 

the Federal government and the general public.

The Electronic FOIA Act 

of 1996 (P.L. 104-231)

Requires that government offices make more information 

available in electronic format to the public.

The Information 

Technology 

Management Reform 

Act of 1996 (P.L. 104-

106 §5001)

Requires agencies to more effectively use Information 

Technology to improve mission performance and service to the 

public, and strengthen the quality of decisions about technology 

and mission needs through integrated planning, budgeting, and 

evaluation.

The Chief Financial 

Officers Act of 1990 

(U.S.C. 501)

Requires that a Chief Financial Officer be appointed by the 

Director of OMB and that this CFO will provide for the 

production of complete, reliable, timely and consistent financial

information for use by the executive branch of the Government 

and the Congress in the financing, management, and 

evaluation of Federal programs.

The Government 

Performance and 

Results Act of 1993 

(P.L. 103-62)

Requires 10 Federal agencies to launch a 3-year pilot project 

beginning in 1994, to develop annual performance plans that 

specify measurable goals, and produce annual reports showing 

how they are achieving those goals.

P.L. 101-512, November 

5, 1990

Authorizes BLM to negotiate and enter into cooperative 

arrangements with public and private agencies, organizations, 

institutions, and individuals to implement challenge cost share 

programs.

Notification and Federal 

Employee Antidiscrimination and 

Retaliation Act of 2001 

(P.L. 107-174)

Requires Federal agencies be accountable for violations of 

antidiscrimination and whistleblower protection laws, and for 

other purposes.

Safe Drinking Water Act 

Amendments of 1977 

(42 U.S.C. 201) 

Requires compliance with all Federal, State, or local statutes 

for safe drinking water.

E-Government Act of 

2002

(P.L. 107-374)

Requires the use of internet-based information technology to 

improve public access to information and to promote 

electronic services and processes.
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 6

Specific Authorizing Legislation - In addition to the above laws that provide general 

authorization and parameters, a number of laws authorize specific program activities, or 

activities in specific or designated areas.

 Soil, Water and Air Management

Consolidated 

Appropriations Act, 

2005 (P.L. 108-447) –

including the 

authorizations:

• Watershed Restoration Projects (P.L. 106-291,Section 331, 

as amended by P.L. 108-447, Division E, Section 336) - 

permits the Colorado State Forest Service to perform 

watershed restoration and protection services on BLM 

lands in the State of Colorado when similar and 

complementary work is being performed on adjacent State 

lands.

• Snake River Water Rights Act of 2004(P.L. 108-447, 

Division J, Title X) – Directs BLM to transfer, at the 

selection of the Nez Perce Tribe, certain land managed by 

the BLM in northern Idaho to the Bureau of Indian Affairs to 

be held in trust for the Tribe. Existing rights and uses on 

the selected lands remain in effect until the date of 

expiration of the lease or permit. The fair market value of 

the parcels of land selected by the Tribe is not to exceed $7 

million.

Burnt, Malheur, 

Owyhee, and Powder 

River Basin Water 

Optimization Feasibility 

Study Act of 2001 (P.L. 

107-237)

Authorizes the Secretary of the Interior to conduct feasibility 

studies on water optimization in the Burnt River, Malheur 

River, Owyhee River, and Powder River Basins.

Colorado River Basin 

Salinity Control Act 

Amendment of 1984 (43 

U.S.C. 1593)

Directs the Department to undertake research and develop 

demonstration projects to identify methods to improve the 

water quality of the Colorado River. The amendment requires 

BLM to develop a comprehensive salinity control program, 

and to undertake advanced planning on the Sinbad Valley 

Unit.

Soil and Water 

Resources 

Conservation Act of 

1977 (16 U.S.C. 2001)

Provides for conservation, protection and enhancement of 

soil, water, and related resources.

The Clean Air Act of 

1990, as amended (42 

U.S.C. 7401, 7642)

Requires BLM to protect air quality, maintain Federal and 

State designated air quality standards, and abide by the 

requirements of the State implementation plans.

The Clean Water Act of 

1987, as amended (33 

U.S.C. 1251)

Establishes objectives to restore and maintain the chemical, 

physical and biological integrity of the Nation’s water.

P.L. 107-30 Provides further protections for the watershed of the Little 
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 7

Sandy River as part of the Bull Run Watershed Management 

Unit, Oregon, and adds responsibilities for the Secretary of 

the Interior and the Bureau of Land Management.

 Range Management

Taylor Grazing Act of 

1934 (43 U.S.C. 315), as 

amended by the Act of 

August 28, 1937 (43 

U.S.C. 1181d)

Authorizes the establishment of grazing districts, regulation 

and administration of grazing on the public lands, and 

improvement of the public rangelands. It also authorizes the

Secretary of the Interior to accept contributions for the 

administration, protection, and improvement of grazing lands, 

and establishment of a trust fund to be used for these 

purposes.

Public Rangelands 

Improvement Act of 

1978 (43 U.S.C. 

1901-1908)

Provides for the improvement of range conditions to assure 

that rangelands become as productive as feasible for 

watershed protection, livestock grazing, wildlife habitat, and 

other rangeland values. The act also authorizes: 

• Research on wild horse and burro population dynamics, 

and facilitates the humane adoption or disposal of excess 

wild free- roaming horses and burros, and 

• Appropriation of $10 million or 50 percent of all moneys 

received as grazing fees, whichever is greater, 

notwithstanding the amount of fees collected.

Bankhead Jones Farm 

Tenant Act of 1937 (7 

U.S.C. 1010 et seq.)

Authorizes management of acquired farm tenant lands, and 

construction and maintenance of range improvements. It 

directs the Secretary of Agriculture to develop a program of 

land conservation and utilization to adjust land use to help 

control soil erosion, conduct reforestation, preserve natural 

resources, develop and protect recreational facilities, protect 

watersheds, and protect public health and safety.

 Forest Management

Healthy Forests 

Restoration Act of 2003 

(P.L. 108-148) – 16 

U.S.C. 6501 et seq.

Authorized the BLM and the U.S. Forest Service (USFS) to 

conduct hazardous fuels reduction projects on Federal land in 

wildland-urban interface areas and on certain other Federal 

lands using expedited procedures.

Stewardship "End 

Results" Contracting 

Fund - 2003 Omnibus 

Appropriations Bill (P.L. 

108-7), Section 323, 

amended Section 347 of 

the FY 1999 

Appropriation Omnibus 

(P.L. 105-277, OCT. 21, 

1998)

Provides BLM the ability to utilize stewardship contracting as 

a tool for forest and rangeland restoration. The BLM may 

apply the value of timber or other forest products removed as 

an offset against the cost of services received, and monies 

from a contract under subsection (a) may be retained by the 

USFS and the BLM and shall be available for expenditure 

without further appropriation at the project site from which the 

monies are collected or at another project site. 
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 8

 Riparian Management

The Federal Noxious 

Weed Act of 1974, as 

amended (7 U.S.C. 

2814)

Provides for the designation of a lead office and a person 

trained in the management of undesirable plants; 

establishment and funding of an undesirable plant

management program; completion and implementation of 

cooperative agreements with State agencies; and 

establishment of integrated management systems to control 

undesirable plant species.

Noxious Weed Control 

Act of 2004 (P.L. 108-

412)

Establishes a program to provide assistance through States 

to eligible weed management entities to control or eradicate 

harmful, nonnative weeds on public and private lands.

Carlson-Foley Act of 

1968 (42 U.S.C. 

1241-1243)

Authorizes BLM to reimburse States for expenditures 

associated with coordinated control of noxious plants.

 Cultural Resources Management

P.L. 107-346 To convey certain property to the City of St. George, Utah, in 

order to provide for the protection and preservation of certain 

rare paleontological resources on that property, and for other 

purposes.

The Federal Cave 

Resource Protection 

Act of 1988 (16 U.S.C. 

4301)

Provides for the protection of caves on lands under the 

jurisdiction of the Secretary of the Interior and the Secretary 

of Agriculture. Establishes terms and conditions for use 

permits, and penalties for violations. 

The Historic Sites Act 

(16 U.S.C. 461)

Declares national policy to identify and preserve historic sites, 

buildings, objects, and antiquities of national significance, 

providing a foundation for the National Register of Historic 

Places.

The National Historic 

Preservation Act of 

1966, as amended (16 

U.S.C. 470)

Expands protection of historic and archaeological properties 

to include those of national, State and local significance. It 

also directs Federal agencies to consider the effects of 

proposed actions on properties eligible for or included in the 

National Register of Historic Places.

The Archaeological 

Resources Protection 

Act of 1979, as 

amended (16 U.S.C. 

470a, 470cc and 470ee)

Requires permits for the excavation or removal of federally 

administered archaeological resources, encourages 

increased cooperation among Federal agencies and private 

individuals, provides stringent criminal and civil penalties for 

violations, and requires Federal agencies to identify important 

resources vulnerable to looting and to develop a tracking 

system for violations.

The Chacoan Culture Provides for preservation, protection, research, and 
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Chapter VII – Management of Lands and Resources Page VII - 9

Preservation Act of 

1980 (16 U.S.C. 410; ii)

interpretation of the Chacoan system, including 33 

archaeological protection sites, located throughout the San 

Juan Basin on public, State, Indian and private lands.

The Native American 

Graves Protection and 

Repatriation Act of 1990 

(25 U.S.C. 3001)

Requires agencies to inventory archaeological and 

ethnological collections in their possession or control (which 

includes non-Federal museums) for human remains, 

associated funerary objects, sacred objects, and objects of 

cultural patrimony; identify them geographically and culturally; 

and notify appropriate tribes within 5 years.

Galisteo Basin (New 

Mexico) Archaeological 

Sites Protection Act 

(P.L. 108-208)

Authorizes the Secretary of the Interior to administer the 

designated sites under this Act and other laws to protect, 

preserve, provide for research on, and maintain these 

archaeological resources.

Paleontological 

Resources Preservation 

Act (16 U.S.C. § 470aaa 

et seq.) −

States that the Secretary of the Interior shall manage and 

protect paleontological resources on Federal land using 

scientific principles and expertise; and that the Secretary of 

the Interior shall establish a program to increase public 

awareness about the significance of paleontological 

resources; and authorizes the collection of paleontological 

resources with a permit; and provides for “casual collection” of 

common invertebrate and plant fossils on some public lands 

without a permit; and provides for the protection of 

paleontological resources, including criminal and civil 

penalties; and provides other guidance for the management 

of paleontological resources on public lands.

 Wild Horse and Burro Management

Wild Free-Roaming 

Horse and Burro Act of 

1971 (P.L. 92-195), as 

amended

The Secretary is authorized and directed to protect and 

manage wild free-roaming horses and burros as components 

of the public lands, and he may designate and maintain 

specific ranges on public lands as sanctuaries for their 

protection and preservation, where the Secretary after 

consultation with the wildlife agency of the State wherein any 

such range is proposed and with the Advisory Board 

established in section 7 of this Act deems such action 

desirable. The Secretary shall manage wild free-roaming 

horses and burros in a manner that is designed to achieve 

and maintain a thriving natural ecological balance on the 

public lands.

Federal Land Policy and 

Management Act of 

1976, as amended (43 

U.S.C. 1701 et seq.)

For the purpose of furthering knowledge of wild horse and 

burro population dynamics and their interrelationship with 

wildlife, forage and water resources, and assisting the 

Secretary in making his determination as to what constitutes 

excess animals, the Secretary shall contract for a research 

study of such animals with such individuals independent of 
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Chapter VII – Management of Lands and Resources Page VII - 10

Federal and State government as may be recommended by 

the National Academy of Sciences for having scientific 

expertise and special knowledge of wild horse and burro 

protection, wildlife management and animal husbandry as 

related to rangeland management.

Public Rangelands 

Improvement Act of 

1978 (43 U.S.C. 1901-

1908)

Based on the information available at the time, if the 

Secretary determines that overpopulation of wild free-roaming 

horses and burros exists on a given area of the public lands 

and that action is necessary to remove excess animals, 

excess animals shall be immediately removed from the range 

so as to achieve appropriate management levels. Such 

action shall be taken until all excess animals have been 

removed so as to restore a thriving natural ecological balance 

to the range, and protect the range from the deterioration 

associated with overpopulation.

The Secretary shall cause such number of additional excess 

wild free-roaming horses and burros to be humanely captured 

and removed for private maintenance and care for which an 

adoption demand exists by qualified individuals, and for which 

humane treatment and care (including proper transportation, 

feeding, and handling) can be assured.

 Wildlife Management

National Fish and 

Wildlife Foundation 

Establishment Act, as 

amended, (16 U.S.C. 

3701)

Established the National Fish and Wildlife Foundation as a 

nonprofit corporation to encourage, accept and administer 

private gifts of property, and to undertake activities to further 

the conservation and management of fish, wildlife, and plant 

resources of the U.S.

The Migratory Bird 

Conservation Act of 

1929, as amended (16 

U.S.C. 715) and treaties 

pertaining thereto

Provides for habitat protection and enhancement of protected 

migratory birds.

The Sikes Act of 1974, 

as amended (16 U.S.C. 

670 et seq.)

Provides for the conservation, restoration, and management 

of species and their habitats in cooperation with State wildlife 

agencies.

Wilderness Management

Defense Department FY 

2006 Authorization Bill 

(P.L. 109-63)

Provides for the designation and management of Cedar 

Mountain Wilderness in Utah.

Tax Relief and Health 

Care Act of 2006

Designates wilderness in White Pine County, Nevada.
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Chapter VII – Management of Lands and Resources Page VII - 11

Otay Mountain 

Wilderness Act of 1999

Establishes the Otay Mountain Wilderness Area in California, 

to be managed by the Secretary, acting through the Director 

of the Bureau of Land Management.

Clark County 

Conservation of Public 

Land and Natural 

Resources Act of 2002 

(P.L. 107-282) (16 USC 

460qqq)

Establishes Wilderness Areas, including Sloan Canyon NCA, 

and to promote conservation, improve public land, and 

provide for high quality development in Clark County, Nevada, 

and for other purposes.

Ojito Wilderness Act 

(P.L. 109-94)

Designates New Mexico’s Ojito Wilderness Study Area (WSA) 

as wilderness, to take certain land into trust for the Pueblo of 

Zia, and for other purposes.

P.L. 107-361 Authorizes the Secretary of the Interior to convey certain 

public lands within the Sand Mountain WSA in Idaho to 

resolve an occupancy encroachment dating back to 1971.

Northern California 

Coastal Wild Heritage 

Wilderness Act (P.L. 

106-362)

Provides for the designation and management of Wilderness 

Areas in California.

Big Sur Wilderness and 

Conservation Act of 

2002 (P.L. 107-370)

Designates certain lands in the State of California as 

components of the National Wilderness Preservation System, 

and for other purposes.

Utah West Desert Land 

Exchange Act of 2000 

(P.L. 106-301)

Authorizes exchange of public lands for certain lands owned 

by the State of Utah within existing and proposed WSAs in 

the West Desert Region of Utah.

The Land Use Planning 

Act (P. L. 94-579), as 

amended by the

California Desert 

Protection Act of 1994 

(P.L. 103-433) (43 USC 

1781)

Establishes boundaries and management responsibilities for 

areas in the California Desert, and establishes 69 new 

Wilderness Areas.

The Wilderness Act of 

1964 (16 U.S.C. 1131 et 

seq.)

Provides for the designation and preservation of Wilderness 

Areas.

 Recreation Resources Management

Federal Lands 

Recreation 

Enhancement Act (P.L. 

Provides authority to the Bureau of Land Management for 

collection of recreation fees to maintain and improve the 

quality of visitor amenities and services.
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Chapter VII – Management of Lands and Resources Page VII - 12

104-134)

The Land and Water 

Conservation Fund Act 

of 1965, as amended (16 

U.S.C. 460 et seq.)

Provides for the establishment of the Land and Water 

Conservation Fund, special BLM accounts in the Treasury, 

the collection and disposition of recreation fees, the 

authorization for appropriation of recreation fee receipts, and 

other purposes. Authorizes planning, acquisition, and 

development of needed land and water areas and facilities.

 Oil & Gas Management

The Act of March 3, 

1909, as amended, and 

the Act of May 11, 1938 

(25 U.S.C. 396, 396(a))

Provides the basic mandate under which BLM supervises 

minerals operations on Indian lands. Provides that lands 

allotted to Indians, and unallotted tribal Indian lands, may be 

leased for mining purposes, as deemed advisable by the 

Secretary.

The Federal Oil and Gas 

Royalty Management 

Act of 1982 (30 U.S.C. 

1701) (FOGRMA)

Comprehensive law dealing with royalty management on 

Federal and Indian leases. In addition to revenue 

accountability, it includes provisions pertaining to onshore 

field operations, inspections, and cooperation with State and 

Indian tribes; duties of lessees and other lease interest 

owners, transporters, and purchasers of oil and gas; 

reinstatement of onshore leases terminated by operation of 

law; and a requirement that the Secretary study whether 

royalties are adequate for coal, uranium, and non-energy 

leasable minerals.

Energy Policy and 

Conservation Act 

Amendments of 2000 

(P.L. 106-469, Section 

604) –

Directs the Secretary of the Interior, in consultation with the 

Secretaries of Agriculture and Energy, to conduct an 

inventory of all onshore Federal lands to determine reserve 

estimates of oil and gas resources underlying the lands and 

the extent and nature of any impediments to development of 

the oil and gas resources.

The Federal Onshore 

Oil and Gas Leasing 

Reform Act of 1987 (30 

U.S.C. 226, et seq.)

Establishes a new oil and gas leasing system, and changes 

certain operational procedures for onshore Federal lands.

The Combined 

Hydrocarbon Leasing 

Act of 1981 (30 U.S.C. 

181, 351)

Permits the owners of oil and gas leases issued after 

November 16, 1981, to explore, develop, and produce tar 

sands. Authorizes the issuance of combined hydrocarbon 

leases in specified areas designated by the Department of the 

Interior on November 20, 1980.

Reorganization Plan No. 

3 of 1946, §402 (60 Stat. 

1099)

Transferred mineral leasing functions to the Secretary of the 

Interior, from the Secretary of Agriculture, for certain acquired 

lands.
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The Interior and Related 

Agencies 

Appropriations Act for 

1981 (42 U.S.C. 6508)

Provides for competitive leasing of oil and gas in the National 

Petroleum Reserve in Alaska.

The Mining and 

Minerals Policy Act of 

1970 (30 U.S.C. 21a)

Establishes policy of fostering development of economically 

stable mining and minerals industries, their orderly and 

economic development, and studying methods for disposal of 

waste and reclamation.

The Act of March 3, 

1879, as amended (43 

U.S.C. 31(a))

Provides for the inventory and classification of the public 

lands, and examination of the geologic structure, mineral 

resources, and products of the national domain.

 Coal Management

The Surface Mining 

Control and 

Reclamation Act of 1977 

(30 U.S.C. 1201 et seq.)

Provides that lands may be declared unsuitable for surface 

coal mining where significant adverse impacts could result to 

certain wildlife species.

The Federal Coal 

Leasing Amendments 

Act of 1976 (30 U.S.C. 

201, et seq.)

Requires competitive leasing of coal on public lands, and 

mandates a broad spectrum of coal operations requirements 

for lease management.

The Mining and 

Minerals Policy Act of 

1970 (30 U.S.C. 21a)

Establishes policy of fostering development of economically 

stable mining and minerals industries, their orderly and 

economic development, and studying methods for disposal of 

waste and reclamation.

The Act of March 3, 

1879, as amended (43 

U.S.C. 31(a))

Provides for the inventory and classification of the public 

lands, and examination of the geologic structure, mineral 

resources, and products of the national domain.

Other Mineral Resources

Mineral Materials Act of 

1947 (30 U.S.C. 601)

Authorizes the BLM to sell sand, gravel, crushed stone, clay 

and pumice at fair market value and to grant free-use permits 

to government agencies and nonprofit organizations, so long 

as public land resources, the environment and the public are 

protected.

The Multiple Surface 

Use Act (30 U.S.C. 611) 

Specified that sand, gravel, and certain other minerals were 

no longer locatable under the General Mining Law of 1872 but 

were subject to disposal by sale under the Materials Act of 

1947.
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Renewable Energy Management

The Geothermal Steam 

Act of 1970 (30 U.S.C. 

1001)

Authorizes the Secretary to issue leases for the development 

of geothermal resources.

The Geothermal Steam 

Act Amendments of 

1988

Lists significant thermal features within the National Park 

System requiring protection, provides for lease extensions 

and continuation of leases beyond their primary terms, and 

requires periodic review of cooperative or unit plans of 

development.

 Alaska Conveyance

The Alaska Native 

Claims Settlement Act 

of 1971 (ANCSA) (43 

U.S.C. 1612)

Requires the survey of Alaska Native lands for conveyance to 

Native corporations and individuals.

The Alaska Statehood 

Act, as amended (48 

U.S.C. Chap. 2 note)

Requires the survey of lands for conveyance to the State.

The Alaska National 

Interest Lands 

Conservation Act of 

1980 (16 U.S.C. 3101 et 

seq.)

Provides for the designation and conservation of certain 

public lands in Alaska. BLM responsibilities include six Wild 

and Scenic Rivers, nine study rivers, one NCA, one National 

Recreation Area, and one National Scenic Highway.

Alaska Native Allotment 

Subdivision Act (P.L. 

108-337)

Allows Native Alaskans to subdivide their restricted allotment 

lands with the approval of the Secretary of the Interior.

Alaska Land 

Acceleration Act of 

2004 (P.L. 108-452)

Reduces the delays that exist in the adjudication and 

conveyance of Alaska Native Allotments, State and other land 

entitlements that are authorized under the Alaska Native 

Allotment Act of 1906, the Alaska Native Claims Act, and the 

Alaska Statehood Act.

43 U.S.C. 2 Provides that the Secretary shall perform all executive duties 

pertaining to the surveying and sale of public lands, private 

claims of public lands, and the issuing of patents for all grants 

of land under the authority of the government.

43 U.S.C. 52 Provides that the Secretary shall cause all public lands to be 

surveyed and monumented, that all private land claims shall 

be surveyed after they have been confirmed, and that the 

Secretary shall transmit plats of all lands surveyed to such 

officers as he may designate.
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 Cadastral Survey

Executive Order 12906 The executive branch is developing, in cooperation with State, 

local, and tribal governments, and the private sector, a 

coordinated National Spatial Data Infrastructure to support 

public and private sector applications of geospatial data. BLM 

is charged with developing data standards, ensuring the 

capability to share cadastral data from the Public Land Survey 

System of the U.S. with partners.

 Lands & Realty

Native American 

Technical Corrections 

Act of 2004 (P.L. 108-

204, Title II)

Placed in trust for the Pueblo of Santa Clara in New Mexico 

approximately 2,484 acres of BLM-managed land. Placed in 

trust for the Pueblo of San Ildefonso in New Mexico 

approximately 2,000 acres of BLM-managed land.

P.L. 107-374 Directs the Secretary of the Interior to grant to Deschutes and 

Crook Counties, Oregon, a right-of-way to West Butte Road.

P. L. 109-46 Directs the Secretary of Agriculture to convey certain land to 

Lander County, Nevada, and the Secretary of Interior to 

convey certain land to Eureka County, Nevada, for continued 

use of cemeteries.

P. L. 109-69 Directs the Secretary of the Interior to convey certain land in 

Washoe County, Nevada, to the Board of Regents of the 

University and Community College System of Nevada.

P. L. 109-130 Directs the Secretary of the Interior to convey a parcel of real 

property to Beaver County, Utah.

Southern Nevada Public 

Land Management Act 

(SNPLMA) of 1998

(P.L. 105-263)

Authorizes the disposal through sale of 27,000 acres in Clark 

County, Nevada, the proceeds of which are distributed as 

follows: (a) 5 percent for use in the general education 

program of the State of Nevada; (b) 10 percent for use by 

Southern Nevada Water Authority for water treatment and 

transmission facility infrastructure in Clark County, Nevada; 

and (c) the remaining 85 percent to be used to acquire 

environmentally sensitive lands in Nevada; to make capital 

improvements to areas administered by National Park Service 

(NPS), U.S. Fish and Wildlife Service and BLM in Clark 

County, Nevada; to develop a multi-species habitat plan in 

Clark County, Nevada; to develop parks, trails, and natural 

areas in Clark County, Nevada; and to provide 

reimbursements for BLM costs incurred in arranging sales 

and exchanges under this Act.
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Clark County 

Conservation of Public 

Land and Natural 

Resources Act of 2002 

(P.L. 107-282) as 

amended by P.L. 108-

447

Enlarges the area in which the BLM can sell lands under 

SNPLMA; approves a land exchange in the Red Rock 

Canyon Area; designates wilderness; designates certain BLM 

lands for a new airport for Las Vegas; and gives land to the 

State and City for certain purposes.

Lincoln County Lands 

Act of 2000 (P.L. 106-

298)

Authorizes disposal of certain Federal lands through public 

sale in Lincoln County, Nevada, and provides for use of the 

receipts: 5 percent to the State of Nevada, 10 percent to the 

County, and 85 percent to an interest bearing account that is 

available for expenditure without further appropriation.

Lincoln County 

Conservation, 

Recreation and 

Development Act (PL 

108-424)

Addresses a wide-range of public lands issues in Lincoln 

County, Nevada, designates as wilderness 768,294 acres of 

BLM-managed lands and releases from WSA status 251,965 

acres of public land. The bill also directs the BLM to dispose 

of up to 90,000 acres of public land and divides the proceeds 

85 percent to a Federal fund and 15 percent to State and 

county entities, establishes utility corridors, transfers public 

lands for state and county parks, creates a 260-mile offhighway vehicle trail and resolves other public lands issues.

Consolidated 

Appropriations Act, 

2005 (P.L. 108-447) –

including the 

authorizations:

• Foundation for Nevada’s Veteran’s Land Transfer Act of 

2004 (P.L. 108-447, Division E, Section 144) – authorizes 

the transfer of public lands from the BLM to the Veteran’s 

Administration for the construction and operation of medical 

and related facilities.

• To Resolve a Minor Boundary Encroachment on Lands of 

the Union Pacific Railroad Company in Tipton, CA (P.L. 

108-447, Division E, Section 139) – relinquishes the 

Federal government’s reversionary interest in an 

abandoned railroad right-of-way in order to clear the cloud 

on the title of a small parcel of private land.

• Federal Land Recreation Enhancement Act (P.L. 108-447, 

Division J, Title VIII) – Gives the BLM authority to collect 

entrance fees at certain recreation areas for ten years 

beginning in 2005.

P.L. 107-324 A bill to direct the Secretary of the Interior to convey certain 

land to the City of Haines, Oregon.

T’uf Shur Bien 

Preservation Trust Area 

Act (P.L. 108-7, Division 

F, Title IV)

Amended Federal Land Policy and Management Act 

(FLPMA), Section 316, to require that any corrections to land 

conveyance documents which affect the boundaries of land 

administered by a federal agency other than the BLM be 

made only after consultation with, and the approval of, the 
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Chapter VII – Management of Lands and Resources Page VII - 17

head of such other agency.

P.L. 107-371 Directs the Secretary of the Interior to disclaim any Federal 

interest in lands adjacent to Spirit Lake and Twin Lakes in 

Idaho resulting from possible omission of lands from an 1880 

survey.

P.L. 107-350 Provides for the conveyance of certain public land in Clark 

County, Nevada, for use as a shooting range.

P.L. 107-138 Require the valuation of non-tribal interest ownership of 

subsurface rights within the boundaries of the Acoma Indian 

Reservation, and for other purposes.

P.L. 106-206 Revised authority for commercial filming and still photography 

activities. In doing so, it clarifies authority on the requirements 

for commercial filming and still photography permits and 

establishes limitations on filming activities for the protection of 

resources.

Ivanpah Valley Airport 

Public Land Transfer 

Act (P.L. 106-145)

Authorizes sale at fair market value of certain lands in Clark 

County, Nevada to Clark County, for use as an airport. 

Provides that the funds be deposited in the special account 

for the SNPLMA, to be used for acquisition of private inholdings in the Mojave National Preserve and protection of 

petroglyph resources in Clark County, Nevada.

The Burton-Santini Act 

(P.L. 96-586)

Authorizes the Secretary to sell not more than 700 acres of 

public lands per calendar year in and around Las Vegas, 

Nevada. The proceeds are to be used to acquire 

environmentally sensitive lands in the Lake Tahoe Basin of 

California and Nevada.

The Federal Power Act 

of 1920, as amended (16 

U.S.C. 818)

Allows other uses of Federal waterpower withdrawals with 

Federal Energy Regulatory Commission approval.

The Act of May 24, 1928, 

as amended (49 U.S.C. 

App. 211-213)

Authorizes the Secretary to lease contiguous unappropriated 

public lands (not to exceed 2,560 acres) for a public airport.

The Airport and Airway 

Improvement Act of 

1982 (49 U.S.C. 2215)

Authorizes conveyance of lands to public agencies for use as 

airports and airways.

The Engle Act of 

February 28, 1958 (43 

U.S.C. 156)

Provides that withdrawals for the Department of Defense for 

more than 5,000 acres shall be made by Congress.

The Recreation and Authorizes the Secretary to classify public lands for lease or 
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Public Purposes Act of 

1926, as amended (43 

U.S.C. 869)

sale for recreation or public purposes.

The R&PP Amendment 

Act of 1988

Provides that suitable public lands may be made available for 

use as solid waste disposal sites, in a manner that will protect 

the U.S. against unforeseen liability.

The Desert Land Act of 

1877 (43 U.S.C. 321-323)

Provides authority to reclaim arid and semi-arid public lands 

of the western States through individual effort and private 

capital.

The Act of August 30, 

1949, as amended (43 

U.S.C. 687(b))

Authorizes the Secretary to dispose of public lands, and 

certain withdrawn Federal lands in Alaska, that are classified 

as suitable for housing and industrial or commercial purposes.

The Utah School Lands 

Act (P.L. 103-93)

Authorizes the Secretary to enter into land exchanges for 

certain purposes.

Federal Land Exchange 

Facilitation Act of 1988 

(43 U.S.C. 1716)

Amends FLPMA to provide for the streamlining of Federal 

land exchange procedures.

The Arkansas-Idaho 

Land Exchange Act of 

1992 (P.L. 102-584)

Authorizes the Secretary to enter into land exchanges for 

certain purposes.

Abandoned Mine Lands

The Comprehensive 

Environmental 

Response, 

Compensation, and 

Liability Act of 1980 as 

amended by the 

Superfund 

Amendments and 

Reauthorization Act of 

1986 (42 U.S.C. 

9601-9673)

Provides for liability, risk assessment, compensation, 

emergency response, and cleanup (including the cleanup of 

inactive sites) for hazardous substances. Requires Federal 

agencies to report sites where hazardous wastes are or have 

been stored, treated, or disposed, and requires responsible 

parties, including Federal agencies, to clean up releases of 

hazardous substances.

Federal Watershed 

Restoration and 

Enhancement 

Agreements (16 U.S.C. 

1011)

Makes permanent the authorization to enter into cooperative 

agreements for the purpose of protecting, restoring, and 

enhancing fish and wildlife habitat and other resources on 

public or private lands, and reducing the risk from natural 

disaster where public safety is threatened that benefit these 

resources on public lands within the watershed.

National Oil and 

Hazardous Substance 

Pollution Contingency 

Provides the organizational structure and procedures for 

preparing for and responding to discharges of oil and releases 

of hazardous substances, pollutants, and contaminants.
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Plan (42 U.S.C. 9605)

Hazard Management and Resource Restoration

The Clean Water Act of 

1987, as amended (33 

U.S.C. 1251)

Establishes objectives to restore and maintain the chemical, 

physical and biological integrity of the Nation’s water.

The Resource 

Conservation and 

Recovery Act as 

amended by Federal 

Facility Compliance Act 

of 1992 (42 U.S.C. 

6901-6992)

Authorizes the Environmental Protection Agency to manage, 

by regulation, hazardous wastes on active disposal 

operations. Waives sovereign immunity for Federal agencies 

with respect to all Federal, State, and local solid and 

hazardous waste laws and regulations. Makes Federal 

agencies subject to civil and administrative penalties for 

violations, and to cost assessments for the administration of 

the enforcement.

The Comprehensive 

Environmental 

Response, 

Compensation, and 

Liability Act of 1980 as 

amended by the 

Superfund 

Amendments and 

Reauthorization Act of 

1986 (42 U.S.C. 

9601-9673)

Provides for liability, risk assessment, compensation, 

emergency response, and cleanup (including the cleanup of 

inactive sites) for hazardous substances. Requires Federal 

agencies to report sites where hazardous wastes are or have 

been stored, treated, or disposed, and requires responsible 

parties, including Federal agencies, to clean-up releases of

hazardous substances.

Community 

Environmental 

Response Facilitations 

Act of 1992 (42 U.S.C. 

9620(h))

Amendment to the Comprehensive Environmental Response, 

Compensation, and Liability Act of 1980, as amended, which 

expands on the risk assessment requirements for land 

transfers and disposal.

The Emergency 

Planning and 

Community 

Right-To-Know Act of 

1986 (42 U.S.C. 

11001-11050)

Requires the private sector to inventory chemicals and 

chemical products, to report those in excess of threshold 

planning quantities, to inventory emergency response 

equipment, to provide annual reports and support to local and 

State emergency response organizations, and to maintain a 

liaison with the local and state emergency response 

organizations and the public.

The Pollution 

Prevention Act of 1990 

(42 U.S.C. 13101-13109)

Requires and encourages prevention and reduction of waste 

streams and other pollution through minimization, process 

change, and recycling. Encourages and requires development 

of new technology and markets to meet the objectives.
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Annual Maintenance

National Dam 

Inspection Act of 1972 

(33 U.S.C. 467)

Requires the Secretary of the Army, acting through the Chief 

of Engineers, to carry out a dam inspection program to protect 

human life and property. 

National Landscape Conservation System

The King Range 

National Conservation 

Area Act of 1970, as 

amended (P.L. 91-476) 

(16 U.S.C. 460y)

Provides for management and development of the King 

Range NCA for recreational and other multiple-use purposes. 

It authorizes the Secretary to enter into land exchanges and 

to acquire lands or interests in lands within the NCA.

Alaska National Interest 

Lands Conservation Act 

(P.L. 96-487) (16 USC 

460mm)

Established the Steese NCA to be managed by the BLM.

National Parks and 

Recreation Act of 1978 

Amendment (P.L. 101-

628)

Establishes the Yaquina Head Outstanding Natural Area in 

the State of Oregon in order to protect the unique scenic, 

scientific, educational, and recreational values of such lands. 

Requires the Secretary of the Interior to develop a 

management plan for such Area. The Secretary of the Interior 

shall manage the monument through the Bureau of Land 

Management.

Arizona Desert 

Wilderness Act of 1990 

– Title II – Designation 

of the Gila Box Riparian 

National Conservation 

Area (P.L. 101-628) (16 

USC 460ddd)

Establishes the Gila Box Riparian NCA. The Secretary of the 

Interior shall manage the monument through the Bureau of 

Land Management.

The Snake River Birds 

of Prey National 

Conservation Area Act 

of 1993 (P.L. 103-64) (16 

USC 460iii)

Establishes the Snake River Birds of Prey NCA, Idaho, to 

provide for the conservation, protection, and enhancement of 

raptor populations, habitats, and associated natural resources 

and of the scientific, cultural, and educational resources of the 

public lands. Requires the Secretary of the Interior to finalize 

a new comprehensive management plan for the Area. 

Authorizes the Secretary, acting through the BLM, to establish 

a visitor’s center to interpret the history and geological, 

ecological, natural, cultural and other resources of the Area 

and biology of the raptors and their relationships to humans.

An Act to Establish the 

Red Rock Canyon 

National Conservation 

Area in Nevada (P.L. 

101-621) as amended by 

Provides for the conservation, protection, and enhancement 

of cultural and natural resources values by the BLM within the 

Red Rock Canyon NCA.
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107-282 (16 U.S.C. 

460ccc)

An Act to Establish the 

El Malpais National 

Monument and the El 

Malpais National 

Conservation Area in 

New Mexico, P.L. 100-

225 (16 U.S.C. 460uu 21)

Provides for the protection and management of natural and 

cultural resource values within the El Malpais NCA by the 

BLM.

An Act to Provide for 

the Designation and 

Conservation of Certain 

Lands in Arizona and 

Idaho(P.L. 100-696) (16 

U.S.C. 460xx)

Establishes the San Pedro Riparian NCA in Arizona and 

provides for management and development for recreation and 

other multiple-use purposes.

Black Canyon of the 

Gunnison National Park 

and Gunnison Gorge 

National Conservation 

Area Act of 1999 (6 USC 

410fff), as amended (PL 

106-76 & 108-128)

Establishes the Gunnison Gorge NCA to be managed by the 

Secretary, acting through the Director of the Bureau of Land 

Management. PL 108-128 amended the boundaries or the 

NCA.

Black Rock Desert/High 

Rock Canyon Emigrant 

Trails National 

Conservation Area Act 

of 2000, as amended, 

(P.L. 106-554 & P.L. 107-

63). (16 U.S.C. 460ppp) 

Establishes the Black Rock Desert/High Rock Canyon 

Emigrant Trails National Conservation Area in Nevada, to be 

managed by the Secretary, acting through the Director of the 

Bureau of Land Management.

Colorado Canyons 

National Conservation 

Area and Black Ridge 

Canyon Wilderness Act 

of 2000 (16 U.S.C. 

460mmm, P.L. 106-353 ), 

as amended by P.L. 

108-400 (43 USC 

460mmm)

Establishes the McInnis Canyons National Conservation Area 

(formerly Colorado Canyons National Conservation Area) and 

Black Ridge Canyon Wilderness Area in Colorado, to be 

managed by the BLM.

Las Cienegas National 

Conservation Area Act 

(P.L. 106-538) (16 U.S.C. 

460ooo) 

Establishes the Las Cienegas National Conservation Area in 

Arizona, to be managed by the Secretary, acting through the 

Director of the Bureau of Land Management.

Santa Rosa and San 

Jacinto Mountains 

Establishes the Santa Rosa and San Jacinto Mountains 

National Monument in California, to be managed by the 
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National Monument Act 

of 2000 (P.L. 106-351) 

(16 U.S.C. 431)

Secretary, acting through the Director of the Bureau of Land 

Management.

Steens Mountain 

Cooperative 

Management and 

Protection Act of 2000 

(P.L. 106-399) (16 U.S.C. 

460nnn)

Establishes the Steens Mountain Cooperative Management 

and Protection Area in Oregon, to be managed by the 

Secretary, acting through the Director of the Bureau of Land 

Management.

Presidential 

Proclamation 6920 of 

1996

Established the Grand Staircase - Escalante National 

Monument, to be managed by the Secretary of the Interior, 

acting through the Director of the Bureau of Land 

Management. 

Presidential 

Proclamation 7265 of 

2000

Established the Grand Canyon - Parashant National 

Monument. The Secretary of the Interior shall manage the 

monument through the BLM and the NPS. The BLM shall 

have primary management authority for those portions of the 

Monument outside of the Lake Mead National Recreation 

Area. 

Presidential 

Proclamation 7264 of 

2000

Established the California Coastal National Monument. The 

Secretary of the Interior shall manage the monument through 

the BLM.

Presidential 

Proclamation 7263 of 

2000

Established the Agua Fria National Monument. The Secretary 

of the Interior shall manage the monument through the BLM.

P.L. 107-213 Re-designate certain lands within the Craters of the Moon 

National Monument, and for other purposes.

The Wild and Scenic 

Rivers Act of 1968, as 

amended (16 U.S.C. 

1271 et seq.)

Provides for the development and management of certain 

rivers. Authorizes the Secretary to exchange or dispose of 

suitable Federally-owned property for non-Federal property 

within the authorized boundaries of any Federallyadministered component of the National Wild and Scenic 

Rivers System.

The National Trails 

System Act of 1968, as 

amended (16 U.S.C. 

1241-1249)

Establishes a national trails system and requires that Federal 

rights in abandoned railroads be retained for trail or recreation 

purposes, or sold with the receipts to be deposited in the 

Land and Water Conservation Fund.

The National Parks and 

Recreation Act of 1978 

(16 U.S.C. 1242-1243)

Establishes a number of national historic trails which cross 

public lands.

Old Spanish Trail A bill to amend the National Trails System Act to designate 
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Recognition Act of 2002 

(P.L. 107-325)

the Old Spanish Trail as a National Historic Trail.

Mining Law Administration

The Omnibus Budget 

Reconciliation Act of 

1993 (P.L. 103-66)

Establishes an annual $100 per claim maintenance fee for 

unpatented mining claims and sites through 1998 and 

requires that the fee be adjusted for inflation. The law allows 

a waiver from the fee for those claimants who hold 10 or 

fewer claims. It also establishes a $25 per claim location fee 

for new claims, to be paid when they are recorded with BLM. 

The Act also broadened the BLM’s authority to collect 

recreation use fees.

The General Mining Law 

of 1872, as amended (30 

U.S.C. 22, et seq.), as 

amended by P.L. 108-

447, Division E, Section 

120, (30 U.S.C. 23 et 

seq.)

Provides for locating and patenting mining claims where a 

discovery has been made for locatable minerals on public 

lands in specified States, mostly in the western U.S.

The Act of March 3, 

1879, as amended, (43 

U.S.C. 31(a))

Provides for the inventory and classification of the public 

lands, and examination of the mineral resources and products 

of the national domain.

The Mining and 

Minerals Policy Act of 

1970, (30 U.S.C. 21a) (30 

U.S.C. 1601, et seq.)

Sets out the policy of fostering development of economically 

stable mining and mineral industries, and studying methods 

for waste disposal and reclamation.

The Department of the 

Interior and Related 

Agencies 

Appropriations Act for 

1989 (43 U.S.C. 1474)

Provides that receipts for 1989 and thereafter from 

administrative fees (service charges) established by the 

Secretary for processing actions relating to the administration 

of the General Mining Laws shall be immediately available to 

BLM for mining law administration program operations.

The 1994 Interior and 

Related Agencies 

Appropriations Act (P.L. 

103-138)

Provides that funds shall be available to BLM for mining law 

administration program operations, to be reduced by amounts 

collected from annual mining claim fees. 

The 1999 Interior and 

Related Agencies 

Appropriations Act 

( P.L. 105-277)

Reauthorizes the collection of annual mining claim 

maintenance fees through 2001. Extends the recreation fee 

demonstration program through fiscal year 2001, with 

collected funds remaining available through fiscal year 2004.

The 2002 Interior and 

Related Agencies

Appropriations Act 

( P.L. 107-63)

Reauthorizes the collection of annual mining claim 

maintenance fees through 2003. Extends the recreation fee 

demonstration program through fiscal year 2004, with 

collected funds remaining available through fiscal year 2007.
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 24

Other Authorizations

The Food Security Act 

of 1985 (7 U.S.C. 148f)

Provides for the transfer of funds to the Secretary of 

Agriculture for Mormon cricket and grasshopper control.

Indian Self 

Determination And 

Education Assistance 

Act (P.L. 93-638)

Provides for non-competitive contracts, grants, or cooperative 

agreements entered into between a tribal organization and 

the Federal government for the planning, conduct, and 

administration of programs which enhance Indian educational 

achievement or provide other Federal services more 

responsive to the needs and desires of those communities.

Oregon Land Exchange 

Act of 2000 (P.L. 106-

257)

Authorizes exchange of specified parcels of public and 

national forest lands in Oregon for specified parcels of private 

lands.

P.L. 109-127 Revokes a Public Land Order with respect to certain lands 

erroneously included in the Cibola National Wildlife Refuge, 

California.
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 25

Summary of Requirements

(Dollars in Thousands)

2013 Full Year CR 2012 Enacted

Fixed 

Costs

Internal 

Transfers

Program Changes

(+/-)

2014 President's 

Budget

Change From 2012 

Enacted

Total FTE Amount

Total 

FTE Amount FTE

Amou

nt FTE Amount FTE Amount

Management of Lands and Resources

Land Resources

Soil, Water & Air Mgt 248 44,477 262 46,229 +467 +0 -14 +8,126 248 54,822 -14 +8,593

Range Mgt 665 81,490 688 87,392 +1,275 +0 -46 -

13,565 642 75,102 -46 -12,290

Grazing Admin. Fee Collection 

(Proposed) 0 0 0 0 +0 +0 +50 +6,500 50 6,500 +50 +6,500

Grazing Admin. Fee Collection Offset 

(Proposed) 0 0 0 0 +0 +0 +0 -6,500 0 -6,500 0 -6,500

Forestry Mgt 53 6,318 81 9,714 +124 +0 +0 +0 81 9,838 0 +124

Riparian Mgt 174 22,874 174 22,682 +327 +0 +0 +1,000 174 24,009 0 +1,327

Cultural Resources Mgt 119 16,234 119 16,105 +224 +0 +0 +0 119 16,329 0 +224

Wild Horse and Burro Mgt 173 77,072 173 74,888 +325 +0 +0 +2,032 173 77,245 0 +2,357

Total, Land Resources 1,432 248,465 1,497 257,010 +2,742 +0 -10 -2,407 1,487 257,345 -10 +335

Wildlife & Fisheries

Wildlife Mgt 226 52,149 223 36,914 +424 +0 +2 +16,50

0 225 53,838 +2 +16,924

Fisheries Mgt 99 13,442 99 13,333 +186 +0 0 +0 99 13,519 0 +186

Total, Wildlife & Fisheries 325 65,591 322 50,247 +610 +0 +2 +16,50

0 324 67,357 +2 +17,110

Total, Threatened & Endangered 

Species 164 21,807 170 21,633 +309 +0 -6 +0 164 21,942 -6 +309

Recreation

Wilderness Mgt 155 18,561 155 18,392 +295 +0 +4 +0 159 18,687 +4 +295

Recreation Resource Mgt 398 49,490 398 49,074 +745 +0 -4 +2,000 394 51,819 -4 +2,745

Total, Recreation 553 68,051 553 67,466 +1,040 +0 +0 +2,000 553 70,506 +0 +3,040
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 26

Summary of Requirements

(Dollars in Thousands)

2013 Full Year CR 2012 Enacted

Fixed 

Costs

Internal 

Transfers

Program Changes

(+/-)

2014 President's 

Budget

Change From 2012 

Enacted

Total FTE Amount

Total 

FTE Amount FTE

Amoun

t FTE Amount FTE Amount

Energy & Minerals

Oil and Gas Mgt* 603 76,042 613 72,466 +1,183 -2,000 -163 -24,950 450 46,699 -163 -25,767

O&G APD Proc. Fund 319 32,500 319 32,500 +0 +0 +0 +0 319 32,500 +0 0

Offsetting Collections 0 -32,500 0 -32,500 +0 +0 +0 +0 0 -32,500 0 0

O&G Inspection Fees 0 0 0 0 +0 +0 +208 +47,95

0 208 47,950 +208 +47,950

Offsetting Collections 0 0 0 0 +0 +0 +0 -47,950 0 -47,950 0 -47,950

Coal Mgt 64 8,103 70 7,043 +131 +0 +6 +2,421 76 9,595 +6 +2,552

Other Mineral Resources Mgt 81 9,478 81 8,402 +159 +0 +7 +2,025 88 10,586 +7 +2,184

Renewable Energy 102 22,826 92 19,703 +237 +2,000 +61 +7,121 153 29,061 +61 +9,358

Total, Energy & Minerals 1,169 116,449 1,175 107,614 +1,710 +0 +119 -13,383 1,294 95,941 +119 -11,673

Realty and Ownership

Alaska Conveyance 142 18,741 142 29,061 +235 +0 -37 -12,320 105 16,976 -37 -12,085

Cadastral Survey 96 12,098 96 11,996 +181 +0 +0 +0 96 12,177 +0 +181

Land and Realty Mgt 296 35,923 296 32,605 +557 +3,000 +0 +6,000 296 42,162 +0 +9,557

Total, Realty and Ownership 534 66,762 534 73,662 +973 +3,000 -37 -6,320 497 71,315 -37 -2,347

Communications Sites Mgt

Fee Collection 20 2,000 20 2,000 +0 +0 -1 +0 19 2,000 -1 0

Offsetting Fees 0 -2,000 0 -2,000 +0 +0 +0 +0 0 -2,000 0 0

Total, Communications Sites Mgt 20 0 20 0 +0 +0 -1 +0 19 0 -1 0

Resource Protection & Maintenance

Resource Mgt Planning 232 39,830 232 38,060 +444 +0 +8 +4,000 240 42,504 +8 +4,444

Abandoned Mine Land Management 68 17,903 68 19,819 +128 +0 +0 +0 68 19,947 +0 +128
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 27

Summary of Requirements

(Dollars in Thousands)

2013 Full Year CR 2012 Enacted

Fixed 

Costs

Internal 

Transfers

Program Changes

(+/-)

2014 President's 

Budget

Change From 2012 

Enacted

Total FTE Amount

Total 

FTE Amount FTE

Amou

nt FTE Amount FTE Amount

Resource Protection & Law 

Enforcement 137 27,170 137 27,024 +259 +0 +1 +0 138 27,283 +1 +259

Hazardous Materials Mgt 97 16,749 97 16,641 +182 +0 +0 +0 97 16,823 +0 +182

Total, Resource Protection & 

Maintenance 534 101,652 534 101,544 +1,013 +0 +9 +4,000 543 106,557 +9 +5,013

Transportation & Facilities Maintenance

Deferred Maintenance & Capital 

Improv. 56 30,037 56 29,960 +120 +1,039 +17 +1,250 73 32,369 +17 +2,409

Annual Maintenance & Ops Cost 288 41,453 288 41,160 +532 +0 -11 +0 277 41,692 -11 +532

Total, Transportation & Facilities 

Maintenance 344 71,490 344 71,120 652 1,039 +6 1,250 350 74,061 +6 2,941

Total, Land and Resources Information 

Systems 0 0 96 15,827 +0 -15,827 +0 +0 0 0 -96 -15,827

Total, Nat'l Monuments & Nat'l Cons. 

Areas 259 32,088 259 31,819 +489 +0 +2 +6,044 261 38,352 +2 +6,533

Total, Challenge Cost Share 6 2,588 17 7,455 +22 +0 +0 +0 17 7,477 +0 +22

Workforce & Organizational Support

Information Systems Operations 0 0 56 14,673 +0 -14,673 -56 +0 0 0 -56 -14,673

Administrative Support 349 49,488 349 49,130 +648 +0 -11 +1,000 338 50,778 -11 +1,648

Bureauwide Fixed Costs 0 94,169 0 91,161 -6,424 +0 +0 +8,164 0 92,901 +0 +1,740

Information Technology Management 152 27,638 0 [27,500] +268 +27,500 +130 -2,072 130 25,696 +130 +25,696

Total, Workforce & Organizational 

Support 501 171,295 405 154,964 -5,508 +12,827 +63 +7,092 468 169,375 +63 +14,411

Mining Law Administration

Mining Law Administration 331 39,696 331 39,696 +0 +0 -14 +0 317 39,696 -14 +0

Offsetting Fees 0 -39,696 0 -39,696 +0 +0 +0 +0 0 -39,696 0 +0
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources Page VII - 28

Summary of Requirements

(Dollars in Thousands)

2013 Full Year CR 2012 Enacted

Fixed 

Costs

Internal 

Transfers

Program Changes

(+/-)

2014 President's 

Budget

Change From 2012 

Enacted

Total FTE Amount

Total 

FTE Amount FTE Amount FTE Amount FTE Amount

Total, Mining Law Administration 331 0 331 0 +0 +0 +8 +0 317 0 -14 +0

Other Reimbursables 

($ are non-add) 181 0 181 0 +0 +0 +0 +0 181 0 +0 +0

Transfers 

Total, Management of Lands and 

Resources* 6,353 966,238 6,438 960,361 +4,052 +1,039 +424 +14,776 6,475 980,228 +64 +19,867
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 29

Bureau of Land Management

Justification of Fixed Costs and Internal Realignments

Management of Lands and Resources (MLR)

(Dollars In Thousands)

Other Fixed Cost Changes and Projections 2012 Total 

or Change

 2012 to 2014

 Change

Change in Number of Paid Days - +1,924 

The combined fixed cost estimate includes an adjustment for one additional paid day between FY2012 and FY2013. The 

number of paid days do not change between FY2013 and FY2014.

Pay Raise - +5,706 

The PY column reflects the total pay raise changes as reflected in the the PY President's Budget. The BY Change column 

reflects the total pay raise changes between FY2012-FY2014.

Employer Share of Federal Health Benefit Plans +2,726 +2,846 

The change reflects expected increases in employer's share of Federal Health Benefit Plans.

Departmental Working Capital Fund 26,505 -1,104 

The change reflects expected changes in the charges for centrally billed Department services and other services through the 

Working Capital Fund. These charges are displayed in the Budget Justification for Department Management.

Worker's Compensation Payments 8,841 +270 

The adjustment is for changes in the costs of compensating injured employees and dependents of employees who suffer 

accidental deaths while on duty. Costs for the BY will reimburse the Department of Labor, Federal Employees Compensation 

Fund, pursuant to 5 U.S.C. 8147(b) as amended by Public Law 94-273.

Unemployment Compensation Payments 7,785 -2,033 

The adjustment is for projected changes in the costs of unemployment compensation claims to be paid to the Department of 

Labor, Federal Employees Compensation Account, in the Unemployment Trust Fund, pursuant to Public Law 96-499.

Rental Payments 55,326 -3,557 

The adjustment is for changes in the costs payable to General Services Administration (GSA) and others resulting from 

changes in rates for office and non-office space as estimated by GSA, as well as the rental costs of other currently occupied 

space. These costs include building security; in the case of GSA space, these are paid to Department of Homeland Security 

(DHS). Costs of mandatory office relocations, i.e. relocations in cases where due to external events there is no alternative but to 

vacate the currently occupied space, are also included.
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 30

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Land Resources

Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 31

Activity: Land Resources

2013 

Full 

Year 

CR

2012 

Enacted1

2014

Change 

from 

2012 

Enacted

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Internal 

Transfers 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Soil, Water & 

Air Mgt.

$ 44,477 46,229 +467 +0 +8,126 54,822 +8,593

FTE 248 262 +0 +0 -14 248 -14

Rangeland 

Mgt.

$ 81,490 87,392 +1,275 +0 -13,565 75,102 -12,290

FTE 665 688 +0 +0 -46 642 -46

Grazing 

Administrative 

Fee 

Collections 

$ 0 0 0 0 +6,500 6,500 +6,500

FTE 0 0 0 0 +50 50 +50

Grazing 

Administrative 

Fee Offset

 (Proposed) $ 0 0 0 0 -6,500 -6,500 -6,500

Forestry Mgt. $ 6,318 9,714 +124 +0 +0 9,838 +124

FTE 53 81 +0 +0 +0 81 +0

Riparian Mgt. $ 22,874 22,682 +327 +0 +1,000 24,009 +1,327

FTE 174 174 +0 +0 +0 174 +0

Cultural 

Resources 

Mgt. 

$ 16,234 16,105 +224 +0 +0 16,329 +224

FTE 119 119 +0 +0 +0 119 +0

Wild Horse & 

Burro Mgt. 

$ 77,072 74,888 +325 +0 +2,032 77,245 +2,357

FTE 173 173 +0 +0 +0 173 +0

Total Activity $ 248,465 257,010 +2,742 +0 -2,407 257,345 +335

FTE 1,432 1,497 +0 +0 -10 1,437 -10 1

Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

JUSTIFICATION OF 2014 PROGRAM CHANGES

The 2014 budget request for the Land Resources activity is $257,345,000 and 1,437 FTE, a 

program change of -$2,407,000 and -10 FTE from the 2012 enacted level.

ACTIVITY DESCRIPTION

This activity provides for integrated management of public land renewable and cultural 

resources. The BLM manages these resources on a landscape basis, with each program 

contributing to the overall health of the land. Conserving, restoring, and sustaining the health of 
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 32

the land is the foundation for the BLM’s renewable resources management and is key to the 

agency’s long-term strategic vision. Livestock grazing, timber harvesting and other resource 

uses can be sustained over time only if the land is managed to restore and/or sustain a healthy 

condition.

The programs in this activity, in concert with other BLM programs, work together to support the 

BLM’s mission by providing renewable resources, commercial and recreational uses, and 

aesthetic benefits through healthy forests, healthy rangeland ecosystems, functioning 

watersheds, and properly functioning riparian habitat. The BLM provides forage for livestock, 

protects cultural values, and maintains thriving wild horse and burro herds. 
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 33

Activity: Land Resources

Subactivity: Soil, Water & Air Management

2013 

Full 

Year 

CR

2012 

Enacted1

2014

Change 

from 2012 

Enacted

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Internal 

Transfers 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Soil, Water & Air Mgt. 

($000) 44,477 46,229 +467 +0 +8,126 54,822 +8,593

FTE 248 262 +0 +0 -14 248 -14 1

Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

Summary of 2014 Program Changes for Soil, Water & Air Management

Request Component ($000) FTE

Program Changes:

• Youth in the Great Outdoors +1,250 0

• Applied Science +2,500 0

• Klamath Basin Restoration +500 0

• Cooperative Landscape Conservation/REAs +776 0

• Climate Adaptation - Vegetation Survey +500 0

• Climate Adaptation - Landscape Decision Tool +500 0

• Climate Adaptation - Coordination Pilot/Sage Grouse +1,000 0

• America's Great Outdoors Demonstration Landscapes +1,100 0

TOTAL, Program Changes +8,126 0

JUSTIFICATION OF 2014 PROGRAM CHANGES

The 2014 budget request for the Soil, Water & Air Management Program is $54,822,000, and 

248 FTE, a program change of +$8,126,000 and -14 FTE from the 2012 enacted level. 

Youth in the Great Outdoors (+$1,250,000/0 FTE) – The 2014 budget request includes a $1.3

million increase for the Secretary’s Youth Initiative in the Soil, Water & Air Management 

Program. Funding will allow the BLM to expand efforts to educate, engage, and employ young 

people. Special consideration will be given to those programs that provide youth from diverse 

backgrounds with hands-on learning in Science, Technology, Engineering, and Mathematics 

(STEM), and prepare them for careers in STEM fields.

Applied Science (+$2,500,000/0 FTE) – The 2014 budget request includes a $2.5 million 

increase for applied science. This funding increase will be directed to efforts aimed at informing 

the development and effective implementation of management strategies.

 

Klamath Basin Restoration Agreement (+$500,000/0 FTE) – The 2014 budget request 

includes an increase of $500,000 for activities related to the Klamath Agreements that are 

authorized under existing law. The BLM is collaborating with other Federal agencies and 

stakeholders on this effort. Funds will support planning, technical analyses, and interagency 

coordination efforts. 
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 34

Cooperative Landscape Conservation/REAs (+$776,000/0 FTE) – The 2014 budget request 

includes a $776,000 increase for Cooperative Landscape Conservation/Rapid Ecoregional 

Assessments to evaluate the first seven REAs and develop decision models for how managers 

can effectively use data from the Rapid Ecoregional Assessments and other large scale 

assessments to answer critical management questions.

Climate Adaptation (+$2,000,000/0 FTE) – The 2014 budget request for Soil, Water & Air 

Management includes a $2.0 million increase for three climate adaptation efforts (listed in the 

table above) that aim to fill data gaps for climate adaptation planning, provide decision support 

for invasive species management, and support regional coordination by aligning bureau and 

interagency resources and actions in the Great Basin. These efforts include: 

• Vegetation surveys ($500,000): As part of the effort to determine vulnerabilities, the 

Interagency Land Management Adaptation Group identified the incomplete coverage of 

vegetation inventories as a major gap for adaptation planning. The BLM has taken the 

lead and is coordinating with NRCS, USFS and USGS to develop a plan to extend 

existing vegetation surveys to cover all lands in the lower 48 States, to synthesize data 

from the major surveys to support preparation of regional analyses across all vegetation 

communities, and to use the data to enhance the accuracy of LANDFIRE. The resulting 

information will provide baseline data essential for adaptation planning and will allow 

agencies to more systematically monitor changes in vegetation, including trends in biocarbon sequestration. 

• Regional coordination pilot/sage grouse ($1,000,000): There is considerable groundlevel work necessary to ensure DOI bureaus and their partners in the field are able to 

turn information and strategy into coordinated, effective management actions that build 

resilience to changing conditions. 

The Great Basin faces numerous land health stressors, is well-suited for the 

development of renewable energy, and will soon have the benefit of a Rapid Ecoregional 

Assessment for climate-related information and science. There is also an existing interbureau collaboration regarding sage grouse habitat, and engagement from the Great 

Basin Landscape Conservation Cooperative, the Northwest and Southwest Climate 

Science Centers and NOAA. Aligning bureau and interagency resources and actions in 

this region will provide a model for regional climate adaptation coordination that can be 

exported to the large landscape demonstration areas of the America’s Great Outdoors 

initiative, and may inform the eventual expansion of the AGO portfolio. This effort would 

be led by the BLM with ongoing participation from other Interior bureaus and partner 

agencies. 

• National landscape decision tool pilot ($500,000): Analytical tools must be designed 

to help predict the spread of invasive species on lands and waters managed by the 

Department. The Department’s Landscape Decision Tool (LDT) provides a common 

platform for such tools. Though it has been populated with an extensive collection of 

Department databases, the predictive tools have not yet been built or acquired to 

anticipate the spread of invasive species and predict the outcomes of management 

actions. The Department will develop the analytical tools that take advantage of this 

storehouse of information to provide decision support for managers and their partners. 
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 35

America’s Great Outdoors Demonstration Landscapes (+$1,100,000/0 FTE) – The 2014 

budget request includes a $1.1 million increase to support integrated, multi-partner, landscapescale restoration efforts, including restoration of sage-grouse habitat. Additional information on 

this effort can be found in the Crosscutting Programs section.

PROGRAM OVERVIEW

The Soil, Water & Air Management Program supports a significant number of BLM activities, 

including energy development, endangered species recovery, grazing, recreation, and fire 

rehabilitation, that rely on the management of soil, water and air resources. The Soil, Water & 

Air Management Program collects the soil, water, and air resource data needed to manage 

natural resources effectively, and applies expertise to assess, sustain, protect, and improve the 

productivity and health of public lands. The program relies heavily on collaborative partnerships 

with other Federal agencies, State, tribal, and local governments, and other entities to improve 

and enhance watershed, landscape, and airshed conditions. 

The Soil, Water & Air Management Program is responsible for:

• Ensuring compliance with anti-pollution laws such as the Clean Water Act and the Clean 

Air Act;

• Conducting soil surveys to understand soil distribution, properties, and responses to 

various uses, and to understand important climate change processes such as land 

carbon sequestration;

• Developing ecological site descriptions to understand the processes that influence the 

type and amount of vegetation within defined landscapes;

• Monitoring and managing soils to support land-health standards, sustain plant and 

animal productivity, maintain water and air quality, and reduce threats to human health 

and safety;

• Monitoring water resource trends and acquiring and protecting Federal water rights to 

ensure adequate quantities of water for public-land management purposes;

• Monitoring water quality and implementing appropriate best-management practices to 

promote functioning aquatic ecosystems;

• Reducing salt discharge to waters in order to ensure usable water supplies for millions of 

downstream users;

• Assessing impacts to air quality, visibility, noise, and climate; and

• Reporting greenhouse gas emissions as required under Executive Order 13514.

Means and Strategies

• The Soil Water & Air Management Program will continue to promote watershed function 

and soil stability as the means to achieve BLM performance goals. Priority will be placed 

on providing land managers with access to the expertise needed to identify, monitor, and 

assess the environmental effects of actions and decisions.

• A five-year water-resource strategy will be developed in 2013 and completed in 2014.

Continuing drought conditions threaten to increase soil erosion, air quality problems, and 

water shortages. The Soil, Water and Air Program is developing the water strategy with 

these threats at the forefront, and is working with other BLM programs to develop 

strategies to manage resources under persistent drought conditions 

• Revised manual sections for soils were completed in 2008 and for air resources in 2009. 

The BLM will complete draft manual sections for water rights and water quality in 2013. 
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 36

• A five-year air-resource management strategy was developed in 2012 to improve the 

effectiveness of air resource management methodologies. The strategy has resulted in 

the development of a robust air program at the BLM, with the installation of air 

monitoring equipment, support of regional air quality data collection through a State 

consortium, and support of regional air modeling. 

• The Department of the Interior, the Department of Agriculture, and the Environmental 

Protection Agency developed a Memorandum of Understanding 

(MOU) in 2011 to improve approaches for analyzing air-quality 

impacts from oil and gas development projects on Federal lands. 

The Air MOU implementation team is actively working to resolve 

resource issues.

• The BLM, the U.S. Forest Service, and the Natural Resources 

Conservation Service issued an interagency manual for 

developing and using rangeland ecological site descriptions 

(ESD) in 2010. The BLM Soil, Water & Air Management, 

Rangeland Management, Riparian Management, and Resource 

Management Planning programs collaborate to develop ESDs. 

These ESDs are geospatial repositories of information about how 

vegetation responds to changes in management and climate. The interagency manual 

ensures agencies develop consistent products that promote resource management on a 

landscape scale.

Critical Factors

The BLM addresses a number of critical factors in its Soil, Water and Air Program. These 

include the following:

• Climate change and its potential to alter: landscapes; the quantity, quality, and 

distribution of water resources; soil quality; air quality; vegetation and wildlife habitat; 

and associated socioeconomic values.

• Uncertainties regarding groundwater flows, soil properties, and air resource impacts that 

in many areas complicate decision making.

• The EPA’s issuance of a new rule for fine particulate matter (PM2.5) in December, 2012. 

The new annual standard has been decreased from 15 to 12 micrograms per cubic 

meter. BLM resources in California and Nevada, in particular, could be affected due to 

the high concentrations of particulate matter already present in the area from agricultural 

dust and vehicle emissions. The BLM may need to monitor additional areas for PM2.5 

and continue to reduce sources of fine particulate matter, especially in locations near or 

adjacent to areas that have persistently been at or near the annual standard.

Demands and Trends 

The following are some of the significant demands and trends facing the Soil, Water & Air 

Management Program:

• The development of renewable energy on public lands is a priority. Hydrologists, soil 

scientists, and air resource specialists are needed to assess and manage the resource 

impacts associated with this development. 

• Greater water demands for economic development and ecosystem requirements are 

increasing the need to perfect and protect Federal water right interests. 
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 37

• Stricter air-quality standards and visibility regulations are increasing the workload and 

technical demands associated with ensuring that activities that emit dust, ozone, and 

other pollutants comply with the Clean Air Act.

• Increasing landscape disturbances magnify the challenges associated with meeting 

applicable water-quality standards.

2014 PROGRAM PERFORMANCE

The Soil, Water & Air Management Program will continue to make progress towards key 

performance goals in 2014. Primary focus areas will include:

Water Quality - Improving or maintaining water quality on public lands remains an important 

objective. Efforts will continue to focus on requiring best management practices for new land 

use activities, changing traditional management practices where appropriate, and restoring 

degraded watershed function. 

Ecologic Site Descriptions - ESDs are considered the best analytical approach for predicting 

how vegetation will respond to changes in management or climate conditions at the local and 

landscape scales. The BLM is considering two new projects to aid in the development of ESDs 

for sage-grouse habitat management and energy development planning. In 2014, the BLM will 

also complete the development of two on-line training modules to address ESD development 

and uses as they relate to soils.

Water Rights – Demands for processing water rights actions and related litigation activities are 

expected to remain high. A typical workload ranges between 3,000 and 5,000 actions per year.

Colorado River Salinity Control - Efforts to reduce the transport of salt to the Colorado

River will continue in 2014. The BLM annual performance goal associated with the Colorado 

River Salinity Control Program aims to reduce the transport of salt from public lands into the 

Colorado River system by approximately 10,000 tons from new projects. 

Air Resources – The BLM expects to increase monitoring and assessment work in 2014 by 

approximately 10 percent above 2012 levels. 

Groundwater Resources - Efforts to understand and predict the impacts of renewable energy 

projects on groundwater will continue in 2014.

New in the 2014 performance will be the inclusion of data from the State of Alaska, which had 

been underrepresented in the past due to the challenges of calculating and assessing remote 

rivers and lakes. Improvements in inclusion and access to data from the National Hydrologic 

Database and GIS mapping have allowed for the incorporation of Alaska data at this time.
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 38

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Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 39

Activity: Land Resources

Subactivity: Rangeland Management

2013 

Full 

Year 

CR

2012 

Enacted1

2014

Change 

from 

2012 

Enacted

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Internal 

Transfers 

(+/-)

Program 

Change

s 

(+/-)

Budget 

Request

Rangeland Mgt. ($000) 81,490 87,392 +1,275 +0 -13,565 75,102 -12,290

FTE 665 688 +0 +0 -46 642 -46

Other Major 

Resources:

Grazing Administrative 

Fee Collections 

(Proposed) 0 0 +0 +0 +6,500 6,500 +6,500

Grazing Administrative 

Fee Collections - Offset 0 0 +0 +0 -6,500 -6,500 -6,500

FTE 0 0 +0 +0 +50 50 +50 1

Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

Summary of 2014 Program Changes for Range Management

Request Component ($000) FTE

Program Changes:

• Grazing Permit Renewal and Monitoring -14,065 -46

• Climate Adaptation - Invasive Species +500 0

• Grazing Administrative Processing Fee Collection (Proposed, with offset) [+6,500] +50

TOTAL, Program Changes -13,565 +4

JUSTIFICATION OF 2014 PROGRAM CHANGES

The 2014 budget request for the Rangeland Management Program is $75,102,000 and 642 

FTE, a net program change of -$13,565,000 and +4 FTE from the 2012 enacted level.

Grazing Permit Renewal and Monitoring (-$14,065,000/ -46 FTE) – In 2012, the BLM 

received an increase in appropriations to address numerous challenges, including completion of 

grazing permit renewals, allotment monitoring, and quality environmental documents related to 

livestock grazing. In 2014, the BLM requests a reduction to this amount. The BLM will address 

similar issues by use of a permit administrative fee that will result in collections of $6.5 million in 

2014 (see Legislative Changes section below for a detailed description of the proposed 

administrative fee). 

Climate Adaptation – Invasive Species (+$500,000) – The 2014 budget request includes a 

$500,000 increase for climate adaptation efforts related to invasive species. Through climate 

adaptation funding, the BLM will collaborate on a regional Early Detection Rapid Response 

(EDRR) pilot in the Great Basin with the USFWS and other Interior agencies. With these funds, 

the BLM will map, inventory, and survey areas to gather detailed ecological data from areas 

where invasive plant species and other invasive species occur as well as from areas where 
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 40

invasive plants and other invasive species do not occur on BLM and other Department lands. 

Using this data, the BLM and FWSI can use predictive modeling to anticipate where future 

invasion may occur. 

Legislative Changes

Permit Administrative Processing Fee - The 2014 budget includes appropriations language 

for a three-year pilot project to allow the BLM to recover some of the cost of issuing grazing 

permits/leases on BLM lands. The BLM would charge an administrative fee of $1 per Animal 

Unit Month, which would be collected along with current grazing fees. The budget estimates the 

administrative fee will generate $6.5 million in 2014 that will assist the BLM in processing 

pending applications for grazing permit renewals. During the period of the pilot, the BLM would 

develop and promulgate regulations for the continuation of the administrative fee as a cost 

recovery fee after the pilot expires. 

SEC. 425. Beginning on March 1, 2014, and each subsequent year through February 28, 

2018, and only to the extent and in the amount provided in advance in appropriations 

Acts, the Secretary of Agriculture shall collect an annual administrative fee for grazing 

domestic livestock on National Forests in the 16 contiguous western States and on 

National Grasslands in the amount of $1.00 per head month for cattle and its equivalent 

for other livestock. The administrative fee shall be billed and collected using the process as 

provided in sections 222.50 through 222.52 of title 36, Code of Federal Regulations. Fees 

collected may be used, subject to appropriation, to offset the cost of administering the 

livestock grazing program. Nothing in this provision shall affect the calculation, collection, 

distribution, or use of the grazing fee under 43 U.S.C. 1751(b), title III of the Bankhead 

Jones Farm Tenant Act (7 U.S.C. 1010), and implementing regulations. In fiscal years 

2014–2017, beginning on March 1, 2014, and only to the extent and in the amount 

provided in advance in appropriations Acts, the Secretary of the Interior shall collect an 

administrative fee to offset the increased cost of administering the livestock grazing program 

on public lands managed by the Bureau of Land Management by charging $1.00 per 

Animal Unit Month, which shall be billed, collected, and subject to the penalties using the 

same process as the annual grazing fee in 43 C.F.R. 4130.8–1. Penalties assessed shall be 

deposited in the General Fund of the Treasury. Nothing in this provision affects the 

calculation, collection, distribution, or use of the grazing fee under 43 U.S.C. 315–315rr, 

43 U.S.C. 1751(b), 43 U.S.C. 1905, Executive Order 12548, or administrative regulation.

Extension of Grazing Permits – The 2014 budget includes the following General Provision 

language regarding the extension of grazing permits. The provision will allow BLM to focus 

permit renewal efforts on the most environmentally sensitive permits first, by allowing certain 

grazing preference transfers to be re-issued, under their existing National Environmental Policy 

Act (NEPA) analysis, for the remaining years left on the pre-transferred permit.

SEC. 424. The terms and conditions of section 325 of Public Law 108–108, regarding 

grazing permits at the Department of the Interior and the Forest Service, shall remain in 

effect for fiscal year 2014. A grazing permit or lease issued by the Secretary of the Interior for 

lands administered by the Bureau of Land Management that is the subject of a request for a 

grazing preference transfer shall be issued, without further processing, for the remaining time 

period in the existing permit or lease using the same mandatory terms and conditions. If the 

authorized officer determines a change in the mandatory terms and conditions is required 

the new permit must be processed as directed in section 325 of Public Law 108–108.

Additional General Provisions – The 2014 budget also includes the following two General 

Provision proposals. The first concerns exhaustion of the administrative review process, and the 
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 41

Ranchers serve as stewards to manage 

livestock grazing within the context of multiple 

use on 156 million acres of public land.

second concerns the trailing of livestock over public lands. 

SEC. 122. Paragraph (1) of Section 122(a) of division E of Public Law 112–74 is amended 

by striking "2012 and 2013 only," in the first sentence and inserting "2012 through 

2014,".

SEC. 123. Section 123 of division E of Public Law 112–74 is amended by striking "2012 

through 2013 only," in the first sentence and inserting "2012 through 2014," and by 

striking "review" in the first sentence and inserting "prepare".

PROGRAM OVERVIEW

Program Components

The Rangeland Management Program focuses on efforts to maintain or improve public land 

health through monitoring and land health evaluations; administration of grazing use through 10-

year permit renewals; development of grazing systems and range improvements; grazing permit 

compliance inspections; management of permittee, allotment and resource data; and 

management of invasive species and noxious weeds. Priorities are placed on processing the 

most environmentally sensitive permits first, in order to best manage livestock use and improve 

or maintain healthy land conditions. 

The BLM manages approximately 17,750 livestock grazing permits and leases on the public 

lands. Livestock grazing is an integral part of the BLM’s multiple use mission and is authorized 

by the Taylor Grazing Act (1934), the Federal Land Policy Management Act (1976), and the 

Public Rangeland Improvement Act (1978). 

Livestock grazing serves as an important tool in 

many areas to provide environmental benefits 

such as preservation of open space, reduced 

wildfire risks, and enhanced distribution of 

available water for wildlife. Ranchers often serve 

as the eyes and ears for public land managers 

and assist with public health and safety. They 

provide public lands information, report wildfires, 

assist in wildfire suppression when appropriate, 

restore land health, and assist in search and 

rescue operations. The BLM also leverages 

grazing receipts with funds from local 

permittees/lessees to construct range 

improvement projects (see the Range 

Improvement Account section for additional 

information). The 2011 DOI Economic Report 

shows that the BLM’s management of livestock grazing had a positive impact of $1.41 billion on 

the economy and supported 16,954 jobs nationwide. 

Noxious weed and invasive species management is a critical component of the Rangeland 

Management Program. Cooperative Weed Management Area partnerships and other 

cooperative efforts leverage funding to assist with weed inventory, land treatments, monitoring, 

and project work to improve land health. The BLM is also striving to create Coordinated Invasive 

Species Management partnerships to leverage partnerships that will target invasive species on 

the public lands.
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 42

Evaluating soils as part of a rangeland 

health evaluation in the Mojave Desert, 

Arizona

Critical Factors

Critical factors affecting the Rangeland Management Program include the following:

• A changing climatic regime, resulting in more frequent and severe floods and extended 

droughts, requires aggressive pursuit of adaptive management strategies.

• Frequent and severe wildfires have reduced the diversity of the western rangelands and 

have accelerated the spread of invasive species and noxious weeds.

• Changing and competing public demands require continuous assessment and 

modification of grazing practices and have made environmental reviews more complex.

• Development of public lands as part of the Secretary’s New Energy Frontier initiative for 

renewable and non-renewable energy and mineral resources may require mitigation 

efforts to offset loss of rangeland resources.

• Limited baseline data about soils, ecological sites, and factors associated with land 

health stressors, combined with limited monitoring data, have led to a large number of 

environmental lawsuits.

• Invasive and noxious weeds spreading over thirty-five million acres of BLM-managed 

lands require greater efforts to control and manage. 

• The complexity of permit processing has increased due to litigation, mitigation needs, 

changing NEPA requirements, severe weather patterns, drought, catastrophic fire and 

other multiple use public land challenges.

• Catastrophic outbreaks of grasshopper and Mormon Cricket populations that impact 

vegetation require emergency responses by the BLM and other Federal agencies. 

Means and Strategies

The Rangeland Management Program coordinates with 

other BLM programs and partner organizations to achieve 

integrated vegetation management at the landscape level. 

The recent consolidation of BLM Washington Office staff 

for forestry, rangeland management, riparian management, 

plant conservation, invasive weeds, and fire rehabilitation 

into a single vegetation management division has 

strengthened coordination across these individual 

programs. This consolidation has also allowed more 

effective policy development at a landscape scale. In this 

coordinated effort, the Rangeland Management Program is 

addressing critical factors through multiple avenues, 

including:

• Using eco-regional assessments to identify conservation, development, and restoration 

strategies;

• Monitoring the effectiveness of grazing management in achieving land use plan and 

activity plan objectives, and in meeting land health standards;

• Collecting core indicator data as outlined in the Assessment, Inventory and Monitoring 

Strategy in upland habitats and supporting landscape-level land health and condition 

monitoring;

• Conducting interdisciplinary land health evaluations on a watershed or landscape scale 

to help ensure a balanced approach to livestock grazing;
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 43

• Ensuring that land health considerations and resource conflicts are the primary factors 

used to prioritize allotments for processing livestock grazing permit renewals;

• Using the permit issuance process, the Allotment Management Plans, and the 

Coordinated Resource Management Plans (RMP) to ensure scientifically-based 

livestock grazing management;

• Tiering permit renewals to RMPs and larger-scale NEPA documents; 

• Conducting a business process review in consultation with the U.S. Forest Service to 

look for efficiencies in the permit renewal process;

• Coordinating with other programs to work towards a national land treatment geospatial 

dataset that documents the location of treatments on the landscape and tracks their 

effectiveness;

• Educating youth about the importance and complexity of rangeland resources;

• Leveraging program funds with other Federal, State, and local agencies, permittees, and 

non-governmental organizations to implement on-the-ground Healthy Landscape and 

invasive species and noxious weed projects;

• Continuing research efforts in the use of livestock as a tool to decrease fuel loads, 

especially annual cheatgrass, to prevent catastrophic wildfire and restore desirable 

perennial grasses and forbs; and

• Collecting and sharing weed inventory data with county, State, and Federal partners to 

identify weed infestation locations. 

Grazing Permit Renewal

In 2014, the BLM will continue to focus on processing the most environmentally sensitive 

grazing permits, including those authorizing grazing in priority sage-grouse habitat. Focusing on 

the most environmentally sensitive allotments will allow for increased land health assessment 

and quantitative data collection efforts; improve the usefulness of RMP/EIS and site-specific 

NEPA analyses; and result in grazing management decisions that guide land health solutions 

for the future. This strategy will assist in ensuring that the backlog of unprocessed permits 

consists of the least environmentally-sensitive allotments that are more custodial in nature or 

are already meeting land health standards. 

Chart 1

Chart 1 illustrates the status of processing grazing permits since 1999. Processing permits includes, at a 

minimum, NEPA and Endangered Species Act (ESA) compliance. Unprocessed permits are those issued 

in accordance with General Provisional language in Appropriations Acts.

0

2000

4000

6000

Number of Permits

1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012

Fiscal Year

BLM Annual Grazing Permit Renewal Status

Permits Expired Permits Fully Processed Permits in Unprocessed Status
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 44

AgroAxe cutting Saltcedar in New 

Mexico

Chart 2

Chart 2 illustrates the cumulative number of permits processed since 1999. The number of permits 

processed per year is greater than the number of permits administered because some permits have 

expired more than once since 1999.

The 2014 budget includes a proposal for a permit administrative fee and proposed General 

Provisions concerning grazing administration. These proposals will support and provide for 

increased efficiencies in permit processing. The 2014 General Provisions proposal related to 

grazing permit renewals specifies that a permit issued as a result of a grazing preference 

transfer can be issued for the remaining years of the pre-transferred permit, if there is no 

change in the mandatory terms and conditions required. This measure alone will reduce the 

permit renewal workload in 2014 by about 700 permits. 

Invasive Species and Weed Management 

Land areas that contain fire-adapted ecosystems and surface disturbance activities are most 

vulnerable to noxious weed and invasive species. The Noxious Weed and Invasive Species 

Management Program in the BLM’s Rangeland Management Program addresses these issues 

on BLM lands throughout the West. The BLM manages invasive species and weeds to improve 

habitat in the riparian areas that are critical to 60 percent of the wildlife species in semi-arid 

environments and to improve the terrestrial habitat areas that are critical for the Great SageGrouse. The BLM will prioritize and expand ongoing early detection and rapid response systems 

and implementation in areas that target invasive species that were previously unknown or 

limited in their expansion on public lands.

Internal and external partners are critical for the BLM to 

succeed in detecting, controlling, and managing noxious 

weeds and invasive species. The Partners Against 

Weeds Action Plan, Pulling Together, National Strategy 

for Invasive Plant Management, and the National 

Invasive Species Management Plan assist in education, 

prevention, inventory, and monitoring efforts while using 

an Integrated Pest Management approach to control and 

restore areas impacted by weeds and invasive species. 

The 2014 Department of Interior Invasive Species 

Strategy will provide DOI agencies further guidance for 

forming partnerships and leveraging resources across 

0

5000

10000

15000

20000

25000

30000

1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012

Number of Permits

Fiscal Year

BLM Cumulative Grazing Permit Renewal Status

Permits Expired Permits Processed Permits in Unprocessed Status
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 45

agencies. 

2014 PROGRAM PERFORMANCE

Permit Renewal: The BLM will continue to prioritize permit renewals based on environmental 

sensitivities and continue to review and use existing NEPA analyses as appropriate. When 

necessary, the BLM will supplement or tier to existing NEPA to address changes or analyze 

new information. The BLM will continue to emphasize the collection of quantitative resource 

data for more defensible decisions, and will work closely with stakeholders, local governments, 

and the public during allotment plan development, evaluations, and the NEPA process. 

The BLM will use authorities provided in the proposed 2014 General Provisions to continue to 

process the most environmentally sensitive grazing permits. The BLM also plans to use the $6.5 

million collected under the proposed permit administrative fee to process 235 grazing permits 

and leases, monitor 200 allotments, assess 1.5 million acres of watersheds, and complete 185 

land health evaluations. The grazing permit/lease processing work is included within DOI 

Strategic Measure ‘Percent of grazing permits and leases processed as planned consistent with 

applicable resource management plans.’ Barring another catastrophic fire season in 2014, BLM 

field offices should be able to utilize the monitoring and land health assessment data collected 

from the past few years to complete the NEPA and other work related to grazing permits 

renewals.

Noxious and Invasive Weeds and other invasive species: The BLM will continue to 

inventory invasive and noxious weeds and other invasive species infestation on BLM lands. The 

BLM will identify and treat high-priority areas and monitor treated areas to determine the 

effectiveness of treatments. These efforts contribute to the DOI Strategic Measure ‘Percent of 

baseline acres infested with invasive plant species that are controlled.’ 

Land Health Assessment and Monitoring: BLM-managed rangelands are assessed and 

monitored to direct management actions to areas not meeting desired conditions. Data collected 

during rangeland assessment and monitoring activities are used as one component in 

determining the DOI Strategic Measure ‘Percent of DOI acres that have achieved desired 

conditions where condition is known and as specified in management plans.’ 

Land Restoration: Land treatments and project completion data will be used to determine the 

DOI Strategic Measure ‘Number of DOI acres restored to the condition specified in management 

plans’.
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 46

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Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 47

2013 

Full 

Year 

CR

2012 

Enacted1

2014

Change 

from 

2012 

Enacted

(+/-)

Fixed 

Costs & 

Related 

Change

s 

(+/-)

Internal 

Transfers 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Forestry Mgt. ($000) 6,318 9,714 +124 +0 +0 9,838 +124

FTE 53 81 +0 +0 +0 81 +0

Other Major Resources:

Timber Contract Expense 20 67 +0 +0 +0 20 -47

Forest Ecosystem Health & 

Recovery2 6,043 6,437 +0 +0 +0 4,576 -1,861

Transfer: USFS Forest Pest 

Control2 556 522 +0 +0 +0 522 +0 1

Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates. 2

Funds are used on both Public Domain Forest land and Oregon & California Grant Lands

The 2014 Budget Request for the Public Domain (PD) Forestry Management Program is 

$9,838,000 and 81 FTE. 

PROGRAM OVERVIEW

Program Components 

The PD Forest Management Program manages and conserves 58 million acres of forests in 12 

western States, including Alaska. The PD Forests have broad uses and serve many Americans, 

both directly and indirectly. Forests store and filter water for aquifers and reservoirs; offer 

opportunities for recreation; provide habitat for thousands of species; support timber and other 

jobs; provide millions of board feet of lumber and thousands of tons of biomass for alternative 

energy. Maintaining resilient forest and woodlands also plays an important role in carbon 

sequestration and providing clean air. According to the Department of the Interior’s 2011 

Economic Impact Report, timber harvested from PD forests supported $120 million in economic 

activity in 2011 and biomass from BLM forests has become part of the feedstock that meets 

various State and Federal renewable energy portfolio standards.

In coordination with other vegetation management programs, the PD Forest Management 

Program seeks large landscape approaches to managing land resources. The program 

maintains and improves the resilience of forest and woodland ecosystems. Density 

management through timber sales and stewardship contracts is essential to maintaining resilient 

forests. The program also administers various requirements of the Department of the Interior 

such as regulation, accounting and record keeping, volume estimation, appraisal, and permitting 

of vegetative materials under the Materials Act of 1947.

Healthy, resilient forests provide habitat for a variety of flora and fauna, including white bark 

Activity: Land Resources

Subactivity: Public Domain Forest Management
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 48

pine, an Endangered Species Act (ESA) candidate currently classified as “warranted, but 

precluded.” To maintain health and productivity, many forests require active management. A 

century of wildfire suppression has left forests choked with fuels that contribute to costly, 

catastrophic fires, while changing climate and drought reduces the resiliency of the forests and 

leaves the trees vulnerable to damage from insects and disease.

The BLM leverages Forest Ecosystem Health and Recovery funding, USDA Forest Health 

Protection funding, and stewardship authority to maximize program accomplishments. The 

program also coordinates with the Wildland Fire Management Program to leverage funds for 

hazardous fuels reduction projects.

Critical Factors

Approximately 14 million acres (or 24 percent) of PD forests are overstocked and at increased 

risk of insect and disease attacks and catastrophic wildfire. Prime among these risks are an 

invasive fungus, white pine blister rust, and the mountain 

pine beetle, which has infiltrated the colder altitudes where 

whitebark pine thrives. The U.S. Fish and Wildlife Service 

(FWS) judges that these factors, along with fire and 

warming climate, undermine species’ viability and may 

cause the whitebark pine to disappear within two to three 

generations. 

Economic conditions have negatively affected the PD Forest 

Management Program. Since most forest health treatments 

are accomplished through the sale of timber and byproducts resulting from the treatment, the closing of 

sawmills, paper mills, and other traditional purchasers of 

forest product raw materials increases the BLM’s cost of 

conducting treatments and restoration on a per acre basis. Economic conditions, including high 

unemployment and increasing energy prices, increases the demand for firewood in areas such 

as New Mexico leading to significant increases in illegal harvesting of trees.

Means and Strategies

The BLM coordinates the strategies of PD Forest Management with other BLM programs and 

partner organizations to achieve integrated vegetation management at the landscape level 

using a corporate approach to managing ecosystem functions and services by emphasizing 

shared on-the-ground vegetation goals across 

programs, processes, and scales.

BLM integrated the national-level coordination of 

vegetative management, including forestry, 

rangeland management, riparian management, plant 

conservation, invasive weeds, and fire rehabilitation 

into a cohesive team that leverages resources to 

make policy development more collaborative at a 

landscape scale. In this coordinated effort, the BLM

is addressing forest management critical factors 

through multiple activities, including using results 

Foresters treat a 300-year old 

Whitebark Pine in Montana, 

protecting it from beetle attack

Drought, Wildfire, and Forests

Extreme drought and drought-fueled 

wildfires plagued much of the West over 

the past decade, impacting forest health 

and local economies. In 2012, fire 

impacted over 287,000 acres of BLM 

forest and 1.7 million acres of forest 

mortality occurred due to bark beetles 

and insect attack. Many of these acres 

are salvageable for timber, which clears 

the way for reforestation.
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 49

Warming Homes and Holidays While 

Conserving Forests

In 2012, the BLM permitted cutting 

37,746 cords of firewood and 10,885 

Christmas trees in the PD Forests. This 

harvesting provides valuable fuel 

resources to the public and supports 

holiday celebrations, while maintaining a 

healthy forest landscape.

from the BLM’s Rapid Ecoregional Assessment process to identify focal areas for forest 

management activities at the ecoregional scale. 

The PD Forest Management Program achieves land use goals by:

• Implementing restoration projects to improve forest health and resilience, which 

increases resilience to wildfires, disease, drought, invasive pests, and climate change at 

the landscape scale; 

• Salvaging dead and dying timber to promote forest health and reduce hazardous fuels, 

in balance with the need for wildlife habitat, watershed function, and soil stability, while 

supporting local economies;

• Providing the public with commercial and 

personal use opportunities to harvest 

products such as firewood, Christmas trees, 

and pinyon pine nuts from forests; 

• Inventorying 58 million acres of forest 

resources through a national database;

• Utilizing the Good Neighbor authority in 

Colorado to achieve forest health treatments 

on a landscape level across BLM and State 

lands to increase forest resiliency;

• Implementing stewardship agreements which exchange harvested forest products for 

the forest health treatments and use matching funds to treat greater acreage;

• Partnering with the U.S. Forest Service, the Department of Energy, State agencies, and 

private parties to develop and implement the Coordinated Resource Offering Protocol 

tool to provide web-based information on biomass removal opportunities for investors to 

use when considering bio-energy development investment opportunities; and

• Supporting renewable energy goals by promoting the direct conversion and use of 

woody biomass for energy within BLM-owned facilities, as a part of an interagency 

bioenergy facility initiative.

2014 PROGRAM PERFORMANCE

The BLM will accomplish this through sales and stewardship contracts to achieve desired future 

conditions on the 58 million acres of forests and woodlands in the public domain, offering 

economic benefits present and managing forest health for the future.

In FY 2014, the Public Domain Forest Management Program will:

• Offer 100,000 tons of green biomass, compared to 146,000 tons in 2012.

• Offer 25 MMBF of timber and other forest products for sale, compared to 35.6 MMBF in 

2012.

• Offer 20 Stewardship Contracts, compared to 26 in 2012.

• Restore and treat through sales 15,000 acres compared to 20,300 acres in 2012.

• Inventory 100,000 forest and woodland acres compared to 111,000 in 2012.

• Monitor and evaluate treatments on 12,000 acres of forests and woodlands compared to 

18,000 acres in 2012.
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 50

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Activity: Land Resources

Subactivity: Riparian Management

2013 

Full 

Year 

CR

2012 

Enacted1

2014

Change 

from 

2012 

Enacted

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Internal 

Transfers 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Riparian Mgt. ($000) 22,874 22,682 +327 +0 +1,000 24,009 +1,327

FTE 174 174 +0 +0 +0 174 +0 1

Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

Summary of 2014 Program Changes for Riparian Management

Request Component ($000) FTE

Program Changes:

• Applied Science +1,000 0

TOTAL, Program Changes +1,000 0

JUSTIFICATION OF 2014 PROGRAM CHANGES

The 2014 budget request for the Riparian Management Program is $24,009,000 and 174 FTE, a 

program change of +$1,000,000 and 0 FTE from the 2012 enacted level. 

Applied Science (+$1,000,000/0 FTE) – The 2014 budget request includes a $1.0 million 

increase for science-related crosscutting initiatives. Funds for applied science work in the 

riparian program will focus on developing a landscape approach for managing riparian and 

wetland resources. It will pilot the use of aquatic core indicators alongside of the terrestrial core 

indicators for collecting scientific information on condition and trend of riparian and wetland 

areas with cooperators and across jurisdictional boundaries. Results will be improved 

management and restoration of these areas in the face of droughts, wildfire, weed and other 

invasive species and pressures from urban growth and development, especially on grazed 

functioning at risk habitats for sage-grouse. 

PROGRAM OVERVIEW

Program Components

Riparian-wetland areas are important components in every landscape type. In the arid West, 

these moist, green areas are especially critical to sustaining multiple ecosystem functions and 

services, providing terrestrial and aquatic wildlife habitat, reducing erosion, improving water 

quantity, and providing recreational opportunities. Although they are a small component of 

landscapes in the arid West, the diversity of uses and functions of riparian-wetland resources 

and their geographical position on the landscape make these areas indicators of overall 

ecosystem function. Healthy riparian areas play a prominent role in the Bureau’s ability to 

maintain sage-grouse populations in the West, providing shelter from predators and supplying 

the critical foods necessary for the species’ survival. Riparian areas also help prevent the 

spread of wildfires. The BLM’s Riparian Management Program provides the framework for 
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 52

inventorying, assessing, monitoring, and 

managing over 150,000 miles of riparian areas 

and nearly 13 million acres of wetlands. In 

coordination with the other BLM programs, the 

Riparian Management Program pursues a 

landscape approach to managing BLM 

vegetation resources.

Critical Factors

A number of external factors impact the 

Riparian Management Program, requiring the 

reallocation of resources and the reevaluation 

of priorities. Some of these external factors 

include:

• A changing climatic regime resulting in 

more frequent and severe floods and 

extended droughts, and requiring 

aggressive adaptive management 

strategies.

• Growing demands upon water 

resources and impacts from land-use 

changes, which increase monitoring 

workloads and necessitate adaptive management strategies. 

• Development of public lands as part of the New Energy Frontier, requiring mitigation 

efforts to offset water discharge, water pollution, and water loss.

• Spread of invasive terrestrial and aquatic species, such as tamarisk and quagga 

mussel, requiring additional monitoring and treatment to prevent degradation of 

functioning ecosystems and native plant and animal communities.

• Increasing urgency to restore and protect habitats as the number of sensitive and 

special status species grows. Many of these species, including sage-grouse, southwest 

willow flycatcher, cutthroat trout, and bullhead trout, have a critical nexus with riparian 

resources.

• Urban growth and increasing public use of riparian-wetland areas, requiring additional 

monitoring to detect degradation from trails, transportation routes, and visitor use 

activities and to prioritize restoration activities.

• Catastrophic wildfires that negatively impact riparian resources, increasing the workload 

associated with stabilizing and rehabilitating burned areas and with monitoring treatment 

success, land condition, and trends.

Means and Strategies

To better achieve program goals and provide improved management of public lands, the BLM 

has adopted a corporate approach to managing ecosystem functions and services by 

emphasizing shared on-the-ground vegetation goals across programs, processes, and scales. 

The Washington Office forestry, rangeland management, riparian management, plant 

conservation, invasive weeds, and fire rehabilitation staff have recently been combined into a 

single, vegetation management division. This merger allows more efficient, coordinated work 

across these individual programs, with vegetation specialists working together to develop policy 

at a landscape scale. In this coordinated effort, the Riparian Management Program is 

The Creeks and Community Strategy, initiated at the 

Upper Missouri River Breaks National Monument in 

2008, facilitates discussions with stakeholders 

regarding riparian conditions, current management 

approaches, and trends along the Upper Missouri 

River. Stakeholders have participated in riparian 

assessments and on-site discussions concerning 

resource conditions. Collaborative learning (as 

shown above) has improved the relationship 

between the BLM and various stakeholders groups 

on the Upper Missouri River.
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 53

addressing critical factors through multiple activities, including:

• Incorporating Rapid Ecoregional Assessment information, where appropriate, into 

riparian-wetland planning and management activities; 

• Implementing riparian restoration in high-priority focal areas using step-down strategies 

developed from the BLM’s Landscape Approach for managing Public Lands;

• Conducting qualitative Proper Functioning Condition assessments and Multiple 

Indicators Monitoring in coordination with land health assessments on a watershed or 

landscape-scale basis;

• Collecting core indicator data per the Assessment, Inventory and Monitoring Strategy to 

begin devising a quantitative, statistically-robust methodology for landscape-scale 

monitoring; 

• Prioritizing riparian treatments in areas functioning at risk, in order to protect sagegrouse and ecologically important plant and animal communities;

• Coordinating with the Fisheries Management and Soil, Water & Air Management 

Programs to devise cross-cutting, watershed-scale strategies and policies that will 

address water resource impacts from drought, development, and other stressors;

• Completing on-the-ground restoration projects 

using funds provided by the Clean Water and 

Watershed Restoration Act;

• Educating youth about the importance and 

complexity of riparian-wetland resources;

• Capturing legacy and new assessment and 

monitoring data into a national geospatial 

dataset in order to more efficiently analyze and 

report on the conditions and trends of riparian 

resources; 

• Coordinating with other BLM programs to work 

toward a land-treatments national geospatial 

dataset to document the location and 

effectiveness of treatments on the landscape;

• Using the interagency Creeks and Communities 

Strategy to cooperate with diverse stakeholders 

across jurisdictional boundaries; and 

• Leveraging Riparian Management Program 

funds with funds from other Federal, State, and 

local agencies and NGOs to implement on-theground projects. 

2014 PROGRAM PERFORMANCE

In 2014, the Riparian Management Program will continue to improve land and water health 

through ongoing management of wetlands and riparian areas. Program activities will contribute 

to three DOI performance measures:

• Assessment and monitoring of riparian areas are crucial activities of the Program, 

directing management actions to those areas not meeting desired conditions as part of 

an adaptive management strategy. The DOI Strategic Plan measures the percentage of 

DOI riparian (stream/shoreline) miles that have achieved desired condition.

• Similar to riparian areas, wetland areas also are assessed and monitored in order to 

direct management actions to areas not meeting desired conditions. Data collected 

The BLM’s Moab Field Office hosted a 

week-long youth activity for 11 high 

school students from the Southwest Open 

School in Cortez Colorado. The students 

completed a variety of tasks, including 

collecting and planting willow cuttings 

along Beaver Creek upstream of the 

Dolores River. Photos from this project 

were some of the first BLM photos to be 

posted on Facebook–which the kids loved.
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 54

during wetland assessment and monitoring are used to measure the percentage of DOI 

acres that have achieved desired conditions where condition is known and as specified 

in management plans. 

• On-the-ground activities and management actions conducted by the program contribute 

directly to the improvement of degraded riparian areas. These actions are essential to 

meeting the Department’s performance measure concerning the number of DOI riparian 

(stream/shoreline) miles restored to the condition specified in management plans. In 

2014, the Program will restore 749 miles of riparian area. 
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 55

Activity: Land Resources

Subactivity: Cultural Resources Management

2013 

Full 

Year 

CR

2012 

Enacted1

2014

Change 

from 

2012 

Enacted

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Internal 

Transfers 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Cultural Resources 

Mgt. ($000) 16,234 16,105 +224 +0 +0 16,329 +224

FTE 119 119 +0 +0 +0 119 +0 1

Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

JUSTIFICATION OF 2014 PROGRAM CHANGES

The 2014 budget request for the Cultural Resources Management Program is $16,329,000 and 

119 FTE.

PROGRAM OVERVIEW

Program Components

The BLM Cultural Resources Management Program is responsible for the largest, most diverse 

and scientifically important aggregation of cultural, historical, and paleontological resources on 

the public lands, as well as the associated museum collections and data. The cultural resources 

represent all major periods and events in the broad sweep of human occupation in the West 

from over 10,000 years ago to the present. The 

paleontological, or fossil, resources represent the 

development of life on Earth, as well as Earth’s 

paleoenvironment. These resources are managed to 

ensure the cultural, educational, aesthetic, inspirational, 

scientific, recreational, and economic benefits are 

maintained and available for today’s communities as 

well as future generations. The Program consists of the 

following elements:

• Managing and protecting archaeological sites 

and historic properties in support of the 

Archaeological Resources Protection Act 

(ARPA) and the National Historic Preservation 

Act (NHPA), including inventory, stabilizing, monitoring, and digitizing the inventory;

• Managing and protecting paleontological localities and implementing the Paleontological 

Resources Preservation subtitle of the Omnibus Public Lands Act of 2009, including 

inventory, stabilizing, and monitoring; 

• Accounting for the BLM’s 10 million artifacts and specimens recovered from the public 

lands, as well as their associated records. Activities include documentation, 

preservation, and use in the BLM’s three museum facilities and in coordination with the 

The BLM’s heritage resources include:

• 348,000 recorded cultural properties;

• 7,355 cultural properties directly 

protected

• 87 historic properties listed on the 

National Register and 41,000 

properties eligible for listing;

• 76,000 monitored archaeological 

sites; 

• 410 maintained historic structures;

• 26,000 recorded paleontological 

localities; and

• 10 million documented artifacts and 

specimens.
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 56

Cultural Resource Inventory

22.6 million acres of the BLM’s 248 

million surface acres have been 

inventoried for cultural resources, or 9.1 

percent of the public lands. The total 

number of cultural and paleontological 

resources will increase as more of the 

public lands are inventoried to identify 

and record these resources.

NHPA Section 106 Casework

Section 106 of the NHPA requires the 

BLM to take into account the effects of 

its actions on historic properties and 

provide the Advisory Council on Historic 

Preservation with a reasonable 

opportunity to comment. Annually, the 

BLM reviews approximately 13,000 land 

use proposals for their potential effect 

on properties listed on or eligible for the 

National Register of Historic Places. 

The BLM’s national Programmatic 

Agreement with the Advisory Council on 

Historic Preservation, and National 

Conference of State Historic 

Preservation Officers is the primary 

mechanism for achieving cost 

efficiencies and flexibility in the NHPA 

Section 106 review process.

140 State, tribal, and non-profit partner museums and universities that curate BLM 

collections;

• Facilitating Government-to-Government consultation with Indian Tribes and Alaska 

Native Governments on a regular basis concerning traditional tribal activities and places 

of special meaning on the public lands, such as sites of religious significance;

• Complying with the Native American Graves 

Protection and Repatriation Act (NAGPRA) and

honoring Federal commitments to inventory and 

repatriate Native American human remains and 

cultural items held in collections and to respond to 

new discoveries on the public lands;

• Developing and implementing education and 

interpretation opportunities for the public to 

engage with cultural and paleontological 

resources; and

• Supporting research on cultural and paleontological resources to enhance scientific 

understanding and support sound decision-making.

Critical Factors 

The Cultural Resources Management Program faces a broad range of challenges and critical 

factors that influence program work, including: 

• Risk to Heritage Resources – Cultural, historic, and paleontological resources are 

increasingly vulnerable to theft, destruction, and vandalism as a result of increased 

accessibility of once-remote public lands at urban interfaces by well-equipped hikers, offhighway users, and urban and suburban encroachment.

• Section 106 of the NHPA Casework – Increased 

energy production and the development of 

transmission facilities challenge the Cultural 

Resource Management Program to provide 

efficient and effective project review in compliance 

with Section 106 of the NHPA.

• Paleontological Resources Preservation 

Authority – Implementation of the Paleontological 

Resources Preservation subtitle of the Omnibus 

Public Lands Management Act of 2009 enhances 

protection of paleontological resources under the 

new statutory mandates for the management, 

preservation, and protection of paleontological 

resources, casual collecting, permitting, inventory 

and monitoring, public awareness and education, 

law enforcement (fossil theft and vandalism), and 

curation of paleontological resources from public 

lands.

• Government Accountability Office Audit of NAGPRA Compliance – The Cultural 

Resources Management Program will continue to implement the recommendations in 

the Government Accountability Office audit on Federal Agency NAGPRA Compliance by 

continuing to inventory Native American cultural items held in collections and consulting 

with Indian Tribes to determine disposition.
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 57

BLM’s Project Archaeology

Since 1990, Project Archaeology, the 

BLM's primary heritage education 

program, has served more than 10,000 

educators with high-quality curricular 

materials; these educators reach an 

estimated 210,000 students annually 

with heritage stewardship education.

• Office of the Inspector General Audit of Museum Collections – The program will 

continue to implement the recommendations in the December 2009 DOI Office of the 

Inspector General Audit on DOI Management of Museum Collections, including 

identifying and curating artifacts and specimens recovered from the public lands, 

upgrading preservation and documentation for accountability, and ensuring access and 

use for research and public benefit.

Means and Strategies

The Cultural Resource Management Program addresses program priorities in a number of 

significant ways, including:

• Creating efficiencies in the NHPA Section 106 review process by implementing the 

BLM’s national programmatic agreement with the Advisory Council on Historic 

Preservation and National Conference of State Historic Preservation Officers (NCSHPO) 

through individual State protocols and revisions to Bureau manuals and handbooks;

• Enhancing tribal participation in agency decision-making processes through application 

of the DOI policy on Government-to-Government consultation with Indian Tribes and 

Native Alaska villages and corporations, signed on December 1, 2011;

• Incorporating the BLM’s landscape approach to public land management to address 

landscape-scale concerns associated with the inventory, assessment, mitigation and 

monitoring of cultural resources; 

• Maintaining active working relations with western State Historic Preservation Offices as 

part of the BLM’s Cultural Resources Data Sharing Partnership in order to automate and 

digitize site records, and to analyze this information for use in planning and expediting 

review of land use undertakings at a significant 

cost savings;

• Enhancing and developing partnership, volunteer, 

and youth opportunities for community-based 

conservation and educational activities that 

promote public investment in the management of 

the Nation’s heritage resources;

• Coordinating with the Office of Law Enforcement 

and Security to curb criminal acts prohibited by the 

ARPA, NAGPRA, and other Federal statutes protecting cultural property; and

• Cooperating with museums and universities to curate the vast majority of BLM 

collections, rather than managing in-house, at a significant cost savings. Under this 

management model, the BLM coordinates with these repositories to ensure that 

collections are managed according to Federal and Departmental standards.

2014 PROGRAM PERFORMANCE

In 2014, the primary focus of the Cultural Resources Management Program will be to support 

NHPA Section 106 casework in support of project management activities associated with 

energy development, recreation, grazing, and other planned activities on BLM-managed lands. 

The program will continue to implement effective Government-to-Government relationships with 

Indian Tribes. Specific activities the Cultural Resources Management Program will perform in 

2014 include:
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 58

• Conducting inventory of the highest-priority public lands for cultural and paleontological 

resources;

• Developing Bureau policy and revising manual guidance to facilitate cultural resource 

compliance and Government-to-Government consultation, and also to integrate the 

Cultural Resource Program with the BLM’s landscape management approach;

• Reviewing and revising State protocols to implement the national programmatic 

agreement among the BLM, the ACHP, and the NCSHPO;

• Revising the manual and developing the handbook Paleontological Resource 

Management, in order to manage paleontological resources using scientific principles 

and expertise;

• Stabilizing existing and implementing additional physical protection measures at the 

highest-priority heritage properties that carry scientific, cultural, or educational 

importance or are critically threatened;

• Continuing to develop the BLM step-down policy for implementing the DOI Tribal 

Consultation Policy signed on December 1, 2011, with the revision of the manual and 

preparation of the handbook on tribal consultation;

• Repatriating recovered stolen artifacts to Indian Tribes under the Native American 

Graves Protection Act;

• Supervising curation and developing educational materials for recovered artifacts in 

Archaeological Resource Protection Act collections;

• Maintaining a BLM liaison at the Advisory Council on Historic Preservation in order to 

expedite review of compliance cases, especially pertaining to renewable energy and 

tribal consultation;

• Continuing to develop and implement low-cost solutions for providing support and 

coordination with the museums and universities that curate the BLM’s museum 

collections;

• Implementing public education programs to promote public stewardship and enjoyment 

of America’s cultural and paleontological resources, and developing public outreach 

projects to sustain and facilitate existing volunteerism and youth opportunities; and

• Providing cultural expertise to the Office of Law Enforcement and Security during 

investigations into the looting of archaeological sites and trafficking in antiquities.

The Cultural Resources Management Program will also work on transferring approximately 

1,200 cubic feet of federally-owned archaeological collections from the Harry Reid Center for 

Environmental Studies (HRC), University of Nevada, Las Vegas, to the Nevada State MuseumLas Vegas (NSM-LV) facility. The HRC collection, recovered during the past 40 years from 

Nevada and the greater Southwest, comprises more than 500,000 prehistoric artifacts, including 

complete baskets, ceramic vessels and rare objects such as atlatls. The HRC collections 

repository closed in June 2012 due to a lack of sufficient funding to maintain the space and 

staff. The collections are currently in temporary storage. Funding that will be contributed from 

the 2014 Cultural Resource Management Program budget includes $290,000 for cataloguing, 

temporary storage, and transport, and a one-time, long-term curation fee of $810,000 at NSMLV.
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 59

Activity: Land Resources

Subactivity: Wild Horse and Burro Management

2013 

Full 

Year 

CR

2012 

Enacted1

2014

Change 

from 

2012 

Enacted

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Internal 

Transfers 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Wild Horse & Burro Mgt. 

($000) 77,072 74,888 +325 +0 +2,032 77,245 +2,357

FTE 173 173 +0 +0 +0 173 +0

Other Major Resources:

SCDF: Adopt-A-Horse 

Program (5210/5220) 450 455 +0 +0 +0 450 -5

Transfer: USFS Wild 

Horses (9830) 1,500 1,500 +0 +0 +0 1,500 +0 1

Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

Summary of 2014 Program Changes for Wild Horse & Burro Management

Request Component ($000) FTE

Program Changes:

• Implementation of NAS Recommendations +2,032 0

TOTAL, Program Changes +2,032 0

JUSTIFICATION OF 2014 PROGRAM CHANGES

The 2014 budget request for the Wild Horse and Burro (WHB) Management Program is 

$77,245,000 and 173 FTE, a program increase of $2,032,000 and 0 FTE from the 2012 enacted 

level.

Implementation of NAS Recommendations (+$2,032,000/0FTE) – Funding increases totaling 

$2.0 million are for new and existing applied research towards the development of tools 

intended to improve wild horse and burro management and rangeland health. The multi-year 

research studies will primarily focus on developing more effective and longer lasting fertility 

control agents and techniques for suppressing population growth, and determining their relative 

efficacy and effects. Additional projects will include research on human dimensions and socioeconomic factors related to the program. This funding will also be used in consideration of a 

forthcoming National Academy of Sciences (NAS) report on the WHB Program, which is 

currently scheduled for release in June 2013

PROGRAM OVERVIEW

Program Components

The BLM WHB Management Program is responsible for:

• Implementing the Wild Free-Roaming Horses and Burros Act of 1971, which requires the 

protection, management, and control of wild free-roaming horses and burros in a manner 
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 60

designed to achieve and maintain a thriving natural ecological balance on the public 

lands;

• Maintaining a current inventory of wild free-roaming horses and burros on prescribed 

Herd Management Areas (HMA);

• Establishing Appropriate Management Levels (AML) in balance with the ecosystem and 

other uses. AML exists when the number of wild horses and burros is in balance with 

other public land uses, within the capacity of the range to sustain the animals, and 

avoids damage to the rangelands;

• Managing wild horse and burro populations on the range and monitoring the animals and 

their habitat;

• Determining whether AMLs should be achieved by removal, population growth 

suppression measures, or a combination of both;

• Maintaining healthy herds and healthy rangelands by removing excess animals and 

attempting to reduce population growth rates using options such as fertility control; and

• Assisting the U.S. Forest Service, through a formal agreement, with the operational 

aspects of wild horse and burro management on USFS lands.

Elements for Managing the Wild Horse and Burro Program

• Reducing Holding Costs. The BLM will continue efforts to acquire additional, less 

expensive long-term holding facilities and partnership eco-sanctuaries to offset shortterm holding costs for wild horses removed from public rangelands. 

• Reducing Population Growth. The BLM will continue treating the horse population with 

fertility control and other population growth suppression methods during most gathers. 

• Strengthening Humane Animal Care and Handling Practices. The BLM will continue 

appropriate controls in contracts and policies to strengthen humane animal care and 

handling practices. The BLM will continue the refinement of a Comprehensive Animal 

Welfare Program that establishes program-wide standard operating procedures; creates 

universal training requirements; and institutes a Care and Welfare Assessment Tool. 

This auditing system will help the BLM identify areas of emphasis for future training, and 

ensure humane treatment of wild horses and burros.

• Promoting Volunteerism in the Management of Wild Horses. The BLM is increasing 

engagement of the public by enhancing public outreach, recruiting local volunteers and 

organizations to assist in monitoring the rangeland health where animals roam, 

encouraging partnerships to increase herd-related ecotourism, and adoptions/sales. 

• Improving Transparency and Openness. The BLM has a fundamental commitment to 

transparency in all facets of the WHB Program. This includes providing public viewing 

opportunities during gathers and at short-term corrals and long-term care facilities 

without compromising the safety of staff, members of the public, or the animals. The 

BLM is also committed to a proactive public information system that is both accurate and 

prompt.

Critical Factors

Critical factors affecting the efficiency of the WHB Program include:

• Increased fuel and hay costs will continue to affect short-term holding costs. Increased 

herd size due to few natural predators. Herds can increase at a rate of 20 percent each 

year and double in size every four years.
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 61

• Increased program costs due to wildfires and reduced forage contributing to the number 

of emergency gathers. The animals removed are maintained in BLM facilities awaiting 

range recovery over several years.

• Current wild horse and burro populations exceed AML in many herd management areas.

• Program costs have increased due to continued drought conditions that generate a need 

to establish and improve water developments, rehabilitate wells and springs as well as 

haul water to various remote locations.

• Public scrutiny of gather and removal methods has increased the public profile of the 

program. The BLM is experiencing increases in litigation, correspondence, Freedom of 

Information Act requests and the need to provide increased personnel at gathers to host 

public and media visitation.

• Removals continue to exceed numbers sold and adopted, increasing BLM‘s need and 

costs to provide lifetime care.

In response to these critical factors, the BLM will continue removals at a substantially 

reduced level until additional holding capacity such as short-term holding, long-term 

pastures and partnership eco-sanctuaries are secured. Removals will only occur in the 

highest priority areas considering rangeland health, herd areas/HMA where animals are in 

peril, sage grouse habitat conservation and emergencies related to public safety.

Note: Figures in this table are projected as of December 17, 2012.At this time, summer removals are not projected in 

FY 14.

FY 2010

(ACTUAL)

FY 2011

(ACTUAL)

FY 2012

(ACTUAL)

FY 2013

Full Year

CR

FY 2014

Request

Enacted Funding ($ in thousands) $63,986 $75,753 $74,888 $77,072 $77,245

Adoptions 3,029 2,888 2,730 2,700 2,700

Animals in Holding (Sep 30) 37,799 41,245 47,847 49,658 49,128

Total Removals 11,041 8,965 8,111 5,500 2,850

0

10,000

20,000

30,000

40,000

50,000

60,000

70,000

80,000

Wild Horse & Burro Funding, Removals, Holding and Adoptions 
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 62

2014 PROGRAM PERFORMANCE

In 2014, the BLM will decrease the number of wild horses and burros permanently removed 

from the range, continue partnerships to increase adoptions and reduce short-term holding 

costs by acquiring additional long-term holding contracts and eco-sanctuaries. Planned 

performance for 2014 includes:

• Removing animals that are in the highest priority areas considering rangeland health, 

herd areas/HMA where animals are in peril, sage-grouse habitat conservation and 

emergencies related to public health and safety (i.e., animals on the highway, animals in 

residential areas, causing damage to crops);

• Offering animals for adoption through the BLM’s national adoption program and 

partnerships such as the Mustang Heritage Foundation;

• Continuing to apply population growth suppression techniques during most gathers, 

including applying fertility control to mares, releasing geldings to the range in place of 

mares, and adjusting sex ratios to favor males;

• Continuation of ongoing research and study efforts being conducted by the U.S. 

Geological Survey (USGS). These efforts examine potential longer lasting fertility control 

agents, intended to aid in reducing population growth. Implement new studies 

recommended by the NAS report expected in June 2013;

• Undertaking new research regarding contraception and population growth suppression 

methods for males and females that may include studying the effects on herd genetics, 

animal behavior, sterilization and rangeland use;

• Considering recommendations from the Advisory Board for wild horse and burro 

management;

• Continuation of Eco-sanctuaries Assistance Agreements or new contracts to care for 

animals in short-term holding corrals and long-term holding pastures;

• Maintaining existing levels of herd management/rangeland health monitoring and postadoption compliance inspections;

• Continuing implementation of the Comprehensive Animal Welfare Program;

• Conducting census flights to obtain more accurate population estimates on the range 

using the USGS recommended methods; and

• Constructing and maintaining water developments on public lands.
Wildlife and Fisheries

Management

Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 63

Activity: Wildlife and Fisheries Management

2014 Change 

from 

2012 

Enacted

(+/-) Subactivity

2013

Full 

Year 

CR

2012 

Enacted1

Fixed 

Costs & 

Related 

Changes

(+/ -)

Internal 

Transfers

(+/-)

Program 

Changes 

(+/ -)

Budget 

Request

Wildlife 

Mgmt.

$ 52,149 36,914 +424 +0 +16,500 53,838 +16,924

FTE 226 223 +0 +0 +2 225 +2

Fisheries 

Mgmt.

$ 13,442 13,333 +186 +0 0 13,519 +186

FTE 99 99 +0 +0 0 99 +0

Total 

Activity

$ 65,591 50,247 +610 0 +16,500 67,357 +17,110

FTE 325 322 +0 0 +2 324 +2 1

Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

The 2014 budget request for the Wildlife and Fisheries Management activity is $67,357,000 and 

324 FTE, a total program change of $16,500,000 +2 FTE over the 2012 enacted level. 

ACTIVITY DESCRIPTION

The Wildlife and Fisheries Management activity maintains and restores fish, wildlife, and their 

habitats by conserving and monitoring habitat conditions, conducting inventories of fish and 

wildlife resources, and developing cooperative management plans, while providing for 

environmentally responsible recreation and commercial uses. Funding for this program supports 

the staff that develops program policy and projects at all levels within the BLM. Management 

actions emphasize on-the-ground and in-the-water actions that measurably increase the health 

of fish and wildlife populations and reduce the need to federally list species.

This activity supports the Cooperative Landscape Conservation activities and the Healthy 

Landscapes Program by improving the health of watersheds and sustaining biological 

communities. The overall goal of the Fisheries Management and Wildlife Management 

programs is to restore and maintain proper functioning conditions in aquatic, riparian, wetland 

and upland systems managed by BLM, with the goal of providing suitable conditions for 

biological communities to flourish. The 2014 Budget includes an increase of $15.0 million over 

the 2012 enacted level to implement broad-scale sage-grouse conservation and sagebrush 

biome restoration activities. 

The lands BLM manages cover numerous types of wildlife habitat. The BLM’s management 

responsibilities encompass a large percentage of America’s western landscapes, including 

major portions of all of the American desert ecosystems, which include the sagebrush biome, 

and portions of the Colorado Plateau. The BLM is also responsible for managing 15 million 

acres of short and mid-grass prairies and nearly 55 million acres of forest and woodland 

habitats. In addition, the BLM's diverse land base includes over 117,000 miles of fishable 

streams and rivers, over three million acres of lakes and reservoirs, and an abundance of 

wetlands. Because of their isolation, BLM lands include many of America’s rarest habitats, 

which support many rare plant and animal communities.
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 64

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Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 65

Activity: Wildlife and Fisheries Management

Subactivity: Wildlife Management

2013 

Full 

Year 

CR

2012 

Enacted

2014

Change 

from 

2012 

Enacted

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Internal 

Transfers 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Wildlife Mgt. ($000) 52,149 36,914 +424 +0 +16,500 53,838 +16,924

FTE 226 223 +2 225 +2

Other Major Resources:

Trust Funds - Sikes Act 

(7124) 321 289 +0 +0 321 +32

Summary of 2014 Program Changes for Wildlife Management

Request Component ($000) FTE

Program Changes:

• NFWF/Youth Initiative +1,500 0

• Sage-Grouse Conservation Activities +15,000 +2

TOTAL, Program Changes +16,500 +2

JUSTIFICATION OF 2014 PROGRAM CHANGES

The 2014 budget request for the Wildlife Management Program is $53,838,000 and 225 FTE, a 

program increase of $16,500,000 and +2 FTE over the 2012 enacted level. 

Youth Initiative (+$1,500,000/0 FTE) – The 2014 Budget includes a program increase of $1.5 

million to support efforts to involve America’s youth in the management and enjoyment of 

America’s public lands. The additional funding will be provided to the National Fish and Wildlife 

Foundation to provide more youth with outdoor work experience implementing wildlife habitat 

restoration and improvement projects on public lands. 

Sage-grouse Conservation Activities (+$15,000,000 million/+2 FTE) - The budget includes a 

$15.0 million increase over the 2012 enacted level to allow the BLM to continue implementing 

sage-grouse conservation and restoration measures to help prevent the future listing of the 

species for protection under the Endangered Species Act. In March 2010, the U.S. Fish and 

Wildlife Service (FWS) ruled that listing was “warranted but precluded,” and noted that the BLM 

was not “fully implementing the regulatory mechanisms available” to ensure species 

conservation. The BLM is addressing FWS concerns through a planning process formally 

initiated in late 2011 and through additional resources provided under the 2013 Operating Plan. 

The funding provided in 2013 will be carried forward into 2014, and will enable the BLM to ramp 

up and implement the planning process and take other actions before the 2015 deadline for the 

FWS to make a final listing decision. 

At the 2014 request level, the BLM will continue activities begun in 2013, including:
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 66

Land Use Planning – The BLM will continue incorporating necessary regulatory mechanisms 

into BLM land use plans to address conservation of the sage-grouse. As many as 98 BLM 

resource management plans, in 68 planning areas, will address sage-grouse in California, 

Oregon, Idaho, Nevada, Utah, Colorado, Wyoming, Montana, North Dakota, and South Dakota. 

Habitat Restoration and Monitoring – As the planning effort is completed, funding will be 

directed toward habitat restoration and monitoring efforts. Of the $7.5 million directed toward 

funding planning efforts in 2014, $5.0 million will be directed toward fence removal or marking to 

reduce collision mortality, removal of conifers encroaching on sage habitats, seeding of 

disturbed sites to re-establish native sage plant communities, wet meadow and spring protection

or restoration, and establishing a Working Capital Fund to purchase adequate native seed 

supplies for sage community restoration. The BLM will also conduct on-the-ground restoration 

projects to improve key sage- grouse habitat and continue inventory, monitoring, and mapping 

efforts to delineate areas of highest priority habitat across the range of sage-grouse. As BLM 

completes range-wide priority habitat maps and inventory work, it is working in coordination with 

the respective State fish and wildlife agencies through the planning process to identify specific 

management actions on a landscape level that will be undertaken both inside and outside of 

identified priority habitat in order to maintain sustainable sage grouse populations. The BLM will 

transfer the remaining $2.5 million to the Natural Resources Conservation Service (NRCS) to 

continue broad-scale sage-grouse habitat monitoring activities to ascertain the effectiveness of 

habitat management and the effect of land use authorizations.

WILDLIFE MANAGEMENT PROGRAM

PROGRAM OVERVIEW

Program Components

The BLM manages more wildlife habitat than any other agency. Over 3,000 species of wildlife 

occur on the BLM’s more than 245 million acres, dispersed over some of the Nation’s most 

ecologically diverse and essential wildlife habitat. BLM-managed lands are vital to big game, 

upland game, waterfowl, shorebirds, songbirds, raptors and hundreds of species of non-game 

mammals, reptiles, and amphibians. 

The BLM Wildlife Management Program is responsible for maintaining, restoring, and 

conserving wildlife habitat as an integral part of the BLM multiple use mission and priorities that 

include: 

• Implementing and maintaining habitat improvement projects;

• Implementing conservation actions in support of sensitive species and their habitats;

• Monitoring to ensure the effectiveness of habitat management actions;

• Collecting inventory data to provide a solid foundation to support Land Use Planning and 

ensure Land Use Plan implementation; and

• Implementing on-the-ground habitat conservation and restoration treatments on a 

landscape scale in priority focal areas.

Critical Factors

• The BLM manages over 50 percent of the Nation’s Greater-Sage Grouse habitat. Many 

other wildlife species including Brewer’s Sparrow, Sage Sparrow, Sage Thrasher, 
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 67

Pygmy Rabbit, Pronghorn Antelope, and Mule Deer also depend on sagebrush 

communities for all or a significant portion of their life cycle.

• Wildlife habitat loss and fragmentation are seemingly outpacing habitat restoration and 

enhancement activities, resulting in significant declines for some wildlife species.

• Beyond reducing available surface water and forage for wildlife, drought can have a 

profound influence on wildfire cycles, which can alter habitat conditions over large areas 

for many years. Over two million acres of sage-grouse habitat burned in 2012. 

Restoring sage-grouse habitat after fire is a complex and difficult undertaking.

• Authorization of land uses impacting wildlife habitat may significantly increase in 

conjunction with new energy initiatives. 

Means and Strategies

• Beginning in 2010, the BLM began undertaking several rapid ecoregional assessments

(REAs) to better address the management of wildlife and habitat resources at a scale 

equivalent to the intensified broad-scale land use pressures and associated stressors, 

including catastrophic wildfire and associated degradation and conversion of native 

vegetation communities, disease, as well as the compounding effects of land health 

stressors. The first results from these assessments were received in 2012.

• The BLM is working to standardize and integrate data across landscapes and 

jurisdictions to gain a fuller understanding of changes to wildlife populations across 

geographic regions, and better coordinate actions to mitigate species decline. 

• Once completed, the REAs will aid in identification of the highest priority areas for 

wildlife habitat protection and enhancement at an ecoregional scale consistent with the 

range and distribution of many wildlife species, transcending currently defined 

administrative boundaries.

• The majority of species and habitats present on BLM lands do not occur exclusively on 

lands administered by the BLM. Additionally, BLM land ownership is not spatially 

contiguous, both at the regional and site scales. Therefore, the BLM works closely with 

its partners across jurisdictional boundaries so that wildlife conservation measures 

applied on BLM lands are effective. The BLM currently has Memorandum of 

Understanding (MOU) in place with the Western Association of Fish and Wildlife 

Agencies (for sagebrush habitat management), the Association of Fish and Wildlife 

Agencies (for coordination of energy and wildlife issues), as well as MOUs pledging BLM 

support in the North American Bird Conservation Initiative, Partners in Amphibian and 

Reptile Conservation and the North American Pollinator Protection Campaign. For 

example, as a result of the aforementioned MOUs, the BLM has:

o Developed standardized regionally-specific habitat management guidelines for 

reptile and amphibian habitats that have been distributed to all BLM field offices;

o Supported development and implementation of standardized avian monitoring 

protocols to ascertain population trends across jurisdictional boundaries; and

o Improved coordination and collaboration with important partner organizations 

including Federal, State, and non-governmental organizations.

• Consistent with BLM policy direction, the BLM works closely with State fish and wildlife 

agencies on wildlife resource issues, in particular in support and implementation of State 

Wildlife Action Plans, which establish broad-scale wildlife priorities and identify the 

species of greatest conservation need as well as the habitats necessary for their 

protection.
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Chapter VII – Management of Lands and Resources VII - 68

Accomplishments

• Sage-grouse Habitat Monitoring – The BLM will use $2.5 million in 2013 to continue 

implementing broad-scale sage-grouse habitat monitoring activities to ascertain the 

effectiveness of habitat management and the effect of land use authorizations. 

Continuing this broad-scale monitoring effort will fill critical data gaps necessary for 

habitat protection and restoration. Habitat monitoring will provide for an adaptive 

management platform that will support the BLM’s multiple-land use mission, including 

energy development, grazing, and recreation. The monitoring protocol continues to 

identify baseline vegetation conditions relative to sage-grouse habitat goals and 

objectives so that the BLM can evaluate the effectiveness of its management.

• Nevada Bi-State Landscape Restoration Project - The Carson City District Office 

(CCDO) project is a landscape-scale, multi-year project focused on the Bi-State distinct 

population segment of Greater Sage-Grouse. This 900,000-acre project area includes 

three sage-grouse population management units located across four counties. The 

CCDO is engaging in a variety of on-the-ground partnerships to collect sage-grouse 

data, vegetation data, road and trail data, and conduct habitat restoration work to 

support sage-grouse conservation and management. Partners include the U.S. 

Geological Survey, Nevada Department of Wildlife, NRCS, Great Basin Bird 

Observatory, Chicago Botanic Garden, and the Carson Valley Chukar Club. 

2014 PROGRAM PERFORMANCE

In 2014, the BLM’s Wildlife Program will: 

• Continue sage grouse conservation activities as described above;

• Emphasize wildlife habitat improvements in order to reduce the number of species of 

concern failing to meet objectives, while maintaining a sufficient level of monitoring to 

ensure the effectiveness of those improvements;

• Emphasize performance of actions under agency-endorsed plans for the purpose of 

conserving non-federally listed species to prevent the need for listing under the 

Endangered Species Act; and

• Accomplish substantial habitat assessment and monitoring to provide an understanding 

of range and distribution of priority species to describe existing conditions and monitor to 

determine if management decisions have been implemented and objectives are being 

met.
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Chapter VII – Management of Lands and Resources VII - 69
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Chapter VII – Management of Lands and Resources VII - 70

PLANT CONSERVATION PROGRAM

PROGRAM OVERVIEW

Program Components

Public lands contain a diversity of native plant communities that are the habitats for fish, plants, 

pollinators and wildlife such as Sage-Grouse and Desert Tortoise. These native plant 

communities make up over 50 ecoregions across the BLM and each ecoregion contains native 

plants that have adapted to those environments. The BLM Plant Conservation Program is 

responsible for protecting, maintaining and restoring Western native plant communities and rare 

plants on public lands. The Program provides national leadership in seed collection, seed 

conservation, seed procurement and storage, and native plant materials development/use for 

restoration and rehabilitation of public land. In addition, the Plant Conservation Program is 

responsible for rare plant work.

The Plant Conservation Program consists of the following elements:

• Identifying, evaluating, and protecting rare plants on public lands, including NLCS units.

• Understanding the effects of climate change on native plant species and native plant 

communities on public land.

• Developing genetically appropriate native plant materials for restoring and maintaining 

habitat for sage-grouse and other animal and plant species.

• Providing leadership and infrastructure on native plant materials development by 

coordinating with all BLM programs to ensure native plant material needs are met. 

• Providing national leadership for Seeds of Success.

• Developing seed transfer zones and guidelines.

• Coordinating a national network of seed storage warehouses with environmentally 

controlled conditions to protect our seed investment.

• Monitoring the effectiveness of native plant materials that have been developed.

• Implementing on-the-ground habitat conservation and restoration treatments on a 

landscape scale.

• Enhancing partnerships and volunteer opportunities for plant conservation. 

Seeds of Success is the Bureau’s national seed collection program and is the foundation of the 

native plant materials development process. Over 15,000 native seed collections have been 

made since 2001 when Congress directed the BLM to establish a Native Plant Materials 

Development Program. The number of seed collection actions has remained relatively stable 

(see graph below).
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 71

0

500

1,000

1,500

2,000

2,500

3,000

3,500

447

685

1,235

1,012 1,208 1,044 1,058

1,474 1,504

3,344

1,720 1,600

Annual Seed Collection Totals

For more information on BLM’s Plant Conservation Program please see the following websites: 

http://www.blm.gov/wo/st/en/prog/more/fish wildlife_and/plants.html

BLM Native Plant Materials Development:

http://www.blm.gov/wo/st/en/prog/more/fish wildlife_and/plants/1.html

Colorado Plateau Native Plant Program:

http://www.blm.gov/ut/st/en/prog/more/CPNPP.html

Great Basin Native Plant Selection and Increase Program:

http://www.fs.fed.us/rm/boise/research/shrub/greatbasin.shtml
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 72

Critical Factors

There are a number of external factors such as climate change, drought, and wildfire affecting 

native plant communities across the BLM that will require management to reallocate resources 

and reevaluate management priorities. There are also a number of external factors related to 

the development of native plant materials that will require management to reallocate resources 

to ensure that the diversity of seed types (species) and the quantity of high quality native seed is 

available. Some factors that will have long standing impacts include:

• The effects of landscape health stressors such as drought, disease, catastrophic wildfire, 

and urban growth and development are altering native plant communities across the 

West. As rainfall and temperatures change, native plant species and communities may 

not adapt as fast as the environment changes, thus affecting sage-grouse and other 

species’ ability to survive.

• Healthy, resilient, functioning native sagebrush communities play a significant role in the 

Bureau’s ability to maintain sage-grouse populations in the West. The diversity of native 

forbs and grasses within the sagebrush communities are vital to the survival of sagegrouse. These native plants provide food and shelter for the sage-grouse, especially the 

young chicks.

• Healthy landscapes in the West today are at greater risk due to more intense and 

extended droughts, increasing wildfire frequency, and continuing migration of invasive 

species. Historically, resilient Western native plant communities burned on average 

once every 40 years; however, with monocultures of invasive plants and drought, fire 

The Plant Conservation Program has made over 1600 native seed collections within Sage 

Grouse Priority Habitat and Sage Grouse General Habitat. These collections will be used to 

develop genetically appropriate native plant materials for restoration on Sage-Grouse habitat.
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Chapter VII – Management of Lands and Resources VII - 73

frequency is closer to once every 7 years. Because of these factors, more aggressive 

development of native plant materials are needed for rehabilitation after fire and 

restoration of habitats for fish, plants, pollinators and wildlife. 

• Native plant materials, like agronomic crops, take an average of 10 to 20 years to 

develop as consistent and reliable commercially available seed. Therefore, the BLM 

needs to plan well ahead for native plant materials to be available for landscape level 

restoration.

• Development of public lands as part of the New Energy Frontier for renewable and nonrenewable energy and mineral resources requiring mitigation efforts to offset loss and 

fragmentation of native plant communities.

• Spread of invasive terrestrial species, requiring additional monitoring and treatment to 

prevent degradation of functioning ecosystems and native plant and animal 

communities.

Means and Strategies

The Plant Conservation Program coordinates with other BLM programs and partner 

organizations to achieve integrated vegetation management at the landscape level. To better 

achieve program goals and provide improved management of public lands, the BLM has 

adopted a corporate approach to managing ecosystem functions and services by emphasizing 

shared on-the-ground vegetation goals across programs, processes, and scales. The 

Washington Office staff for forestry, rangeland management, riparian management, plant 

conservation, invasive weeds, and fire rehabilitation have recently been combined into a single, 

vegetation management division. This new configuration has made policy development more 

collaborative with the vegetation specialists working together to develop policy at a landscape 

scale. In this coordinated effort, the Plant Conservation Program is addressing critical factors 

through multiple activities, including:

• Supporting the Department’s youth education investments and the America’s Great 

Outdoors (AGO) Initiative by employing recent college graduates in the biological and 

environmental sciences, through the Conservation and Land Management Internship 

Program.

• Educating America’s youth through the development of a high school curriculum on 

native plants. The BLM will use this model to develop elementary and middle school 

curricula for younger students.

• Supporting the renewable and conventional energy programs by encouraging use of 

local genotypes and developing native plant materials for use in reclamation 

projects. http://www.blm.gov/wy/st/en/programs/pcp/mgmt.html.

• Identifying national priority focal areas for native plant community conservation and 

restoration, as well as developing native plant materials for management activities at the 

eco-regional scale.

• Coordinating development of native plant materials for restoration with step-down 

strategies developed from the BLM’s Landscape Approach and implementing restoration 

within Healthy Landscapes focal areas.

• Leveraging Plant Conservation Program funds with other Federal, State, and local 

agencies and NGOs to implement on-the-ground projects and conduct research in native 

plant development and restoration techniques.
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Chapter VII – Management of Lands and Resources VII - 74

2014 PROGRAM PERFORMANCE

In 2014, BLM will continue to lead the Interagency Native Plant Materials Development 

Program, including Seeds of Success, Plant Conservation Alliance Federal Committee and 

regional interagency native plant materials development programs in the Colorado Plateau, 

Great Basin, Pacific Northwest and Mohave Desert. These programs will work with partners to 

focus research on native plant materials development and to get more diversity of native plant 

materials to the growers in the various ecoregions.

The BLM will implement a National Seed Strategy developed in 2013, which will assess the 

BLM seed use, stabilize the BLM seed requests, integrate native seed collection across the 

Bureau, and address seed procurement and storage to ensure the highest quality seed for 

restoration and rehabilitation.
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Chapter VII – Management of Lands and Resources VII - 75

Activity: Wildlife and Fisheries Management

Subactivity: Fisheries Management

2013 

Full 

Year 

CR

2012 

Enacted1

2014

Change 

from 

2012 

Enacted

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Internal 

Transfers 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Fisheries Mgt. ($000) 13,442 13,333 +186 +0 +0 13,519 +186

FTE 99 99 +0 +0 +0 99 +0 1

Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

JUSTIFICATION OF 2014 PROGRAM CHANGE

The 2014 budget request for the Fisheries Management Program is $13,519,000 and 99 FTE.

PROGRAM OVERVIEW

Program Components

The BLM Fisheries Program provides the framework for assessing, managing, and monitoring 

over 117,000 miles of fish-bearing streams and almost three million acres of reservoirs and 

natural lakes. BLM’s rivers, lakes, and streams are of national ecological, cultural, and 

recreational importance. These fish-bearing waters support diverse habitat for hundreds of 

native fish species, support subsistence fisheries that sustain traditional Native American 

cultural practices and provide exceptional recreational opportunities for the public. These waters 

function in diverse landscapes and serve as a good indicator of ecosystem function. The BLM 

Fisheries Management Program is responsible for:

• Maintaining, restoring, and conserving aquatic-related species and habitats consistent 

with the BLM multiple use mission and priorities;

• Implementing lake, wetland, stream, and riparian treatments and projects;

• Assisting in the design of other BLM program activities to ensure mitigation of actions 

affecting fish, other aquatic species, and their habitat as appropriate;

• Monitoring to ensure the effectiveness of management actions, including subsistence 

actions on BLM land in Alaska through the Federal Subsistence Management Program; 

• Participating in angler activities with State fish and game agencies through various 

Memoranda of Understanding and Memoranda of Agreement; and

• Implementing stream and wetland conservation and restoration treatments in focused 

areas under the BLM Healthy Landscapes Program.

Critical Factors

The following represent the primary challenges facing the Fisheries Program:

• Land health stressors, such as those associated with climate change, can be key threats 

to fish and fish habitat as they force changes to the aquatic habitat on BLM lands. 
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Chapter VII – Management of Lands and Resources VII - 76

Specifically, drought, changes in runoff and flow patterns, and the increasing risk of 

catastrophic wildfire individually and collectively impact aquatic resources. The effects of 

these land health stressors place higher strain upon aquatic ecosystems. A greater 

focus on the conservation of these habitats will be essential for their long term 

persistence.

• The priority for developing renewable energy (hydropower, wind, solar, and geothermal) 

as part of the New Energy Frontier will place increasing demands on Fisheries Program 

personnel. The fisheries workforce is working to ensure sites of high potential for energy 

development, and the transmission corridors linking these sites to the energy grid, are 

developed in a responsible manner consistent with the needs of aquatic resources. 

• The licensing and relicensing of hydropower projects creates a significant opportunity to 

direct the development of license conditions to conserve fisheries resources so that 

Federal trust responsibilities are met for the next 30-50 years.

• The program continues to address the need for fish-passable culvert replacements.

Culvert upgrades result in the reconnection of high quality habitat for numerous aquatic 

species. Culvert restorations are extremely efficient in that they result in the restoration 

of a large amount of habitat, while only resulting in a small construction footprint. Culvert 

fish passage projects have the ability to return fish to mature, functioning riparian and instream habitats. 

• The need to address threats from failure of non-system roads continues. Catastrophic 

sediment inputs can result where historic, poorly planned roads made of soft fill material 

cannot pass the required amount of water downstream. Ponding occurs as the standing 

water upstream of the road overtops the road prism resulting in mass wasting, or 

catastrophic erosion filling the downstream fish habitat with sediment. 

• Fisheries Program personnel, at both the national and State levels are working with 

counterparts in State and other Federal agencies to continue developing strategies and 

programs to minimize the threats from aquatic invasive species, such as the quagga 

mussel, New Zealand mudsnail, and the zebra mussel. Aquatic invasive species are a 

threat to the viability and longevity of the native fish communities. They transform entire 

food webs, have the potential to dominate the biological community, and also have the 

potential to clog reservoir water pipes and reduce needed downstream flow to 

communities. BLM personnel in the Fisheries Program are members of the interagency 

Aquatic Nuisance Species Task Force and their Western Regional Panel. Membership 

assists aquatic invasive species coordination because the BLM shares management 

authority of aquatic resources throughout the West.

• The BLM has undertaken several Rapid Ecoregional Assessments (REA) to better 

address resource management. Aquatics are a vital component of these assessments 

and once completed, will aid in identification of the highest priority areas for fisheries 

habitat protection and enhancement at an ecoregional scale.

• The BLM is working to standardize and integrate data across landscapes and 

jurisdictions to gain a fuller understanding of changes to fisheries habitat across 

geographic regions and better coordinate actions to mitigate habitat quality reductions.

Means and Strategies

The following represent the primary means by which the Fisheries Program plans to meet its 

current and future challenges:

• Working with other programs to create a lands treatment module to document where 

treatments take place on the landscape and the effectiveness of those treatments;
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Chapter VII – Management of Lands and Resources VII - 77

• Working to educate youth about the importance and complexity of fisheries and fisheries 

habitat through programs such as the American Fisheries Society Hutton Program and 

the Chicago Botanical Society;

• Continuing to stay active with 10 of the recognized National Fish Habitat Partnership 

partners. These partnerships include the Reservoir Fish Habitat Partnership, the 

California Fish Passage Forum, the Desert Fish Habitat Partnership, the Driftless Area 

Restoration Effort, the Great Lakes Basin Fish Habitat Partnership, the Great Plains Fish 

Habitat Partnership, the Mat-Su Basin Salmon Habitat Partnership, the Southwest 

Alaska Salmon Habitat Partnership, and the Western Native Trout Initiative;

• Combating the ecological and economic effects in many BLM watersheds caused by 

aquatic nuisance species; and

• Assessing aquatic habitat using Trout Unlimited’s modified Conservation Success Index 

methodology. This work is part of the on-going Assistance Agreement and will be utilized 

in BLM watersheds for critical aquatic assessments.

2014 PROGRAM PERFORMANCE

In 2014, the Fisheries program will: continue to support the mission-critical goals of the BLM by 

maintaining and conserving aquatic-related species and habitats and restoring priority habitats 

on an as-needed basis. Approximately 34 percent of Fisheries Management funding ($4.6 

million) supports priority proactive fish habitat conservation in support of the National Fish 

Habitat Partnership (NFHP). The Plan is a State-led development supported through the 

Association of Fish and Wildlife Agencies (AFWA) in cooperation with key government agencies 

and conservation partners. The Plan is the most comprehensive effort ever attempted to 

conserve aquatic habitat across the country. For inland fisheries resources, the BLM is active 

with 10 NFHP partnerships that serve as primary vehicles for identifying and prioritizing habitat 

actions within the range of inland fish species. The BLM will play a significant role in the 

identification and implementation of these actions. Salmon and steelhead fisheries resources 

will remain a priority for those geographic areas within the range of anadromy.

The BLM Fisheries Management Program will continue to work closely with the Aquatic 

Nuisance Species Task Force, with AFWA and the Western Association of Fish and Wildlife 

Agencies, the Trout Unlimited, the National Fish and Wildlife Foundation, and the American 

Fisheries Society. The Fisheries Management Program will also provide expertise with internal 

programs such as Healthy Landscapes; Assessment, Inventory and Monitoring Strategy; and 

the REAs. All of these initiatives incorporate fisheries resources as essential habitat and as 

indicators of ecosystem health. The Fisheries Management Program will also continue its strong 

relationship with diverse groups for project development, leveraging funding, and personnel 

development.

Future BLM fisheries habitat opportunities will increase from the formation of a Service First 

Hydropower Program (SFHP) to increase agency efficiency and effectiveness in Federal Energy 

Regulatory Commission (FERC) proceedings. The BLM will begin to work on mitigation 

measures for lost fisheries habitat opportunities from FERC projects early in the relicensing 

process. There are potentially more than 50 projects on BLM and U.S. Forest Serviceadministered lands that could go to formal license proceedings within the next five years. By 

forming a SFHP, there will be increased efficiencies in resource protection, training and pooling 

of scarce skills, and obtaining appropriate mitigation through licensing opportunities that 

otherwise would be missed.
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Chapter VII – Management of Lands and Resources VII - 78

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Threatened and Endangered 

Species Management

Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 79

Activity: Threatened and Endangered Species 

Management

2013 

Full 

Year 

CR

2012 

Enacted1

2014

Change 

from 2012 

Enacted

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Internal 

Transfers 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Threatened & 

Endangered Species 

Mgt. ($000) 21,807 21,633 +309 +0 +0 21,942 +309

FTE 164 170 +0 +0 -6 164 -6 1

Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

JUSTIFICATION OF 2014 PROGRAM CHANGES

The 2014 budget request for the Threatened and Endangered Species Program is $21,942,000 

and 164 FTE.

PROGRAM OVERVIEW

The primary goal of the Threatened and Endangered (T&E) Species Program is to recover 

federally-listed species and preclude the listing of candidate species. The program also 

provides support for conservation of non-listed, rare plant species. The long-term program 

vision is to achieve species recovery so that protection under the Endangered Species Act 

(ESA) is no longer required and to implement conservation programs for Bureau Sensitive 

plants and candidates so that listing under the ESA is unnecessary.

Program Components

Over 250 species listed under the ESA have been found to occur on BLM-administered lands. 

At least 32 species found on BLM-administered lands have been identified as candidates for 

Federal protection. BLM-administered lands are prime habitat for over 800 rare plant species 

and provide the only known habitat for more than 450 species of rare or listed plants and 

animals. 

The BLM’s successful conservation of these species requires implementation of the following 

tasks: 

• Cooperative planning with other stakeholders in the preparation of recovery plans or 

conservation strategies for targeted species;

• Implementing actions identified in species conservation and recovery plans; and

• Monitoring species populations to determine if objectives identified in species conservation 

and recovery plans are being met.

Critical Factors

A number of listed species currently found on BLM lands could be extirpated in the next several 
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Chapter VII – Management of Lands and Resources VII - 80

decades due to a variety of factors affecting habitat. 

Means and Strategies

The following are strategies used by the BLM to manage the program:

BLM T&E Species Recovery Funding

In 2010, the BLM established the T&E Species Fund, a competitive process of allocating funds 

to support projects targeting key recovery actions that culminate in a delisting or down-listing of 

T&E Species or removal of a species from candidate conservation. In the first three years, this 

initiative has awarded approximately $1.5 million annually for recovery projects for over 31 

species. The BLM has already seen success, with the delisting of the Maguire Daisy and 

proposals by the U.S. Fish and Wildlife Service (FWS) to delist the Inyo California Towhee and 

down-list the Beach Layia and Borax Lake Chub from Endangered to Threatened. Several other 

species are on their way to being delisted or down-listed in the near future as well. The benefits 

of this initiative have been realized by other Federal agencies and their desire to partner with 

the BLM on this initiative will greatly increase the ability to recover and conserve T&E species 

and their habitats. The targeted investment in recovering species, so they are no longer in need 

of Federal protections, meets a desired goal of sustainability and ecological integrity of BLM 

lands, but also begins a shift from focusing on reactive regulatory obligations to being proactive 

stewards of the land.

Cooperative Landscape Conservation Initiative

The Cooperative Landscape Conservation initiative and the BLM Healthy Landscapes Program 

will help the T&E Program assess, manage, and provide for the conservation of critical 

resources in light of impacts such as drought, wildfire, and invasive species at a broad scale as 

a result of ecoregional assessments and landscape conservation cooperative efforts and 

products. The T&E Program also provides support for the initiative by assisting with the 

development of rapid ecoregional assessments; assisting with the documentation of listed 

species occurrence, distribution and critical habitat data on BLM lands; and through assisting 

with both internal and interagency outreach efforts.

Youth in the Great Outdoors Initiative

The T&E Program implements on-the-ground projects that either have an educational or 

outreach component to engage local youth or employ youth in conservation activities. The T&E 

Program will continue to hire recent college graduates in the biological sciences as part of the 

Chicago Botanic Garden’s Conservation and Land Management Internship Program.

America’s Great Outdoors

The T&E Program offers key criteria in selecting projects within the America’s Great Outdoors 

initiative. The National Landscape Conservation System (NLCS) is an integral system of 

biologically diverse, wide ranging landscapes and ecosystems. Of the federally protected 

species and rare plants that occur on BLM lands, 155 species occur only within NLCS 

designated lands. An additional 114 species have at least 50 percent of their populations 

represented on NLCS lands. Due to the essential nature of the NLCS to threatened and 
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Chapter VII – Management of Lands and Resources VII - 81

endangered species conservation and recovery, the T&E Program will continue to support and 

implement management actions within the NLCS that benefit listed species or their habitat.

Program Collaboration and Partnerships 

The range of most of the listed species found on BLM lands includes lands and waters not 

administered by the agency. The recovery of listed species requires management at the 

population or metapopulation scale, regardless of jurisdiction lines. Extensive collaboration and 

cooperation with a number of partners, including other agencies and organizations, is therefore 

an integral element of the T&E Program. Conservation collaborations typically begin with the 

development of recovery plans, written under the leadership of the FWS or the National Marine 

Fisheries Service (NMFS). Implementation of recovery actions identified in these plans typically 

involves collaboration with such partners as State fish and game, other Federal, and nongovernmental organizations (NGOs). 

An example of this collaboration is BLM’s participation in the Black-Footed Ferret Recovery 

Implementation Team Executive Committee. Members include: the FWS, the U.S. Geological 

Survey, the National Park Service, the U.S. Forest Service, The Wildlife Society, The Nature 

Conservancy and several other NGOs and Federal and State Agencies. Efforts include the 

development of a sylvatic oral plague vaccine to protect ferrets and their prey, the prairie dog, 

against plague infection. The BLM continues to offer assistance in providing locations to 

implement the safety and efficacy trials for the vaccine’s use in the field. The BLM also 

continues to increase its involvement in identifying appropriate areas where prairie dog 

expansion or re-colonization can take place.

In addition to recovery planning and implementation, consultation under Section 7 of the ESA is 

a significant BLM endangered species management responsibility. Under the ESA, the BLM 

must consult with the FWS or the NMFS whenever it determines that an action it authorizes, 

funds, or carries out may affect a listed species. In 2012, the BLM held about 600 consultations. 

Personnel from the T&E Program are integral in providing guidance and expertise to assure 

compliance with existing policies, laws and regulations. 

2014 PROGRAM PERFORMANCE

In 2014, the BLM T&E Program will:

• Continue to emphasize the completion of recovery tasks as identified in species recovery 

plans;

• Continue to focus on the program’s primary goal of completing actions that lead to species 

recovery through the Threatened & Endangered Species Recovery Fund;

• Continue to document the program’s accomplishments and efforts towards species recovery 

through the Recovery Online Reporting System, a reporting system developed cooperatively 

with the FWS;

• Continue to inventory and monitor habitat on the millions of BLM acres where federally listed 

species are known or suspected to occur; and

• Continue to leverage additional dollars, equipment and labor from Federal and non-Federal 

partners with shared T&E species recovery objective.
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 82

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Recreation Management

Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 83

Activity: Recreation Management

2014 Change 

from 

2012 

Enacted

(+/-)

2013

Full 

Year CR

2012

Enacted1

Fixed 

Costs &

Related 

Changes

(+/ -)

Internal 

Transfers

(+/-)

Program

Changes

(+/ -)

Budget

Request

Subactivity

Wilderness 

Mgmt. $ 18,561 18,392 +295 +0 0 18,687 +295

FTE 155 155 +0 +0 +4 159 +4

Recreation 

Mgmt. $ 49,490 49,074 +745 +0 +2,000 51,819 +2,745

FTE 398 398 +0 +0 -4 394 -4

Total Activity $ 68,051 67,466 +1,040 0 +2,000 70,506 +3,040

FTE 553 553 +0 0 0 553 0 1

Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

Justifications of 2014 Program Changes

The 2014 budget request for the Recreation Management Activity is $70,506,000 and 553 FTE, 

a program change of +$2,000,000 and 0 FTE from the 2012 enacted level.

ACTIVITY DESCRIPTION

The Recreation Management Activity supports efforts to: 

• Provide resource-related recreational opportunities for a wide range of activities;

• Furnish quality visitor services;

• Provide a diversity of recreation facilities, visitor centers, and competitive activities;

• Identify and protecting wilderness values;

• Assure that the public receives fair market value for any commercial ventures conducted 

on public lands; and

• Collect recreation use and entrance fees in the best interest of the general public.

These responsibilities are encompassed by the Bureau’s strategic goal to provide opportunities 

for environmentally responsible recreation.

The Recreation Management Activity provides:

• Recreation planning and visitor use monitoring;

• Trails, access, and rivers management including off-highway vehicle, public access, and 

comprehensive travel and transportation management;

• Visitor services, information, interpretation and stewardship education;

• Visitor health, safety, and accessibility for persons with disabilities;

• Recreation facility design, operation, and maintenance including visitor centers;

• Recreation and community support partnerships including tourism and marketing;

• Wilderness management in the Nation Landscape Conservation System; and

• Support to partnerships, volunteers, and youth programs.
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 84

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Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 85

Activity: Recreation Management

Subactivity: Wilderness Management

2013 

Full 

Year 

CR

2012 

Enacted1

2014

Change 

from 

2012 

Enacted

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Internal 

Transfers 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Wilderness Mgt. ($000) 18,561 18,392 +295 +0 +0 18,687 +295

FTE 155 155 +0 +0 +4 159 +4 1

Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

JUSTIFICATION OF 2014 PROGRAM CHANGES

The 2014 budget request for Wilderness Management is $18,687,000 and 159 FTE.

PROGRAM OVERVIEW

Program Components

The Wilderness Management Program is a part of the BLM National Landscape Conservation 

System (NLCS). In September 2011, the BLM released its 15-year NLCS strategy to guide the 

management direction for all NLCS units. The NLCS strategy supports the BLM’s multiple-use 

mission by ensuring that management efforts will focus on conservation, while allowing for 

compatible uses, consistent with the designating legislation or Presidential proclamation of the 

concerned wilderness area. In addition to conservation, the strategy emphasizes continued 

collaboration, public involvement, and youth engagement. Engaging local communities to help 

them foster a sense of shared stewardship and pride in their local wilderness is a key part of the 

Wilderness Management Program. The program also contributes to the America’s Great

Outdoors goals by:

• Achieving lasting conservation that powers the Nation’s economy, shapes our culture, 

and builds our outdoor traditions;

• Reinvigorating the approach to conservation and reconnecting Americans, especially 

young people, to the outdoors; and

• Empowering local communities to accomplish their conservation and recreation 

priorities.

For more information on the National Landscape Conservation System Strategy, visit the BLM 

website at: http://www.blm.gov/wo/st/en/info/newsroom/2011/september/NR_09_30_2011.html

The BLM is required to meet legal requirements for administering the Wilderness Management 

Program while also conserving, protecting, and restoring NLCS values in the 221 Wilderness 

Areas and 545 Wilderness Study Areas under BLM management as defined below:
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 86

• Wilderness Areas are undeveloped Federal lands designated by law to be managed to 

protect their wilderness character as defined by the Wilderness Act of 1964. These 

designated areas are generally large, natural and undeveloped landscapes that offer 

outstanding opportunities for solitude or primitive and unconfined types of recreation.

• Wilderness Study Areas (WSAs) are roadless areas that contain wilderness 

characteristics and are protected to maintain those characteristics until law designates 

them as Wilderness Areas or releases them for non-wilderness uses. 

The Wilderness Management Program focuses on the protection and conservation of 

wilderness and NLCS values with the following activities:

• Monitoring and preserving wilderness character;

• Managing use and encouraging appropriate wilderness uses; 

• Monitoring and managing for noxious weed infestations, trespass activities, and recreation; 

and 

• Restoring impacted areas such as trampled vegetation and eroded soil caused by 

unauthorized off-highway vehicles (OHV) travelling cross-country. 

The National Wilderness Preservation System includes all Wilderness Areas managed by the 

U.S. Forest Service (USFS), the BLM, the National Park Service (NPS) and the U.S. Fish and 

Wildlife Service (FWS). It does not include BLM Wilderness Study Areas. The BLM is unique in 

that the vast majority of its Wilderness Areas and WSAs are located in desert environments; this 

adds an important ecosystem component to the National Wilderness Preservation System. 

Millions of people visit these areas annually either on their own or through the hundreds of 

permitted commercial outfitters that assist the public in enjoying these unique lands. This use 

provides significant economic impact to local communities and helps to sustain the natural 

heritage of their wilderness landscapes.

The Wilderness Management Program frequently addresses challenges associated with 

unauthorized uses, such as illegal OHV use, which result in the degradation of wilderness 

character. Managing the wilderness resource requires collaboratively managing these NLCS 

assets as part of the larger landscape. After a Wilderness Area is designated, the BLM typically 

spends the first three years marking and mapping the boundary, and providing visitor services 

such as maps and other public information. Subsequent management includes acquiring inholdings from willing sellers, restoring wilderness character where needed, engaging in land use 

planning and monitoring, implementing wilderness management plans, and providing visitor 

services. Wilderness management plans are written for Wilderness Areas to guide long term 

management and protection of wilderness character and involve an interdisciplinary effort 

associated with land use planning. In addition, these plans raise public awareness and 

understanding of the NLCS, cultivate relationships, promote community stewardship of BLMmanaged public land, and provide for the use and enjoyment of these lands by present and 

future generations.

Program Emphasis Areas

Preserving Wilderness Character 

Preserving wilderness character is at the heart of the BLM’s responsibility to ensure its 

Wilderness Areas are protected for future generations of Americans. In 2008, the BLM, the 

FWS, the NPS, the USFS, and the U.S. Geological Survey developed “Keeping it Wild: An 

Interagency Strategy to Monitor Trends in Wilderness Character Across the National Wilderness 
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 87

Preservation System.” The strategy outlines a unified approach for collecting data and will allow 

the identification of trends in wilderness character quality across all wilderness managing 

agencies. The protocol developed to monitor and describe trends in the quality of wilderness 

character will enable the BLM to establish a meaningful measure with verified baseline data for 

use in the future. 

In 2009, the BLM began a five-year process to implement this strategy and complete baseline 

monitoring for 20 percent of BLM Wilderness Areas each year to complete the task for all areas 

by the end of calendar year 2014 – in conjunction with celebrating the 50th anniversary of the 

Wilderness Act. By the end of 2014, and for the first time since the Wilderness Act was passed 

in 1964, the BLM will be able to track trends in wilderness character for all 221 of its Wilderness 

Areas. 

Enhancing Scientific Knowledge

The BLM’s Wilderness Areas are playing an increasingly critical role in increasing scientific 

knowledge about a wide array of management challenges facing the BLM. The need for 

scientific research and information continues to increase as new issues are identified, including 

the effects of drought, climate change, and other landscape stressors on species habitat and 

migration corridors. New, improved, higher-resolution satellite imagery and aerial photography 

aid in the monitoring of Wilderness Areas and WSAs. This imagery is less expensive than 

complete reliance on ground patrols, maximizing the effectiveness of appropriated funds to 

manage these areas. The BLM is enhancing the role of science partnerships in wilderness 

management and collaborating with our partners to help manage BLM Wilderness Areas as a 

part of larger landscapes.

Developing Partnerships and Engaging People and Communities

Developing partnerships in wilderness stewardship is an important aspect of Wilderness Areas 

and WSAs management and allows the BLM to leverage limited resources to achieve 

management goals. The Wilderness Management Program benefits greatly from a volunteer 

force that provides thousands of hours of resource monitoring in addition to materials and 

transportation for specific projects. Nearly 100 formal and informal partnerships have been 

developed to facilitate wilderness stewardship activities. Typical examples of work performed by 

partners in Wilderness Areas and WSAs include trail construction and maintenance, invasive 

species eradication and monitoring, interim management monitoring of WSAs, and reclamation 

and restoration activities to create more natural environments. The BLM has developed a 

Memorandum of Understanding with the National Wilderness Stewardship Alliance, a national 

organization that is coordinating the establishment of partners and friends groups to assist in 

wilderness stewardship in the National Wilderness Preservation System. Many of these groups 

have strong ties to local communities and can help foster a sense of shared stewardship and 

pride in their local wilderness. 

Connecting Landscapes by Working Collaboratively

The Wilderness Management Program benefits greatly by working collaboratively with several 

crosscutting BLM programs and other agencies to achieve larger landscape scale goals. 

Projects that manage wildlife (e.g. desert bighorn sheep, sage-grouse etc.), fire, weeds, and 

rangeland resources routinely also benefit wilderness resources and assist the BLM in meeting 

its legislative requirement. By establishing connections across boundaries with other 

jurisdictions; other Federal, State and local agencies; and private conservation lands, the BLM 

complements and supplements the management of these areas, allowing the BLM to manage 

the wilderness areas under its jurisdiction as a part of these larger landscapes and 
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 88

strengthening the resilience of all areas.

2014 PROGRAM PERFORMANCE

Monitoring key indicators to determine trends in wilderness resource condition continues to be a 

priority. In 2014, the BLM plans to monitor approximately 8.7 million acres of wilderness. The 

Bureau will also continue to monitor approximately 12.8 million acres in WSAs to ensure 

wilderness characteristics are maintained.

The BLM's efforts to monitor trends in the quality of wilderness character as per “Keeping It 

Wild: An Interagency Strategy To Monitor Trends In Wilderness Character Across The National 

Wilderness Preservation System,” (USDA, General Technical Report RMRS-GTR-212) is also a 

priority. The protocol for monitoring and describing trends in the quality of wilderness character 

using a standardized methodology and format will enable the BLM to establish meaningful 

measures with verified baseline data for use into the future.

Wilderness management plans are written for Wilderness Areas to guide long-term 

management and protection of wilderness character and involve interdisciplinary effort 

associated with land use planning. In 2014, the BLM plans to prepare five Wilderness 

Management Plans. As wilderness management plans are completed, work will shift to other 

management activities such as monitoring and protection.

In addition, efforts to update existing wilderness characteristics inventories will increase in 2014.
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 89

Activity: Recreation Management

Subactivity: Recreation Resources Management

2013 

Full 

Year 

CR

2012 

Enacted1

2014

Change 

from 

2012 

Enacted

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Internal 

Transfers 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Recreation Mgt. ($000) 49,490 49,074 +745 +0 +2,000 51,819 +2,745

FTE (Recreation) 398 398 +0 +0 -4 394 -4

Other Major Resources:

POF: Recreation Fee 

(1232) 18,000 17,141 +0 0 +0 18,500 +1,359

SCDF: Rec Cost Recovery 

(5105) 1,500 1,890 +0 0 +0 2,000 +110

Trust Fund: CA OffHighway (7123) 6,899 6,210 +0 0 +0 6,899 +689 1

Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

Summary of 2014 Program Changes for Recreation Management 

Request Component ($000) FTE

Program Changes:

• Applied Science +2,000 0

TOTAL, Program Changes +2,000 0

JUSTIFICATION OF 2014 PROGRAM CHANGES

The 2014 budget request for the Recreation Resources Management Program is $51,819,000 

and 394 FTE, a program increase of $2,000,000 and -4 FTE from the 2012 enacted level. 

Program Increase – Applied Science (+$2,000,000/0FTE) – A funding increase totaling $2.0 

million will be directed towards the following three emphasis areas: Travel Management, Visitor 

Use Monitoring, and Applied Research in Benefits Based Recreation. The applied sciences 

funding for Travel and Transportation Management will support inventory, planning, 

implementation and monitoring in sage-grouse critical habitat areas to address and adapt 

management techniques aimed at improving species viability where OHV use is a threat. The 

National Visitor Use Monitoring Survey is a tool that provides statistically defensible data on 

visitor satisfaction and the economic impact of recreation on public lands. The collection of this 

data would contribute to how recreation use is expanding across a changing western landscape,

as well as provide accurate measurements of direct and indirect economic impacts. Through 

qualitative visitor assessment studies, the BLM will engage users, service providers, amenity 

professionals and decision makers in local communities to determine how to capture positive 

benefits and mitigate for negative ones. The research gathered from this funding will allow BLM 

State and field offices to partner with universities and local constituent groups to determine how 

to improve recreation outcomes while also conserving biophysical and cultural/heritage 

resources. 
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 90

PROGRAM OVERVIEW

Program Components

Public lands managed by the BLM provide some of the most diverse outdoor recreation 

opportunities on Federal lands in the western U.S. The Bureau’s Recreation and Visitor 

Services Program oversees a broad and complex set of recreation related and social 

management activities and programs.

The Recreation Management program is responsible for the following components: 

• Recreation Planning – Evaluating and assessing a wide range of social, economic, and 

recreational uses of public lands through the land use planning (LUP) process. 

Recreation Area Management Plans are prepared to implement LUP decisions in 

designated recreation management areas. 

• Travel and Transportation Management – Determining public and resource use 

access needs through the LUP process. The BLM travel and transportation management 

planning process establishes designations and restrictions for all modes of 

transportation including motorized and non-motorized uses. 

• Visitor Safety – Providing opportunities for safe recreational activities for the public, as 

well as to educate and encourage safe behavior.

• Facility Management and Accessibility – Providing daily operation and routine 

maintenance of over 3,650 recreation sites and 380 Special Recreation Management 

Areas including campgrounds, picnic and day use areas, visitor centers, waysides and 

kiosks, watchable wildlife sites, historic buildings and lighthouses, trailhead access 

points, and thousands of miles of rivers and trails. As communities near public lands 

grow in the West, visitation and demands for new trails and visitor service facilities 

increase each year. In addition to operating facilities, the BLM is responsible for ensuring 

facilities and programs meet accessibility standards for persons with disabilities. 

• River Management – Managing over 500 segments and about 9,000 miles of 

floatable/boatable rivers and lakes along with associated issues related to water quality, 

permitting, education and interpretation, visitor safety, enforcement patrols, and resource 

management. Of these floatable/boatable rivers and lakes, 320 segments and 6,600 

miles have significant recreational value. A portion of the funds for river management 

also serves the needs of Wild and Scenic Rivers, managed by the National Landscape 

Conservation System (NLCS) (see NLCS write-up).

• National Scenic & Historic Trails – Monitoring over 4,500 miles of 10 National Historic 

Trails and is responsible for over 600 miles of three National Scenic Trails. (See NLCS 

write-up).

• Hunting, Fishing, and Shooting Sports – Implement important provisions of Executive 

Order 13443, Facilitation of Hunting Heritage and Wildlife Conservation, which directs 

agencies to facilitate the expansion and enhancement of hunting opportunities and the 

management of game species and their habitat.

• Youth – Overseeing components of the Bureau’s Youth in the Great Outdoors initiative, 

a significant component of the President's America's Great Outdoors Initiative. The 

recreation program also provides oversight of the Take It Outside program to promote 

outdoor activities for kids. The BLM will continue to promote healthy and active lifestyles 

and better engage the next generation as public land stewards for natural resource 

conservation.
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 91

• Visual Resources – Analyzing, managing, and ensuring protection of visual resources 

to maintain valued landscape aesthetic character.

• Recreation Permits, Fees, and Concessions – Reviewing, implementing, and 

monitoring over 3,200 special commercial and competitive recreation permits and over 

800,000 individual use authorizations for special areas each year. The BLM also 

provides oversight and accountability for the recreation, commercial and concession fee 

programs. 

• Public Outreach, Stewardship and Partnerships – Promoting and supporting 

partnerships, volunteerism and stewardship to enhance recreational and educational 

experiences for visitors and public land users. The BLM is working with community 

leaders and networks of service providers to manage recreation opportunities that the 

public wants and that will bring economic benefits to local communities. The Bureau is 

also partnering with veterans and disabled sportsmen’s groups to ensure access to 

recreational opportunities.

• Visitor Information – Providing visitor information and services including maps, 

websites, interpretation and environmental education. Enhance the quality and 

consistency of baseline visitor and resource data by conducting inventories and 

implementing visitor use monitoring systems to improve understanding of the full range 

of social, economic and community resource values and enhance decision making 

capabilities.

• Cave Management – Overseeing cave and karst (an irregular limestone region with 

sinkholes, underground streams, and caverns) resource management policies and 

program.

• Customer/Visitor Service Satisfaction Surveys –Measuring success in providing 

quality visitor services through an annual survey. The BLM continues to maintain scores 

of above the 90 percent range in customer satisfaction in providing recreation program 

visitor services and facilities to its customers.

Critical Factors

The primary critical factors impacting the Recreation Program are:

• Urban Growth: As communities near public lands grow in the West, visitation and 

demands for new trails and visitor service facilities has increased each year. There are 

over 132 million acres of BLM-managed land in the western U.S. within 50 miles of an 

urban area with a population of 50,000 or greater.

• Public Demand: Visitation to public lands has increased from 51 million visitors in 2001 

to 59 million in 2012.

• Public Access Conflict: Off-highway vehicle (OHV) use on public lands continues to 

increase. In response, the BLM is implementing a comprehensive and interdisciplinary 

approach in developing travel management plans and implementing actions to address 

the demand for public services, ensure public health and safety, protect natural and 

cultural resources, and reduce use conflicts. The BLM addresses travel and 

transportation planning as well as OHV management and restoration needs through 

Travel Management Plans and the Resource Management Planning process.

• Public Safety and Resource Protection: Increasing urbanization and motorized 

activities have resulted in law enforcement personnel spending significant resources on 

OHV, urban interface and border-related enforcement activities.
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 92

Means and Strategies

The primary means and strategies utilized in the Recreation Program are:

• Visitor Data: Improving baseline visitor and resource data by conducting inventories 

and implementing visitor use monitoring systems.

• Travel and Public Access Management: Balancing off-highway vehicle access and 

use with resource protection and public access needs by updating and implementing 

comprehensive travel management plans;

• Visitor Information and Education: Expanding visitor information delivery and quality 

by improving signing and websites, and developing travel maps.

• Visitor health, safety and accessibility: Ensuring and enhancing visitor health and 

safety and improving access for the disabled by conducting recreation facility condition 

assessments and fixing problems or hazards.

• Permits and Use Authorizations: Regulating uses by issuing and monitoring recreation 

use permits and allocating use for commercial, competitive, organized, and individual 

uses within specially designated areas.

• Accountability and transparency: Improving accountability and effectiveness by 

issuing recreation special permits, conducting fee program and fee site business 

practices assessments, and conducting audits and program evaluations.

• Visitor Use Monitoring: Protecting resources, improving services, and enhancing the 

quality of recreational experiences by monitoring visitor use and satisfaction, as well as 

monitoring vehicular use and their impacts on resources.

• Partnerships and Public Service: Reducing operational costs by emphasizing the use 

of volunteers and providing extensive public service opportunities. The recreation 

program has been particularly successful in engaging volunteers, accounting for almost 

half of the entire Bureau’s volunteer hours and nearly doubling the seasonal recreation 

workforce to serve visitors, maintain facilities and restore resources.

2014 PROGRAM PERFORMANCE

In 2014, the Recreation Management program will continue to support the America’s Great 

Outdoors initiative and respond to traditional recreation demands from the public. 

• Recreation Planning: In 2014, workloads will focus on implementing a new Recreation 

Planning Handbook, slated for completion in 2013. Recreation planning requires not only 

coordination within the BLM, but also with other government and NGO partners. For this 

reason, the BLM continues to remain a major proponent of, and participant on, the 

Federal Interagency Council on Outdoor Recreation. The Bureau will also continue to 

support partnerships with recreation groups, non-profit organizations, and businesses 

and local communities to enhance BLM’s ability to leverage resources, expand visitor 

service business opportunities and recreation services, and cooperatively manage 

resources at the National, State and field levels. The BLM will also continue to work 

regionally to implement policies, expand partnerships, and emphasize training that 

accelerates the BLM's transition to a business-oriented, ecosystem services-based, and 

collaboratively-delivered management framework.

• Travel and Transportation Management: Recreational OHV use on public lands 

continues to increase, as does demand for access to travel across public lands for 

various uses and services. In response, the BLM uses a comprehensive and 

interdisciplinary approach in developing travel management plans (TMPs) and 

implementing actions to address the demand for public services, ensure public health 
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 93

and safety, protect natural and cultural resources, and reduce use conflicts. The BLM 

has completed 138 TMPs to date, and in 2014 the Bureau plans to complete 18 of 32 

active TMPs. 

• Recreation Permits, Fees, and Concessions: In 2013, the BLM will release a new 

Handbook that will guide field offices in the management of recreation permits and fees, 

including concession opportunities. The BLM will continue to encourage Field offices to 

maintain spending of fee dollars at the sites where they are collected, which allows the 

public to see immediate results from their participation. The Bureau will also continue to 

conduct evaluations and audits of the recreation fee collection and permitting processes 

to ensure compliance with BLM policy and GAO/IG recommendations. The 2014 

President’s Budget includes a proposal to permanently authorize the Federal Lands 

Recreation Enhancement Act, which expires in December 2014. 

• Support Renewable Energy by Protecting Aesthetic Quality of the Landscape and 

Improving Energy Efficiency – The VRM program plays a significant role in the 

analysis of the visual and aesthetic impacts, mitigation and sighting requirements of 

renewable energy (solar and wind) development and other proposed landscape-altering 

use activities. The program will assist in the analysis of renewable energy projects, 

enhance project conservation design, and improve quality and energy efficiency of 

recreation sites through expanded Visual Resource Management (VRM) and Quality 

Built Environment guidance and program support. 

• Maintain Youth, Education and Stewardship Programs – The program will 

encourage partnerships in the implementation of the BLM’s 21st Century Conservation 

Service Corps, and continue to emphasize and promote stewardship and responsible 

use programs. In addition, the program will work with partners to improve delivery of real 

time information through the internet and provide stewardship ethics information to 

visitors of the public lands.

• Support for Federal Energy Regulatory Commission (FERC) relicensing of 

hydropower through a Service First Agreement – Future BLM recreation 

opportunities will increase due to the formation of a Service First Hydropower Program 

(SFHP), a USDA/DOI partnership to increase agency efficiency and effectiveness in 

FERC proceedings. The BLM will begin to work on mitigation measures to offset lost 

recreation opportunities from FERC projects early in the relicensing process. There are 

potentially more than 50 projects on Bureau and U.S. Forest Service administered land 

that could go to formal license proceedings within the next five years. By forming a 

SFHP, there will be increased efficiencies in resource protection, training and pooling of 

scarce skills, and obtaining appropriate mitigation through licensing opportunities that 

otherwise would be missed. 
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 94

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Energy and Minerals 

Management

Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 95

Activity: Energy and Minerals Management

2014

Change 

from 

2012 

Enacted 

(+/-)

Fixed 

Costs &

Related 

Changes 

(+/ -)

Internal 

Transfers

(+/-)

Program 

Changes 

(+/ -)

Budget 

Request

2013

Subactivity

Full 

Year CR

2012 

Enacted1

Oil and Gas 

Mgmt. $ 76,042 72,466 +1,183 -2,000 -24,950 46,699 -25,767

FTE 603 613 +0 +0 -163 450 -163

Oil and Gas 

APD 

Processing 

Fund $ 32,500 32,500 +0 +0 +0 32,500 +0

FTE 319 319 +0 +0 +0 319 +0

Offsetting APD 

Fees $ -32,500 -32,500 +0 +0 +0 -32,500 +0

Inspection 

Fees $ 0 0 +0 +0 +47,950 47,950 +47,950

FTE 0 0 +0 +0 +208 208 +2080

Offsetting 

Inspection 

Collections $ 0 0 +0 +0 -47,950 -47,950 -47,950

Coal Mgmt. $ 8,103 7,043 +131 +0 +2,421 9,595 +2,552

FTE 64 70 +0 +0 +6 76 +6

Other Mineral 

Resources 

Mgmt. $ 9,478 8,402 +159 +0 +2,025 10,586 +2,184

FTE 81 81 +0 +0 +7 88 +7

Renewable 

Energy $ 22,826 19,703 +237 +2,000 +7,121 29,061 +9,358

FTE 102 92 +0 +0 +61 153 +61

Total Activity $ 116,449 107,614 +1,710 0 -13,383 95,941 -11,673

FTE 1,169 1,175 +0 0 +119 1,294 +119 1

Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

ACTIVITY DESCRIPTION

Energy and mineral resources generate the highest revenue values of any uses of the public 

lands from royalties, rents, bonuses, sales, and fees. In 2012, onshore Federal lands produced 

41 percent of the Nation’s coal, 40 percent of the Nation’s geothermal capacity, 13 percent of 

domestic natural gas, and five percent of domestically-produced oil. 

The goal of the Oil and Gas Management Program is to provide access to oil and gas where 

appropriate, and to manage exploration and development activities in an environmentally sound 

way. 
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 96

Coal is used to generate approximately 48 percent of the Nation’s electricity. The electric power 

sector (electric utilities and independent power producers) accounts for about 90 percent of all 

coal consumed in the U.S. and is the driving force for the Nation’s coal consumption. 

The BLM provides other minerals needed to support local infrastructure and economic 

development. Demand is increasing globally for non-energy solid minerals such as potassium, 

phosphate, sodium, and potash. Other important mineral resources produced from public lands 

include uranium, gold, silver, gypsum, sodium, building stone, sand, and gravel. The BLM 

processes sales and issues permits for mineral materials such as sand, gravel, stone, and 

clays, which are essential to maintenance and construction of roads and buildings, including 

those used by BLM to fulfill its land management objectives.

The Renewable Energy Management Program is responsible for processing right-of-way 

applications for wind and solar energy, overseeing geothermal energy leasing and development, 

and prioritizing transmission development associated with renewable energy production.

Geothermal energy development has historically been managed as part of the Oil and Gas 

Management Program. Funding for geothermal leasing and development was transferred from 

the Oil and Gas Management Program to the Renewable Energy Program in 2013 as 

management oversight of renewable energy development was consolidated into a single 

program. The BLM has the delegated authority for leasing 249 million acres of Federal land 

(including just over 100 million acres of National Forest land) with geothermal potential.
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 97

Activity: Energy and Minerals Management

Subactivity: Oil and Gas Management

2013 

Full 

Year 

CR

2012 

Enacted1

2014

Change 

from 2012 

Enacted

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Internal 

Transfers 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Oil & Gas Mgt. 

($000) 76,042 72,466 +1,183 -2,000 -24,950 46,699 -25,767

FTE 603 613 0 -10 -153 450 -163

Other Major 

Resources:

APD Fees 32,500 32,500 +0 +0 +0 32,500 +0

APD Offsetting 

Collections -32,500 -32,500 +0 +0 +0 -32,500 +0

APD FTE 319 319 +0 +0 +0 319 0

Inspection Fee 0 0 +0 +0 +47,950 47,950 +47,950

Inspection Fee 

Offsetting 

Collections 0 0 +0 +0 -47,950 -47,950 -47,950

Inspection Fee 

FTE 0 0 +0 +0 +208 208 +208

POF: Energy Act 

Permit Processing 

Fund (9141) 20,698 18,512 +0 +0 18,726 +214

SCDF: Energy 

and Min. Cost 

Recoveries (5104, 

5110, 5330) 3,320 3,292 +0 +0 +28 3,320 +28 1

Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

Summary of 2014 Program Changes (and Internal Transfers) for Oil & Gas Management

Request Component ($000) FTE

Program Changes/Internal Transfers:

• Transfer Geothermal Funds to Renewable Energy Subactivity (nonadd in 2013) -2,000 -10

• General Program Increase: Leasing, Oversight, and Environmental 

Studies +8,000 +49

• Leasing Reform +5,000 +20

• Decrease Base Funding Inspections/shift cost 

to fees -37,950 -222

TOTAL, Program Changes -26,950 -163

Summary of 2014 Program Changes for Inspection Fee Operations

Request Component ($000) FTE

• Increase Inspection Fees (offset by elimination of 

appropriations) +47,950 +208

TOTAL, Program Changes +47,950 +208
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 98

JUSTIFICATION OF 2014 PROGRAM CHANGES

The 2014 budget request for the Oil and Gas Management subactivity is $46,669,000 and 450 

FTE, and reflects an internal transfer of -$2,000,000 and –10 FTE and a net program change of 

-$24,950,000 and -153 FTE from the 2012 enacted level, for a total direct FTE reduction of 

-163. 

Transfer Geothermal Funds to Renewable Energy Subactivity (-$2,000,000/-10 FTE) – The 

2014 budget reflects the transfer of geothermal funding from the Oil and Gas Management 

program to the Renewable Energy Management subactivity, a transfer which the BLM executed 

in its 2013 Operating Plan. 

General Program Increase: Leasing, Oversight, and Environmental Studies 

(+$8,000,000/+49 FTE) – A $5.0 million program increase restores the BLM’s leasing and 

oversight capacity to the 2011 enacted level, after a 2012 reduction in appropriations limited 

BLM’s ability to implement the leasing reforms it instituted in May 2010. This additional funding 

in 2014 will allow BLM to more fully achieve the goal of the leasing reforms and to effectively 

oversee energy permitting and development activities, given the larger onshore well inventories, 

with more sophisticated operations that include complicated completions for the newer 

horizontal drilling and hydraulic fracturing taking place. In addition, the BLM is requesting an 

additional $3.0 million for large, regional-scale analysis and studies, including environmental 

impact statements, for conventional energy issues.

Leasing Reform (+$5,000,000 /+20 FTE) – A $5.0 million programmatic increase is requested 

to enable the BLM to effectively implement its leasing reforms without sacrificing other program 

needs, such as providing industry with timely access to Federal oil and gas resources. The 

increased opportunity for public participation, transparency and a more thorough environmental 

review process with the appropriate documentation required by BLM leasing reforms have 

increased operational costs. The additional funds will enable the BLM to conduct defensible and 

timely lease parcel environmental analysis, which is a heavily scrutinized portion of the program.

Decrease Base Funding for Inspections/Shift Cost to Fees (-$38,000,000/-162 FTE) - The 

2013 budget proposes shifting a significant share of the cost of oil and gas inspections to 

industry fees, for a savings of $37,950,000 in requested funding. 

Legislative Changes

Federal Oil and Gas Reforms - The Administration proposes a package of legislative and 

administrative proposals to reform the management of Interior's onshore and offshore oil and

gas programs, with a key focus on improving the return to taxpayers from the sale of these 

Federal resources and on improving transparency and oversight. Proposed changes fall into 

three general categories: advancing royalty reforms; encouraging diligent development of oil 

and gas leases; and improving revenue collection processes.

Royalty reforms include evaluating minimum royalty rates for oil, gas, and similar products; 

adjusting onshore royalty rates; analyzing a price-based tiered royalty rate; and repealing 

legislatively-mandated royalty relief. Diligent development requirements include shorter primary 

lease terms, stricter enforcement of lease terms, and monetary incentives to get leases into 

production (e.g., a new per-acre fee on nonproducing leases). Revenue collection 
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 99

improvements include simplification of the royalty valuation process, elimination of interest 

accruals on company overpayments of royalties, and permanent repeal of DOI's authority to 

accept in-kind royalty payments. Collectively, these reforms will generate roughly $2.5 billion in 

net revenue to the Treasury over 10 years, of which an estimated $1.7 billion will result from 

statutory changes. Many States will also benefit from higher Federal revenue sharing payments 

as a result of these reforms. In addition, the Department will continue to evaluate the use of 

internet-based oil and gas lease auctions.

The Budget also proposes to extend and revamp the oil and gas permitting pilot office authority 

established under the Energy Policy Act of 2005. Under the proposal, BLM would have flexibility 

to relocate pilot offices as needed based on changing permitting demands over time. The 

Administration continues to seek repeal of the Energy Policy Act’s prohibition on BLM 

establishing cost recovery fees for processing applications for oil and gas permits to drill as well 

as the diversion of mineral leasing receipts from the Treasury to the mandatory BLM Permit 

Processing Improvement Fund. On repeal of these EPAct provisions, BLM will promulgate 

regulations to establish cost recovery fees for applications for permits to drill. These fees would 

help replace the termination of mandatory funds, which would become effective in 2015.

Inspection Fee - The 2014 budget will propose to shift a significant share of the cost of the 

inspections activity to industry fees, for a savings of $38.0 million in requested appropriations. 

The estimated collections generated from the proposed inspection fees will total $48.0 million, 

fully offsetting the proposed reduction in appropriated funding and providing for a net increase of 

$10.0 million in funds available for this critical BLM management responsibility. The increased 

funding is aimed at correcting deficiencies identified by the Government Accountability Office in 

its February 2011 report, which designated Federal management of oil and gas resources, 

including production and revenue collection, as high risk. The $10.0 million increase will help 

BLM achieve the high-priority goal of increasing the completion of inspections of Federal and 

tribal high-risk oil and gas cases by nine percent over 2011 levels. The BLM will also complete 

more environmental inspections to ensure environmental requirements are being followed in all 

phases of development. Proposed appropriations language to implement the fee will be 

included in the General Provisions for the Department of the Interior.

Repeal Geothermal Payments to Counties - The Administration proposes to repeal Section 

224(b) of the Energy Policy Act of 2005. Prior to passage of this legislation, geothermal 

revenues were split between the Federal government and States, with 50 percent directed to 

States, and 50 percent to the Treasury. The Energy Policy Act of 2005 changed this distribution 

beginning in 2006 to direct 50 percent to States, 25 percent to counties, and for a period of five 

years, 25 percent to a new BLM Geothermal Steam Act Implementation Fund. The allocations 

to the new BLM geothermal fund were discontinued a year early through a provision in the 2010 

Interior Appropriations Act. The repeal of Section 224(b) will permanently discontinue payments 

to counties and restore the disposition of Federal geothermal leasing revenues to the historical 

formula of 50 percent to the States and 50 percent to the Treasury. This results in estimated 

savings of $4.0 million in 2014 and $48 million over ten years.
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 100

PROGRAM OVERVIEW

Program Components

The BLM Oil and Gas Management Program is responsible for providing access to onshore 

energy resources in an environmentally responsible manner. This program manages 

approximately 48,000 onshore leases that generate roughly $3 billion in revenues each year. 

The primary program components are:

• Conducting oil and gas lease sales, primarily across the West and in Alaska, consistent with 

land use plans and requirements for public participation.

• Administering existing oil and gas leases and assignments.

• Processing oil and gas Applications for Permit to Drill (APDs) and subsequent modifications, 

both for subsurface and engineering criteria as well as the footprint on the surface.

• Inspecting existing oil and gas authorizations, determining adequate financial bonding, and 

evaluating well inventories in the field to address inactive wells.

• Inspecting producing oil and gas wells and ensuring proper reporting of production.

• Taking enforcement actions to ensure compliance with terms and conditions of leases, 

APDs, and other authorizations. This includes compliance with environmental conditions.

• Approving reservoir management agreements to provide for the orderly development of oil 

and gas fields.

• Evaluating oil and gas fields for drainage (fluid minerals on BLM land removed through a 

well on adjacent private land), and taking administrative actions, if necessary, to protect 

Federal mineral interests. This is critical in high visibility areas like the Bakken Play of North 

Dakota.

• Protecting the environment by plugging and reclaiming orphan oil and gas wells drilled by 

previously existing oil and gas companies and Alaska Legacy Wells originally drilled by the 

Federal Government (United States Navy and U.S. Geological Survey). The 2014 budget 

includes a legislative proposal to make mandatory funding available for two BLM activities of 

high priority to the State of Alaska: legacy well remediation and the Alaska Conveyance and 

Lands program. This proposal will enable BLM to accelerate its progress in addressing 

legacy wells. 

• Carrying out trust responsibilities by managing operational activities on approximately 3,700 

oil and gas leases for Indian Tribes and individual Indian allottees.

• Providing technical advice on leasing and operational matters to the Bureau of Indian 

Affairs, Indian Tribes, and individual Indian mineral owners.

High Risk Program Designation and Other Program Recommendations

In a February 2011 report, the Government Accountability Office (GAO) designated Federal 

management of oil and gas resources, including production verification and revenue collection 

as high risk because the Department of the Interior: (1) did not have reasonable assurance that 

it was collecting its share of revenue from oil and gas produced on Federal lands; (2) continued 

to experience problems in hiring, training, and retaining sufficient staff to provide oversight and 

management of oil and gas operations on lands and waters; and (3) was engaged in a broad 

reorganization of both its offshore oil and gas management and revenue collection functions. 

The BLM continues to improve program effectiveness in these areas and has taken steps to 

address the problems identified by the GAO and other audit recommendations. Some of the 
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 101

focus areas include:

• Rulemaking effort in response to audits that would improve and update existing 

operation guidance for Federal and Indian minerals including: Onshore Orders 3, 4 and 

5 for Site Security, Oil Measurement, and Gas Measurement, respectively. Proposed 

Onshore Order 9 for Emission Reduction and Royalty Recovery would replace Notice to 

Lessees 4a.

• Improving and refreshing modules within the 1997 operational database for the 34,000 

annual inspections, plus the 92,000 active wells that will provide for stronger record 

management capacity.

• Transitioning to a risk-based inspection strategy and continuing to develop automation 

support modules. This strategy will help ensure the highest risk cases are inspected 

each year based on weighting factors to determine priorities.

• Following an internal control review of the inspection and enforcement program, the BLM 

is implementing recommendations to correct and improve the inspection and 

enforcement program and providing oversight guidance to coordinate across office 

boundaries. The objective is to provide accurate and complete data in the records, plus 

provide oversight that the data makes sense to ensure orderly development and 

accounting of the Nation’s finite energy mineral resources.

• The BLM is preparing an Advanced Notice of Proposed Rulemaking to propose royalty 

rate adjustments for new competitive leases in order to achieve a better return to 

taxpayers.

• The BLM Office of Law Enforcement and Security, in cooperation with BLM technical 

staff, actively investigates incidents involving theft, fraud, or misreporting of oil and gas 

resources and takes administrative, civil, and/or criminal action as appropriate.

• The BLM is evaluating, updating, developing and conducting training courses to assist in 

the evaluation of applications, inspection of operations, and production accountability 

reviews. Training is focused on the inspectors’ certification; developing certification for 

surface compliance; oil and gas training for managers; and technical training for the 

engineers. 

• The BLM is constantly evaluating opportunities to recruit new personnel (with a focus on 

recruiting veterans) and retain personnel in critical skill areas through various means, 

including a recent revision of the position descriptions for Petroleum Engineering 

Technicians and Petroleum Accountability Technicians with the goal of creating a clear 

upward mobility path.

BLM’s Onshore Leasing Reforms

Onshore fossil fuels will continue to make an important contribution in fulfilling our Nation's 

energy needs, but development of these resources needs to be conducted responsibly. In May 

2010, the BLM finalized several reforms to its oil and gas program to improve environmental 

protection of important natural resources on public lands while aiding in the orderly leasing with 

measured and balanced development of these resources. The reforms establish a more 

rigorous, open, consistent, and environmentally sound process for leasing and developing oil 

and gas resources on public lands. These reforms and parcel screenings (including a boots-onthe-ground view of resource concerns for each parcel) have helped to reduce potential conflicts 

that can lead to costly and time-consuming protests and litigation of leases. In 2009, the BLM 

had 1,475 parcels protested. In FY 2012, the BLM has significantly decreased the number of 

parcels protested to 371. Not only have protests declined significantly, but the protests that are 

received are now being resolved more quickly. 
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 102

Under the reformed leasing policy, the BLM will continue to: 

• Engage the public in the development of Master Leasing Plans (MLP) prior to leasing in 

certain areas with important environmental resource values and where new oil and gas 

development is anticipated. The intent is to fully consider other important environmental 

resource values before making a decision on leasing and development in an area.

• Ensure potential lease sales are fully coordinated both internally and externally, 

including public participation, and interdisciplinary review of available information, as well 

as on-site visits to parcels prior to leasing when necessary to supplement or validate 

existing data.

Inspection and Enforcement

The BLM performs several different types of oil and gas inspections in an effort to ensure that 

the American people receive the benefit of the natural and mineral resources on their lands and 

to ensure that those resources are managed in an environmentally responsible manner.

Production Inspections 

The BLM conducts inspections on production facilities to ensure that equipment, practices, and 

procedures are in accordance with the regulations, Orders, and any applicable approval 

documents. Historically, the BLM has conducted two categories of production inspections: high 

production case inspections under FOGRMA and other production inspections.

• FOGRMA/High Production Case Inspections. The Federal Oil and Gas Royalty 

Management Act (FOGRMA) requires the BLM to perform at least one inspection 

annually at each lease site producing or expected to produce significant quantities of oil 

or gas in any year.

• Other Production Inspections. The BLM also strives to annually perform inspections on 

approximately one-third of all other producing (lower than high production) leases and 

agreements on a rotating basis, so that all leases are inspected every three years and 

accounting credibility for these operations is maintained.

In the past, the BLM prioritized leases to ensure that the leases were inspected based on 

production levels (i.e., FOGRMA high-production leases were inspected first). The BLM initiated 

a risk-based strategy for prioritizing production inspections in 2011 to improve upon this system. 

The BLM plans to expand this risk-based strategy to the other types of inspections as soon as 

identified risk factors can be tracked in the Automated Fluid Minerals Support System, the 

inspection and enforcement database. The risk-based strategy will help the BLM maximize the 

use of a limited inspection staff to better meet the inspection goals and requirements in the 

future. The BLM will continue to train new inspectors so that the BLM will be able to meet its 

minimum inspection requirements going forward and more effectively target inspection 

resources to meet other inspection goals established by BLM policy. 

BLM conducted 2,148 planned onsite, high-priority production inspections in 2012. The Oil and 

Gas Management program continues to be challenged with retaining certified inspectors in 

remote field offices. The BLM will continue to search for ways to retain these inspectors. The 

BLM also will continue to use qualified natural resource specialists to assist in environmental

inspections to allow the certified petroleum engineering technicians to concentrate on 

production verification inspections.
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 103

Drilling Inspections

The BLM conducts inspections on wells as they are being drilled. The operations are inspected 

to ensure that equipment, practices, and procedures are in accordance with the approval 

documents. 

Abandonment Inspections

The BLM conducts abandonment inspections during the plugging of oil and gas wells to ensure 

wellbore integrity and zonal isolation of underground formations. These could be depleted 

producing wells or newly drilled dry holes.

Workover Inspections

The BLM inspects workover operations on existing producing, depleted producer and service 

wells. The operations are inspected to ensure that equipment, practices, and procedures are in 

accordance with the approval documents.

Environmental Inspections

Natural Resource Specialists, Environmental Scientists, or other resource program specialists 

(wildlife biologists, archaeologists, etc.) typically perform BLM environmental inspections. 

Environmental inspections include inspection of reclamation efforts, erosion control measures; 

topsoil stockpiling, well location, access road, pit construction and use, spills, water disposal 

methods, tank battery dikes and surface hazards. Environmental inspections also include 

inspections to ensure abandoned locations are properly reclaimed and post approval 

inspections that look specifically at surface environmental impacts. They do not include onsite 

inspections conducted prior to the APD being approved.

Records Verification Inspections

The BLM uses records verification inspections to review production records and compare them 

to production reports sent to the Office of Natural Resources Revenue. These inspections may 

not require additional review with onsite visits.

Undesirable Event Inspections

The BLM conducts undesirable event inspections when spills or accidents occur on an oil and 

gas lease. 

Alleged Theft Inspections

When an alleged theft of production is reported to a BLM Field Office by an operator or the 

public, the BLM conducts an alleged theft inspection.

Table 1 below shows a breakout of inspections completed in 2009-2012 and estimated for 2013, 

and 2014.
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 104

Table 1: Inspections Completed and Estimated

FY 2009

Completed

FY 2010

Completed

FY 20112

Completed

FY 20122

Completed

FY 20132

Estimated

FY2014 

Estimated

Production Inspections

1. FOGRMA High Priority1 648 649 N/A N/A N/A N/A

2. High-Risk Cases2 N/A N/A 2,606 2,148 2,250 2,250

3. Other Production 6,371 6,486 4,938 5,126 5,000 5,000

Total Production 

Inspections 7,019 7,135 7,544 7,274 7,250 7,250

Other Inspections

1. Drilling Inspections 1,587 1,884 1,963 1,951 1,900 1,900

2. Abandonment 

Inspections 878 1,168 1,100 1,268 1,200 1,200

3. Workover Inspections 346 400 345 417 250 250

4. Environmental 

Inspections 16,498 17,978 19,371 20,171 20,000 20,000

5. Record Verification 

Inspections 2,907 2,613 2,430 3,023 2,500 2,500

6. Undesirable Event 

Inspections3 363 393 476 467 290 290

7. Alleged Theft 

Inspections3 2 2 4 0 0 0

Total Other Inspections 22,581 24,438 25,689 27,297 26,140 26,140

Total Inspections4 29,600 31,573 33,233 34,571 34,490 34,490

1

BLM required inspections in 2009 and 2010 are those inspections required by either regulation or policy. FOGRMA provides 

guidance for inspections.

2

In 2011, the BLM instituted a risk-based strategy for production inspections. This category consists of wells and leases that meet 

BLM’s high-risk criteria. Based on this strategy, each year’s list of required high-risk cases is determined based on the previous 

year’s history. For this reason, the actual quantity of required high-risk inspections cannot be determined until the previous year is 

complete. For budgeting purposes, the above table assumes the same balance of criteria and cases as was present in FY 2012 

holds constant through FY 2014. The FY 2013 and FY 2014 estimated numbers are based on assuming the BLM completes 95% of 

required high-risk inspections.(NOTE: The actual FY 2013 Inspection Strategy, detailing the required inspections, is not complete 

as of the publication of this justification.)

3

These inspections are conducted on an as-needed basis.

4 This table combines inspections on cases and inspections on individual wells.

Critical Factors

The primary critical factors impacting the program are:

• The BLM must review and analyze environmental documents which include increasingly 

complex environmental issues and sophisticated field operations; impacts, and 

mitigation plans for land use plans, lease sales, APDs, and subsequent production 

operations.

• Protests, appeals, and litigation impede the ability to complete the necessary 

adjudication of leases and permits.

• As production activity increases, the BLM must increase the number of oil and gas 

inspections and increase efforts to ensure appropriate accountability of production 

volumes across the 23,000 producing leases.
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 105

• Expanded well inventory and operations require vigilance to provide compliance 

credibility and ensure public safety as well as protection of other natural resources.

• Proper documentation of the well operations from 92,000 active wells in the database

and official paper files remains a challenge especially as most of the tracking program 

was built in 1997. 

• The BLM faces challenges with technical employee recruitment, training, and retention, 

as current staff retires and the program competes with higher salaries often offered by 

private industry and other agencies.

Performance Measures

The BLM has consistently tracked the number of inspections completed to ensure that oil and 

gas production on public land is carried out in an environmentally responsible manner while 

generating a fair return of revenue for the American people. 

The BLM is using a Strategic Plan measure that tracks the percent of leases where production 

verification has occurred. The new measure will compare the total number of cases against the 

number of production and records verification inspections completed on those cases annually. 

Prior to the establishment of this measure, the BLM tracked the number of inspections 

completed on both wells and cases using the total number of required inspections as a baseline. 

The older measure was ineffective in two ways. First, a single case may have multiple wells and 

therefore the denominator may have been under-inclusive in that it combined what should have 

been multiple units into a single unit and, conversely, the measure may have also been overinclusive in that it included multiple wells when only a single "case" inspection was carried out. 

Second, the numerator included all inspections, while the denominator only included required 

inspections, this resulted in multiple years in which more than 100 percent performance was 

reported since required inspections is a subset of total inspections.

The numbers of inspections, inspectors, and total annual costs have risen over the previous 

years. The number of inspections has increased and the average cost per inspection has stayed 

about the same at $1,700. A single case may have multiple inspections performed upon it and 

therefore the costs of inspections per case are, on average, approximately $3,849.

Processing of Applications for Permit to Drill

Between 1996 and 2006, the number of new APDs received rose dramatically with the 

development of coalbed natural gas (CBNG), especially in the Powder River and San Juan 

Basins. The BLM expanded its capability to process APDs to handle the increasing demand and 

growing well inventory. The number of APDs received dropped in 2007 and 2008 as the CBNG 

wells plateaued, but still remained relatively high. The number dropped further between 2009 

and 2011, but increased again in 2012 due to stronger industry demand. The complexity of 

processing these APDs has grown, as have the unit cost for processing them and the need to 

address protests and appeals from interest groups. The BLM projects that it will receive 5,500 

APDs in 2013 and 2014. Approval times have increased or remained high due to the increased 

complexity of resource issues analyzed in environmental documents, in addition to industry 

turnover of their permitting specialists that often result in BLM receiving inconsistent and 

incomplete permit packages. 

As shown on the Table 2 below, the number of APDs awaiting approval is projected to continue 
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 106

to decline in 2013 and 2014.

Table 2: APDs: Pending, Received, Approved, Processed and Available to Drill

2009 

Actual

2010 

Actual

2011 

Actual

2012 

Actual

2013 

Estimated

2014 

Estimated

Total APDs pending at 

start of year 5,419 5,370 4,580 4,108 3,487 3,600

New APDs received 5,257 4,4471 4,728 5,240 5,500 5,500

APDs approved 4,571 4,593 4,725 5,009 TBD TBD

Total APDs processed 5,306 5,237 5,200 5,861 5,500 5,500

APDs pending at year 

end 5,370 4,580 4,108 3,487 3,600 3,300

APDs approved, waiting 

to be drilled (new in 

2011) N/A N/A 7,226 6,960 6,900 6,800

1

2010 New APDs received was higher than originally reported. 

Chart 1 below illustrates the relationship between the prices for oil and gas and leasing and 

permitting activity from 2004-2012. Leasing and permitting demand is significantly influenced by 

energy prices.

Chart 1: New Leases Issued, Drilling Permits Approved

2014 PROGRAM PERFORMANCE

The percentage of leases with approved APDs is expected to increase slightly due to an overall 

decrease in the number of active leases. The percentage of APDs processed is expected to be 

60 percent, a slight decrease from the 2012 level resulting from a decrease in the number of 

pending APDs although the permits analysis are more complex. The percentage of producing 

fluid mineral cases that have a completed inspection is expected to increase in 2014.

$0

$20

$40

$60

$80

$100

$120

0

1,000

2,000

3,000

4,000

5,000

6,000

7,000

8,000

9,000

2004 2005 2006 2007 2008 2009 2010 2011 2012

Leases Issued Each Year Permits Approved

Natural Gas ($s Per MCF) Xs 10 Oil - ($s Per Barrel)

New Leases Issued 

New Drilling Permits Approved
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 107

Activity: Energy and Minerals Management

Subactivity: Coal Management

2013 

Full 

Year 

CR

2012 

Enacted1

2014

Change 

from 

2012 

Enacted

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Internal 

Transfers 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Coal ($000) 8,103 7,043 +131 +0 +2,421 9,595 +2,552

FTE 64 70 0 0 +6 76 +6 1

Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

Summary of 2014 Program Changes for Coal Management

Request Component ($000) FTE

Program Changes:

• Inspections and Enforcement +2,421 +6

TOTAL, Program Changes +2,421 +6

JUSTIFICATION OF 2014 PROGRAM CHANGES

The 2014 budget request for Coal Management is $9,595,000 and 76 FTE, a program increase 

of $2,421,000 and +6 FTE from the 2012 enacted level.

Inspections and Enforcement (+$2,421,000/+6 FTE) – The 2014 budget proposes an 

increase of $2.4 million to be used for inspection and enforcement of coal production on Federal 

and Indian lands, returning the program to roughly the 2011 enacted level. The BLM will 

continue efforts to pursue new cost recovery within this program. By statute, cost recovery fees 

from Indian lessees go to the Treasury and are not available for accomplishing program 

workloads.

PROGRAM OVERVIEW

Program Components

The BLM is responsible for leasing the Federal coal mineral estate on approximately 570 million 

acres. In 2012, 48 percent of the Nation’s electricity was generated from the use of coal and 

approximately 41 percent of that coal was produced on Federal lands managed by the BLM.

The BLM currently manages a coal program that consists of approximately 310 Federal coal 

leases and 484,017 acres under lease. Over the last decade (2003-2012) Federal coal lease 

production was 4.56 billion tons, with a total value of $55.4 billion that generated $6 billion in 

royalties. During this same period, Federal coal lease sales resulted in 46 leases sold totaling 

71,165 acres and 5.24 billion tons of mineable coal leased. More than $4.5 billion in bonus bids 

were accepted.
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 108

The BLM Coal Management Program is responsible for:

• Conducting competitive coal lease sales and ensuring the public receives fair market 

value;

• Administering existing coal leases and providing additional approvals to ensure 

compliance with the terms and conditions of the lease;

• Processing coal exploration licenses and monitoring operations for compliance;

• Processing coal resource recovery and protection plans and modifications to protect the 

public’s resources from waste and to ensure maximum economic recovery;

• Inspecting Federal and Indian coal use authorizations to ensure compliance with the 

authorization’s terms and conditions;

• Independently verifying reported coal production from Federal and Indian coal leases;

• Processing Federal coal trespasses;

• Taking enforcement actions to ensure compliance with terms and conditions of leases 

and authorizations; and

• Providing prelease evaluations of mineral tracts when requested by the Bureau of Indian 

Affairs for Indian Tribes and Indian mineral owners.

Critical Factors

• In an effort to increase efficiency and to standardize reporting of mine inspections and 

production verification, the BLM is working toward the development of a Mineral 

Tracking System (MTS). The MTS will respond to needs identified from a 2003 

Government Accountability Office (GAO) audit and will implement DOI policy direction. A 

pilot version of this system was launched in Utah and Wyoming; the BLM will continue 

this pilot through 2014.

• The BLM faces a loss of institutional knowledge needed to effectively manage the Coal 

Program as many of its engineers, geologists, and land law adjudicators retire or 

become eligible for retirement. The best way to prepare new employees to successfully 

accomplish coal workloads is to ensure mining engineers and geologists complete the 

new mine employee’s safety training, attend certification courses, and are provided with 

adequate on the job training.

• Surface coal leasing requires the consent of surface owners prior to holding a lease 

sale. The BLM encourages surface owners to participate in land use planning processes 

and encourages lease applicants to acquire surface owner consent prior to submitting 

the lease application to the BLM.

• The BLM continues to work with the U.S. Forest Service, the Office of Surface Mining 

Reclamation and Enforcement, and other Federal and State agencies to streamline 

multiple agency processes to minimize the time necessary to process applications to 

explore for and produce Federal coal resources. Federal surface management agencies 

are required to provide the BLM their decision whether to lease Federal coal or not.

• The BLM and the Mine Safety and Health Administration are collaborating to provide a 

safer workplace for developing Federal and Indian coal.

• The BLM is adopting the recommendations for production accountability improvements 

developed in the Report to the Royalty Policy Committee, Mineral Revenue Collection 

from Federal and Indian Lands and the Outer Continental Shelf. This includes the 

development of new guidance regarding inspection and enforcement and production 

verification, as well as providing training courses focused on safety and accomplishing 

inspector’s duties.
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 109

• Ensuring environmental protection and maximum recovery of coal resources continues 

to be a priority for the BLM.

• The BLM Coal Management Program is being reviewed by the Department of the 

Interior Office of the Inspector General and the GAO; reports are due in 2013. 

Other Funding Sources

The Coal Management Program is primarily funded through this subactivity. Another funding 

source is service charges collected from coal lease document processing. The BLM has been 

implementing cost recovery for actions filed with the BLM since a cost recovery rule was 

implemented November 7, 2005. As older actions that predate cost recovery are completed 

and the workload focuses more on newer actions that are subject to cost recovery, the receipts 

from cost recovery are increasing. Receipts from cost recovery were approximately $125,000 in 

2008 and increased more than threefold to $436,000 in 2012. The BLM intends to be more 

aggressive in identifying and instituting additional cost recovery fees to cover program costs in 

2014 and beyond.

2014 PROGRAM PERFORMANCE

The BLM anticipates completing processing for approximately nine percent of the pending coal 

lease applications during 2014. In an effort to create a more efficient application process, the 

BLM grouped lease applications that are in close geographic proximity for a streamlined 

analysis of environmental impacts. The grouped environmental analysis better evaluates 

cumulative effects and can be processed faster than sequentially processing the NEPA analysis 

for each lease application individually. Grouping results in multiple lease sales happening over a 

relatively short period of time. However, as grouping continues, there is a tendency to see 

groups mature to sale together with a longer period of what might appear to be inactivity until 

the next group matures to sale. Resources are used during these periods to complete 

environmental, geological and engineering analyses, hold lease sales, and process coal leases. 

Processing was completed for five percent of coal lease applications in 2009 and 2010, seven 

percent in 2011, and 18 percent in 2012. In 2012, the BLM processed eight leases, held six 

successful coal lease sales and accepted $1.55 billion dollars in bonus bids for 1.39 billion tons 

in the six leases sold. BLM 2012 coal lease sales represented the largest bonus bid amount 

ever received in a single fiscal year. There are several group environmental analyses in 

progress that will yield multiple process completions in 2013.

The BLM completes approximately 2,700 inspection, enforcement, and production verification 

actions each year. Inspections are performed to ensure compliance with the lease terms and 

conditions and mining plan approvals. Enforcement actions are necessary where the lessee 

fails to conform to the established lease requirements. During the inspection process, the BLM 

inspector will collect production data to independently determine if the coal production being 

reported by the lessee is reasonable. The BLM must also complete post lease administrative 

actions while managing leases. These post lease actions vary from lease readjustments, lease 

modifications, to resource recovery and protection plan approvals. Normally, post lease actions 

are market dependent. 
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Chapter VII – Management of Lands and Resources VII - 110

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Activity: Energy and Minerals Management

Subactivity: Other Mineral Resources

2013 

Full 

Year 

CR

2012 

Enacted1

2014

Change 

from 

2012 

Enacted

(+/-)

Fixed 

Costs &

Related 

Changes 

(+/-)

Internal 

Transfers 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Other Mineral 

Resources Mgt. ($000) 9,478 8,402 +159 +0 +2,025 10,586 +2,184

FTE 81 81 0 0 +7 88 +7 1

Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

Summary of 2014 Program Changes for Other Mineral Resources Management

Request Component ($000) FTE

Program Changes:

• Inspections and Enforcement +2,025 +7

TOTAL, Program Changes +2,025 +7

JUSTIFICATION OF 2014 PROGRAM CHANGES

The 2014 budget request for Other Mineral Resources is $10,586,000 and 88 FTE, a program 

change of +$2,025,000 and +7 FTE from the 2012 enacted level.

Inspections and Enforcement (+$2,025,000 million/+7 FTE) – The 2014 budget proposes an 

increase of $2.0 million to be used for inspection and enforcement of other minerals activities on 

Federal and Tribal Lands. The requested increase will fund the program at approximately the 

2011 level. The BLM will continue efforts to search for cost recovery opportunities within this 

program. Existing leases and contracts under this subactivity all contain a standard clause that 

they will be governed by the regulations in force when the lease or contract was signed. Thus, 

any new fees established by a new regulation will not apply to existing leases and contracts. By 

statute, any fees collected on Indian Trust lands operations would be remitted to the Treasury 

and would be unavailable for BLM use.

PROGRAM OVERVIEW

Program Components

The Other Mineral Resources Subactivity is composed of two programs:

• Non-Energy Solid Leasable Minerals Program includes potash, phosphate, sodium, and 

gilsonite. It also includes metallic minerals on acquired lands (lead, zinc, copper, etc.)

o Used for fertilizers, glass and papermaking, flue-gas desulfurization, lead-acid 

batteries, oil well drilling, water treatment, detergents, and many chemicals.

• Mineral Materials Program includes clay, sand, gravel, and building stone.

o Used for construction of roads, foundations, and buildings.

The Non-Energy Solid Leasable Minerals Program is responsible for:

• Processing permit, license and lease applications;
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 112

• Administering existing permits, licenses and leases;

• Approving exploration and mining plans;

• Conducting NEPA analyses;

• Inspecting and monitoring existing authorizations;

• Inspecting producing operations to ensure proper reporting of production;

• Taking enforcement actions to ensure compliance with terms and conditions of permits, 

licenses and leases; and

• Administering trust responsibilities by managing post-leasing and production activities for 

Indian Tribes and individual Indian mineral owners.

The Mineral Materials program is responsible for:

• Performing NEPA analyses of disposal applications;

• Performing appraisals to determine the value of disposals;

• Conducting sales;

• Administering existing contracts and collecting revenue;

• Processing free use permits for State and local governments and non-profit 

organizations;

• Processing exploration permits and mining authorizations;

• Inspecting existing mineral materials authorizations;

• Inspecting sites to ensure proper reporting of and payment for production;

• Taking enforcement actions to ensure compliance with terms and conditions of contracts 

and authorizations; and

• Investigating and taking enforcement actions on unauthorized removal of mineral 

materials from Federal mineral estate.

Critical Factors

Several factors impact the Other Mineral Resources Program. As the demand by government 

agencies increases for materials used in the development and maintenance of infrastructure for 

communities, the BLM continues to provide sand, gravel, and other mineral materials to State 

and local governments and nonprofit organizations at no cost to those entities. However, this 

results in increased workload for the BLM. 

The BLM has been experiencing an increase in mineral materials trespasses, particularly on 

spilt-estates, presumably due to an increase in urban development and zoning restrictions 

reducing private sources of mineral materials. Thus, it has become important for the BLM to 

conduct inspections for unauthorized, as well as authorized, operations. The increasing number 

and size of exploration and mining authorizations, as well as the required analysis of complex 

technical issues, continues to increase the time required to evaluate these authorizations. The 

same holds true for the analysis of the complex environmental issues in environmental 

documents prior to Non-Energy Solid Leasable Minerals permit, license or lease issuances, and 

Mineral Materials sales and permits.

The cost of mineral materials disposals, inspections, and lease applications processed per year 

varies due to the size and complexity of the disposals, trespasses, and lease applications. The 

cost per 1,000 cubic yards of disposal applications processed per year has risen due to the 

increasing level of complexity in environmental impacts and mitigation, and the reduced quantity 

per disposal application. Disposal sizes range from a single truckload for immediate production 

to contracts up to 10 years for millions of cubic yards.
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 113

The cost of processing non-energy permit, license and lease applications and associated postauthorization work similarly varies due to the size and complexity of the application and 

operation. The cost of processing new non-energy applications and post-lease modifications 

has also risen due to the increasing level of complexity of environmental impacts and mitigation 

requirements. There are far fewer non-energy operations, but the average non-energy lease 

operation is typically much larger than the average mineral materials operation, and non-energy 

leases typically span multiple decades.

Other Funding Sources

The Other Mineral Resources Program is primarily funded through appropriations in this 

subactivity. Other funding sources include cost recovery fees for processing mineral disposal 

actions such as mineral material competitive sales. There are also cost recovery fees for 

processing new applications for non-energy leases, licenses and permits. The BLM will continue 

to look for opportunities to increase program capabilities to meet industry demand by charging 

users appropriate cost recovery fees according to regulation.

The BLM also receives reimbursement for the costs of material sales for the pipeline system in 

Alaska as required under Public Law 93-153, Section 101, which amended Section 28 of the 

Mineral Leasing Act of 1920. Funds are also collected from trespass recovery settlements and 

are used for rehabilitation of damaged property at the trespass site and other sites damaged by 

past mineral materials operations, pursuant to Public Law 94-579, as amended, and Public Law 

93-153.

Long-Term Goals

The public lands are an important source of non-energy solid leasable mineral resources and 

mineral materials for the Nation. These minerals are vital components of basic industry and 

quality of life in the United States. The Other Mineral Resources Program goal is to provide the 

minerals needed to support local infrastructure and economic development. Demand is 

increasing worldwide for some products generated from non-energy solid leasable minerals, 

such as fertilizers, which are used in producing food and biofuels, and gilsonite, which is used in 

drilling fluids for energy exploration. The program processes sales and permits for mineral 

materials, such as sand, gravel, stone, and clays. These common materials are essential for 

maintenance and construction of the access that is needed to provide basic land management. 

Mineral materials are essential for building and maintaining energy development and production 

infrastructure and facilities.

2014 PROGRAM PERFORMANCE

The minerals material workload for the Other Mineral Resources Program increased 

substantially for three years from 2005 through 2007, and then declined in 2008 through 2010 

largely due to the economic downturn. Declines appear to have stabilized and demand is 

expected to increase as recovery from the economic downturn progresses. Demand for nonenergy solid leasable minerals, especially potash, phosphate and hardrock minerals (copper, 

nickel, etc.) on acquired lands has increased substantially for several years. The number of 

acres under contract is expected to remain the same in 2014 as in 2012. The number of acres 

leased for non-energy minerals is expected to increase as long-term NEPA analyses are 

completed. The percentage of pending cases of permits and lease and contract applications 

processed is expected to remain the same in 2014 as in 2012.
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Activity: Energy and Minerals Management

Subactivity: Renewable Energy Management

2013 

Full 

Year 

CR

2012 

Enacted1

2014 Change 

from 

2012 

Actual

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Internal 

Transfers 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Renewable Energy 

($000) 22,826 19,703 +237 +2,000 +7,121 29,061 +9,358

FTE 102 92 0 0 +61 153 +47 1

Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

Summary of 2014 Program Changes (and Internal Transfers) for Renewable Energy

Request Component ($000) FTE

Program Changes/Internal Transfers:

• Transfer Geothermal Funds from Oil & Gas Management Subactivity +2,000 +10

• Geothermal Energy Management and Renewable Energy Studies +7,121 +51

TOTAL, Program Changes +9,121 +61

JUSTIFICATION OF 2014 PROGRAM CHANGES

The 2014 budget request for the Renewable Energy Management program is $29,061,000 and 

153 FTE, and reflects an internal transfer of +$2,000,000 and +10 FTE and a program change 

of +$7,121,000 and +51 FTE from the 2012 enacted level.

Transfer Geothermal Funds from Oil & Gas Management Subactivity (+$2,000,000/+10 

FTE)

The 2014 budget reflects the transfer of $2.0 million and 10 FTE from the Oil and Gas 

Management Program into the Renewable Energy Management Program. Leases for 

geothermal development on public lands were offered and administered within the Oil and Gas 

Management Program in 2012. The management of geothermal energy activities is being 

transferred to the Renewable Energy Management Program now that the subactivity for 

Renewable Energy Management has been created.

Geothermal Energy Management and Renewable Energy Studies (+$7,121,000 /+51 FTE) –

The 2014 budget proposes an increase of $7.1 million in new funding and 51 FTE. This will 

enable the BLM to continue ongoing program management responsibilities associated with 

geothermal energy development by replacing mandatory funding previously provided for this 

purpose through the Geothermal Steam Act Implementation Fund, which has expired. New 

deposits into this fund ceased in 2010. It will also support additional environmental studies, 

environmental reviews, and planning to accelerate the identification of prime areas for utility 

scale renewable energy development. The additional funds will also enable BLM to prepare and 

offer the first competitive lease sales for solar energy development within Solar Energy Zones 

and will also be used to implement renewable energy plans in Arizona, California, and Nevada.
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 116

PROGRAM OVERVIEW

The Renewable Energy Management Program is responsible for processing right-of-way 

applications for wind energy, solar energy, and renewable energy transmission development. 

Beginning in 2013, the Renewable Energy Management Program also includes all aspects of 

managing geothermal energy development. All renewable energy projects proposed for BLMmanaged lands receive full environmental reviews under the National Environmental Policy Act

(NEPA), including the same opportunities for public involvement as other BLM land-use 

decisions.

The President has established an aggressive goal to double renewable electricity generation by 

2020 relative to 2012 levels. BLM is committed to doing its part to contribute to this goal by 

permitting environmentally responsible renewable energy projects on public lands. State 

renewable energy portfolios, investment tax credits for solar energy projects, volatile oil prices, 

and international concern about global warming have all contributed toward public and industry 

interest in utility-scale solar energy development. 

The Renewable Energy Program consists of three main components:

• Solar Energy

• Wind Energy

• Geothermal Energy

Solar Energy

Solar radiation levels in the Southwest are some of the best in the world. The BLM manages 

more than 20 million acres of public lands with excellent solar potential in six States: California, 

Nevada, Arizona, New Mexico, Colorado and Utah. On October 12, 2012, the Department of the 

Interior and the Department of Energy as co-lead agencies published the Record of Decision 

(ROD) on the Programmatic Environmental Impact Statement (PEIS) for Solar Energy 

Development in Six Southwestern States. The Solar PEIS establishes, for the first time, a solid 

foundation for long-term, landscape-level planning to help facilitate better, smarter siting of 

utility-scale solar projects that avoids or minimizes conflicts with important wildlife, cultural and 

historic resources. The ROD on the Solar PEIS responded to extensive comments on the 

Supplemental Draft PEIS and includes incentives for solar developers who site projects in solar 

energy zones, offering reduced permitting times and a sufficiently flexible variance process to 

allow development of well-sited projects outside of zones. The ROD also makes clear that the 

Solar Energy Program will continue to incorporate other parallel planning efforts, including State 

level efforts, to establish additional solar energy zones to meet market demand. The ROD 

includes 17 solar energy zones, totaling about 285,000 acres potentially available for solar 

energy development.

In 2010, the BLM approved the first utility-scale solar energy projects on public lands. To date, it 

has approved 23 solar projects including both generation projects on public lands as well as 

access and transmission projects on public lands essential to facilitate solar generation projects 

on private land. The projects include a variety of solar technologies and range in size from a 45-

megawatt photovoltaic system on 422 acres to a 1,000-megawatt parabolic trough system on 

7,025 acres. These 23 projects have the potential to generate over 7,500 megawatts of clean, 

renewable energy—enough energy to power over 2.2 million homes.
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 117

Wind Energy

The BLM manages 20.6 million acres of public lands with wind potential and has approved more 

than 35 wind energy projects capable of producing nearly 5,000 megawatts of clean, renewable 

energy. The total approved capacity includes both wind energy production facilities on public 

lands and a number of access and transmission projects on public lands essential to facilitate 

wind energy production projects on private land. 

A PEIS relating to the authorization of wind energy projects was completed in June 2005. This 

EIS provides an analysis of the development of wind energy projects in the West. In conjunction 

with the publication of this EIS, the BLM amended 52 land use plans to allow for the use of 

applicable lands for wind energy development. BLM offices are able to use this EIS as an aid in 

analyzing impacts for specific applications for the use of public lands for wind energy use. The 

BLM issued a wind energy policy in December 2008 to provide guidance on best management 

practices; measures to mitigate potential impacts on birds, wildlife habitat, and other resource 

values; and guidance on administering wind energy authorizations. 

The BLM continues to conduct studies necessary to evaluate and process applications for 

rights-of-way for the siting of wind energy projects and applications for rights-of-way for electric 

transmission lines from these projects. The BLM currently has about 30 pending wind energy 

development applications on the public lands with a potential capacity of over 6,500 megawatts. 

Geothermal Energy

The BLM has the delegated authority for leasing on more than 245 million acres of public lands 

(including 104 million acres of National Forest managed by the U.S. Forest Service) with 

geothermal potential in 11 western States and Alaska. The BLM currently manages more than 

800 geothermal leases, with over 70 leases in producing status generating over 2,000 

megawatts of installed geothermal energy on public lands. This amounts to over 40 percent of 

the total U.S. geothermal energy capacity. In May 2007, the Department of the Interior 

published final regulations on geothermal energy production on public lands requiring more 

competitive leasing and offering simplified royalty calculations.

A PEIS to assess geothermal leasing on the public lands was completed in October 2008. The 

subsequent ROD amended 114 BLM resource management plans and allocated about 111 

million acres of Bureau-managed public lands as open for leasing. An additional 79 million acres 

of National Forest System lands are also legally open for leasing.

Competitive Leasing Process

The BLM is in the process of implementing an innovative strategy to promote renewable energy 

development at appropriate sites in areas that have been determined in advance to be optimal 

for wind and solar energy production. The BLM plans to offer these specific parcels to potential 

applicants through a competitive process and to approve right-of-way applications in an 

expedited fashion due to the upfront environmental analysis. This process will likely reduce the 

total number of applications and encourage future applicants to focus on large capacity projects 

on lands close to existing or planned transmission capability.
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Chapter VII – Management of Lands and Resources VII - 118

Performance Goals

The President’s and the Secretary’s goals to increase smart renewable energy development on 

public lands, as well as State renewable energy portfolio standards that require utility 

companies to increase renewable energy supplies as part of their electricity capacity, have 

dramatically increased the renewable energy right-of-way processing workload for the BLM. 

Interior has a FY 2012 – FY 2013 Renewable Energy Priority Performance Goal to, by 

September 30, 2013, increase approved capacity authorized for renewable (solar, wind, and 

geothermal) energy resources affecting Department of the Interior managed lands, while 

ensuring full environmental review, by at least 11,000 megawatts. By the end of FY 2014, the 

approved capacity authorized through the Priority Goal for renewable energy affecting DOI 

management lands and waters is targeted to reach 15,429 megawatts cumulatively since the 

start of FY 2010. 

The Department will successfully meet these goals if a majority of the energy projects that were 

designated as priority projects for 2012 and 2013 are approved. The primary factors that will 

influence renewable energy growth going forward are continued infrastructure investment and 

technology improvements, both in the method and efficiencies of generation of renewable 

energy and in transmission of that energy from source to end-use.

2014 Project Status

In 2013 and 2014, the BLM will give priority status to 23 projects (14 solar, six wind, and three 

geothermal) representing about 5,300 megawatts.The BLM developed this priority list in 

collaboration with the Bureau of Indian Affairs, the U.S. Fish and Wildlife Service and the 

National Park Service, with an emphasis on early consultation. The 2013 and 2014 priority 

projects were selected based on a variety of criteria, including progress of the necessary public 

participation and environmental analysis under NEPA and applicable State environmental laws. 

The BLM also used the screening criteria for priority solar and wind projects, developed through 

BLM policy memoranda issued in February 2011, to assist in evaluating and prioritizing the 

projects.

2014 PROGRAM PERFORMANCE

In 2014, the Bureau of Land Management will continue to implement the strategy to:

• Increase smart renewable energy development on public lands;

• Support Interior’s Renewable Energy Priority Performance Goal as described above; 

and

• Implement actions regarding identifying leasing and development opportunities for solar 

energy projects in designated solar energy zones. Making these lands available for BLM 

leasing proposals will provide for the best siting locations for environmentally sound 

solar energy development projects. The BLM has initiated a rulemaking process to 

establish rules to guide this leasing program to include a nomination and request for 

proposal process, with the expectation that this will ultimately lead to a competitive 

leasing program to accelerate the process of offering public lands for solar energy 

development. 
Realty and Ownership 

Management

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Chapter VII – Management of Lands and Resources VII - 119

Activity: Realty and Ownership Management

2013

Full 

Year CR

2012 

Enacted1

2014

Change 

from 

2012 

Enacted

(+/-)

Fixed 

Costs &

Related 

Changes

(+/ -)

Internal 

Transfers

(+/-)

Program

Changes

(+/ -)

Budget

Subactivity Request

Alaska 

Conveyance

$ 18,741 29,061 +235 +0 -12,320 16,976 -12,085

FTE 142 142 +0 +0 -37 105 -37

Cadastral 

Survey

$ 12,098 11,996 +181 +0 +0 12,177 +181

FTE 96 96 +0 +0 +0 96 +0

Lands & 

Realty 

Mgmt.

$ 35,923 32,605 +557 +3,000 +6,000 42,162 +9,557

FTE 296 296 +0 +0 +0 296 +0

Total Activity $ 66,762 73,662 +973 +3,000 -6,320 71,315 -2,347

FTE 534 534 +0 +0 -37 497 -37 1

Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

The 2014 budget request for the Realty and Ownership Management activity is $71,315,000 

and 497 FTE, a net program change of -$6,320,000 and -37 FTE from the 2012 enacted level.

ACTIVITY DESCRIPTION

The Realty and Ownership Management activity has three programs that are focused on the 

use of lands and transfer of BLM-managed lands. 

• The Alaska Conveyance Program transfers land title from the Federal Government to 

individual Alaska Natives, Alaska Native Corporations, and the State of Alaska pursuant 

to a number of laws.

• The Cadastral Survey Program provides cadastral survey services that are an important 

component to managing both Federal and private lands. Cadastral surveys and other 

boundary services provided by this program facilitate these actions and help reduce 

boundary disputes, trespass and possible litigation. 

• The Lands and Realty Management Program authorizes uses of the land for rights-ofway for pipelines, transmission lines for electricity and renewable energy, and other 

uses. This program also authorizes uses of the public lands for commercial filming and 

other purposes, and implements changes to land ownership by exchanging and 

purchasing lands, and by selling lands no longer needed for Federal purposes. 
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Activity: Realty and Ownership Management

Subactivity: Alaska Conveyance and Lands

2013 

Full 

Year 

CR

2012 

Enacted1

2014

Change 

from 

2012 

Enacted

(+/-)

Fixed 

Costs & 

Related 

Change

s 

(+/-)

Internal 

Transfers 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Alaska Conveyance & 

Lands ($000) 18,741 29,061 +235 +0 -12,320 16,976 -12,085

FTE 142 142 +0 +0 -37 105 -37 1

Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

Summary of 2014 Program Changes for Alaska Conveyance & Lands

Request Component ($000) FTE

Program Changes:

• General Program Decrease -12,320 -37

TOTAL, Program Changes -12,320 -37

JUSTIFICATION OF 2014 PROGRAM CHANGES

The 2014 budget request for the Alaska Conveyance and Lands Program is $16,976,000 and 

105 FTE, a program change of -$12,320,000 and -37 FTE from the 2012 enacted level.

General Program Decrease (-$12,320,000/-37 FTE) – The BLM is reducing base funding for 

the Alaska Conveyance and Lands Program as part of its continued effort to reevaluate and 

streamline the conveyance process. Conveyance work has been ongoing since the 1960s and 

the 2004 Alaska Land Transfer Acceleration Act has allowed the BLM to streamline the 

conveyance program and reduce program costs. The BLM is developing several procedures to 

enhance efficiency and continues to work to further streamline the program so that resources 

are focused on completing the goal of transferring title to 150 million acres the agency is 

required to convey. The BLM has already issued final or interim conveyance on most of the 150 

acres it is required to convey, and is developing a multi-year strategy to complete final transfers. 

The current progress of all conveyances is displayed in Chart 1. The budget also includes a 

legislative proposal to accelerate Alaska land conveyances, and address other longstanding 

Alaska specific issues. This proposal is discussed further in Chapter II – Summary of Program 

and Legislative Changes.

PROGRAM OVERVIEW

The Alaska Conveyance and Lands Program transfers land title from the Federal government to 

individual Alaska Natives, Alaska Native Corporations, and the State of Alaska pursuant to the 

1906 Native Allotment Act, the Alaska Native Veterans Allotment Act of 1998, the Alaska Native 

Claims Settlement Act of 1971 (ANCSA) and the Alaska Statehood Act of 1959 (Statehood Act). 

Conveyance work has been ongoing since the 1960s. In 2004, the Alaska Land Transfer 
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Chapter VII – Management of Lands and Resources VII - 122

Acceleration Act (Acceleration Act) resolved the conflicts between these laws and established 

deadlines for Alaska Native corporations and the State of Alaska to file final selection priorities.

The Alaska Conveyance and Lands Program performs adjudication, cadastral survey, easement 

identification, land examination, land record review to complete the land patent process, and 

Standards for Boundary Evidence assessments for Federal land, Indian land, and Native 

Corporation land managers. These processes are detailed below.

• Adjudication: Adjudication is used to determine the legal sufficiency of a land title 

application for the purpose of passing right, title, and interest of the Federal government 

of public lands. The BLM provides extensive outreach to Native corporations, including 

face-to-face meetings with corporate boards in local communities, and to the State of 

Alaska to obtain final conveyance priorities.

• Cadastral Survey: The cadastral survey component of the Alaska Conveyance and 

Lands Program prepares supplemental plats from existing survey plats and other 

information when possible; makes administrative title navigability determinations to 

facilitate conveyance; makes administrative determinations of emerged island title 

claims; issues recordable ‘Disclaimers of Interest of Title’ for the beds of navigable rivers 

and other waterways; performs responsibilities as trustee for Alaska Native townsites 

created under the Alaska Native Townsite Act; provides assistance in determining maps 

of boundaries and performs surveys for Village corporation reconveyances required 

under Section 14(c) of the ANCSA; collects Geographic Coordinate Data Base data to 

distribute through the web-based Spatial Data Management System (SDMS); issues 

‘Standards for Boundary Evidence Certificates’ prior to transactions and projects to 

assist the authorized officer assess the risk caused by errors and misrepresentations in 

the public record and by antiquated surveys, and maintains up-to-date digital copies of 

all survey records to distribute through the SDMS.

• Easement Identification: Easement identification must be completed pursuant to 

Section 17(b) of the ANCSA for Native corporation selections that have not been 

transferred. This process involves participation by the public, the State of Alaska, and 

the corporations themselves.

• Land Examination: On the ground land examinations are conducted to resolve conflicts 

between Native allotment claims and to settle use and occupancy matters, including 

trespass and the presence of hazardous materials.

• Land Record Review: In 2004, the Acceleration Act established deadlines for ANCSA 

corporations and the State to file priorities. Throughout Alaska, millions of the same 

acres were applied for by village corporations, regional corporations and the State. As 

part of the conveyance process, the BLM reviews selections to identify conflicts and 

ensure correct depiction in land records.
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Chapter VII – Management of Lands and Resources VII - 123

Cadastral Survey, a mandatory step in the land conveyance process, involves 

traveling by various means including helicopter, OHV and by boat.

Provisions in ANCSA and the Statehood Act allow transfers of equitable title to unsurveyed 

lands through ‘Interim Conveyance’ for Native corporation selections and ‘Tentative Approval’ 

for State selections. Both types transfer right, title, and interest of the Federal government, but 

final patents (legal title) cannot be issued until cadastral survey of the final boundaries has been 

completed. Land patents are required by Federal law for completion of transfers and are 

required for almost all types of State and private development, financing, leasing, and disposing 

of property. Patent issuance is dependent upon survey plats, and the patenting process follows 

approximately 18 months after field survey operations have been completed (i.e. field survey 

work completed in FY 2014 may have final title issued in early FY 2016.)

The Acceleration Act provides authority to round up acreages, settle final selection entitlement 

matters, and determine land selections withdrawn, segregated or relinquished. Since 2003, the 

BLM has conducted face-to-face meetings with Alaska Natives in hundreds of remote locations 

to obtain or clarify evidence on Native allotment claims, and with Native corporation 

representatives to discuss selection and title matters. Because it is not appropriate to use 

‘Interim Conveyance’ and ‘Tentative Approval’ where unresolved issues remain, title 

conveyances are increasingly dependent upon field survey and survey plats for issuance of 

patents.

The current phase of Native corporation and State adjudication requires meetings to resolve 

conflicts between corporation and State selections so field survey instructions can be written 

with detail sufficient for future patenting. In addition, meetings between the corporations and the 

State will be coordinated by BLM personnel to resolve easement conflicts so the easements on 

unsurveyed land can be matched with easements on land that has already been patented.

By the end of 2012, the BLM had surveyed and patented 94 million acres or 63 percent of the 

original 150 million acres (Phase 2, below). Approximately 49 million acres, or 33 percent, 

(involving land boundary identification of approximately 25,000 miles) are under some form of 

‘Tentative Conveyance’ but have not been surveyed (Phase 1, below). Additionally, about seven 

million acres or five percent, (involving land boundary identification of approximately 6,000 

miles) of the lands need to be both surveyed and conveyed. The chart below displays the status 
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Chapter VII – Management of Lands and Resources VII - 124

of all conveyances, as of the end of 2012.

Chart 1: Status of All Conveyances in Alaska

In 2013, the BLM plans to complete 2,000 miles of new field survey (Phase 1, above) and 

approve 3,000 miles of prior cadastral field survey (Phase 2, above.) The BLM will also process 

40 Native allotment claim applications. Approximately two million acres of Native corporation 

entitlements and three million acres of the State of Alaska entitlement will be patented. 

2014 PROGRAM PERFORMANCE

In 2014, the BLM will approve 1,400 miles of prior cadastral field survey and complete 1,000 

miles of new field survey. The BLM will also process 40 Native allotment claim applications, and 

patent acreage surveyed and platted in previous years. Approximately two million acres of 

Native corporation entitlements and two million acres of the State of Alaska entitlement will be 

patented. Transfer of title through ‘Interim Conveyance’ or ‘Tentative Approval’ will continue to 

be completed, as necessary, for Native corporations and the State of Alaska.

A combined total of 17,096 parcel applications were filed under the 1906 Native Allotment Act

and the Alaska Native Veteran Allotment Act of 1998. Over 16,699 of these claims have been 

closed through patent or rejection, leaving fewer than 400 applications pending. Although the

1906 Native Allotment Act was repealed by ANCSA, claims pending with the Department up to 

the time of repeal still must be addressed by the BLM.

A total of 45.6 million acres of Native corporation entitlements have been identified; survey has 

been completed and patents have been issued for 32.3 million acres (71 percent), leaving 13.3 

million acres (29 percent) that still require survey and patent. The State of Alaska entitlement is 

 -

 10,000,000

 20,000,000

 30,000,000

 40,000,000

 50,000,000

 60,000,000

Not started Phase 1: Lands interim

conveyed

Phase 2: Final survey &

patented complete

1,841,276 11,517,019 

32,266,540 

5,136,717 

37,409,867 

61,978,417 

acres

Status of All Conveyances in Alaska1

Current Progress by Phase

Alaska Native Corporations State of Alaska

1 Data are current as of September 30, 2012.

45,624,835 total acres 104,525,001 total acres
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 125

104.5 million acres; survey has been completed and patents have been issued for 62.0 million 

acres (59 percent), leaving 42.5 million acres (41 percent) that still require survey and patent. 

The majority of the land not surveyed and patented is under either interim conveyance or 

tentative approval. 
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 126

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Bureau of Land Management 2014 Budget Justifications

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Activity: Realty and Ownership Management

Subactivity: Cadastral Survey

2013 

Full 

Year 

CR

2012 

Enacted1

2014

Change 

from 

2012 

Enacted

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Internal 

Transfers 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Cadastral Survey 

($000) 12,098 11,996 +181 +0 +0 12,177 +181

FTE 96 96 +0 +0 +0 96 +0

Other Major Resources:

Transfer: BIA 

Cadastral (1910) 2,952 2,945 +0 +0 +7 2,952 +7

FTE 106 62 +0 +0 +44 106 +44

Trust Fund: Public 

Survey (7130) 483 876 +0 +0 -196 680 -196

Transfer: USFS 

Cadastral (9820) 110 110 +0 +0 +30 140 +30

Transfer: NPS, 

FWS, Other 

Agencies(1910) 3,000 3,000 +0 +0 -2,600 400 -2,600 1

Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

JUSTIFICATION OF 2014 PROGRAM CHANGES

The 2014 budget request for the Cadastral Survey program is $12,177,000 and 96 FTE.

PROGRAM OVERVIEW

The Cadastral Survey Program conducts the official Federal Authority Surveys that are the 

foundation for all land title records in large sectors of the United States and provides Federal 

and Tribal land managers, and their adjoining non-Federal landowners, with information 

necessary for land management. Several statutes and delegations vest authority in the BLM to 

provide cadastral services for itself and the other Federal land management agencies, including 

the National Park Service, the U.S. Fish and Wildlife Service, the Bureau of Reclamation, the 

U.S. Forest Service, and other Federal and tribal entities. This program provides direct support 

to the BLM’s renewable energy, minerals, realty, law enforcement, forestry, recreation, National 

Land Conservation System and fire programs; helps to reduce unauthorized use; assists with 

development activities on BLM-managed lands; and, helps fulfill the Secretary’s fiduciary trust 

responsibilities for cadastral services in Indian Country.

Conducting Federal Authority Surveys requires the determination of boundaries, the marking of 

corner positions with “brass cap” markers, posting and marking the boundary lines, and the filing 

of associated approved records in the Official United States Records System. Additional support 

services provided by the Cadastral Survey program include accurately positioning legal 

descriptions for timber sales, rights-of way, protection of special areas, oil and gas leases, and 
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 128

mineral leases; providing standards for boundary evidence assessments and management of 

land boundary plans to reduce risks including unauthorized use; providing cadastral services 

and Geographic Coordinate Data Base (GCDB) services to support development of renewable 

energy projects; and updating and modernizing riparian boundaries where resources and land 

values are at a premium.

Many companies, non-profit organizations, and State and local governments apply to the BLM 

each year to obtain right-of-way (ROW) grants to use the public lands for roads, pipelines, 

transmission lines, and communication sites. Energy-related ROWs play an essential part in 

the transportation of energy sources. Cadastral surveys and other boundary services provided 

by this program facilitate these actions and help reduce boundary disputes, trespass and 

possible litigation. 

The Cadastral Survey Program analyzes proposed projects to determine the most effective and 

BLM’s Land Information System

Cadastral Survey provides accurate location of the Public Land Survey System 

which in turn supports the BLM multiple use mandate while protecting the 

BLM’s land and resources from unauthorized use.
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 129

cost efficient level of cadastral services necessary to meet the current business need. Analysis 

of geospatial information in a cadastral-based Geographic Information System, in conjunction 

with land records research, can often provide less costly, office-generated products and 

services while managing risks within acceptable levels. This strategy has allowed services to be 

better directed towards the need and avoid the expense of the more costly Federal Authority 

Survey. An example of established policy for providing office products is the Standards for 

Indian Trust Lands Boundary Evidence referenced in the Departmental Manual 303 DM 7 and 

the Standards for Federal Lands Boundary Evidence soon to be referenced in the Departmental 

Manual 600 DM 5. 

The BLM Cadastral Survey Program oversees the Certified Federal Surveyor Program to 

leverage specialized expertise of Indian land boundaries to over 500 private sector land 

surveyors trained to protect the land rights of American Indians to enable full enjoyment of their 

land and resources.

The BLM uses the GCDB to represent land ownership boundaries in a coordinated, 

standardized digital fashion. GIS layers depend on GCDB data as the base layer for many BLM 

processes including leasing, rights-of-way, sales, exchanges, and stipulations. This base layer 

provides actual on-the-ground reference to the other layers of information.

In addition, the BLM is the custodial agency for land tenure records that date back to the 1800s. 

The Cadastral Survey and Lands and Realty Management programs currently manage over 

nine million title documents as well as cadastral survey records from across the Nation. The 

General Land Office Automated Records System (GLORecords), delegated to the Eastern 

States Office, is responsible for making land tenure records available on the Internet via the 

GLORecords website (http://www.glorecords.blm.gov). The BLM continues the work of 

scanning and indexing cadastral survey plats, field notes and patents.

Approximately 45 percent of all work completed by the Cadastral Survey Program is funded by 

other benefitting BLM subactivities and other benefitting agencies. In addition, GCDB activities 

are supported partially through partnerships with States, counties, and municipalities. In the 

past, these partnerships have allowed the BLM to leverage resources while benefitting all 

parties to the agreement and the public.

2014 PROGRAM PERFORMANCE

In 2014, the BLM will continue to perform the core functions of directing and approving surveys, 

addressing public inquires, consulting with staff members from other programs to advise on 

boundary issues, providing direction and control for field surveys paid for by other entities, and 

managing the GCDB.

In addition, the BLM will continue to implement the nine recommendations from an Office of the 

Inspector General (OIG) audit report, “Department of the Interior’s Management of Land 

Boundaries” (Audit No. C-IN-MOA-0001-2009). This report states, “proper survey and 

management of high-risk lands with antiquated surveys has the potential to generate hundreds 

of millions of dollars in revenue from lands with valuable surface and subsurface resources.” In 

response, the BLM will continue issuing guidance to BLM State Offices through Instruction 

Memoranda directing them to identify lands with revenues lost or at risk due to antiquated 

boundary evidence and propose a plan for resolution. The State Offices will continue submitting 

proposals involving revenues lost or at risk in efforts to recover lost revenues and prevent future 
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 130

loss.

In response to the OIG report, the BLM is also developing and implementing new policies to 

ensure that cadastral surveyors review the adequacy of boundary evidence prior to the approval 

of significant land transactions and commercial projects. Any actions concerning high-valued 

lands or resources will be reviewed, as necessary, for the protection of the lands and resources 

and to ensure the proper collection of rents and protection of public lands and resources from 

unauthorized uses. When a cost recovery account is employed in providing a cadastral service, 

the account will be used for any cadastral services necessary to support the protection of public 

or Native American resources.
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 131

Activity: Realty and Ownership Management

Subactivity: Lands and Realty Management

2013 

Full 

Year 

CR

2012 

Enacted1

2014

Change 

from 

2012 

Enacted

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Internal 

Transfers 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Land & Realty Mgt. 

($000) 35,923 32,605 +557 +3,000 +6,000 42,162 +9,557

FTE 296 296 +0 +0 0 296 0

Other Major 

Resources:

SCDF: Rights of Way 

Processing (5101-3) 16,900 16,847 +0 +0 16,900 +53

Trust Fund: Rights of 

Way (7150) 0 0 +0 +0 0 +0 1

Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

Summary of 2014 Program Changes/Internal Transfers for Land & Realty Management

Request Component ($000) FTE

Program Changes:

• Transmission Corridors +6,000 0

• Transfer Base Funding from Land & Resources Information System 

(add-on from 2013) +3,000 0

TOTAL, Program Changes +9,000 0

JUSTIFICATION OF 2014 PROGRAM CHANGES

The 2014 budget request for the Lands and Realty Management program is $42,162,000 and 

296 FTE, a program change of +$6,000,000 from 2012 enacted level and 0 FTE. 

Transmission Corridors (+$6,000,000/0 FTE) - Aging electrical infrastructure in the West 

requires substantial upgrades to improve reliability and increase capacity. The upgrades will 

also facilitate renewable energy development in the West, including on BLM-administered public 

lands. The BLM is poised to meet these energy needs through designations of energy corridors 

in low conflict areas and siting high voltage transmission lines, substations and related 

infrastructure in an environmentally sensitive manner. 

The requested funding would position the BLM to strategically plan for the long term increased 

demand and updates to the electric grid throughout the West with an improved and updated 

assessment process for the development and siting of energy corridors and rights-of-way 

(ROWs). Strategic planning would take into consideration renewable energy development 

including wind, solar, geothermal and hydropower. Planning activities would include revising 

land use plans in coordination with Federal, State, local and tribal stakeholders; revising energy 

corridors; developing landscape-level mitigation and best management practices; and 

synchronizing BLM and U.S. Forest Service land use/management plans with transmission 
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 132

planning conducted by the Western Electricity Coordinating Council.

Transfer Base Funding from Land & Resources Information System (+$3,000,000/0 FTE ) -

The budget transfers $3.0 million to Lands and Realty Management from the Land and 

Resource Information Systems subactivity for the funding of lands and realty information 

systems. This business practice is consistent with the ownership, management and funding of 

other information systems by benefitting programs.

PROGRAM OVERVIEW

The Lands and Realty Management program grants ROWs and other use authorizations for 

public lands. Rights-of-way are granted for many purposes, including electricity transmission, 

roads, and water pipelines. The BLM also conducts land tenure activities including land sales, 

land exchanges and withdrawals. 

In October 2009, nine Federal departments and agencies approved a Memorandum of 

Understanding (MOU) to expedite the siting of electric transmission facilities. In June 2011 the 

same agencies created a Rapid Response Team for Transmission (RRTT). Expediting the siting 

of electric transmission projects on BLM-administered lands is a priority of the Secretary of the 

Interior. The emphasis on these projects was reiterated in the August 31, 2011, Presidential 

Memorandum to executive departments and agencies, Speeding Infrastructure Development 

through More Efficient and Effective Permitting and Environmental Review, as well as the March 

22, 2012 Executive Order 13604, Improving Performance of Federal Permitting and Review of 

Infrastructure Projects.

The BLM administers approximately 170,000 ROWs on the public lands. Many companies, 

non-profit organizations, and State and local governments apply to the BLM each year to obtain 

ROW grants to use the public lands for roads, pipelines, transmission lines, and communication 

sites. Energy-related ROWs play an essential part in the transportation of energy sources, from 

either oil or gas production areas or electricity that has been generated from a variety of 

sources, such as hydropower, coal or gas-fired generators, and geothermal, to areas where the 

energy is used, such as at large communities or in industrial sites. Rights-of-way for 

communication sites are required to install equipment necessary for the transmission of 

television broadcasts and the cellular phone network. Rights-of-way assist in providing for basic 

access, power, and communication infrastructure needs of cities, towns, and rural communities. 

The Lands and Realty Management program manages these ROWs. The program administers 

new and amended ROW authorizations, conducts on-the-ground inspections to ensure 

compliance with terms and conditions of the authorization, and conducts studies to determine 

the suitability of future ROW locations and uses.

Other land use authorizations are granted for commercial filming, public facilities, and similar 

short and long-term purposes as allowed by law. The BLM provides the terms and conditions for 

all of these uses, and monitors users to ensure compliance with policy and regulation.

The Lands and Realty Management program also conducts land sales, exchanges and 

withdrawals to ensure efficient and effective management of the public lands. Land exchanges 

and withdrawals can be useful land management tools under the proper circumstances. The 

BLM authorizes, reviews, and revokes land withdrawals to ensure the most appropriate uses 

and works closely with the Department of Defense to coordinate withdrawals for military 

purposes, resolve issues with over-flights, and coordinate management of adjacent military and 
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 133

public lands. The BLM also grants lands to local governments for recreation and public 

purposes at reduced cost using its authority under the Recreation and Public Purposes Act.

Other Funding Sources

• The Federal Land Transaction Facilitation Act (FLTFA) is proposed for reauthorization 

in 2014 to allow lands identified as suitable for disposal in recent land use plans to be 

sold using the FLTFA authority. FLTFA sales revenues would continue to be used to 

fund the acquisition of environmentally sensitive lands and the administrative costs 

associated with conducting sales. FLTFA was first enacted in July 2000. It provided for 

the use of a percentage of revenues from the sale or exchange of public lands identified 

for disposal under land use plans in effect as of the date of enactment to acquire 

inholdings within certain federally designated areas, or lands adjacent to those areas, 

which contain exceptional resources, and to administer the lands sale program. Of the 

funds used for acquisition, 80 percent were to have been expended in the same State in 

which the funds were generated, but 20 percent could have been expended for 

acquisition in any of the 11 other western states. Up to 20 percent of revenues from 

disposals may have been used for administration costs and other expenses. FLTFA 

expired in July 2010, but was subsequently reauthorized for one year, expiring in July 

2011. 

• The Southern Nevada Public Land Management Act of 1998 (SNPLMA) became law in 

October 1998. It allows the BLM to sell public lands within a specific boundary around 

Las Vegas, NV. The revenue derived from these land sales is split between the State of 

Nevada General Education Fund (5 percent), the Southern Nevada Water Authority (10 

percent), and a special account (85 percent) available to the Secretaries of the Interior 

and Agriculture for use throughout Nevada for parks, trails and natural areas; capital 

improvements; conservation initiatives; multi-species habitat conservation plans; 

environmentally sensitive land acquisition; and Lake Tahoe restoration projects. Other 

provisions in SNPLMA direct certain land sale and acquisition procedures and provide 

for the sale of land for affordable housing. Please see the Permanent Operation Funds 

Chapter for more information on FLTFA, SMPLMA, and other land sales accounts.

• Cost Recovery: The BLM recovers costs for processing applications and monitoring 

right-of-way grants on public lands. Although the BLM is authorized to collect cost 

recovery in certain circumstances some customers, such as, State and local 

governments are not subject to cost recovery. These accounts and the funding collected 

are discussed in detail in the Service Charges, Deposits, and Forfeitures Chapter.

2014 PROGRAM PERFORMANCE

The BLM will continue to advance renewable energy development including transmission on 

public lands as part of a balanced energy policy for the Nation. One of the challenges will be the 

modernization of BLM’s High Voltage Transmission Program. In order to bring to market the 

renewable energy authorized for production from projects located on or crossing BLM public 

lands, and to unlock new renewable energy opportunities throughout the West, the BLM must 

strengthen its transmission permitting program as well as improve the designation of existing 

and future energy corridors in land use plans. The President’s Executive Order No. 13604 on 

infrastructure and the establishment of the RRTT greatly increased the emphasis on the siting 

and permitting of high voltage transmission projects. The requested funding increase of $6.0 
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 134

million for transmission corridors will further assist in addressing these challenges. The BLM will 

also utilize targeted training and closer coordination with the Renewable Energy Management

Program to increase its capacity to complete these complex projects. 

The BLM will also continue providing record data for the Integrated Lands System. The goal is 

to collect, maintain and publish the official Federal land status record data including accurate 

and consistent land acreage and other statistical data to be used by the public, private industry 

and other Federal land management agencies. The data will be collected and maintained at a 

high level of accuracy, verified to ensure it meets acceptable quality standards and published in 

a timely consistent manner. The system will support legal, policy and regulatory requirements 

and efficiently deliver key business products (Public Land Statistics, Master Title Plats, 

Historical Indices, Reports, maps, etc.). 

The BLM is the custodial agency for land tenure records that date back to the 1800s. The 

Cadastral Survey and Lands and Realty Management programs currently manage over nine 

million title documents as well as cadastral survey records from across the nation. The General 

Land Office Automated Records System (GLO Records), delegated to the Eastern States 

Office, is responsible for making land tenure records available on the Internet via the GLO 

Records website (http://www.glorecords.blm.gov). The BLM continues the work of scanning and 

indexing cadastral survey plats, field notes and patents.

The BLM will continue to conduct public land sales, revoke public withdrawals, and facilitate 

military base closures. The BLM will review public land withdrawals and anticipates revoking 

withdrawals for 64,000 acres.
Communications Site

Management

Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 135

Activity: Communication Site Management

Subactivity: Communication Site Management

2013 

Full 

Year 

CR

2012 

Enacted1

2014

Change 

from 

2012 

Enacted

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Internal 

Transfers 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Communication 

Sites Mgt. ($000) 2,000 2,000 +0 +0 +0 2,000 +0

Communication 

Sites Mgt. Offset 

($000)

-2,000 -2,000 +0 +0 +0 -2,000 +0

FTE 20 20 +0 +0 -1 19 -1 1

Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

JUSTIFICATIONS OF 2014 PROGRAM CHANGES

The 2014 budget request for the Communication Site Management program is $2,000,000 and 

19 FTE.

PROGRAM OVERVIEW

The Communication Site Management Program processes applications for communications 

sites from commercial, private, and governmental entities under Title V of the Federal Land 

Policy and Management Act of 1976 and issues right-of-way use authorizations. The program 

considers requests for new sites, inspects and administers existing sites and authorizations, 

completes site management plans, and collects rental fees.

When granting and administering authorizations, the BLM works to protect the natural resources 

associated with public and adjacent lands. The BLM tries to prevent unnecessary or undue 

degradation to public lands by promoting the use of communication site rights-of-way and 

leases in common, considering engineering and technological compatibility, national security, 

and land use plans. The BLM also coordinates, to the fullest extent possible, all actions under 

the program with State and local governments, interested individuals, and appropriate quasipublic entities.

Demands and Trends

Prior to 1996, each user was required to have a separate authorization, even when users 

shared a site. In response to the Telecommunications Act of 1996, the BLM implemented new 

regulations and policies that greatly simplified and streamlined the authorization and 

administration of these uses. The BLM now requires only the owners of the towers or facilities to 

have right-of-way authorizations, while other users of the sites can collocate in these facilities, 

as tenants or customers, without further BLM approval.
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 136

In 1996, there were 3,313 authorized communications users on BLM-administered land. The 

BLM currently has over 3,777 sites authorized for separate communication rights-of-way. In 

total, the BLM has over 6,800 authorized communications users on these sites representing a 

105 percent increase from 1996. The BLM has increased the collection of rental fees from $2.0 

million in 1996, to $7.8 million in 2012, and an estimated $7.6 million in 2013 as a result of 

centralized billing and collections.

A significant challenge facing the BLM is ensuring that holders of communication site leases 

report accurate inventories of communications uses within their facilities to allow the Bureau to 

assess and collect the appropriate rent. Based on recent compliance inspections by program 

administrators, it is estimated that for every dollar of rent collected, there is at least another 

dollar that is not collected. In order to better manage the development and use of 

communications sites and to mitigate the impacts on surrounding public lands, the BLM 

develops communication site management plans, which guides users and analyzes the impacts 

of the structures on the sites and the surrounding lands. These plans allow the BLM to better 

manage sites and often results in the collection of additional rent revenues. The BLM’s goal is to 

develop site management plans for all communication sites located on the public lands it 

manages. To date, the BLM has prepared 273 out of the total 1,485 site management plans 

needed.

In recent years, the BLM has focused on strengthening partnerships and improving its suite of 

BLM, interagency and industry sponsored right-of-way management courses, including the 

Communication Site Management Course, the 

National Lands Training for Line Officers, and 

the Beginning Lands and Realty Training. 

Beginning in 2011, the BLM initiated a pilot 

project that centralized billing and collection of 

communications use rentals. Centralization of 

billing has resulted in an approximate increase 

of $1.0 million in rent collected in calendar years 

2011 and 2012 due to improved reviews 

resulting in identification of unreported rent. The 

specialists processing payments have been 

trained to detect errors in the self-reported 

communications uses at each site. 

Centralization has greatly improved customer 

service by providing customers with a single bill 

for multiple authorizations in a timely and 

efficient manner, and by allowing customers to 

provide payment to a single location. This pilot 

project has allowed the BLM to successfully 

enhance the billing and collections process, 

improve the timeliness and quality of customer 

service and provide consistency in the billing 

and collections functions. Due to the success of 

this pilot effort the BLM has decided to continue 

the central billing efforts on a permanent basis. 

Starting in 2013, operations of the centralization of communications use billing and collections 

were transferred to the BLM’s National Operations Center. 

Communication site in Limestone Hill, 

Broadwater County, Montana
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 137

2014 PROGRAM PERFORMANCE

In 2014, the BLM will continue to process applications for communications site leases and 

rights-of-way, as well as applications for assignments, amendments, and renewals. The Bureau 

will also continue to emphasize site administration and management. The BLM expects to 

complete 30 final communication site management plans, process 140 actions for lease or grant 

issuances, rejections, amendments, and renewals; process 67 actions for assignments, 

cancellations, relinquishments, and other administrative work; complete 120 site or facility 

inspections; and complete 15 actions for trespass. The BLM will train over 60 agency and 

industry personnel on the siting and administration of communication uses on public land, plus 

train 75 line managers on their roles and responsibilities in the Communication Site 

Management Program.

In addition, the BLM will continue to review the current communications use rental schedule as 

recommended by the Office of Inspector General in Report, Review of Rights of Way Grants 

Managed by the Department of the Interior, C-IN-MOA-0013-2010.
Bureau of Land Management 2014 Budget Justifications

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Resources Protection

and Management

2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 139

Activity: Resource Protection and Maintenance

2014

Change 

from 

2012 

Enacted 

(+/-)

Internal 

Transfers

(+/-)

2013

Fixed 

Costs &

Subactivity

Full 

Year 

CR

2012 

Enacted1

Related 

Changes 

(+/ -)

Program 

Changes 

(+/ -)

Budget 

Request

Resource 

Mgmt. 

Planning $ 39,830 38,060 +444 +0 +4,000 42,504 +4,444

FTE 232 232 +0 +0 +8 240 +8

Abandoned 

Mine Lands 

Mgmt.2 $ 17,903 19,819 +128 +0 +0 19,947 +128

FTE 68 68 +0 +0 +0 68 +0

Resource 

Protection & 

Law 

Enforcement $ 27,170 27,024 +259 +0 +0 27,283 +259

FTE 137 137 +0 +0 +1 138 +1

Hazardous 

Materials 

Mgmt. $ 16,749 16,641 +182 +0 +0 16,823 +182

FTE 97 97 +0 +0 +0 97 +0

Total Activity $ 101,652 101,544 +1,013 +0 +4,000 106,557 +5,013

FTE 534 534 +0 +0 +9 543 +9 1

Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

2 In 2012, $15.9 million of funding for the Abandoned Mine Lands program was transferred from the Soil, Water, and 

Air Management subactivity to a new Abandoned Mine Lands Management subactivity in the Resource Protection and 

Maintenance activity.

JUSTIFICATION OF 2014 PROGRAM CHANGES

The 2014 budget request for the Resource Protection and Maintenance activity is $106,557,000 

and 543 FTE, a program change of +$4,000,000 and +9 FTE from the 2012 enacted level.

ACTIVITY DESCRIPTION

The functions within the Resource Protection and Maintenance Activity contribute to the 

protection and safety of public land users and environmentally sensitive resources. 

• Resource Management Planning – The land use planning function is based on 

collaboration with local communities and State and tribal governments, as well as on 

science-based analysis.

• Abandoned Mine Lands – The remediation of abandoned mine lands supports core 

programs by restoring degraded water quality, cleaning up mine waste that has been 
2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 140

contaminated by acid mine drainage and heavy metals (such as zinc, lead, arsenic, 

mercury and cadmium), remediating other environmental impacts on or affecting public 

lands, and mitigating physical safety issues.

• Resource Protection and Law Enforcement – The Resource Protection and Law 

Enforcement subactivity provides for the protection from criminal and other unlawful 

activities on public lands.

• Hazardous Materials Management – The Hazardous Materials Management Program 

provides for the prevention, mitigation, and remediation of the effects of hazardous 

material releases and other dangers on the public lands.

The Resource Protection and Maintenance Activity funds land use planning and compliance 

processes, which are required by the National Environmental Policy Act (NEPA) and the 

Federal Land Policy and Management Act (FLPMA).
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 141

Activity: Resource Protection and Maintenance 

Subactivity: Resource Management Planning

2013 

Full 

Year 

CR

2012 

Enacted1

2014

Change 

from 

2012 

Enacted

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Internal 

Transfers 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Resource Mgmt. 

Planning ($000) 39,830 38,060 +444 +0 +4,000 42,504 +4,444

FTE 232 232 0 0 +8 240 +8 1

Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

Summary of 2014 Program Changes for Resource Management Planning

Request Component ($000) FTE

Program Changes:

• High Priority Planning Efforts +4,000 +8

TOTAL, Program Changes +4,000 +8

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2014 budget request for Resource Management Planning is $42,504,000 and 240 FTE, a 

program change of +$4,000,000 and +8 FTE from the 2012 enacted level.

High Priority Planning Efforts (+$4,000,000/+8 FTE) – The BLM is requesting an increase of 

$4.0 million to support high-priority planning efforts, including the initiation of several new plan 

revisions in 2014, as well as plan evaluations and implementation strategies. Resource 

management plans provide the basis for every BLM management action. Keeping them current 

in an era of rapidly changing resource use and demands, changing ecological conditions, 

continued population growth, and increasing recreation use on the public lands is a high priority.

PROGRAM OVERVIEW

Resource management plans (RMP) are the foundation of effective public land management. 

Planning and plan implementation decisions describe desired resource conditions on the ground 

and methods to achieve desired conditions across the more than 245 million acres of BLMmanaged public lands. The planning process encourages collaboration and partnerships which 

help the BLM determine how to manage public lands to balance the needs of adjacent 

communities with the needs of the Nation. 

The Resource Management Planning Program uses interdisciplinary analyses to complete a 

management framework and decision-making cycle shown in the following figure and described 

further below.
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Chapter VII – Management of Lands and Resources VII - 142

Land Use Plan Revision and Development – Completion of ongoing RMP development is the 

highest priority of the program. Planning areas with outdated RMPs present numerous 

challenges to the BLM. Outdated plans:

• May not have incorporated the best, most current science; 

• Are often more vulnerable to legal challenge;

• Are not responsive to changes in conditions on the ground; 

• May include desired conditions that are no longer relevant or desired by the public, other 

governmental entities, or industrial users; and

• May not be responsive to priorities such as energy development and transmission 

corridors, adaptation to a changing climate, or providing economic opportunities for the 

public

Delaying completion postpones vital resource management decisions and increases potential 

for litigation in planning areas. As RMP decisions are recorded, the program initiates new RMPs 

in areas where changing demands on public land resources have been identified. 

Sustainable Planning and National Environmental Policy Act (NEPA) Infrastructure – This 

dynamic approach to land use planning cycles through implementation, effectiveness 

monitoring, and assessment of emerging issues such as rapid population growth, and changing 

resource conditions. The cycle allows plans to remain relevant and adaptive to changing 

conditions by addressing emerging challenges and changing resource issues as they arise, 

which ensures plan longevity and reduces the frequency of costly revisions. The BLM uses the 

NEPA review process to inform its land use planning and project-level implementation decisions 

throughout the cycle. Through the NEPA process, the BLM analyzes the potential environmental 

impacts of a proposed action and a range of alternatives, seeks input from stakeholders and the 

public, and collaborates with partners in Federal, State, local, and tribal government to inform its 

decisions.

Land Use Plan Amendments – Amendments enable the program to address significant new 

information, respond to changing land uses, consider proposals that deviate from the plan, and 

implement new policy that change land use plan decisions. Plan amendments are an 

economical means to reduce the frequency of costly revisions. 

Critical Factors

The BLM addresses a number of critical factors in its land use planning and decision-making 

processes. These include the following:

Plan Implementation

Plan Assessment,

Inventorying & Monitoring

Plan Evaluation, Maintenance,

& Amendment

Plan Revision / Development
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Chapter VII – Management of Lands and Resources VII - 143

Land Health Stressors – Land health stressors such as invasive plant and insect infestations, 

drought, and catastrophic wildfires contribute to the loss of native animal and plant communities 

and habitat for threatened and endangered species. Changing conditions necessitate the 

reevaluation of plans. Ecoregional assessments and adaptation strategies—mitigating impacts 

of land health stressors—indicate whether land use decisions remain valid or require 

amendment.

Energy Demands – Increased demands for renewable and conventional energy affect the 

balance with conflicting requests such as wilderness experience, recreation, off-highway vehicle 

use, and managing the cumulative effects of habitat fragmentation. 

Expanding Populations & Community Growth – These factors challenge wildland fire 

suppression efforts in the wildland/urban interface, contribute to increased conflicts between 

recreational uses, and increase demands for surface-disturbing uses such as roads, utility 

distribution lines, communication sites, sand, gravel, mineral materials sites, and public 

facilities. The understanding of complex socioeconomic issues in communities adjacent to BLMadministered lands is imperative to effective land management.

Protests/Litigation – Public land management conflicts tend to increase litigation over land use 

decisions. Even litigation not directly associated with land use planning frequently affects land 

use decisions, given the broad scope of resource issues considered. Challenges to land use 

decisions have increased at the Interior Board of Land Appeals and judicial courts. 

Quality Collaboration and Involvement of Cooperating Agencies – The BLM collaborates with 

interested members of the public and other governmental agencies—various Federal, State, 

local, county, and tribal entities—to take advantage of their technical expertise, to fulfill 

requirements for cooperation under various laws, and to ensure consistent management where 

BLM-managed lands border those of other government agencies. The BLM also participates in 

cooperating agency training workshops with local government organizations to promote 

understanding of opportunities for local government participation in BLM land use planning and 

NEPA processes.

Means and Strategies

The BLM uses a number of means and strategies to support land use planning and decisionmaking processes. The means and strategies highlighted below support not only land use 

planning but also provide critical information, resources, and data infrastructure used Bureauwide, and often outside the BLM by Federal, State, tribal and local partners. This information is 

necessary and valued by resource managers and specialists as they prepare project analyses 

for all types of activities. These efforts include the following:

ePlanning – The ePlanning web-based application is an improvement to the land use planning 

and NEPA processes. It creates efficiencies through faster and easier public access to NEPA 

documents for review and commenting and simplified comment analysis and response. 

ePlanning is currently used for all new RMP revisions and by BLM Nevada for a majority of their 

NEPA documents. In 2013, BLM Alaska, Arizona and Idaho will begin implementing ePlanning 

for their NEPA document development.

Geospatial Services – The BLM-wide services provided by the Geospatial Program via the 

Geospatial Services Strategic Plan and Enterprise Geographic Information System (EGIS) play 

an integral role in how the Bureau accomplishes work, beginning with a focus on supporting 

specialists in the field. The EGIS supports projects at multiple scales, including components of 
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 144

the Landscape Approach to Land Management such as the Assessment Inventory and 

Monitoring (AIM) Strategy discussed below and Rapid Ecoregional Assessments, as well as the 

Greater Sage-Grouse Planning Effort and the Solar Energy Programmatic EIS. By providing the 

infrastructure to manage and analyze data at multiple scales, geospatial services provide the 

BLM with the information and tools to better understand the impacts of its decisions, and to 

support more informed decision-making at all levels of the organization.

Socioeconomics – The Socioeconomic Program helps resource management programs weigh 

competing interests concerning access to and use of public lands and resources. Social and 

economic conditions are changing across the West and the public is demanding a more 

collaborative style of decision-making with reliable information on the human context and 

consequences of BLM programs.

The need to maximize the BLM’s return on investment is essential to achieving its mission, and 

thus measuring that return on investment through the application of socioeconomic research 

and analytical methods is a key part of the management process. To help address these 

challenges the BLM has added four zoned socioeconomic specialists, who are responsible for 

providing technical support to field and state offices four geographic zones each comprising 

multiple BLM States.

Collaboration and Appropriate Dispute Resolution (ADR) – The ADR Program is another 

resource used by the BLM to improve its decision-making processes. Litigation in recent years 

has resulted in escalating costs to manage public lands and presented challenges with regard to 

the Bureau’s relationship with the public. The ADR Program seeks to alleviate these costs and 

improve the BLM’s relationship with the public by increasing public buy-in to Bureau 

management processes and by making the land management decision-making process more 

transparent.

NEPA – The BLM’s NEPA program coordinates with the Council on Environmental Quality, the 

Interior Office of Environmental Policy and Compliance, and other Federal entities on NEPA 

policy issues across the Federal government and within the Department. The BLM NEPA 

Program also develops Bureau-wide NEPA policy and guidance, coordinates with other BLM 

national programs to develop program-specific guidance, and works with the BLM National 

Training Center to identify and meet NEPA training needs. In addition, the program coordinates 

with BLM State Offices to provide advice and support for NEPA compliance in the field. The 

BLM NEPA Program is developing an internal, web-based BLM Greenhouse Gas & Climate 

Change NEPA Toolkit for use in preparing project-level NEPA documents. The program also 

evaluates NEPA compliance within BLM States. These activities contribute to sound, wellsupported Bureau planning and project decisions, and provide ongoing opportunities to 

strengthen working relationships with the public, stakeholder organizations, and partners in 

Federal, State, local, and tribal government.

Assessment, Inventory, and Monitoring – The AIM Strategy is an important improvement to the 

BLM strategic decision-making process. AIM improves monitoring protocols on a landscape 

scale, and establishes core indicators and data standards to allow for a better understanding of 

landscape conditions and trends. The results enable the BLM to determine the effectiveness of 

its management actions and replicate successful efforts in areas of similar biophysical settings. 

Furthermore, AIM allows the BLM to integrate data collection and analysis across the BLM and 

with Federal and non-Federal partners. The AIM Strategy enables greater data sharing, which in 
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 145

turn enables better cumulative effects analysis and predictive modeling, helping the BLM make 

better, more informed decisions.

2014 PROGRAM PERFORMANCE

Improving Land Use Planning – In 2014, the BLM will continue the process of designing a more 

proactive and nimble approach to planning. The revised process will focus on collaborative work 

with partners at different scales to produce highly useful decisions that readily address the 

rapidly changing environment and conditions posed by the changing climate, rapid growth and 

development, and other stressors. The BLM will examine alternative approaches to avoid future 

litigation including: adaptive management to allow the incorporation of new information, and the 

use of multiple-scale decision frameworks and shared decision-making across administrative 

boundaries. 

Land Use Plan Revisions – In 2014, the Resource Management Planning program will continue 

revisions on the 53 plans that are in process. This estimate takes into consideration plans that 

will be completed in the interim. Active plan revisions are evaluated annually to determine 

progress and estimated costs for completion. Approvals to extend project schedules are 

coordinated through the Assistant Director for Renewable Resources and Planning. 

In 2014, the BLM plans to initiate four new RMP revisions. The remaining six Western Oregon 

RMP revisions will be funded by the O&C Resource Management Planning Program. Since 

2001, the BLM has completed 69 plan revisions to improve the quality and effectiveness of its 

resource management. Another 53 planning projects are in progress and 37 plans are in need 

of revision or amendment to meet changing resource demands and conditions. 

Land Use Plan Amendments – Newly revised plans are maintained through amendments 

funded by benefitting programs. Targeted amendments address emerging challenges and 

changing resource issues, extend the useful life of a plan, and reduce the potential for litigation. 

In 2014, the BLM will use $7.5 million of the $15.0 million increase requested in the Wildlife 

Management program to fund land use plan amendments within 68 planning units in California, 

Oregon, Idaho, Nevada, Utah, Colorado, Wyoming, Montana, North Dakota, and South Dakota 

to incorporate sage-grouse habitat conservation measures.
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Activity: Resource Protection and Maintenance

Subactivity: Abandoned Mine Lands

2013 

Full 

Year 

CR

2012 

Enacted1

2014

Change 

from 2012 

Enacted

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Internal 

Transfers 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Abandoned Mine 

Lands ($000) 17,903 19,819 +128 +0 +0 19,947 +128

FTE 68 68 0 0 +0 68 +0 1

Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

JUSTIFICATION OF 2014 PROGRAM CHANGES

The 2014 budget request for the Abandoned Mine Lands Program is $19,947,000 and 68 FTE. 

Legislative Change

Reclamation Fee – The 2014 budget proposes to address abandoned hardrock mines across 

the country through a new AML fee on hardrock production. Just as the coal industry is held 

responsible for abandoned coal sites, the Administration proposes to hold the hardrock mining 

industry responsible for abandoned hardrock mines. The legislative proposal will levy an AML 

fee on all uranium and metallic mines on both public and private lands. The proposed fee will 

be charged per volume of material displaced after January 1, 2014. The fees collected will be 

distributed to two sets of funds, one for Federal lands and another for non-Federal lands. The 

Secretary would disperse the share of non-Federal funds to each State and Tribe based on 

need. Each State and Tribe would select its own priority projects using established national 

criteria, similar to the process for coal AML reclamation. The proposed hardrock AML fee and 

reclamation program would operate in parallel to the coal AML reclamation program as part of a 

larger effort to ensure the Nation’s most dangerous abandoned coal and hardrock AML sites are 

addressed by the industries that created the problems.

More information on this legislative proposal can be found in the General Statement.

PROGRAM OVERVIEW

An abandoned mine is a hardrock mine on or affecting BLM-managed lands, at which 

exploration, development, mining, reclamation, maintenance, inspection, and other operations 

ceased as of January 1, 1981 (the effective date of BLM’s Surface Management regulations in 

43 CFR Subpart 3809), with no evidence that the miner intends to resume mining activities.

The BLM’s Abandoned Mine Lands (AML) Program works to restore abandoned hardrock mine 

lands and waters with the aim of protecting the public and the environment while preserving the 

land’s historically significant mining heritage. The BLM maintains an inventory of known 

abandoned mines located on BLM-managed lands and continues to search for currently 

unidentified abandoned hardrock mines.
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Chapter VII – Management of Lands and Resources VII - 148

A wetland bioreactor 

treats acid mine drainage 

in the historic San Juan 

Mining District, Colorado.

According to BLM inventory data as of January 2013, there are over 76,000 features (such as 

physical hazards and environmental contaminants) associated with 39,000 sites. Much of the 

legacy data in the inventory is incomplete. The BLM is working not only to update the legacy 

data but also to add newly discovered sites to the inventory. 

The BLM places the greatest priority on conducting on-the-ground 

remediation at high-priority sites that have already been inventoried and 

also at newly discovered sites that pose higher risks due to population 

expansion and recreational activities in remote locations. The AML 

prioritization process ranks AML sites based on environmental and 

physical safety hazards and takes into account factors including water 

quality impairments and violations; watershed and other environmental 

impacts; threats to public health or safety; existence of partnerships; cost 

avoidance/cost recovery; continuing/expediting existing on-the-ground 

projects; location; and cost efficiency. Cost recovery involves applying 

the polluter pays principle; where possible, the BLM compels responsible 

parties to contribute to site cleanup costs.

The AML Program differs from the Hazardous Materials Management Program in that the 

Hazardous Materials Management Program addresses environmental issues but not physical 

safety issues. The Hazardous Materials Management Program addresses environmental issues 

across all BLM-managed lands, and may help address environmental issues at high-priority 

AML sites as well. 

The Department’s Central Hazardous Materials Fund (CHF) is specifically for funding 

Comprehensive Environmental Response, Compensation and Liability Act (CERCLA) projects 

for all Departmental bureaus. Some very large, environmentally complicated abandoned mine 

sites that cannot be remediated by the BLM’s AML funds alone are funded through CHF. Many 

of these sites are multi-million dollar clean up actions. The Abandoned Mine Lands Program 

also partners with other BLM programs and other Federal agencies that contribute to activities 

addressed by AML. 

Environmental Health

Five to ten percent of the AML sites in the inventory pose environmental hazards. AML 

environmental sites include those with features such as tunnels that discharge contaminated 

water, and tailing piles that discharge various hazardous materials such as arsenic, mercury, 

and base metals. BLM environmental cleanup and remediation activities are guided by public 

laws such as CERCLA, the Clean Water Act, the Federal Land Policy and Management Act, 

and the National Environmental Policy Act. 

Radioactive exposure at abandoned uranium mines (AUM) also poses an environmental health 

hazard and its remediation is a priority for the AML Program. Abandoned uranium mines are 

most prevalent in New Mexico, Arizona and Utah. The BLM works with other Federal and State 

partners on AUM issues. For example, the Grants Mineral Belt Working Group in New Mexico 

has commenced plans for multi-ownership AUM remediation.
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Chapter VII – Management of Lands and Resources VII - 149

Upper Animas stakeholders discussing reclamation options.

In Colorado, the BLM has used watershed stakeholder 

groups as a forum to foster community-based, holistic 

approaches to address water quality issues stemming 

not only from abandoned hardrock mines but from 

other sources as well.

The AML Program approaches remediation of 

water resources at a watershed scale, 

allowing for the pooling of resources with 

other partners to achieve efficiencies of scale. 

Many of the watersheds impacted by past 

hardrock mining activities are located in the 

arid West, where the need to improve water 

quality for human and ecosystem needs is

critical. Recent drought conditions have made 

the need for clean and usable water even 

more vital. 

Physical Safety Hazards

The majority of sites in the AML database 

contain physical hazards, such as open mine 

shafts and pits; unstable rock; decayed 

support beams; and explosive and toxic 

chemicals. These physical safety hazards 

pose threats to humans and wildlife alike and are a high priority for the AML Program. 

Temporary mitigation, such as fencing and signage, biological and archeological clearances, 

permanent closure, and installation of controlled access barriers are the most common 

remediation activities. 

Partnerships

Partnerships with other Federal, State, local, and tribal agencies allow for the leveraging of AML 

funds to inventory thousands of abandoned hardrock mine sites, close hundreds of abandoned 

hardrock mining shafts and adits, and remediate environmental contaminants at such sites. The 

BLM has established assistance agreements with abandoned mine land programs in various 

States, including Arizona, California, Colorado, Idaho, Montana, Nevada, New Mexico, Utah, 

and Wyoming. In Nevada and Arizona, the BLM has partnered effectively with the U.S. Army 

Corps of Engineers on several projects. Bat Conservation International assists the BLM in 

identifying abandoned mines that provide bat habitat and helping to preserve that habitat with 

bat-friendly closures. 

Strategic Plan

The AML National Strategic Plan ensures that the AML Program meets planning targets 

identified in the DOI and BLM strategic plans, as well as in annual work plans. The key 

objectives of the AML Program are to identify AML sites, prioritize sites based on risk, remediate 

sites with available resources over specified time periods, report program accomplishments, 

and conduct education and outreach activities to warn the public about the potential dangers of 

AML sites. The BLM is currently revising the AML National Strategic plan. In partnership with 

other Federal and State partners, the BLM has also developed multi-year work plans that 

identify watersheds and high-impact areas where field work will be given priority. The BLM 

reviews the AML National Strategic plan annually and adjusts the work plan as necessary. 
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Chapter VII – Management of Lands and Resources VII - 150

Critical Factors

Critical factors that impact the effectiveness of the AML Program include the following:

• AML restoration projects can be highly complex in environmental scope and impact. 

Environmental analyses and engineering studies are conducted to determine the extent 

of contamination and to identify restoration strategies. Typically, a multiple-year, phased 

approach is required to complete remediation at these sites.

• Remediation efforts can face new challenges and require additional engineering studies 

as previously unknown conditions are discovered at the site and as other conditions 

change at the site due to factors such as excessive precipitation or erosion. 

• The BLM performs ongoing monitoring and maintenance activities at restored sites. 

2014 PROGRAM PERFORMANCE

In 2014, the AML Program anticipates remediating approximately 2,386 acres to improve water 

quality, as well as conducting 1,284 physical safety hazard closures. The AML Program expects 

to inventory 2,000 new AML features. Additionally, the program expects to monitor and 

maintain 1,500 remediated sites, and see increases in the maintenance and monitoring work 

required on sites remediated in prior years. The AML Program must expend more of its funds on 

the upkeep of items such as water treatment systems, bat gates, and other remedial actions. 

Moreover, the AML Program has completed its 2009 American Recovery and Reinvestment Act 

(ARRA) projects. The ARRA funding caused a significant, but temporary increase in the number 

of reported accomplishments through 2012. 
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Chapter VII – Management of Lands and Resources VII - 151

Activity: Resource Protection and Maintenance

Subactivity: Resource Protection and Law 

Enforcement

Subactivity

2013

Full Year 

CR

2012 

Enacted1

2014 Change

from

2012 

Enacted

(+/-)

Fixed 

Costs &

Related 

Changes

(+/ -)

Program

Changes

(+/ -)

Budget

Request

Resource Protection & 

Law Enforcement ($000) 27,170 27,024 +259 +0 27,283 +259

FTE 137 137 +0 +1 138 +1 1

Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

JUSTIFICATION OF 2014 PROGRAM CHANGES

The request for Resource Protection and Law Enforcement is $27,283,000, and 138 FTE.

PROGRAM OVERVIEW

Program Components

The Resource Protection and Law Enforcement Program supports the Bureau’s mission through 

the enforcement of Federal laws and regulations related to the use, management, and 

development of public lands and resources. The objectives of the program are to:

• Provide a safe environment for public land users and employees;

• Deter, detect, and investigate illegal activities, and resolve or refer such matters to 

appropriate officials;

• Protect lands and waters from illegal dumping and pollution; and

• Ensure revenues owed to the government for authorized or unauthorized uses are paid.

Resource Protection and Law Enforcement Program resources:

• Manage the law enforcement presence at special events and high-use recreation areas 

in order to support law enforcement needs exceeding the capacity of local field offices;

• Establish interagency agreements, partnerships, and service contracts with numerous 

State and local law enforcement agencies to secure supplemental support in the form of 

dispatch services, patrols of high use recreation areas, and assistance in the eradication 

of marijuana grown on public lands; and

• Utilize technology such as remote cameras, sensors, and tracking devices wherever 

possible to expand the capability to monitor locations of known illegal activities.
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 152

Critical Factors

Critical factors affecting the Resource Protection and Law Enforcement Program on public lands 

include:

• Large-scale marijuana cultivation threatens public and employee safety; while the 

associated use of fertilizers, herbicides, and pesticides, the illegal taking of wildlife, and 

the dumping of waste damages ecosystems exploited for illegal cultivation activities. 

• The smuggling of humans and controlled substances on public lands near the Southwest 

Border destroys the natural and cultural resources on these public lands; and threatens 

public and employee safety.

• Population increases in urban areas located near public lands have led to corresponding 

increases in off-highway vehicle (OHV) use, illegal dumping of waste, theft of mineral 

materials and native plants for private landscaping, and the ignition of wildland fires.

• Emergencies and similar unexpected developments frequently require law enforcement 

responses that cannot be planned for or anticipated.

• Requests continue to come from partner law enforcement agencies seeking funding 

assistance through service contracts and support agreements, particularly in counties 

where public lands are heavily impacted by marijuana cultivation activities.

Demands, Trends and Resources

In 2012, the BLM saw the third consecutive yearly decrease in the number of marijuana plants 

seized on public lands. This decrease occurred in California, Idaho, Oregon, and Utah; while 

increases in large-scale cultivation activity occurred in 

southern Nevada. Due to the scope of the marijuana 

cultivation problem and the large number of Federal, 

State, and local agencies involved in combatting the 

issue, it is difficult to establish a direct cause for this 

decline. However, several factors are believed to be 

having a positive effect on reducing large-scale

cultivation on public lands, including:

• Increasingly effective utilization of multi-agency 

investigation and eradication efforts to target 

and disrupt illegal activities at all levels of the 

drug trafficking organizations. The 2012 multiagency operation “Mountain Sweep” is one 

such effort that successfully targeted marijuana 

cultivation throughout the West, particularly 

public lands in California.

• Prosecution of individuals at all levels of multiState drug trafficking organizations disrupts 

organizational structures, and reduces their cultivation and distribution capabilities. 

Examples include recent cases in southwest Idaho and eastern Oregon.

• Shifts in weather patterns in northern California and western Oregon reduced the length 

of the growing season in 2010, 2011, and 2012, partly accounting for reduced numbers 

of plants grown and seized on public lands.

• Several State medical marijuana laws provide for the lawful cultivation of marijuana on 

private lands. Quantities of this lawfully cultivated marijuana are known to be sold 

BLM law enforcement investigates a 

marijuana garden on public lands.
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 153

outside the legal trade. The increased market supply of marijuana generated by these 

legal sources may be reducing the quantity of marijuana cultivated on Federal lands.

2014 PROGRAM PERFORMANCE

Marijuana Cultivation on Public Lands – The 

BLM plans to continue drug enforcement 

activities at the same level as 2012. This will 

include twenty special agents assigned to 

combat marijuana cultivation full time in 

California and Oregon; as well as special agents in Utah and Nevada continuing to investigate 

large scale marijuana cultivation activities in those States on a part time basis. Additionally, 

BLM rangers assigned to California and Oregon will continue to provide high profile patrol to 

deter and detect cultivation activities, eradicate marijuana cultivation sites, and provide security 

for personnel conducting cultivation site rehabilitation efforts. 

The BLM will continue work with the Public Lands Drug Coordination Committee, under the 

auspices of the Office of National Drug Control Policy, to utilize science-based methods to 

identify environmental impacts of marijuana cultivation on the public lands and establish a cost 

model accounting for hazardous and non-hazardous material, water displacement, usage, and 

pollution impacts, and surface disturbance. These models better estimate and track the costs of 

the environmental impacts of marijuana cultivation. 

Archaeological Resource Protection Act (ARPA) Enforcement in 

the Four Corners Region – The BLM will continue to patrol and 

conduct investigations in the Four Corners region of the 

Southwest to deter and detect incidents of theft and vandalism of 

cultural, historical, and paleontological resources. The BLM will 

prosecute suspects and provide for the proper curation, storage, 

and disposition of recovered artifacts. The BLM continues to 

pursue the “‘Cerberus Action”; a highly successful multi-year 

investigation targeting individuals suspected of looting 

archaeological sites and Native American graves in violation of 

ARPA and the Native American Graves Protection and 

Repatriation Act (NAGPRA). Federal indictments continue and the BLM has begun the process 

of repatriating the hundreds of thousands of archaeological and Native American artifacts 

recovered through the investigation.

Southwest Borderlands – The BLM will continue to patrol and 

conduct law enforcement activities on public lands situated 

within 100-miles of the Southwest Border in response to the 

heavy resource impacts and public safety concerns associated 

with illegal human and drug smuggling activities. The BLM 

continues to invest heavily in its Reclaim Our Arizona 

Monuments (ROAM) operation. Developed in response to the 

severe impacts occurring on the Bureau’s Ironwood Forest and 

Sonoran Desert National Monuments, Operation ROAM 

combines the skills of BLM law enforcement officers with those

of BLM resource specialists in order to improve public safety 

and remedy the resource damage caused by human and drug 

Marijuana Plants Seized by BLM on Public Lands

FY 2009 FY 2010 FY 2011 FY 2012

674,935 593,832 436,455 156,014

Looted pottery seized as part 

of the Cerberus Action.

Trash from human smuggling 

activities in Sonoran Desert 

National Monument, removed as 

part of Operation ROAM
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 154

smuggling. This pairing of skill-sets serves to disrupt/deter smuggling operations and repair 

smuggling-related environmental damage caused by unauthorized roads and trails, large 

accumulations of trash, and concentrations of human waste.

National Landscape Conservation System (NLCS) – The BLM will continue to patrol and 

conduct law enforcement activities within NLCS areas in order to protect nationally significant 

resources and provide the public the opportunity to safely enjoy their public lands.

Off-Highway Vehicle (OHV) Recreation –

The BLM will continue to dedicate law 

enforcement resources to the patrol of 

high-use OHV areas in order to protect 

sensitive resources and ensure the public 

is provided safe recreational opportunities 

on public lands. 

Wild Horses and Burros – The BLM will continue to enforce laws and investigate violations 

related to the harassment, unlawful removal, inhumane treatment, unauthorized destruction or 

sale of wild horses and burros.

Resource Damage, Loss and Theft – The BLM will continue to emphasize patrol, enforcement, 

and investigation to reduce the theft of public land resources, including mineral materials, timber 

and forest products, as well as improve production accountability and reduce theft of oil and gas 

resources. The BLM will investigate wildland fires to determine the origin and cause, identify 

responsible parties, and seek civil enforcement or criminal prosecution in cases involving 

negligence or arson.

Off-Highway Vehicle (OHV) Activity on Public Lands

FY 2009 FY 2010 FY 2011 FY 2012

OHV 

Incidents 8,455 8,147 6,427 4,067

Total 

Incidents* 26,461 30,935 26,888 23,544

*Total number of law enforcement incidents reported

Theft, Vandalism, and Misuse of Resources Incidents Reported

FY 2009 FY 2010 FY 2011 FY 2012

Cultural, Paleontological & Historical Resources 85 118 72 140

Minerals 15 15 10 21

Natural Features & Other Wildland Resources 143 100 107 106

Timber, Forest Products, & Native Plants 165 202 190 279

Wild Horses and Burros 79 92 86 118

Wildland Fire Incidents Reported on Public Lands

No. of Fire Related Incidents FY 2009 FY 2010 FY 2011 FY 2012

694 831 698 1,053
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 155

Activity: Resource Protection and Maintenance

Subactivity: Hazardous Materials Management

2013 

Full 

Year 

CR

2012 

Enacted1

2014

Change 

from 

2012 

Enacted

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Internal 

Transfers 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Hazardous Materials 

($000) 16,749 16,641 +182 +0 +0 16,823 +182

FTE 97 97 + 0 + 0 +0 97 +0

Other Major Resources:

Transfer: Central Haz. 

Mat. Fund (26xx) 2,802 2,948 +0 + 0 TBD TBD TBD

Transfer: Nat. Res. 

Damage Assess 

(9210/60) 102 325 +0 + 0 TBD TBD TBD 1

Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

JUSTIFICATION OF 2014 PROGRAM CHANGES

The 2014 budget request for the Hazardous Materials Management Program is $16,823,000 

and 97 FTE.

PROGRAM OVERVIEW

The Hazardous Materials Management (HMM) Program ensures BLM compliance with Federal 

and State environmental regulations. The Program also exercises the legal authorities granted 

to the BLM to protect human health and the environment by cleaning up hazardous waste sites. 

Additionally, the HMM Program implements Federal initiatives directed at improving 

environmental management and sustainability. HMM activities include: 

• Minimizing environmental contamination on public lands;

• Reducing risks associated with environmental hazards;

• Restoring natural and cultural resources adversely impacted by oil discharges and 

hazardous substance releases;

• Correcting environmental compliance problems in a timely fashion;

• Identifying and managing significant environmental aspects of BLM operations;

• Reducing the generation of wastes or contaminants at the source, thereby reducing the 

level of hazards to public health or the environment; and

• Partnering with the BLM Law Enforcement Program to remove illegally dumped material 

such as trash, hazardous materials, and abandoned vehicles.

The HMM Program differs from the Abandoned Mine Lands (AML) Program. While the AML 

Program focuses on issues at hardrock mines abandoned prior to 1981, the HMM Program has 

a broader focus on all public lands. Additionally while the AML Program addresses both physical 
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 156

and environmental safety hazards at AML sites, the HMM Program addresses environmental 

hazards only, and may support environmental hazards at high-priority AML sites as well. 

Critical Factors 

Critical factors that impact the effectiveness of the HMM Program include the following:

• The need to support maintenance and monitoring activities at previously remediated 

sites grows as new cleanup efforts are undertaken and completed. 

• There are currently 178 sites on the Environmental Disposal Liability list which require 

some degree of remediation. 

• Urban growth and development have increased public access to BLM-managed lands. 

This trend has not only increased the number of illegal dumps on public lands, but has 

also heightened the need to address contaminated sites in order to reduce public health 

and safety hazards. Increased real-estate development and property transfer activities 

also require environmental assessments and a cadre of trained and certified BLM 

environmental professionals. 

• Illegal immigration and smuggling activities along the Arizona, New Mexico and 

California borders with Mexico cause damage to public lands, including national 

monuments and designated wilderness areas. Such damage includes unauthorized 

roads and trails; cut fences; damaged vegetation; contaminated water resources; and 

large accumulations of solid and hazardous waste. 

 Areas along the Southwest border impacted by illegal immigration.

Means and Strategies

The BLM uses the following strategies to operate the HMM Program:

• Developing, implementing, and maintaining emergency response (i.e., oil and chemical 

spill) contingency planning;

• Leveraging funding with partners to respond to community needs and concerns;

• Assessing and maintaining BLM facilities to ensure compliance with environmental laws 

and regulations;

• Searching for parties responsible for contamination on public lands and either seeking 

their participation in remediating the site or recovering costs;
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Chapter VII – Management of Lands and Resources VII - 157

• Partnering with other environmental protection-related agencies such as the Fish and 

Wildlife Service, the Environmental Protection Agency, the U.S. Army Corps of 

Engineers, and the U.S. Forest Service, as well as with other BLM programs, including 

the AML Program, the Law Enforcement Program, and the Recreation Program; 

• Partnering with State, law enforcement, and volunteer groups to deter and mitigate 

damage to public lands along the Southwest border from illegal immigration and 

smuggling activities;

• Using the Abandoned Mine Site Cleanup Module database to track and prioritize sites 

based on the level of risk to human health and the environment; and

• Using the HMM Special Cleanup Fund (SCF) to address the removal and remediation of 

hazardous substances. The SCF was created as a mechanism to manage larger, highrisk hazardous material sites not currently eligible for other funding sources.

Other Funding Sources: 

In addition to HMM Program funding, the BLM utilizes, in the appropriate circumstances, funding 

from the Department’s Natural Resource Damage Assessment Restoration Fund (NRDAR), and 

the Department’s Central Hazardous Materials Fund (CHF).

The BLM uses the NRDAR fund to identify damage to natural resources; work with the public 

and the polluters to plan restoration efforts; seek payment from the polluters for resource 

restoration costs; and restore or replace resources to pre-contamination conditions. Project 

scoping and start-up funds may come from Interior. Assessment funds are provided through 

Interior or negotiated with polluters. Restoration funds come from settlements with polluters, 

either through negotiations or legal action. Funds from these settlements are then used to 

restore the damaged resources at no expense to the taxpayer. Settlements often include the 

recovery of costs incurred in assessing the damages. 

The DOI’s CHF includes appropriated and recovered funds, and supports response actions, 

remedial investigations, feasibility studies, and cleanup at sites contaminated by hazardous 

substances. These sites are prioritized based on human health and ecological risk, regulatory 

factors, and the level of Principle Responsible Party involvement. Proposals are reviewed and 

prioritized first by BLM State Offices through a yearly nomination processes, and then by 

Departmental representatives. The BLM currently manages 26 CHF sites. In 2013, the CHF 

allocated $2.8 million for BLM sites. 

Long-term Vision

The HMM Program’s long-term vision is to protect human health and the environment by 

focusing on the following:

• Protecting water resources from hazardous material contamination; 

• Improving accountability by creating effective ways to monitor and track contaminated 

sites;

• Making innovative use of geographic information systems and mapping tools;

• Using partnerships and innovative outreach efforts to prevent, as well as reduce, illegal 

dumping on public lands; 

• Developing Environmental Management Systems (EMS) at all appropriate organizational 

levels in accordance with E.O. 13423 and DOI EMS Policy to continually improve 

environmental performance;

• Promoting environmentally sustainable operations by reducing petroleum use in the BLM 

fleet, increasing alternative energy use, reducing air emissions, promoting pollution 
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prevention, recycling, and conducting environmentally preferable purchasing and 

contracting activities;

• Supporting facility upgrades and auditing sites to ensure compliance;

• Developing internal and external partnerships to jointly provide effective solutions to 

environmental issues on BLM-managed lands; and

• Using training and updated contingency plans to improve the BLM’s capability to 

respond to oil discharges and hazardous releases along coastal areas and protect 

endangered species and associated habitats.

2014 PROGRAM PERFORMANCE

The HMM Program will continue to perform the following activities in fiscal year 2014:

• Complex Contaminated Site Cleanups – Leverage funding with other Federal programs to 

address cleanups at large, complex hazardous waste sites that pose an imminent risk to the 

public. 

• Environmental Compliance – Continue to support, with the Engineering and Safety 

Programs, the performance of Compliance Assessment – Safety, Health, and the 

Environment (CASHE) audits. In 2014, CASHE audits will be performed at twenty-nine 

organizational units.

• Illegal Dumping Prevention - Continue prevention efforts by targeting cleanups, outreach, 

and monitoring on BLM-managed lands to promote human safety and mitigate 

environmental damage.

• Emergency Response - Respond to and clean up oil spills and hazardous materials 

releases.

• Munitions and Explosives of Concern - Continue collaboration with other Departmental 

bureaus, as well as the Department of Defense, in the development of a database that 

prioritizes, tracks and monitors munitions and explosives of concern, to ensure visitor and 

employee safety and to ensure the cleanup of Formally Used Defense Sites (FUDS). The 

BLM is developing geo-spatial tools to augment the FUDS tracking database.

• Asbestos Surveys and Mitigation in BLM Buildings - Continue to survey BLM buildings for 

asbestos and to remediate asbestos where necessary. The Program plans for 75 asbestos 

inspections in 2014.

• Special Cleanup Fund - Remove or remediate hazardous materials at the following sites:

o AK, Haines Mile 7 Dump - removal of lead contamination from shooting range 

($100,000)

o AZ, Table Mesa - removal of lead contamination from shooting range ($100,000)

o CA - marijuana cleanup at various sites ($210,000)

o CO, Huerfano County - hazardous waste cleanup from a meth lab ($97,000)

o ID - asbestos removal at various locations ($80,000)

o NM, Cato Field Project - petroleum and hazardous waste cleanup ($50,000)

o NV, PAHRUMP - removal of illegal solid waste ($77,000)

o NV, Garnet Lake - removal of illegal solid waste ($105,000)

o OR, San Juan IS - complete encapsulation of lead contamination ($150,000)

• Environmental Management System (EMS) - Continue implementation of EMS in all States 

and Centers. Four of 16 organizational units have declared conformance. The Washington 

Office has implemented an EMS to monitor the Bureau’s sustainability goals as tracked on 

the Office of Management and Budget scorecard. 

• Sustainability - Continue participation in the Department Technical Working Group in order 

to meet Department-wide sustainability goals. Also continue participation in the Bureau-wide 
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Chapter VII – Management of Lands and Resources VII - 159

Technical Working Group to complete the annual Green House Gas (GHG) Inventory and 

develop operational controls to enhance environmental performance, including reducing 

GHG emissions, energy use, and potable water use.

• Southwest Border Cleanup – Continue to leverage funds and resources with partners to 

conduct remediation and restoration activities along the Southwest border.
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Transportation and Facilities 

Management

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Chapter VII – Management of Lands and Resources VII - 161

Activity: Transportation and Facilities Maintenance

Subactivity

2013

Full 

Year 

CR

2012 

Enacted1

2014 Change 

from 

2012 

Enacted

(+/-)

Fixed 

Costs &

Related 

Changes

(+/ -)

Internal 

Transfers

(+/-)

Program

Changes

(+/ -)

Budget

Request

Deferred 

Maintenance 

& Capital 

Improvements

$000 30,037 29,960 +120 +1,039 +1,250 32,369 +2,409

FTE 56 56 +0 +0 +17 73 +17

Annual 

Maintenance 

& Operations 

Costs

$000 41,453 41,160 +532 +0 +0 41,692 +532

FTE 288 288 +0 +0 -11 277 -11

Total Activity

$000 71,490 71,120 +652 +1,039 +1,250 74,061 +2,941

FTE 344 353 +0 +0 +6 350 +6 1

Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

The 2014 budget request for Transportation and Facilities Management is $74,061,000 and 350 

FTE, a net program increase of +$1,250,000 and +6 FTE over the 2012 enacted level. 

ACTIVITY DESCRIPTION

The goals of the Transportation and Facilities Maintenance Programs are to protect employee 

and visitor safety, resource values, and public investments, as well as to provide facilities 

management and public lands stewardship. To accomplish this, the BLM focuses on:

• Operating clean, safe, and fully functional facilities at recreation sites;

• Performing annual maintenance on all facilities;

• Conducting comprehensive assessments on the physical condition and regulatory 

compliance for all facilities;

• Implementing the Five-Year Deferred Maintenance and Capital Improvement Plans;

• Improving capabilities to manage facilities maintenance through development of an 

automated facility asset management system; and

• Implementing property and asset management planning to accurately inventory and 

describe assets, establish appropriate levels of investment, and adopt public or 

commercial benchmarks and best practices.

The two subactivities within the Transportation and Facilities Maintenance Activity that 

contribute to the proper stewardship of the BLM facilities are:

• Deferred Maintenance and Capital Improvements Subactivity – Provides for 

upkeep, repair or replacement of facilities that are impaired or not functional because 

annual maintenance was not performed on schedule. Deferred maintenance 

projects are prioritized per Departmental guidance on deferred maintenance and 

capital improvements to address critical health and safety issues, critical resource 

protection needs, energy and building sustainability, critical mission, and code 
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Chapter VII – Management of Lands and Resources VII - 162

compliance. 

• Annual Maintenance and Operational Costs Subactivity – Provides for 

emergency repair, preventive maintenance, cyclical maintenance and condition 

assessments on all facilities, in addition to providing for the utilities, janitorial 

services, and waste management needs of the BLM’s recreations sites.

Work in this activity includes project planning, site layout, architectural and engineering design, 

cost estimating, value engineering, facility condition assessments, seismic evaluations, energy 

conservation studies, professional inspections of dams and bridges, regulatory compliance 

evaluations for all projects, and contract supervision. The types of facilities maintained by the 

BLM are described below:

• Buildings and Administrative Facilities – Buildings on public lands range from 

complex office buildings and large visitor centers to small restrooms and well 

houses. Administrative facilities include but are not limited to office space, fire 

stations, interagency dispatch centers, internal communication sites, equipment 

maintenance shops, and field camps. The BLM maintains and operates 659 

administrative sites including 2,040 buildings and ancillary structures.

• Recreation Sites – The BLM is responsible for maintaining 2,815 recreation sites, 

with 2,930 buildings and numerous camping units, picnic units and boat ramps. In 

addition, the BLM is responsible for a portion of the maintenance on numerous 

facilities jointly held with other Federal, State, local government or private entities. 

• Transportation – Lands administered by the BLM have 57,000 lane miles of roads, 

13,300 miles of trails, and 829 bridges. Management emphasis is on maintaining the 

roads, trails, bridges, and major culverts that receive the greatest public use, present 

the greatest threat to public safety, or are contributing to water quality degradation 

due to improper drainage.

• Dams – The BLM manages and maintains 663 dams which have been designated 

with a hazard classification. These dams provide recreation, salinity control, and 

watershed protection. The BLM performs regular inspections, inundation studies, 

dam-break analyses for hazard classification, and dam maintenance. Emergency 

Action Plans are prepared for dams classified as “High” and “Significant” hazard 

dams. Plans are in the early formative stages regarding retirement of certain nonmission essential dams.
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Chapter VII – Management of Lands and Resources VII - 163

Activity: Transportation and Facilities Maintenance

Subactivity: Deferred Maintenance and Capital 

Improvements

2013 

Full 

Year 

CR

2012 

Enacted1

2014 Change 

from 

2012 

Enacted

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Internal 

Transfers 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Deferred Maintenance & 

Capital Improvements 

($000) 30,037 29,960 +120 +1,039 +1,250 32,369 +2,409

FTE 56 56 +0 +0 +17 73 +17 1

Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

Summary of 2014 Program Changes/Internal Transfers for Deferred Maintenance & Capital 

Improvements

Request Component ($000) FTE

Program Changes:

• Transfer from O&C Account +1,039 +3

• Land Radio Program +1,250 0

TOTAL, Program Changes +2,289 +3

JUSTIFICATION OF 2014 PROGRAM CHANGES

The 2014 budget request for the Deferred Maintenance and Capital Improvements Program is 

$32,369,000, a net increase of $2,409,000 and +17 FTE from the 2012 Enacted level. The net 

increase is comprised of an internal transfer of +$1,039,000 and +3 FTE and a program change 

of +$1,250,000.

Transfer of funds from O&C Deferred Maintenance (+$1,039,000/+3 FTE) –The 2014 budget 

request includes a transfer of +$1,039,000 and +3 FTE from the O&C Deferred Maintenance 

subactivity. Beginning in 2013 all construction, deferred maintenance and capital improvement 

projects on all BLM-managed lands will be funded in this account in the MLR appropriation.

Land Mobile Radio (+$1,250,000/0 FTE) –This increase of $1.25 million supports an Interiorwide, integrated approach to manage the Land Mobile Radio (LMR) facilities, launch efforts to 

consolidate radio infrastructure, and leverage resources through better coordination. These 

funds will be coordinated with the Department’s corporate approach to achieve critical program 

components such as establishing user priorities, inventorying sites, establishing coverage 

models, assessing condition and remediating findings at retained sites, identifying 

redundancies, and disposal of facilities that are no longer needed. This initiative builds on a 

successful pilot undertaken by the BLM to assess and address radio infrastructure deficiencies.
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Chapter VII – Management of Lands and Resources VII - 164

PROGRAM OVERVIEW

Program Components

The components of the BLM Deferred Maintenance and Capital Improvements Program are as 

follows:

• Improve the overall condition of BLM facilities for public safety;

• Renew aging infrastructure;

• Provide professional engineering services;

• Manage environmental and structural risks of facilities;

• Manage corrective actions identified through Compliance Assessment Safety, Health 

and the Environment (CASHE) Audits;

• Manage corrective actions identified for accessibility provisions;

• Manage corrective actions for improvement of energy savings; and

• Construct facilities for visitors and employees that comply with Federal requirements. 

The program gives highest priority to critical health and safety work, resource protection, energy 

and building sustainability, code compliance and mission criticality to protect both the visiting

public and the environment on BLM-managed lands. This includes replacing and reconstructing 

existing roads, trails, bridges, recreation and administrative facilities, and buildings.

Energy conservation and sustainability are primary considerations for all new projects. This 

policy is supported by the provisions of the Energy Policy Act of 2005 (EPACT 2005), Energy 

Independence and Security Act of 2007 (EISA) and the goals of Executive Orders 13123 and 

13514. Projects incorporate the guiding principles of the Sustainable Buildings Implementation 

Plan to reduce total ownership cost of facilities, and improve energy efficiency and water 

conservation.

Ongoing revisions of the Asset Management Plan helps to establish a system that will identify 

Bureau assets, determining how much they will cost to operate, and their importance to the 

Bureau mission. The AMP helps prioritize the distribution of funding to the highest priority assets 

and assist with planning for the disposal of unneeded assets to attain a portfolio of constructed 

assets that are in good physical and functional condition that align with current maintenance 

resources.

Critical Factors

In the lower 48 States, nearly two-thirds of BLM-managed lands are within a one-hour drive of 

urban areas. As population grows in the American West, the public’s use of those lands places 

increasing demands on facilities and resources, particularly those located near urban centers. 

Additionally, many roads on BLM-managed lands were originally built as administrative roads 

with much lower usage than occurs now and is expected in the future. This increased usage 

increases the BLM’s cost to maintain roads in a safe condition for employees and the public.

Means and Strategies

The BLM manages assets through industry standard performance measures, the Asset Priority 

Index, and the Facilities Condition Index. These measures help identify the condition of 

constructed assets and determine whether the asset requires additional annual maintenance, 

funding from deferred maintenance, or if the asset should be disposed. The BLM categorizes 
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Chapter VII – Management of Lands and Resources VII - 165

deferred maintenance needs identified through condition assessments and other inspections 

into specific projects, proposed in the Five-Year Deferred Maintenance and Capital 

Improvement Plan. To manage these projects, the BLM observes the following guidelines:

• For projects with estimated costs of $10 million or more, the program schedules one 

year for project planning, one year for design, and no more than two years for 

construction.

• For projects with estimated costs between $2 million and $10 million, the program 

schedules one year for project planning and design, and no more than two years for 

construction.

• For projects with estimated costs below $2 million, the program schedules one year for 

planning and design and one year for construction.

The Five Year Deferred Maintenance and Capital Improvement Plans is updated annually. In 

recent years, the BLM expanded planning for each new project to include the impacts of 

expected life cycle costs on BLM’s total budget. Project submissions include the estimated 

operation expenses, energy cost saving and sustainability actions, and the improvement in 

facility condition as a result of the project.

2014 PROGRAM PERFORMANCE

In 2014, the planned accomplishments in the Deferred Maintenance and Capital Improvements 

Program include projects that total $31.0 million including 63 deferred maintenance projects, six 

disposal projects totaling $1.2 million, remedy of corrective actions, and accessibility projects
Bureau of Land Management 2014 Budget Justifications

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Activity: Transportation and Facilities Maintenance

Subactivity: Annual Maintenance and Operational 

Costs

2013 

Full 

Year 

CR

2012 

Enacted1

2014 Change 

from 

2012 

Enacted

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Internal 

Transfers 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Annual Maintenance and 

Operational Costs ($000) 41,453 41,160 +532 +0 +0 41,692 +532

FTE 288 288 +0 +0 -11 277 -11

Other Major Resources:

POF: Road Maintenance 2,000 2,339 +0 +0 -339 2,000 -339

POF: Quarters 

Maintenance 600 575 +0 +0 +25 600 +25 1

Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

JUSTIFICATION OF 2014 PROGRAM CHANGES

The 2014 budget request for the Annual Maintenance and Operational Costs Program is 

$41,692,000 and 277 FTE.

PROGRAM OVERVIEW

Program Components

The Annual Maintenance and Operational Costs Program maintains the BLM infrastructure, 

providing for visitor and employee safety and ensuring proper facilities management. Funding 

provides for emergency, preventive and cyclical maintenance and baseline facility condition 

assessments. The goal of the program is to perform sufficient annual and operational 

maintenance, manage facility services and landscape upkeep, and minimize new deferred 

maintenance needs on BLM constructed assets. 

Other Funding Sources

Road Maintenance funds provide for the permanent appropriation of money collected from 

commercial road users in lieu of user maintenance. 

Quarters Maintenance funds maintain and repair all employee-occupied quarters from which 

rental charges are collected.

Recreation Fee Collection funds augment the annual maintenance of the recreation sites where 

fees were collected. 
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Chapter VII – Management of Lands and Resources VII - 168

Critical Factors

In the lower 48 States, nearly two-thirds of BLM-managed lands are within a one-hour drive of 

urban areas. As population grows in the American West, public use of those lands places 

increasing demands on facilities and resources, particularly those located near urban centers. 

Additionally, many roads on BLM-managed lands were originally built as administrative roads 

with much lower usage than occurs now and is expected in the future. This increased usage 

increases the BLM’s cost to maintain roads in a safe condition for employees and the public.

Means and Strategies

In conducting program work, the BLM adheres to the requirements of Executive Order 13327, 

"Federal Real Property Asset Management." This includes:

• Using public and commercial benchmarks and best practices;

• Employing life-cycle cost-benefit analysis;

• Providing appropriate levels of investment;

• Accurately inventorying and describing all assets; and

• Providing safe, secure, and productive workplaces. 

The BLM uses two industry standard performance measures, the Asset Priority Index and the 

Facilities Condition Index (FCI), for identifying the condition of constructed assets and targeting 

assets that can be disposed of or require additional annual maintenance or supplemental 

funding from deferred maintenance. 

Assessment Process

The BLM conducts baseline condition assessments of recreation sites and administrative sites, 

including on-site buildings and structures; Maintenance Level 3, 4, and 5 roads, bridges, dams, 

and major trails. The condition assessment process identifies deferred maintenance needs and 

determines the current replacement value of constructed assets. Knowing the estimated cost 

of deferred maintenance and the replacement value of recreation and administrative sites 

allows the BLM to use the industry standard FCI as a method of measuring the condition and 

change of condition of facilities.

The FCI is the ratio of accumulated deferred maintenance to the current replacement value 

(FCI = Deferred Maintenance/Current Replacement Value). It is an indicator of the overall 

condition of capital assets. The general guideline is that FCI should be below 0.15 for a facility 

to be considered in acceptable condition. The Asset Business Plan documents the FCI, and it 

is a major tool used for management decisions on the disposal of assets.

2014 PROGRAM PERFORMANCE

The Annual Maintenance and Operational Costs Program will maintain constructed assets 

supporting BLM administrative, recreational, and infrastructure needs, and emphasize areas 

under greatest pressure from community growth. The BLM is experiencing higher use of 

recreation sites. According to data from the Public Land Statistics, the number of visitor days at 

BLM recreation sites has increased from 30,150,000 in 2009 to 33,880,000 in 2012.
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Chapter VII – Management of Lands and Resources VII - 169

In 2012, the BLM reported 4,806 structures and 868 buildings in the Federal Real Property 

Profile. These structures consist of dams, bridges, electrical and communication systems, trails, 

and roads. In 2014, the BLM will be able to maintain 89 to 90 percent of facilities at an 

acceptable level.
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Chapter VII – Management of Lands and Resources VII - 170

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National Landscape and

Conservation System

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Chapter VII – Management of Lands and Resources VII - 171

Activity: National Landscape Conservation System

Subactivity: National Monuments and National 

Conservation Areas

2013 

Full 

Year 

CR

2012 

Enacted1

2014 Change 

from 

2012 

Enacted

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Internal 

Transfers 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Nat'l Monuments & Nat'l 

Cons Areas ($000) 32,088 31,819 +489 +0 +6,044 38,352 +6,533

FTE 259 259 +0 +0 +2 261 +2 1

Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

Summary of 2014 Program Changes for National Monuments & National Conservation Areas

Request Component ($000) FTE

Program Changes:

• General Program Increase - America's Great Outdoors +6,044 +2

TOTAL, Program Changes +6,044 +2

JUSTIFICATION OF 2014 PROGRAM CHANGES

The 2014 budget request for the National Monuments and National Conservation Areas 

(National Monuments and NCA) program is $38,352,000 and 261 FTE, a program increase of 

+$6,044,000 and +2 FTE from the 2012 enacted level. 

Program Increase – America’s Great Outdoors (+$6,044,000/+2 FTE) –The requested 

increase in funding will strengthen the BLM’s management of the 40 separate units within the 

National Monuments and NCA program and will enhance the BLM’s ability to conserve, protect, 

and restore congressionally and presidentially designated areas. Specifically, funds will be used 

to enhance monitoring of natural and cultural values, improve the use of landscape scale 

scientific data and increase the presence of law enforcement officers for public health and 

safety. With this increase in funding the BLM will be able to sustain compatible uses on National 

Monuments and NCAs such as grazing and recreation. The budget request will enable the 

program to enhance management, collaborate with stakeholders, and improve awareness by 

expanding the following workloads:

• Assess, inventory, and monitor units for the presence and prevalence of the resources, 

objects, and values for which they were designated;

• Develop unit-specific science strategies/plans;

• Complete travel management plans;

• Use large-scale assessments, such as the Rapid Ecoregional Assessment, to identify 

where units may provide important wildlife corridors and where they may need to assert 

Federal water rights;

• Enter into law enforcement agreements with local law enforcement agencies to protect 

resources, objects, values, and the public;

• Develop and maintain a sign plan and install signs where needed, such as along 

boundaries and at visitor centers and other contact points;
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Chapter VII – Management of Lands and Resources VII - 172

• Provide assistance for units that create, maintain, and expand partnerships and 

volunteer programs;

• Engage, educate, and employ youth and veterans; and

• Provide policy and leadership training to managers and staff.

PROGRAM OVERVIEW

This program encompasses the BLM’s 19 National Monuments, 16 National Conservation 

Areas, three Outstanding Natural Areas, one Cooperative Management and Protection Area, 

and one Forest Reserve. The BLM’s Monuments and NCAs are primarily managed to conserve, 

protect, restore, and enhance America’s national heritage. These 8.9 million acres of public 

lands are often referred to as the crown jewels of the BLM’s National Landscape Conservation 

System (NLCS). 

While other Federal land management agencies also manage areas established by Congress or 

Presidential proclamation for conservation purposes, the BLM’s program is unique because it is 

managed under the principles of multiple-use and sustained yield. Traditional activities such as 

hunting, livestock grazing, and Native American cultural and religious uses continue throughout 

many of these landscapes. Oil and gas development also continues on some of these public 

lands where valid rights existed prior to their designation. This multiple-use approach honors the 

essential role these working landscapes have played in molding the history, culture, and 

economy of the western U.S.. 

These special places represent the breadth of public lands administered by the BLM. The 

BLM’s Monuments and NCAs include diverse lands such as the 1.2 million-acre Steese National 

Conservation Area, which protects two of Alaska’s most important caribou herds; Fort Ord 

National Monument, the military installation near Monterey, California that contains spectacular 

natural resources and scenery, and was the training site for hundreds of thousands of American 

soldiers; Jupiter Inlet Lighthouse Outstanding Natural Area, on the Atlantic coast of Florida; and 

Colorado’s Canyons of the Ancients National Monument, which protects the highest known 

density of First American archeological sites in the United States, including cliff dwellings, 

villages, kivas, shrines, agricultural fields, and rock art, some of which are over 10,000 years 

old. 

Connecting People to the Land

More people recreate on public lands than ever. Over 60 million people now live within 30 miles 

of public lands, and the elevated profile of public lands designated as Monuments and NCAs 

often attract regional, national, and international visitors. The high level of visitation presents the 

BLM with the challenge of providing more intensive recreation management and law 

enforcement to ensure that visitors have high-quality, low-impact, low-cost, diverse, self-directed 

recreation opportunities. For example, in Nevada, over 1.5 million people visit Red Rock 

Canyon National Conservation Area every year, and the Black Rock Desert High Rock Canyon 

Emigrant Trails National Conservation Area hosts the annual Burning Man. 

The Monuments and NCA Program also works to engage, educate and employ youth (as a part 

of the Secretary’s 21st Century Youth Conservation Corps), and veterans and military families. 

In the Phoenix District, the Youth Initiative worked with local partners to educate hundreds of 

youth about neotropical migratory birds, riparian resources, and special status species in an 

Audobon Society Important Bird Area and employed approximately twenty youth in internships 

throughout the year. For their work in the Phoenix District and on the Agua Fria National 
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Chapter VII – Management of Lands and Resources VII - 173

Monument, they received a Partners in Conservation Award from the Secretary of the 

Department of Interior.

Advancing Scientific Knowledge

The Monuments and NCAs will be expected to play an important role now and in the future by 

serving as long-term reserves for vulnerable native plant and animal populations. Therefore, it is 

essential to ensure that the ecosystems within Monuments and NCAs remain resilient to land 

health stressors, such as climate change, fire, and population growth. The collection of baseline 

scientific data is a critical tool for managers to determine how to successfully adapt to changing 

fire regimes, the spread of invasive and exotic species, and other climate-driven ecological 

changes. In 2012, the program funded 37 science projects, including one conducted at Grand 

Canyon-Parashant National Monument (Arizona). The study tested the effectiveness of different 

seeding regimes in previously-burned areas. The studies that this program supports provide 

practicable benefits for land management across the NLCS, the BLM, and the entire public land 

system. 

Creating Economic Opportunities

Because of the high rate of visitation, the communities surrounding the NLCS designated units 

reap significant economic benefits through tourism services. The BLM, in cooperation with local 

communities, supports the creation of recreation and visitor facilities in nearby gateway 

communities rather than building extensive facilities within NLCS units. These facilities also 

draw additional tourism that supports the local economy and creates economic diversity. 

In addition to the revenue generated by tourism, NLCS lands also provide revenue from energy 

development as well as traditional uses such as ranching and mineral extraction. Las Cienegas 

National Conservation Area’s relationship with grazing spans generations. The BLM continues 

to work with ranchers and permittees to enhance grazing practices and protect natural 

resources in this spectacular part of Southern Arizona. In Colorado, the Canyons of the 

Ancients National Monument, over 80 percent of the monument is leased for oil and gas 

development. Canyons of the Ancients National Monument continues to lead the way in 

development and implementation of best practices to balance protection of Native American 

cultural resources and extraction of gas from one of most highly-concentrated carbon dioxide 

fields in the nation. 
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 174

Base Funding History of the

National Monuments and National Conservation Area Program

State a 2011 

Actual

2012 

Enacted

2013 

Planned

2014 

Request

Alaska b $928 $396 $400 $400

Arizona $6,077 $6,014 $6,070 $6,070

California $4,752 $4,704 $4,748 $4,748

Colorado $3,021 $2,989 $3,017 $3,017

Eastern States $124 $124 $125 $125

Idaho $2,266 $2,243 $2,264 $2,264

Montana $1,467 $1,451 $1,465 $1,465

New Mexico $914 $1,017 $912 $912

Nevada $1,027 $904 $1,026 $1,026

Oregon $1,304 $1,291 $1,303 $1,303

Utah $5,719 $5,660 $5,713 $5,713

Washington Office, National Operations Center, 

National Training Center, and Bureau-Wide 

Administrative Support

$2,058 $2,037 $2,056 $2,056

Additional One-time Projects Allocated $1,691 $2,989 $2,989

Funds to be Allocated c $6,016

Total $31,348 $31,819 $32,088 $35,115

Footnotes

a Funds allocated to BLM State Offices to provide statewide program support, manage indirect costs, and 

distribute to individual units for specific projects based on statewide priorities. BLM State Offices generally 

allocate these funds subsequent to the publishing of the Budget Request.

b In Alaska, the White Mountains National Recreation Area was removed from the National Landscape 

Conservation System under the Omnibus Public Land Management Act of 2009. c Funds are generally allocated subsequent to the publishing of the Budget Request to high priority units.

2014 PROGRAM PERFORMANCE

The program will focus on the following priority efforts during FY 2014:

• Ensure the conservation, protection, and restoration of the resources, objects, and 

values for which Monuments and NCAs were designated: 

o Implement completed land use plans for Monuments and NCAs designated in the 

Omnibus Public Land Management Act of 2009, as required by law.

o Expand understanding through assessment, inventory, and monitoring of 

resources, objects, and values.

o Provide a scientific foundation for decision-making by developing science plans 

for Monuments and NCAs.

o Use Monuments and NCAs as outdoor laboratories for new, innovative 

management practices, including the use of livestock grazing to manage both 

invasive and special status plants, and adaptive management through 

comprehensive travel and transportation management.

• Collaboratively manage Monuments and NCAs as part of the larger human and natural 

landscape:

o Eradicate or control invasive, noxious plants, conduct vegetation treatments, 

remove decommissioned roads, and restore healthy ecosystem function to 

promote habitat connectivity and landscape-scale ecological sustainability.
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 175

o Provide for resource protection and public safety through law enforcement, 

including collaborative law enforcement actions near the U.S. – Mexican border.

o Proactively engage communities of place and interest to collaboratively provide 

sustainable recreational experiences to visitors, such as through outfitting, 

guiding, and geotourism, which can also benefit local economies.

• Raise awareness of the value and benefit of Monuments and NCAs:

o Improve the use of Web-based technology to reach out to the public about 

opportunities on Monuments and NCAs.

o Grow and foster partnerships, including the development and maintenance of 

Friends groups for Monuments and NCAs.

o Work with the Wounded Warriors project and other programs to engage military 

veterans, including partnerships with military installations located near 

Monuments and NCAs.

o Expand the use of volunteers, including by enhancing planning and tracking the 

important contributions volunteers make to managing Monuments and NCAs.

o Provide world-class education and interpretation to the public.

o Recruit and retain youth for employment in conservation. 

• Build upon the BLM’s commitment to conservation:

o Cultivate shared responsibility for the BLM’s conservation mandate by managing 

Monuments and NCAs as an integral part of the BLM’s multiple-use and 

sustained-yield mission, including by showcasing the accomplishments of other 

programs such as rangeland resources management, natural gas development, 

and recreation.

o Identify a manager for every Monument and NCA Unit; some units are managed 

as part of a larger field office. 

o Ensure consistent policy development and interdisciplinary implementation of 

programs and projects.
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 176

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Challenge Cost Share

Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 177

Activity: Challenge Cost Share

2013 

Full 

Year 

CR

2012 

Enacted1

2014 Change 

from 

2012 

Enacted

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Internal 

Transfers 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Challenge Cost Share 

($000) 2,588 7,455 +22 +0 +0 7,477 +22

FTE 6 17 +0 +0 +0 17 +0

Other Major Resources:

CCS Partners (estimate) 3,000 20,000 +0 +0 +0 20,000 +0 1

Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

JUSTIFICATION OF 2014 PROGRAM CHANGES

The 2014 budget request for the Challenge Cost Share program is $7,477,000 and 17 FTE.

PROGRAM OVERVIEW

Program Components

The Challenge Cost Share (CCS) Program allows the BLM to partner with local organizations to 

meet Administration priorities for on-the-ground habitat, recreation and cultural resource work. 

The BLM leverages CCS funds with partners’ monies or other in-kind contributions, at a 

minimum 1:1 rate. When appropriate, CCS funds are focused in high priority areas and aligned 

with other BLM funding. Some very successful projects have recently combined upwards of $6 

in partner contributions for every $1 of BLM CCS funds. 

BLM partners represent a broad spectrum of organizations that want to conserve public lands, 

enrich the public’s outdoor experience, and invite rural and urban residents to explore America’s 

Great Outdoors. These organizations care about the health of local communities, recreation and 

tourism, cultural heritage, forestry, oil and gas drilling, minerals and mining, livestock grazing, 

scientific research, wildlife, interpretation, and environmental education. BLM partners include: 

• Federal, State and municipal agencies;

• Recreation and social groups; 

• Non-profit organizations;

• School districts, colleges, and universities;

• Special interest groups;

• National advocacy groups; 

• Industry, private corporations and local businesses; and

• The Girl Scouts of the USA and the Boy Scouts of America.

Critical Factors

Partnerships, through programs such as CCS are vital to the Bureau’s success. The BLM’s 

commitment to and involvement with local communities is the key to reach stakeholders and 

youth. In turn, these successful relationships are an effective way to complete the following 

strategic work: 
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 178

• Survey, monitor and inventory resources;

• Restore public land health;

• Support threatened and endangered species management;

• Enhance recreational experiences;

• Manage off-highway-vehicle use;

• Provide visitor services and facilities; 

• Conduct public outreach and education projects; 

• Support emerging partnership development; and

• Increase the capacity of partners to secure more resources and accomplish more onthe-ground work.

Means and Strategies

Individual CCS Program projects are prioritized and selected at the local and State level by an 

interdisciplinary team of BLM State and Field office personnel. That prioritized list is then 

forwarded to the National CCS Team. The National CCS Team evaluates the merit of projects 

and approves them, in coordination with BLM State Office program leads. Project selection 

criteria include the project’s ability to:

• Focus funding in priority areas such a National Landscape Conservation System (NLCS) 

units and Healthy Landscape focal areas;

• Provide multiple program benefits;

• Restore or sustain BLM land health by accomplishing on-the-ground work that focuses 

on important habitats;

• Protect cultural and heritage resources and meet public demand for diverse recreational 

opportunities; and

• Sustain multiple valued and beneficial partnerships.

2014 PROGRAM PERFORMANCE

The BLM has identified national priorities and required State and Field Offices to submit projects 

that meet these criteria. The National CCS Team will select the projects using the process 

described above. 

In 2014, the BLM expects to select CCS projects that restore habitats benefiting critical species 

across more than twelve States. The BLM also expects to select CCS projects that support the 

NLCS, as well as the bureau-wide wildlife, recreation and cultural programs, in addition to 

environmental education and public outreach projects pertaining to off-road vehicles, 

archeological collections, and native plants. Projects will continue to support youth programs 

that encourage interaction and understanding of the natural environment, while creating 

opportunities to explore and enjoy America’s Great Outdoors.

By leveraging funding from a variety of stakeholders, the CCS Program contributes to multiple 

program subactivities with over 120 program elements. Its accomplishments encompass a wide 

variety of work activities which assess, treat, and monitor BLM lands. 
Workforce and 

Organizational Support

Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 179

Activity: Workforce and Organizational Support

Subactivity

2013

Full 

Year 

CR

2012 

Enacted1

2014

Change 

from 

2012 

Enacted

(+/-)

Fixed 

Costs &

Related 

Changes

(+/ -)

Internal 

Transfers

(+/-)

Program

Changes

(+/ -)

Budget

Request

Information 

Systems 

Operations $ 0 14,673 +0 -14,673 +0 0 -14,673

FTE 0 56 +0 -56 +0 0 -56

Administrative 

Support $ 49,488 49,130 +648 +0 +1,000 50,778 +1,648

FTE 349 349 +0 +0 -11 338 -11

Bureauwide 

Fixed Costs

$ 94,169 91,161 -6,424 +0 +8,164 92,901 +1,740

FTE 0 0 +0 +0 +0 0 +0

Information 

Technology 

Management

$ 27,638 [27,500] +268 +27,500 -2,072 25,696 +25,696

FTE 152 [0] +0 +130 +0 130 +130

Total Activity $

171,29

5 154,964 -5,508 +12,827 +7,092 169,375 +14,411

FTE 501 405 +0 +74 -11 468 +63 1

Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

The 2014 budget request for Workforce and Organizational Support is $169,375,000 and 468 

FTE, a net program increase of +$7,092,000 and -11 FTE. 

ACTIVITY DESCRIPTION

The Workforce and Organizational Support activity funds services related to general-use 

automated systems and specified business practices that cannot be directly tied to a specific 

program output, such as human resources management, equal employment opportunity, 

financial management, property and acquisition management, and information technology 

management. The Bureau of Land Management strives to provide these critical support and 

business services efficiently and effectively in order to support the overall BLM mission.

Estimated Workforce and Organizational Support Costs – Section 405 of the Department of 

the Interior, Environment, and Related Agencies Appropriations Act, 2012 (P.L. 112-74), 

includes the following requirement for disclosure of overhead charges, deductions, reserves and 

holdbacks:

Public Law No. 112-74, Division E, Title IV, Section 405. Estimated overhead 

charges, deductions, reserves or holdbacks from programs, projects, activities 

and subactivities to support government-wide, departmental, agency, or bureau 

administrative functions or headquarters, regional, or central operations shall be 

presented in annual budget justifications and subject to approval by the 

Committees on Appropriations of the House of Representatives and the Senate. 

Changes to such estimates shall be presented to the Committees on 
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 180

Appropriations for approval.

The BLM funds the costs described in Section 405 through a combination of direct 

appropriations in this activity (Workforce and Organizational Support), the former Land and 

Resource Information Systems activity, and program assessments. For 2014, the BLM 

estimates these requirements will be approximately $289.3 million, as shown in the table below.

Administrative Costs

(Section 405)

2013 

Full 

Year CR

2012

Actual

2014

Change

from

2012 

Enacted

(+/-)

Fixed 

Costs & 

Related 

Changes

(+/-)

Program

Changes

(+/-)

Budget

Request

Land & Resource Info. Systems1,2 0 12,827 0 [-12,827] 0 [-12,827]

Information Systems Operations 0 14,673 0 [-14,673] 0 [-14,673]

Administrative Support 49,448 49,130 +648 +1,000 50,778 +1,648

Bureauwide Fixed Costs 94,169 91,161 -6,424 +8,164 92,901 +1,740

Information Technology Mgt.3 27,638 [27,500] +268 -2,072 25,696 -1,804

Subtotal, Direct Appropriations 171,255 167,791 -5,508 +7,092 169,275 +1,584

National Assessments 34,700 34,518 0 0 35,000 0

State (Regional) Assessments 85,000 85,000 0 0 85,000 0

Subtotal, Assessments 119,700 119,518 0 0 120,000 0

Total 290,955 287,309 -5,508 +7,092 289,275 +1,966 1 Funding levels shown in 2012 for Land and Resource Information Systems do not include $3.0 million transferred to the Lands 

and Realty Management subactivity in 2013 for lands and realty information systems. 2 The Land and Resource Information Systems activity has not traditionally been displayed in this table, but is included to show 

the transfer of $12,827 to the new Information Technology Management subactivity. 3 Information Technology Management is a new subactivity starting in 2013.

Direct Appropriations – In 2014, the BLM requests $169.3 million in direct appropriations for 

activities described in Section 405. Appropriations are requested in three subactivities: 

Administrative Support, Bureauwide Fixed Costs and Information Technology Management 

(combination of former Information Systems Operations and Land and Resource Information 

subactivities). Direct appropriations provide approximately 60 percent of the funding necessary 

to maintain these functions.

Program Assessments – In addition to direct appropriations, and in order to provide the level of 

funding needed for Administrative Support, Bureauwide Fixed Costs and Information 

Technology Management, the BLM assesses its programs at both the national and state-office 

levels according to a prorated share of prior year full-time equivalent (FTE) usage. These 

assessments provide about 40 percent of the BLM’s total Section 405 costs. The estimated 

program assessments in 2014 are $120.0 million. These program assessments are conducted 

with the oversight and administrative management of the BLM Director, Executive Leadership 

Team, Budget Strategy Team, and Information Technology Investment Board. 

• National Assessments – The BLM assesses programs at the National level for centrally 

funded initiatives (CFIs) to pay for administrative support, Bureauwide program activities, 

and information technology programs – many of which are mandated and/or fixed costs 

assessments by the Department through the DOI Working Capital Fund. These 

initiatives are centrally funded because the initiatives benefit all programs or all 

employees, and cannot be identified as benefiting any one program, such as the Federal 

Personnel Payroll System (FPPS). National program assessments for CFIs are prorated 

to program areas based upon historical costs and FTE usage. These assessments 
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 181

include over $1.0 million for the Bureau’s Priority Fund, which is used to assist field 

offices and programs with high-priority, unplanned or unfunded needs which arise during 

the fiscal year.

• State (Regional) Assessments – The BLM’s State Offices also assess programs for 

costs at the State level that are not identifiable to a specific program output. In this way, 

for example, all programs within a state fund support services staff salaries. These costs 

also are prorated to program areas based upon historical costs and FTE usage.

DOI Working Capital Fund – The Department of the Interior (DOI) manages a Departmental 

Working Capital Fund (WCF) to provide services to the BLM and other DOI bureaus and offices. 

The BLM pays for these services with a combination of direct appropriations and program 

assessments. Program assessments are typically used for services that benefit the entire 

organization and support the DOI Strategic Plan, the BLM focus areas, and the DOI’s 

requirements. Many of these services are standard and reoccur on an annual basis, but some 

are fee-for-service based. The DOI and BLM have reimbursable service agreements for these 

services. The detailed tables that follow show the BLM’s portion of Departmental WCF fees for 

services, both centrally billed and direct billed, for 2012 through 2014.
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 182

WORKING CAPITAL FUND REVENUE - Centralized Billing

FY 2014 Departmental Request

BUREAU OF LAND MANAGEMENT

($ in thousands)

Activity/Office

2012

Actual

2013 

Revised

2014 

Estimate

Other OS Activities

Indian Water Rights Office 57.1 57.1 69.1

Subtotal, Secretary's Immediate Office 57.1 57.1 69.1

Document Management Unit 3.7 18.4 13.2

FOIA Tracking & Reporting System 140.5 152.4 317.1

Subtotal, Office of the Executive Secretariat 144.2 170.8 330.3

Alaska Affairs Office 262.4 267.6 315.8

Alaska Resources Library and Information Services 533.5 506.1 538.4

Subtotal, Secretary's Immediate Office 795.9 773.7 854.2

Departmental News and Information 129.9 114.2 106.1

Subtotal, Office of Communications 129.9 114.2 106.1

Departmental Museum 197.8 193.2 176.2

Subtotal, Secretary's Immediate Office 197.8 193.2 176.2

Asbestos-Related Cleanup Cost Liabilities 3.4 3.3 3.4

FedCenter 2.2 2.1 2.2

Compliance Support ESF-11/ESF-11 Website 0.0 16.2 16.4

Subtotal, Office of Environmental Policy and Compliance 5.6 21.6 22.0

Invasive Species Council 214.4 216.0 216.4

Land and Water Settlements 96.8 96.8 108.2

Invasive Species Coordinator 38.3 38.3 40.0

Subtotal, Office of Policy Analysis 349.6 341.2 364.6

Passport and Visa Services 0.0 16.5 15.9

Subtotal, International Affairs Office 0.0 16.5 15.9

CPIC 28.0 35.2 35.8

Subtotal, Office of Budget 28.0 35.2 35.8

Financial Internal Controls & Performance Reporting (Activity 

Based) 162.5 121.6 118.9

Travel Management Center 29.5 26.1 25.3

e-Travel (Formerly: e-Gov Travel) 127.0 411.6 257.4

Subtotal, Office of Financial Management 319.0 559.3 401.7

Interior Collections Management System 50.5 47.9 47.9

Space Management Initiative 51.5 45.4 50.1

Renewable Energy Certificates 4.3 4.3 2.7

Facility Maintenance Management System 40.8 50.6 50.6

FBMS Master Data Systems & Hosting 191.1 179.2 147.1

Subtotal, Office of Property & Acquisition Management 338.1 327.4 298.5

Planning and Performance Management 174.8 172.2 165.0

Subtotal, Office of Planning and Performance Management 174.8 172.2 165.0

Firefighter and Law Enforcement Retirement Team 80.7 131.2 131.2

Department-wide OWCP Coordination 89.2 84.2 80.0

OPM Federal Employment Services 66.6 66.6 66.0

Accessible Technology Center 50.5 44.6 48.9

Accountability Team 76.1 88.0 73.7

Employee and Labor Relations Tracking System 4.4 4.3 4.2

Veterans Disabilities Hiring Programs 33.3

Subtotal, Office of Human Resources 367.5 418.9 437.2

EEO Complaints Tracking System 6.6 6.6 6.2

Special Emphasis Program 7.8 6.9 6.4
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 183

WORKING CAPITAL FUND REVENUE - Centralized Billing

FY 2014 Departmental Request

BUREAU OF LAND MANAGEMENT

($ in thousands)

Activity/Office

2012

Actual

2013 

Revised

2014 

Estimate

Subtotal, DOI University 14.4 13.5 12.6

Occupational Safety and Health 257.3 240.5 233.0

Safety Management Information System 203.1 185.1 168.7

Subtotal, Office of Occupational Health and Safety 460.4 425.6 401.7

DOI Learn 245.9 0.0 0.0

Leadership Development Prgms (Formerly: DOI Executive 

Forums) 19.2 110.3 110.7

SESCDP & Other Leadership Programs 27.0 0.0 0.0

Dept-Wide Training Prgms (including Online Learning) 77.0 313.7 294.2

Learning & Performance Center Management 63.7 0.0 0.0

Albuquerque Learning & Performance Center 82.7 78.5 78.5

Anchorage Learning & Performance Center 140.3 0.0 0.0

Denver Learning & Performance Center 83.0 79.4 79.4

Washington Learning & Performance Center 44.2 43.5 43.5

DOIU Management 88.5 104.3 112.5

Subtotal, DOI University 871.5 729.8 718.7

Security (Classified Information Facility) 70.2 70.2 81.0

Law Enforcement Coordination and Training 134.9 128.1 121.3

Security (MIB/SIB Complex) 233.0 233.0 217.5

Victim Witness 25.0 25.2 25.3

Subtotal, Office of Law Enforcement and Security 463.0 456.5 445.1

Interior Operations Center 384.3 311.3 295.9

Emergency Preparedness 123.7 117.5 139.8

Emergency Response 172.1 163.5 211.2

MIB Health and Safety 3.8 4.7 4.5

Federal Executive Board 0.0 43.1 42.1

Subtotal, Office of Emergency Management 683.9 640.0 693.4

Aviation Management 3,798.6 2,686.6

Subtotal, Aviation Management Directorate 0.0 3,798.6 2,686.6

IT Transformation (ITT) 0.0 0.0 602.5

Subtotal, Office of the Chief Information Officer

Electronic Records Management 125.6 160.6 265.0

TELECOM - Enterprise Services Network 2,522.3 2,369.0 2,448.3

Web & Internal/External Comm 70.2 0.0 0.0

Enterprise Architecture 599.6 510.4 493.8

Frequency Management Support 148.5 152.3 141.4

RISK MGMT - IT Security - IVV 391.1 306.7 300.4

Capital Planning 289.1 456.0 441.2

Privacy (Information Management Support) 116.0 66.3 117.0

RISK MGMT - IT Security - Information Assurance Division 298.4 169.8 172.9

END USER SVCS - Active Directory 308.8 314.1 315.4

Enterprise Resource Management 76.7 179.6 251.3

END USER SVCS - DOI Access & Personnel Security 207.3 186.1 180.1

NTIA Spectrum Management 274.7 304.8 264.3

Radio Program Management Office 188.6 162.5 150.3

Data at Rest 7.3 0.0 0.0

END USER SVCS - IT Asset Management 54.7 138.1 133.6

OCIO Project Management Office 131.8 0.0 0.0

RISK MGMT - Threat Management 122.2 340.0 345.6
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 184

WORKING CAPITAL FUND REVENUE - Centralized Billing

FY 2014 Departmental Request

BUREAU OF LAND MANAGEMENT

($ in thousands)

Activity/Office

2012

Actual

2013 

Revised

2014 

Estimate

TELECOM - IOS Collaboration 149.8 134.8 137.3

END USER SVCS - Unified Messaging 199.2 179.3 108.8

TELECOM - Federal Relay Service 6.3 5.7 5.4

HOSTING - Cloud Services 0.0 0.0 47.4

ITD IT Security Improvement Plan 0.0 0.0 444.0

ITD MIB Data Networking 0.0 0.0 14.8

ITD Information Mgmt - Records Management 0.0 0.0 59.0

ITD Telecommunication Services 0.0 0.0 33.9

ITD Integrated Digital Voice Communications System 0.0 0.0 33.7

ITD Desktop Services 0.0 0.0 17.1

FBMS Help Desk - IBC Customer Support Center 0.0 0.0 544.1

Subtotal, Office of the Chief Information Officer 6,288.2 6,136.1 7,466.1

Alternative Dispute Resolution (ADR) Training 7.9 7.5 7.1

Subtotal, Collaborative Action and Dispute Resolution 7.9 7.5 7.1

Mail and Messenger Services 0.0 243.7 58.9

Health Unit 0.0 9.9 8.8

Special Events Services 0.0 3.7 3.5

Safety and Environmental Services 0.0 16.4 14.5

Shipping and Receiving 0.0 11.4 10.1

Vehicle Fleet 0.0 6.5 6.2

Property Accountability Services 0.0 21.7 19.3

Family Support Room 0.0 0.9 0.8

Interior Complex Management & Svcs 0.0 30.3 26.9

Departmental Library 0.0 412.3 208.3

Mail Policy 0.0 53.4 49.6

Moving Services 0.0 8.2 7.3

Passport and Visa Services 0.0 0.0 0.0

Audio Visual Services 0.0 42.4 39.6

Federal Executive Board 0.0 0.0 0.0

Space Management Services 0.0 11.0 9.7

Subtotal, Office of Facilities & Admin Services 0.0 871.8 463.5

Valuation Services 273.7 150.3 150.0

Subtotal, Office of Valuation Services 273.7 150.3 150.0

Conservation and Educational Partnerships 40.9 36.7 36.1

Subtotal, Youth, Partnerships and Service 40.9 36.7 36.1

Contingency Reserve 23.5 22.4 21.6

Cooperative Ecosystem Study Units 53.5 53.5 48.4

CFO Financial Statement Audit 759.2 764.2 755.3

Subtotal, Department-wide Activities 836.2 840.1 825.2

Recreation One-Stop 12.6 12.6 50.5

e-Government Initiatives (WCF contributions Only) 417.2 618.6 424.2

Volunteer.gov 15.1 15.1 15.1

Subtotal, Department-wide Activities 444.9 646.3 489.8

Ethics 93.3 84.0 75.4

FOIA Appeals 112.0 100.8 98.4

Subtotal, Office of the Solicitor 205.3 184.7 173.8

Subtotal Other OS Activities 13,497.6 18,138.7 18,448.0

Interior Business Center
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 185

WORKING CAPITAL FUND REVENUE - Centralized Billing

FY 2014 Departmental Request

BUREAU OF LAND MANAGEMENT

($ in thousands)

Activity/Office

2012

Actual

2013 

Revised

2014 

Estimate

IBC IT Security Improvement Plan 443.7 443.5 0.0

MIB Data Networking 16.0 15.8 0.0

Information Mgmt - Records Management 58.2 58.9 0.0

Telecommunication Services 48.6 36.2 0.0

Integrated Digital Voice Communications Systems 36.1 33.6 0.0

Desktop Services 22.9 17.0 0.0

Interior Complex Cabling O&M 2.0 0.0 0.0

Audio Visual Services 11.4 0.0 0.0

Subtotal, IBC Information Technology Directorate 639.0 605.0 0.0

FPPS/Employee Express - O&M 2,669.7 2,941.6 2,941.6

Drug Testing 233.7 267.6 141.7

Subtotal, IBC Human Resources Directorate 2,903.4 3,209.2 3,083.3

Departmental Library 419.3 0.0 0.0

Interior Complex Management & Services 29.4 0.0 0.0

Family Support Room 1.1 0.0 0.0

Property Accountability Services 22.0 0.0 0.0

Vehicle Fleet 6.6 0.0 0.0

Moving Services 8.3 0.0 0.0

Shipping and Receiving 11.6 0.0 0.0

Safety and Environmental Services 16.6 0.0 0.0

Space Management 11.1 0.0 0.0

Federal Executive Board 43.4 0.0 0.0

Health Unit 10.1 0.0 0.0

Mail and Messenger Services 214.8 0.0 0.0

Mail Policy 54.0 0.0 0.0

Special Events Services 4.1 0.0 0.0

Passport and Visa Services 16.7 0.0 0.0

Subtotal, IBC Administrative Operations Directorate 869.1 0.0 0.0

Transportation Services (Household Goods) 2.4 2.5 2.5

Financial Systems 2,000.3 1,730.2 692.5

IDEAS 125.9 105.7 43.9

Quarters Program 10.6 9.6 12.3

FBMS Master Data Management 122.7 151.9 180.6

IBC FBMS Conversion 56.1 0.0 0.0

Consolidated Financial Statement System 184.3 185.1 147.1

Subtotal, IBC Financial Management Directorate 2,502.3 2,185.0 1,078.7

Aviation Management 4,250.0 0.0 0.0

Aviation Management System - O&M 228.3 0.0 0.0

Subtotal, Aviation Management Directorate 4,478.2 0.0 0.0

Boise Acquisition Office 0.0 689.2 614.2

Subtotal, IBC Acquisitions Services Directorate 689.2 614.2

FBMS Hosting / Applications Management 795.9 278.3 294.6

FBMS Redirect - FFS 402.7 520.9 1,435.8

FBMS Redirect - IDEAS 416.7 438.8 500.6

FBMS Help Desk - IBC Customer Service Support Center 0.0 518.5 0.0

Subtotal, IBC FBMS Support 1,615.3 1,756.5 2,231.0

Subtotal, Interior Business Center 13,007.3 8,444.9 7,007.3

TOTAL, Centralized Billing 26,505.0 26,583.6 25,456.1
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 186

WORKING CAPITAL FUND REVENUE - Direct Billing

FY 2014 Departmental Request

BUREAU OF LAND MANAGEMENT

($ in thousands)

Activity/Office

2012

Actual

2013 

Revised

2014 

Estimate

Other OS Activities

Imagery for the Nation (IFTN) 404.0 403.0 403.0

Subtotal, Policy Management and Budget 404.0 403.0 403.0

Office of Environmental Policy and Compliance

Ocean Coastal Great Lakes Activities 13.6 13.6 13.0

Subtotal, Office of Policy Analysis 13.6 13.6 13.0

Office of Budget

Single Audit Clearinghouse 1.0 1.0 1.0

Office of Financial Management 1.0 1.0 1.0

Federal Assistance Award Data System 2.5 0.0 0.0

Office of Acquisition and Property Management 2.5 0.0 0.0

e-OPF 272.0 209.7 210.2

EAP Consolidation 0.0 113.0 210.2

Workers Comp Nurse Case Management 0.0 0.0 58.4

Office of Human Resources 272.0 322.7 406.6

EEO Training 22.5 22.5 22.5

EEO Investigations 28.8 14.4 14.4

Office of Civil Rights 51.3 36.9 36.9

Albuquerque Learning & Performance Center 28.9 28.9 28.9

Denver Learning & Performance Center 30.4 30.6 30.6

Online Learning 59.3 59.3 59.3

Washington, Leadership & Performance Center 22.3 22.4 22.4

Anchorage Learning & Performance Center 22.9 0.0 0.0

DOI University 163.6 141.2 141.2

OLES BLM Detailee 147.9 147.9 147.9

Incident Management Analysis and Reporting System 233.8 146.3 149.2

Office of Law Enforcement and Security 381.7 294.2 297.1

DAS LESEM BLM Detailee 234.8 234.8 234.8

Office of Emergency Management 234.8 234.8 234.8

RISK MGMT - Anti-Virus Software Licenses 253.0 246.5 231.9

END USER SVCS - Unified Messaging 1,302.0 1,829.6 1,901.6

END USER SVCS - DOI Access 801.0 1,290.4 1,201.7

RISK MGMT - Data at Rest Initiative 13.5 10.4 16.2

HOSTING - Hosting/Cloud Services 0.0 0.0 55.6

ITD Customer Support Services Division 0.0 0.0 8.5

TELECOM - Enterprise Services Network 2,899.9 2,644.7 2,644.7

Microsoft Enterprise Licenses 1,352.5 0.0 0.0

Enterprise Resource Management 0.0 300.0 0.0

Oracle Licenses and Support 0.0 0.0 0.0

TELECOM - EID Office Space 0.0 0.0 0.0

EID Rack Space 12.1 15.0 16.3

Enterprise Architecture Services 0.0 0.0 0.0

Subtotal, Office of the Chief Information Officer 6,634.0 6,336.7 6,076.6

Creative Communications (CCS) 0.0 25.0 24.4

Reimbursable Mail Services 0.0 91.1 94.4
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 187

WORKING CAPITAL FUND REVENUE - Direct Billing

FY 2014 Departmental Request

BUREAU OF LAND MANAGEMENT

($ in thousands)

Activity/Office

2012

Actual

2013 

Revised

2014 

Estimate

Office of Facilities & Admin Services 116.1 118.8

Subtotal, Office of Facilities and Admin Services

Aviation Management Directorate

e-Mail Archiving (Cobell Litigation) 389.9 243.0 0.0

Department-wide Programs 389.9 243.0 0.0

Federal Flexible Savings Account (FSA) Program 127.1 129.4 129.4

ESRI Enterprise Licenses 1,597.7 1,597.7 1,597.7

FBMS Change Orders 204.2 180.0 180.0

Subtotal, Financial Business Management System 1,928.9 1,907.0 1,907.0

Office of International Affairs

Subtotal Other OS Activities 10,477.4 10,050.1 9,636.7

Interior Business Center

IBC Office of the Director 0.0 0.0 0.0

Customer Support Services Division 8.3 8.5 0.0

Lotus Notes Email system - IBC & OS 146.0 0.0 0.0

IBC Information Technology Directorate 154.3 8.5 0.0

Payroll & HR Systems 1,674.0 1,573.8 1,614.2

IBC Human Resources Directorate 1,674.0 1,573.8 1,614.2

Facilities Reimbursable Mail Services 0.2 0.0 0.0

Creative Communication 26.7 0.0 0.0

Reimbursable Mail Services 95.3 0.0 0.0

IBC Administrative Operations Directorate 122.2 0.0 0.0

IBC Financial Management Directorate 0.0 0.0 0.0

Aviation Management 89.1 0.0 0.0

IBC Aviation Management Directorate 89.1 0.0 0.0

IBC Acquisitions Services Directorate 0.0 0.0 0.0

IBC Indirect Cost Services Directorate 0.0 0.0 0.0

IBC Customer Support Center 0.0 0.0 0.0

IBC Financial Management Directorate 0.0 0.0 0.0

Subtotal Interior Business Center 2,039.7 1,582.3 1,614.2

Total Direct Billing 12,517.1 11,632.4 11,250.8
Bureau of Land Management 2014 Budget Justifications

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Activity: Workforce and Organizational Support

Subactivity: Information Systems Operations

2013 

Full 

Year 

CR

2012 

Enacted1

2014 Change 

from 

2012 

Enacted 

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Internal 

Transfers 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Information Systems 

Operations ($000) 0 14,673 +0 -14,673 +0 0 -14,673

FTE 0 56 +0 -56 -56 0 -56 1

Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

Summary of 2014 Program Changes/Internal Transfers for Information Systems Operations

Request Component ($000) FTE

Program Changes:

• Transfer Base Funding to Information Technology Management and Land and 

Realty Management (non-add in 2013) -14,673 -56

TOTAL, Program Changes -14,673 -56

JUSTIFICATION OF 2014 PROGRAM CHANGES

The 2014 budget request for Information Systems Operations is $0 and 0 FTE, a program 

change of -$14,673,000 and -56 FTE from the 2012 enacted level.

Transfer to Information Technology Management (-$14,673,000/-56 FTE) – The budget 

transfers $14.7 million and 56 FTE from Information Systems Operations to a new Information 

Technology Management subactivity. The new subactivity, which also includes $12.8 million 

and 96 FTE from the former Land and Resource Information Systems subactivity, will allow the 

BLM to more effectively implement the Department of the Interior’s Information Technology 

Transformation initiative.

PROGRAM OVERVIEW

In 2014, the activities conducted by this program will transfer to the new Information Technology 

Management subactivity. Please see that subactivity section for a program overview.

2014 PROGRAM PERFORMANCE

In 2014, the activities conducted by this program will transfer to the new Information Technology 

Management subactivity. Please see that subactivity section for 2013 program performance.
Bureau of Land Management 2014 Budget Justifications

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Bureau of Land Management 2014 Budget Justifications

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Activity: Workforce and Organizational Support

Subactivity: Administrative Support

2013 

Full 

Year 

CR

2012 

Enacted1

2014

Change 

from 

2012 

Actual

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Internal 

Transfers 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Administrative Support 

($000) 49,488 49,130 +648 +0 +1,000 50,778 +1,648

FTE 349 349 +0 +0 -11 338 -11 1

Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

Summary of 2014 Program Changes for Administrative Support

Request Component ($000) FTE

Program Changes:

• National BLM Foundation +1,000 0

TOTAL, Program Changes +1,000 0

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2014 budget request for Administrative Support is $50,778,000 and 338 FTE. This 

represents a program change of +$1,000,000 and -11 FTE from the 2012 enacted level.

Administrative Support Program Increase (+$1,000,000/0 FTE): The BLM proposes an 

increase of $1.0 million to establish a congressionally-chartered BLM Foundation. This 

foundation is an opportunity to leverage private funding to support public lands, achieve shared 

outcomes, focus public support of the BLM mission, and improve messaging.

Historically, the BLM has been successful at initiating and maintaining partnerships locally to 

achieve land-restoration objectives. For example, with the Restore New Mexico initiative, the 

BLM worked with partners to establish a healthy mosaic of native grasslands and woodlands 

that have provided open prairies and mountainous landscapes for antelope, deer, elk, and 

bighorn sheep. Similarly, in Utah, the BLM has a vast array of partners supporting visitor 

centers, restoring habitat and native plants, and offering environmental education opportunities 

to the public. However, as the scope of resource issues broadens across larger landscapes, 

impacting a wider set of constituents, the BLM requires new and innovative approaches to 

reaching those communities and support bases. Establishing the foundation will allow the BLM 

to broaden its partnership capabilities to seek donations and raise monetary or in-kind 

contributions on a national scale. The BLM will then be better positioned to address critical 

resource protection and restoration needs including BLM habitat restoration goals for sage 

grouse.

The foundation will be established as a charitable, nonprofit organization that will benefit the 

public by protecting and restoring the BLM’s natural, cultural, historical, and recreational 

resources for future generations. Several examples illustrate the benefits to Federal programs 

from this type of foundation, including the National Park Foundation, the National Fish and 

Wildlife Foundation, and the National Forest Foundation.
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 192

PROGRAM OVERVIEW

The Administrative Support Program funds the following functions:

• Executive and Management Decisions

• Legislative, Public and Regulatory Affairs and Correspondence

• Budget Formulation and Execution

• Financial Management

• Property and Acquisition Management

• Management Systems

• Personnel and Organizational Management

• Human Resources

• Program and Management Evaluations

• Service First

• Equal Employment Opportunity

• Privacy

• Safety

Means and Strategies

The Administrative Support Program funds services related to management and administrative 

support that cannot be directly tied to a specific program output. The successful management 

of these services is vital to the effective use of human and capital resources within the BLM. 

The Administrative Support Program uses a combination of business process engineering and 

workforce planning strategies as the means to improve and accomplish customer service and 

effectiveness across the BLM. Each year, the BLM conducts management and program 

evaluations to identify and acknowledge best practices, procedures and processes. The BLM 

also measures the satisfaction of external customers, partners, stakeholders, and employees to 

adhere to the requirements of Executive Order 12862 and the Government Performance and 

Results Act, and regularly evaluates performance measurements and analysis to ensure these 

measurements are in alignment with DOI’s strategic plan.

Other Funding Sources

Many of the programs funded by the Administrative Support Program contribute to multiple BLM 

activities (i.e., Equal Employment Opportunity and Service First) and are also financially 

supported by many Department and Bureau-wide subactivities that benefit from this work.

2014 PROGRAM PERFORMANCE

In 2014, the BLM will emphasize and assure:

• Adequate internal controls on BLM financial systems;

• Compliance with accounting standards;

• Accountability for undelivered order funds;

• Compliance with fiscal laws and regulations;

• Proper accounting, management, and maintenance of capital assets;

• Complete quarterly financial statements, including intra-governmental eliminations;
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 193

• Improved electronic data processing; and

• Financial accountability at all levels of the organization.

The Administrative Support Program will focus on the following operations of the Bureau:

Financial Management – The BLM will continue to operate National Centers and related 

facilities that offer support services to a variety of critical programs that include fire support, 

uniforms, property, accounting, contracting, acquisition, space leasing, treasury investments, 

and the development and operation of financial, procurement, and property systems.

Improved Financial Performance – The BLM will continue to maintain an unqualified (clean) 

financial audit opinion, and make available to all employees timely and accurate financial 

information through the Financial and Business Management System (FBMS). The ability to link

budget and performance through cost management, as well as access to financial data in real 

time, has fostered a Bureau-wide ethic of fiscal accountability. 

Cost Management – The BLM will continue its use and development of the Collections and 

Billing System (CBS) and its interaction with the FBMS system. The FBMS system includes 

electronic links that integrate multiple business applications that will minimize data entry and 

maximize efficiencies through the reuse of data. This web-based system is a single collections 

and billings system that is easy for employees to access and use. The BLM will continue to 

refine its cost management system that provides important information for tracking its spending, 

as well as utilizing the Treasury’s Intra-Governmental Payment and Collection system to 

expedite Federal reconciliations and improve the government’s precision in tracking funds 

moving from agency to agency.

Performance Improvement – The BLM will continue to use the cost management information 

systems along with other management information tools to evaluate program effectiveness and 

help allocate budgetary resources across the organization to maximize performance and cost 

effectiveness.

Disposal of Personal Property – The BLM will continue to dispose of excess personal property 

to other Federal and State agencies, to donate computers and other electronics to local schools 

when possible, and to sell working capital fund vehicles and heavy equipment on EBay’s 

auction web site. These activities have reduced overhead costs, increased visibility, improved 

revenue, and created fast sales and the transfer of monies to the BLM. Proceeds from the sale 

of vehicles are returned to the working capital fund to augment the cost of replacement vehicles.

Workforce Planning – In 2014, the BLM will continue to refine its workforce planning process to 

ensure the agency has employees with appropriate skills in the right places at the right times. 

As a result of workforce planning, the BLM has placed, and will continue to place, more 

emphasis on entry-level recruiting, career development, and diversification. For example, the 

Bureau is using the Presidential Management Fellows Program, Student Career Experience 

Program, Student Temporary Employment Program, and other human capital management 

programs as viable tools for recruiting and filling entry-level positions and for meeting its future 

skill requirements. In 2011, the BLM placed greater emphasis on hiring veterans and veterans 

with disabilities through the following special hiring authorities and appointments: Veterans 

Recruitment Appointment, Veterans Employment Opportunity Act of 1998, 30 Percent or More 

Disabled Veteran, Disabled Veterans Enrolled in a VA Training Program, Schedule A Appointing 

Authority, and Veterans Preference. The BLM will continue emphasizing hiring veterans and 

veterans with disabilities in 2014.
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 194

Service First – The BLM will use the permanent Service First authority granted in 2012 to 

maintain and expand partnerships with the U.S. Forest Service (USFS), the National Park 

Service (NPS), and the Fish and Wildlife Service (FWS). The Bureau will work to improve 

customer service and seek additional cost savings and productivity improvements. The BLM 

currently shares 61 sites with other agencies. The BLM, USFS, NPS, and FWS continue to 

provide budget funding allocations to field offices for the sharing of operations and services. 

This includes staff and services provided by the BLM, USFS, NPS and FWS to customers and 

communities. For more information on Service First, please see the Cross-cutting Programs 

chapter.
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 195

Activity: Workforce and Organizational Support

Subactivity: Bureauwide Fixed Costs

2013 

Full 

Year 

CR

2012 

Enacted1

2014

Change 

from 

2012 

Enacted

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Internal 

Transfers 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Bureauwide Fixed 

Costs ($000) 94,169 91,161 -6,424 +0 +8,164 92,901 +1,740

FTE 0 0 -0 0 -0

Summary of 2014 Program Changes for Bureauwide Fixed Costs

Request Component ($000) FTE

Program Changes:

• Re-align base funding +8,164 0

TOTAL, Program Changes +8,164 0

JUSTIFICATION OF 2014 PROGRAM CHANGES

The 2014 budget request for Bureauwide Fixed Costs is $92,901,000 and 0 FTE, a program 

change of +$8,164,000 from the 2012 enacted level.

Realign Base Funding (+$8,164,000 /0 FTE) – The program increase of $8.2 million will fund 

certain increased fixed costs funded through program assessments in FY 2012. The increase 

will continue investments in management tools that cannot be identified as benefiting any one 

program (e.g., Activity Based Cost-Management System) and other expenses, many mandated 

by statute or regulation, which benefit all bureaus and bureau programs. This also includes 

increased document storage costs paid to the National Archives and Records Administration 

(NARA) as result of a litigation hold preventing the BLM from destroying old records per NARA

government-wide document retention policies.

PROGRAM OVERVIEW

The Bureauwide Fixed Costs subactivity funds the following:

• The Departmental Working Capital Fund (WCF) – These fixed costs are billed by the 

Department of Interior’s (DOI) Office of the Secretary and the DOI’s National Business 

Center, and categorized as two separate bills:

1. Central Bill – Mandatory services provided by the DOI Office of the Secretary 

and the DOI National Business Center.

2. Direct Bill – Primarily a fee for service bill. These are services provided under 

reimbursable agreements between the BLM and DOI.

• The Space Management program portion of the Bureauwide Fixed Costs focuses 

primarily on general purpose and warehouse space acquired through direct lease and 
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 196

General Services Administration (GSA)-provided space in federally owned or leased 

buildings. BLM directly leases 95 general purpose buildings and 54 buildings are leased 

through GSA or other federally owned property.

• The Land Mobile Radio (LMR) program provides two-way radio voice services for the 

BLM. The primary customers are wildland fire, law enforcement, and resources staff. 

The radio systems are used jointly with other Federal, state, and local agencies in 

support of wildland fire and law enforcement operations. The LMR program is working to 

join the radio network nationally among partners, cooperators, and other stakeholders to 

build a homogenous and holistic architecture.

• The Telecommunications program manages communication services critical to the dayto-day operations of the BLM. The program manages fixed-line office phones, fax, 

mobile voice, data devices, and service contracts, video conferencing, and internal and 

external data networks service contracts, including network security. The program's 

management of the radio network supports public safety, connecting firefighters and law 

enforcement through agency and inter-agency managed microwave radio links, base 

stations, and radios, including contracts for satellite radios service. Communications 

(fax, print, voice, and data) during Continuity of Operations relies and these established 

efforts of the Telecommunications program. Costs for these services are funded from 

individual State/National Centers and the DOI Working Capital Fund.

• The Federal Personnel Payroll System (FPPS) monitors the costs of using and 

maintaining BLM’s personnel management systems.

• The Mail and Postal Costs component of this program assesses and monitors BLM’s 

mail and postal service utilization, which includes base metered postage machines, next 

day postage, and other express mail services.

• The Unemployment Insurance Costs are based upon historical data, paid through the 

Department's Federal Employees Compensation Account of the Unemployment Trust 

Fund to the Department of Labor, pursuant to the Omnibus Budget Reconciliation Act of 

1980.

• The Workers Compensation amount requested for 2014 covers costs for a 12-month 

period and is paid to the Department of Labor through the Department's Employee 

Compensation Fund, pursuant to 5 U.S.C. 8147(b) as amended by Public Law 94-273.

Critical Factors

The critical factors in the Bureauwide Fixed Costs program: 

• The Space Management program promotes and encourages sustainability. All new BLM 

facilities comply with BLM Sustainable Building Implementation Plans, while addressing 

current and emerging needs.

• Presidential Memorandum – Disposing of Unneeded Federal Real Estate dated June 10, 

2010, emphasized the need to:

o Improve utilization of facilities through innovative space management, such as 

alternative work arrangements and telework agreements.

o Eliminate lease arrangements that are not cost effective.
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 197

o Pursue consolidation opportunities with other agencies in common asset types, 

such as data centers, office space, and warehouses.

• Department of the Interior Memorandum – Space and Facilities Management dated 

August 2, 2011, emphasized that real property (owned and leased) is a key aspect of the 

overall cost cutting campaign. The utilization standard for general purpose office space 

has now been set to 180 square feet per person. Opportunities for teleworking in order 

to reduce overall real property costs are encouraged. 

2014 PROGRAM PERFORMANCE

In 2014, the BLM will continue to manage the National Land Radio program, 

telecommunications, the Federal Personnel Payroll System, unemployment costs, mail and 

postal costs, the Employee Compensation Fund, and office space leasing, which is the largest 

of BLM’s fixed costs. 

The following long term goals have been established as part of the BLM’s Space Management 

program:

• Evaluate and reduce GSA provided space whenever such a reduction can be 

accomplished economically.

• Evaluate the potential of consolidating offices (e.g. two field offices in different states, 

field offices with state offices, and state offices with centers).

• Maximize the use of existing owned buildings, warehouses, and wareyards whenever 

possible instead of occupying leased space.

• Utilize extensions of existing leases when appropriate in order to allow time to prioritize 

long-term leasing actions.

• Whenever financially beneficial, reduce the size and change the layout of leased 

warehouses.

• Implement the use of high-density, storage systems for office and warehouse areas.

• Promote telework wherever a corresponding reduction in leased office space would 

occur.
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 198

Bureauwide Fixed Costs

(dollars in thousands)

2012 

Actual

2013 Est. 

Full Year 

CR

2014 

Budget 

Request

Space Rental – GSA 22,644 22,413 27,378

Space Rental – BLM 29,692 34,053 28,863

BLM Radio Support 689 689 689

BLM Telecommunications 5,433 5,433 5,433

BLM Mail Services 1,969 1,969 1,969

GSA Publications 15 15 15

Workers Compensation 8,608 8,794 8,794

Unemployment Compensation 7,456 9,017 9,017

DOI Working Capital Fund 11,970 12,800 12,800

Increased Fixed Costs Funded 

Through Program Assessments [1,877] [5,376] [6,419]

Other Fixed Costs 4,562 4,362 4,362

Total Funding 91,161 94,169 92,901
Bureau of Land Management2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 199

Activity: Workforce and Organizational Support

Subactivity: Information Technology Management

2013 

Full 

Year CR

2012 

Enacted1

2014 Change 

from 

2012 

Enacted

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Internal 

Transfers 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Information 

Technology 

Management ($000) 27,638 [27,500] +268 +27,500 -2,072 25,696 +25,696

FTE 152 [0] 0 +152 -22 130 +130 1

Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

Summary of 2014 Program Changes/Internal Transfers for Information Technology Management

Request Component ($000) FTE

Program Changes:

• Transfer from Information Systems Operations (non-add in 2013) +14,673 +56

• Transfer Base Funding from Land & Resources Information System 

(non-add in 2013) +12,827 +96

• General Program Decrease -2,072 -22

TOTAL, Program Changes -2,072 +130

JUSTIFICATION OF 2014 PROGRAM CHANGES

The 2014 budget request for Information Technology Management is $25,696,000 and 130 

FTE, and reflects internal transfers of +$14,673,000 (+56 FTE) and +$12,827,000 (+96 FTE) 

and a program reduction of -$2,072,000 and -22 FTE.

Create New Information Technology Management Subactivity (+$27,500,000/+152 FTE) –

The budget transfers a total of $27,500,000 and 130 FTE from two subactivities—$14.673,000 

and 56 FTE from Information Systems Operations and $12,827 and 96 FTE from Land and 

Resource Information Systems—to create a new Information Technology Management 

subactivity. The establishment of a unified subactivity will allow the BLM to implement the 

Department of the Interior’s Information Technology Transformation initiative effectively and 

efficiently.

General Program Decrease (-$2,072,000/-22 FTE) – The BLM will reduce lower-priority 

activities by $2,072,000 by reducing response times for non-critical system problems and 

creating efficiencies in FOIA customer support. 

PROGRAM OVERVIEW

The Information Technology Management program is responsible for managing all aspects of 

information technology (IT) throughout the BLM. These responsibilities include:

• Bureauwide Policy – Planning, directing, coordinating, and evaluating IT programs, 

policies and procedures and providing guidance for the effective use of IT resources in 
Bureau of Land Management2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 200

support of BLM programs and services in accordance with the Clinger-Cohen Act of 

1996 and the Government Performance and Results Act of 1993;

• Portfolio Management (PfM) – Portfolio Management is the process of tracking, 

maintaining, expanding, and aligning assets to address and solve the business needs of 

BLM;

• Capital Planning and Investment Control (CPIC) – The Clinger-Cohen Act of 1996 and 

the E-Government Act of 2002 sought to improve mission performance by requiring 

agencies to use a disciplined CPIC process to acquire, use, maintain and dispose of IT. 

CPIC is a dynamic process in which IT investments are selected and then continually 

monitored and evaluated to ensure each chosen investment is well managed, cost 

effective, and supports the mission and strategic goals of BLM. CPIC ensures that all IT 

investments align with BLM's mission and support business needs while minimizing risks 

and maximizing returns throughout the investment’s life cycle. The CPIC process is 

closely aligned with PfM processes;

• Information Resources Management – Providing management and oversight over 

implementation of the Freedom of Information Act, Open Government Initiative, Section 

508 of the American Disabilities Act, IT Acquisition, IT Configuration Management, 

Indian Trust and the Records Act; ensuring continued compliance with applicable laws, 

regulations and guidance; ensuring that manual and electronic records are accessible, 

properly maintained, documented, scheduled and disposed of; and, ensuring that 

automated systems are documented and scheduled and that records preservation 

orders are tracked and monitored to so that records are properly secured, accessible 

and retrievable to respond to court orders and requesters;

• Enterprise Architecture (BEA) – Documenting BLM business processes, data framework, 

and related IT projects to create a cost-effective, customer-oriented business enterprise 

to support BLM’s strategic mission;

• Data Management and Administration – Ensuring that the information BLM uses in 

decision making is accurate, timely, useful, and free of bias;

• National Radio Program – The BLM radio program provides radio voice services for the 

BLM’s National System of Public Lands for all field-going business activities, 

while ensuring adequate funding mechanisms and management process are in place to 

support the radio program strategic goals and objectives;

• National Applications – Managing national applications and systems throughout their life 

cycles of investment and ensuring successful service delivery through all phases—

concept, design, construction, data management, operation, support and maintenance—

in order to meet business needs while ensuring system data integrity;

• Infrastructure – Providing compliant and effective technology platforms and 

environments; and

• Security – Developing security-related policies, procedures, and guidance; providing 

technical assistance for securing major applications and general support systems; 

overseeing security compliance efforts; maintaining an inventory of systems and their 
Bureau of Land Management2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 201

security Assessment and Authorization status; coordinating IT Security Education and 

Awareness efforts; and developing IT security performance measures and reports.

Other Funding Sources

Every BLM program contributes some funding for IT activities. Major investments in the BLM IT 

portfolio are funded by the programs supported by those investments. IT infrastructure 

investments are funded proportionately by all programs.

2014 PROGRAM PERFORMANCE

The BLM has achieved success in lowering the overall costs of IT by implementing dynamic 

approaches to respond to national priorities. In 2014, the BLM will continue to seek collaborative 

ways to improve upon the methodologies used to provide the resources necessary to most 

effectively and efficiently manage more than 245 million acres of public lands for multiple uses.

Because the scope of the information needed to support the BLM’s mission is vast, the systems 

required to manage this information have grown increasingly complex. Information systems are 

used throughout the BLM to collect data on land health, water quality, restored ecosystems, 

hazardous fuels reduction, land contamination, habitat protection, cultural and natural heritage 

resources, oil and gas leases and permits, lease applications, minerals and grazing permits, 

timber sales, recreation, and financial transactions.

The BLM has set the following goals and objectives for IT Management in 2014:

• Goal: Innovate in Technology to Add Business Value

o Objective: Modernize BLM’s Mission blueprint to effectively manage business 

needs

o Objective: Promote a culture that fosters innovation to solve business needs

o Objective: Improve workforce capabilities to work remotely

o Objective: Increase integration of innovative business applications and 

infrastructure

• Goal: Manage Data as a Corporate and Public Asset

o Objective: Improve data standardization

o Objective: Improve data collection and storage solutions for enterprise use

o Objective: Ensure bureau and interagency data availability and protection

o Objective: Protect field capacity to process data 

• Goal: Contain Costs

o Objective: Implement value-added IT solutions while reducing total cost of 

ownership

o Objective: Implement inventory control/asset management

o Objective: Reduce the cost of legacy systems and redundant systems

o Objective: Measure all bureau-wide IRM costs and benefits

o Objective: Increase management controls on IT contracts and service providers
Bureau of Land Management2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 202

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Mining Law Administration

Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 203

Activity: Mining Law Administration

2013 

Full 

Year 

CR

2012 

Enacted1

2014

Change 

from 

2012 

Enacted

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Internal 

Transfers 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Mining Law 

Administration ($000) 39,696 39,696 +0 +0 +0 39,696 +0

Mining Law 

Administration Offset 

($000) -39,696 -39,696 +0 +0 +0 -39,696 +0

FTE 331 331 +0 +0 -14 317 -14 1

Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

JUSTIFICATION OF 2014 PROGRAM CHANGES

The 2014 budget request for Mining Law Administration is $39,696,000 and 317 FTE, a net 

decrease of 14 FTE from the 2012 enacted level.

Legislative Changes

The budget includes a legislative proposal to reform hardrock mining and provide a better return 

to the taxpayer from hardrock production on Federal lands. 

This proposal institutes a leasing process under the Mineral Leasing Act of 1920 (MLA) for 

certain minerals (gold, silver, lead, zinc, copper, uranium, and molybdenum) currently covered 

by the General Mining Law of 1872. After enactment, mining for these metals on Federal lands 

will be governed by the new leasing process and subject to annual rental payments and a 

royalty of not less than five percent of gross proceeds. Half of the receipts will be distributed to 

the States in which the leases are located and the remaining half would be deposited in the 

Treasury. Pre-existing mining claims would be exempt from the change to a leasing system but 

would remain subject to increases in the annual maintenance fees under the General Mining 

Law of 1872. The Office of Natural Resources Revenue will collect, account for, and disburse 

the hardrock royalty receipts.

The proposal would also increase annual maintenance fees and eliminate the fee exemption for 

miners holding 10 or fewer mining claims. These changes would discourage speculators from 

holding claims that they do not intend to develop. Holders of pre-existing mining claims for these 

minerals could voluntarily convert their claims to leases. The legislation would provide a 

mechanism for royalty relief under certain situations, in the manner currently set out in the MLA.
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 204

PROGRAM OVERVIEW

Program Components

The BLM Mining Law Administration 

Program (Locatable Minerals) is responsible 

for providing access to mineral resources in 

an environmentally responsible manner. To 

accomplish this goal, the BLM administers 

mining claims and collects location and 

annual maintenance fees. The BLM also 

processes notices for exploration and plans 

of operations for exploration and production. 

Reclamation plans are evaluated and bonds 

are posted to ensure adequate financial 

guarantees. The BLM also inspects notices 

and plans of operation to ensure compliance 

with terms and conditions of notices and 

plans of operations. The BLM takes 

enforcement actions when the terms and 

conditions of operations have been violated. Finally, the BLM is responsible for conducting 

mineral examinations to determine valid existing rights under the mining laws.

The General Mining Law of 1872

The program is responsible for managing exploration and development of locatable minerals 

available on public lands under the General Mining Law of 1872, and the Federal Land Policy 

and Management Act of 1976.

Since 1993, claimants have been required to pay an annual maintenance fee for each mining 

claim and site in lieu of performing assessment work as previously required under the General 

Mining Law of 1872.

Congress also added a one-time location fee in 1993. The maintenance fee is currently $140 

per claim and the location fee is currently $34 per claim.

Critical Factors

A mining claim is considered active when all annual assessment work requirements have been 

met as required by 43 CFR 3830. During 2012, the major commodity markets (gold, copper, 

uranium, silver, and platinum) endured a mid-year slump. For large periods of 2012, these 

markets were in decline. For example, a troy ounce of gold lost 14 percent of its value from 

February to May before rebounding in August.

Despite commodity price decreases in 2012, key markets have stabilized and interest in these 

commodities has returned. The BLM expects the level of locatable minerals activity to remain 

steady through 2013, primarily due to a rebound in commodity prices in late 2012. 

Photo of an open-pit highwall at a copper mine in New 

Mexico. 
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 205

*The above chart is based upon the most recent data. The new and total mining claims illustrate the numbers as reported in the 

Public Land Statistics (PLS) for the indicated fiscal years. The 2012 claim data was derived from the draft 2012 PLS data that is 

subject to change. The revenue estimates for 2012 and earlier are based upon the amounts credited to the MLR appropriation and 

the amounts deposited in the hardrock mining claim maintenance fee Treasury account. All 2013 and 2014 data are projections.

Market signals for other technology metals have prompted the location of new mining claims for 

rare earths or the re-evaluation of existing mining claims for rare earth bearing metals. Similar 

location and re-evaluation activities are presently occurring on mining claims that may hold the 

other technology metals. Technology metals are elements that form the building blocks of 

technologies, and include but are not limited to, rare earths, lithium, indium, germanium, 

vanadium, graphite and cobalt. The principal need of industry is to have a sufficient land base to 

warrant an exploration and evaluation program. Mining claims found to have no mineral values 

of interest typically lapse due to nonpayment of maintenance fees by the claimant or are sold. 

$0

$500

$1,000

$1,500

$2,000

Gold- Ten year Monthly Average

$0

$10

$20

$30

$40

$50

$60

$70

$80

0

50

100

150

200

250

300

350

400

450

2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014

Revenues - Millions

Mining Claims - Thousands

Fiscal Year

Mining Claims and Revenues 

New Mining Claims Total Mining Claims Revenue in Millions ($)
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 206

Lapse claims hold no rights and may be relocated by another claimant. 

For several years, mining claim locations on likely uranium deposits increased due to the 

increase in the price of uranium oxide (yellow cake) which is used for the production of electrical 

energy in nuclear power plants in the United States and overseas. Processed uranium is used 

for the production of approximately 20 percent of the electrical energy in nuclear power plants in 

the United States. Renewed interest in uranium exploration and eventual production from 

domestic sources began in fiscal year 2003 and carried through to 2008. Most of the land 

available or amenable for mining claims for uranium has been located and is now being 

evaluated for possible production. 

Other Funding Sources

The Mining Law Administration program is primarily funded through this subactivity. Under the 

authorities of 43 U.S.C. 1474 and 1734(a), the BLM retains the processing fees it collects from 

mining claim recordation actions and mineral patent adjudication to recover the full cost of 

processing these documents. A revised fee schedule was promulgated in November 2005. The 

Mining Claims and Revenues chart shows the recent history of mining claims and mining claim 

revenue. The processing fees for recording a new mining claim, annual filings, transfers of 

interest, amendments to previously recorded documents, deferments of assessment, and 

protests increased in June of 2009. In addition, the BLM will charge a processing fee, on a case 

by case basis, for proposed mining plans of operations requiring an environmental impact 

statement. A processing fee is also applicable to validity or common variety examinations and 

associated reports performed in connection with a patent application, 43 CFR 3809.100 

(withdrawn lands) or 43 CFR 3809.101 (common variety determinations) on a case-by case 

basis.

2014 PROGRAM PERFORMANCE

In 2014, the BLM will continue to provide access to locatable mineral resources while ensuring 

environmental protection. The BLM will also continue to implement new training for managing 

uranium exploration and mining due to the increase in new uranium mining claims, exploration 

notices, and mining plans of operations over the past few years, and will continue coordinating 

with other Federal agencies with primary responsibility for approval of uranium milling activities. 

In an ongoing effort to increase efficiency, the BLM will continue working with State agencies to 

streamline multiple agency processes and minimize the time necessary to authorize exploration 

and development activities. 

The increase of funding received in 2012 and carried into 2013 enhanced the performance of 

mining law administration across all operations in the program. Focus on the inspection 

workload will increase in 2014, increasing the number of unique inspections completed from 

1,338 unique inspections in 2012 to 1,525 inspections in 2014. The focus of the inspection 

program is on active operations, meaning that operations with reclamation earthwork completed 

and waiting for revegetation success are a lower priority for inspection.

The average processing time of Plans of Operations decreased from 22 months in 2011 to 17 

months in 2012. The rolling 3-year average for average processing time is 18 months. The BLM 

will continue to explore opportunities to find efficiencies to reduce the average processing times 

of Plans of Operations


Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 207

Budget Schedules

Account Symbol and Title

14X1109

Management of Lands and Resources

Line 2012 Act 2013 CY 2014 BY

Program and Financing (P) ($ in Millions)

Obligations by program activity:

 Land resources 0011 266 266 267

 Wildlife and fisheries 0012 53 53 53

 Threatened and endangered species 0013 22 22 22

 Recreation management 0014 69 69 70

 Energy and minerals 0015 115 115 116

 Realty and ownership management 0016 82 82 83

 Resource protection 0017 105 105 106

 Transportation and facilities maintenance 0018 75 75 76

 Land and resource information systems 0019 17 17 17

 Workforce and organizational support 0020 161 161 162

 Challenge Cost Share 0026 8 8 8

 National Monuments & NCA 0030 32 32 32

Total direct obligations 0799 1,005 1,005 1,012

 Reimbursable program 0801 17 17 17

 Communication site rental fees 0802 2 2 2

 Mining law administration 0803 41 40 39

 APD fees 0804 34 33 32

 Cadastral reimbursable program 0805 13 13 9

 Inspection fees 0806 0 0 4

 Grazing fees 0807 0 0 3

Total reimbursable obligations 0899 107 105 106

Total new obligations 0900 1,112 1,110 1,118

Budgetary Resources:

 Unobligated balance:

 Unobligated balance brought forward, Oct 1 1000 164 131 143

 Recoveries of prior year unpaid obligations 1021 40 43 43

 Unobligated balance (total) 1050 204 174 186

 Budget authority:

 Appropriations, discretionary:

 Appropriation 1100 962 966 980

 Appropriations permanently reduced 1130 -2 0 0

 Appropriation, discretionary (total) 1160 960 966 980

 Discretionary, Appropriations Committee

 Appropriation [Regular] **OL Rates** 1160-40 941 945 959

 Baseline Non-Pay 1160-50 0 409 417

 Baseline Civilian Pay 1160-50 0 536 559

 Appropriation [Protected:Conserving Fish and 

Wildlife - Climate Change] **OL Rates**

1160-40 18 18 18

 Baseline Non-Pay 1160-50 0 15 15

 Baseline Civilian Pay 1160-50 0 3 3

 Appropriation [WHB Sterilization R&D] **OL 

Rates**

1160-40 0 2 2

 Baseline Civilian Pay 1160-50 0 2 2

 Discretionary, Homeland Security, Appropriations Committee
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 208

Budget Schedules

Account Symbol and Title

14X1109

Management of Lands and Resources

Line 2012 Act 2013 CY 2014 BY

Program and Financing (P) ($ in Millions)

 Appropriation [Homeland Security] **OL 

Rates**

1160-40 1 1 1

 Baseline Non-Pay 1160-50 0 0 0

 Baseline Civilian Pay 1160-50 0 1 1

 Spending authority from offsetting collections, discretionary:

 Offsetting collections (Mining law and Comm 

Sites)

1700 43 42 42

 Offsetting collections (Economy Act) 1700 37 38 38

 Offsetting collections (APD fees) 1700 33 33 33

 Offsetting collections (Inspection fees) 1700 0 0 48

 Offsetting Collections (Grazing fees) 1700 0 0 7

 Change in uncollected payments, Federal 

sources

1701 -34 0 0

 Spending auth from offsetting collections, disc 

(total)

1750 79 113 168

 Discretionary, Appropriations Committee

 Spending authority from offsetting collections 

[Mining Law, Telecomm Fees, and Permits to Drill] 

**OL Rates**

1750-40 42 75 75

 Spending authority from offsetting collections 

[Economy Act] **OL Rates**

1750-40 37 38 38

 Spending authority from offsetting collections 

[User Fee: Inspection fees] **OL Rates**

1750-40 0 0 48

 Spending authority from offsetting collections 

[Grazing Fees] **OL Rates**

1750-40 0 0 7

 Budget authority (total) 1900 1,039 1,079 1,148

Total budgetary resources available 1930 1,243 1,253 1,334

 Memorandum (non-add) entries:

 Unexpired unobligated balance, end of year 1941 131 143 216

Change in obligated balance:

 Unpaid obligations:

 Unpaid obligations, brought forward, Oct 1 3000 416 418 412

 Obligations incurred, unexpired accounts 3010 1,112 1,110 1,118

 Obligations incurred, expired accounts 3011 1 0 0

 Outlays (gross) 3020 -1,070 -1,073 -1,150

 Recoveries of prior year unpaid obligations, 

unexpired

3040 -40 -43 -43

 Recoveries of prior year unpaid obligations, 

expired

3041 -1 0 0

 Unpaid obligations, end of year 3050 418 412 337

 Uncollected payments:

 Uncollected pymts, Fed sources, brought forward, 

Oct 1

3060 -104 -70 -70
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 209

Budget Schedules

Account Symbol and Title

14X1109

Management of Lands and Resources

Line 2012 Act 2013 CY 2014 BY

Program and Financing (P) ($ in Millions)

 Change in uncollected pymts, Fed sources, 

unexpired

3070 34 0 0

 Uncollected pymts, Fed sources, end of year 3090 -70 -70 -70

 Memorandum (non-add) entries:

 Obligated balance, start of year 3100 312 348 342

 Obligated balance, end of year 3200 348 342 267

Budget authority and outlays, net:

 Discretionary:

 Budget authority, gross 4000 1,039 1,079 1,148

 Outlays, gross:

 Outlays from new discretionary authority 4010 867 826 909

 Outlays from discretionary balances 4011 203 247 241

 Outlays, gross (total) 4020 1,070 1,073 1,150

 Offsets against gross budget authority and 

outlays:

 Offsetting collections (collected) from:

 Federal sources 4030 -37 -38 -38

 Discretionary, Appropriations Committee

 Policy Program [Mining Law, Comm Sites, 

APD Fees]

4033-41 -76 -75 -75

 Baseline Program [Mining Law, Comm Sites, 

APD Fees]

4033-71 0 -75 -75

 Policy Program [Inspection Fees] 4033-41 0 0 -48

 Baseline Program [Inspection Fees] 4033-71 0 0 0

 Policy Program [Grazing Fees] 4033-41 0 0 -7

 Policy Program [Grazing Fees] 4033-71 0 0 0

 Offsets against gross budget authority and 

outlays (total)

4040 -113 -113 -168

 Discretionary, Appropriations Committee

 Budget authority, net (discretionary) 4070 960 966 980

 Outlays, net (discretionary) 4080 957 960 982

Budget authority, net (total) 4180 960 966 980

Outlays, net (total) 4190 957 960 982

Object Classification (O) ($ in Millions)

Direct obligations:

 Personnel compensation:

 Full-time permanent 1111 364 362 370

 Other than full-time permanent 1113 23 22 24

 Other personnel compensation 1115 16 18 19

 Total personnel compensation 1119 403 402 413

 Civilian personnel benefits 1121 129 129 131

 Travel and transportation of persons 1210 16 14 14

 Transportation of things 1220 9 8 8
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 210

Budget Schedules

Account Symbol and Title

14X1109

Management of Lands and Resources

Line 2012 Act 2013 CY 2014 BY

Program and Financing (P) ($ in Millions)

 Rental payments to GSA 1231 23 23 23

 Rental payments to others 1232 32 33 33

 Communications, utilities, and miscellaneous 

charges

1233 23 23 23

 Printing and reproduction 1240 2 2 2

 Advisory and assistance services 1251 18 16 16

 Other services from non-Federal sources 1252 147 146 145

 Other goods and services from Federal sources 1253 59 59 59

 Operation and maintenance of facilities 1254 8 8 6

 Research and development contracts 1255 0 4 4

 Operation and maintenance of equipment 1257 13 13 13

 Supplies and materials 1260 27 24 24

 Equipment 1310 15 15 15

 Land and structures 1320 10 10 9

 Grants, subsidies, and contributions 1410 71 71 71

 Insurance claims and indemnities 1420 0 1 1

 Subtotal, obligations, Direct obligations 1990 1,005 1,001 1,010

Reimbursable obligations:

 Personnel compensation:

 Full-time permanent 2111 54 54 53

 Other than full-time permanent 2113 3 3 3

 Other personnel compensation 2115 2 2 2

 Total personnel compensation 2119 59 59 58

 Civilian personnel benefits 2121 19 19 19

 Travel and transportation of persons 2210 2 2 2

 Transportation of things 2220 1 1 1

 Rental payments to others 2232 3 3 3

 Communications, utilities, and miscellaneous 

charges

2233 2 2 2

 Advisory and assistance services 2251 3 2 2

 Other services from non-Federal sources 2252 6 6 6

 Other goods and services from Federal sources 2253 4 4 4

 Operation and maintenance of facilities 2254 0 3 3

 Operation and maintenance of equipment 2257 1 1 1

 Supplies and materials 2260 2 1 1

 Equipment 2310 2 2 2

 Land and structures 2320 1 2 2

 Grants, subsidies, and contributions 2410 2 2 2

 Subtotal, obligations, Reimbursable obligations 2990 107 109 108

 Total new obligations 9999 1,112 1,110 1,118

 Direct Federal programs:

 Budget Authority 2004-01 944 948 953

 Outlays 2004-02 941 944 966

Employment Summary (Q)

Direct civilian full-time equivalent employment 1001 5,596 5,502 5,639

Reimbursable civilian full-time equivalent 2001 851 851 836
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 211

Budget Schedules

Account Symbol and Title

14X1109

Management of Lands and Resources

Line 2012 Act 2013 CY 2014 BY

Program and Financing (P) ($ in Millions)

employment

Allocation account civilian full-time equivalent 

employment

3001 2,376 2,178 2,111

Appropriations Requests in Thousands of Dollars 

(T)

Budget year budgetary resources [14-1109] 1000 0 980,228
Bureau of Land Management 2014 Budget Justifications

Chapter VII – Management of Lands and Resources VII - 212

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Construction

Bureau of Land Management 2014 Budget Justifications

Chapter VIII - Construction Page VIII - 1

CONSTRUCTION

APPROPRIATIONS LANGUAGE

[For construction of buildings, recreation facilities, roads, trails, and appurtenant facilities, 

$3,576,000, to remain available until expended.] (Department of the Interior, Environment, and 

Related Agencies Appropriations Act, 2012.)

AUTHORIZATIONS

The Federal Land Policy 

and Management Act of 

1976 (43 U.S.C. 1701, et 

seq.)

Authorizes the management of the public lands on a 

multiple-use basis.

43 U.S.C. 1762 Provides for the acquisition, construction, and maintenance of 

roads within and near public lands that will permit economic 

timber harvesting and at the same time meet the 

requirements for protection, development, and management 

utilization of other resources.
Bureau of Land Management 2014 Budget Justifications

Chapter VIII - Construction Page VIII - 2

Summary of Requirements ($000)

2013 Full Year 

CR 2012 Enacted Fixed 

Costs

Internal 

Transfers

Program 

Changes (+/-)

2014

President's 

Budget Change From 2012 Enacted

FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount

Construction 12 3,592 12 3,570 +0 +0 -12 -3,570 0 0 -12 -3,570

Total, 

Construction 12 3,592 12 3,570 +0 +0 -12 -3,570 0 0 -12 -3,570
Bureau of Land Management 2014 Budget Justifications

Chapter VIII - Construction Page VIII - 3

Activity: Construction 

Subactivity: Construction 

Subactivity

2013

Full 

Year

CR

2012

Enacted1

2014 Change

from

2012 

Enacted

(+/-)

Fixed 

Costs &

Related 

Changes

(+/ -)

Program

Changes

(+/ -)

Budget

Request

Construction $000 3,592 3,570 0 -3,570 0 -3,570

FTE 12 12 0 -12 0 -12 1

Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

Summary of 2014 Program Changes for Construction

Request Component ($000) FTE

Program Changes:

• Eliminate Program -3,570 -12

TOTAL, Program Changes -3,570 -12

JUSTIFICATION OF 2014 PROGRAM CHANGES

The 2014 budget request for the Construction program is $0 and 0 FTE, a program change of 

-$3,570,000 and -12 FTE from the 2012 enacted level. 

Program Elimination (-$3,570,000 /-12 FTE) – The budget eliminates the Construction 

Appropriation account with a proposed reduction of $3.6 million. Beginning in 2014, 

construction projects undertaken by the BLM will be funded in the newly named Deferred 

Maintenance and Capital Improvements Program in the Management of Land and Resources 

appropriation.

PROGRAM OVERVIEW

Program Components

The BLM Construction Program provides funds for developing, and building safe facilities for 

visitors and employees that are in compliance with Federal requirements. The budget proposes 

that construction projects will be funded in the newly named Deferred Maintenance and Capital 

Improvements program in the Management of Land and Resources appropriation beginning in 

FY 2014. 

The Construction Program evaluated all prior year projects and ranked them based upon the 

highest priority, that being critical health or safety work, critical resource protection, energy and 

building sustainability, code compliance and mission criticality per the Department’s guidance. 

Any future projects will follow the same criteria within the Management of Lands and Resources 

Appropriation. 
Bureau of Land Management 2014 Budget Justifications

Chapter VIII - Construction Page VIII - 4

2014 PROGRAM PERFORMANCE

In 2014, funding in the Construction Appropriation is eliminated. BLM will not fund any new 

projects within the Construction Appropriation.
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 5

Budget Schedules

Account Symbol and Title

14X1110 Construction Line 2012 Act 2013 CY 2014 BY

Program and Financing (P) ($ in Millions)

Obligations by program activity:

 Direct program activity 0001 5 5 5

Total new obligations 0900 5 5 5

Budgetary Resources:

 Unobligated balance:

 Unobligated balance brought forward, Oct 1 1000 12 11 10

 Budget authority:

 Appropriations, discretionary:

 Appropriation 1100 4 4 0

 Appropriation, discretionary (total) 1160 4 4 0

 Discretionary, Appropriations Committee

 Appropriation [Regular] **OL Rates** 1160-40 4 4 0

 Baseline Non-Pay 1160-50 0 3 3

 Baseline Civilian Pay 1160-50 0 1 1

 Appropriation [Text] **OL Rates** 1160-40 0 0 0

 Baseline Non-Pay 1160-50 0 0 0

 Baseline Civilian Pay 1160-50 0 0 0

Total budgetary resources available 1930 16 15 10

 Memorandum (non-add) entries:

 Unexpired unobligated balance, end of year 1941 11 10 5

Change in obligated balance:

 Unpaid obligations:

 Unpaid obligations, brought forward, Oct 1 3000 18 5 4

 Obligations incurred, unexpired accounts 3010 5 5 5

 Outlays (gross) 3020 -17 -6 -5

 Recoveries of prior year unpaid obligations, 

expired

3041 -1 0 0

 Unpaid obligations, end of year 3050 5 4 4

 Memorandum (non-add) entries:

 Obligated balance, start of year 3100 18 5 4

 Obligated balance, end of year 3200 5 4 4

Budget authority and outlays, net:

 Discretionary:

 Budget authority, gross 4000 4 4 0

 Outlays, gross:

 Outlays from new discretionary authority 4010 1 1 0

 Outlays from discretionary balances 4011 16 5 5

 Outlays, gross (total) 4020 17 6 5
Bureau of Land Management 2013 Budget Justifications

Chapter VIII – Management of Lands and Resources Page VIII - 6

Account Symbol and Title

14X1110 Construction Line 2012 Act 2013 CY 2014 BY

 Budget authority, net (discretionary) 4070 4 4 0

 Outlays, net (discretionary) 4080 17 6 5

Budget authority, net (total) 4180 4 4 0

Outlays, net (total) 4190 17 6 5

Object Classification (O) ($ in Millions)

Direct obligations:

Personnel compensation:

 Personnel compensation: Full-time 

permanent

1111 1 1 0

 Other services from non-Federal sources 1252 1 1 1

 Other goods and services from Federal 

sources

1253 0 2 1

 Land and structures 1320 3 1 3

 Total new obligations 9999 5 5 5

Employment Summary (Q)

Direct civilian full-time equivalent employment 1001 12 12 0

Appropriations Requests in Thousands of 

Dollars (T)

Budget year budgetary resources [14-1110] 1000 0 0
Land Acquisition

Bureau of Land Management 2014 Budget Justifications

Chapter IX – Land Acquisition Page IX - 1

LAND ACQUISITION

APPROPRIATIONS LANGUAGE

For expenses necessary to carry out sections 205, 206, and 318(d) of Public Law 94–579, 

including administrative expenses and acquisition of lands or waters, or interests therein, 

$32,618,000, to be derived from the Land and Water Conservation Fund and to remain 

available until expended. Note.—A full-year 2013 appropriation for this account was not enacted 

at the time the budget was prepared; therefore, this account is operating under a continuing 

resolution (P.L. 112–175). The amounts included for 2013 reflect the annualized level provided 

by the continuing resolution.

APPROPRIATION LANGUAGE CITATIONS AND AUTHORIZATIONS

Federal Land Policy and 

Management Act of 1976 

(FLPMA) (Pub. L. 94-579, 

Sec. 101 et seq.; 43 

U.S.C. 1701 et seq.)

Provides authority for acquisition (Pub. L. 94-579, Sec. 205, 

206; 43 U.S.C., 1715, 1716) of lands or interests in lands by 

purchase, exchange, donation, or eminent domain, when it is 

consistent with the mission of the Department and with land 

use plans (Pub. L. 94-579, Sec. 205(b); 43 U.S.C., 1715(b)); in 

exercising this authority, appropriations from the Land and 

Water Conservation Fund may be used to purchase lands 

which are primarily of value for outdoor recreation purposes 

(Pub. L. 94-579, Sec. 318(d); 43 U.S.C., 1748(d)).

Federal Land Transaction 

Facilitation Act of 2000 

(FLTFA) (Public Law 106-

248) 

Provided authority for the use of receipts from disposal actions 

by the BLM to purchase inholdings and lands adjacent to 

federally designated areas containing exceptional resources, 

as defined in FLTFA, from willing sellers with acceptable titles, 

at fair market value, to “promote consolidation of the ownership 

of public and private lands in a manner that would allow for 

better overall resource management administrative efficiency, 

or resource allocation.” The 2010 Supplemental Appropriations 

Act (P.L. 111-212) reauthorized FLTFA for one year, expiring in 

July, 2011. 

Land and Water 

Conservation Fund Act of 

1965, as amended (16 

U.S.C. 460l-4 et seq.)

Authorizes planning, acquisition, and development of needed 

land and water areas and facilities; in exercising this authority, 

appropriated funds from the LWCF may be used for such 

acquisition to assist in preserving, developing, and assuring 

accessibility for the benefit of present and future citizens.

Wild and Scenic Rivers 

Act of 1968, as amended 

(16 U.S.C. 1271 et seq.)

Authorizes the Secretary to exchange or dispose of suitable 

Federally-owned property for non-Federal property within the 

authorized boundaries of any Federally-administered 

component of the National Wild and Scenic Rivers System, 

1277(d). Similar exchange authority is contained in The 

National Trails System Act of 1968, as amended 16 U.S.C. 

1241et seq.).
Bureau of Land Management 2014 Budget Justifications

Chapter IX – Land Acquisition Page IX - 2

Wilderness Act of 1964 

(16 U.S.C. 1131 et seq.)

Authorizes the Secretary to acquire privately owned property 

within the boundary of any area designated as a component of 

the National Wilderness Preservation System.

National Trails System 

Act of 1968, as amended 

(16 U.S.C. 1241-1249)

Authorizes the Secretary to acquire lands or interests in lands 

included in the right-of-way selected for a National Historic, 

National Recreation, or National Scenic Trail; by written 

cooperative agreement, donation, purchase (with donated or 

appropriated funds), or exchange.

Other Other acts such as, the King Range National Conservation 

Area Act of 1970, as amended (16 U.S.C. 460y); San Pedro 

Riparian National Conservation Area Act, in Arizona (16 U.S.C. 

460xx); Arkansas-Idaho Land Exchange Act of 1992 (P.L. 102-

584); Utah School Lands Act (P.L. 103-93); Steens Mountain 

Cooperative Management and Protection Act of 2000 (16 

U.S.C. 460nnn, P.L. 106-399; and California Desert Protection 

Act of 1994 (P.L. 103-433), authorize the Secretary to enter 

into acquisitions, including purchase, donation, land exchange.
Bureau of Land Management 2014 Budget Justifications

Chapter IX – Land Acquisition Page IX - 3

Summary of Requirements

(Dollars in Thousands)

Total 

FTE Amount Total FTE Amount FTE Amount FTE Amount FTE Amount

 Land Acquisition

0 19,083 0 18,969 +0 +0 +0 +10,135 0 29,104 0 +10,135

0 1,506 0 1,498 +0 +0 +0 +118 0 1,616 0 +118

12 1,892 12 1,877 +21 +0 -1 +0 11 1,898 -1 +21

12 22,481 12 22,344 +21 +0 -1 +10,253 11 32,618 -1 +10,274

Internal 

Transfers

Program Changes

 (+/-)

2014 President's 

Budget

Change From 2012 

Enacted

Land Acquisition

Inholding, Emergencies & Hardships

Acquisition Mgt.

Total, Land Acquisition

2012 Enacted

Fixed Costs

2013 Full Year 

CR

Other Fixed Cost Changes and Projections 2012 Total or Change 2012 to 2014 

Change

Change in Number of Paid Days - +6

Pay Raise - +8

Employer Share of Federal Health Benefit Plans +6 +7

Justification of Fixed Costs and Internal Realignments

Land Acquisition

(Dollars In Thousands)

The combined fixed cost estimate includes an adjustment for one additional paid day between FY2012 and FY2013. The 

number of paid days do not change between FY2013 and FY2014.

The PY column reflects the total pay raise changes as reflected in the the PY President's Budget. The BY Change column 

reflects the total pay raise changes between FY2012-FY2014.
Bureau of Land Management 2014 Budget Justifications

Chapter IX – Land Acquisition Page IX - 4

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Bureau of Land Management 2014 Budget Justifications

Chapter IX – Land Acquisition Page IX - 5

2013

Full 

Year 

CR

2012

Enacted

2014 Change 

from 

2012 

Enacted

(+/-)

Fixed 

Costs &

Related 

Changes

(+/ -)

Internal 

Transfers

(+/-)

Program

Changes

(+/ -)

Budget

Request Subactivity

Land Acquisition $ 19,083 18,969 +0 +0 +10,135 29,104 +10,135

FTE 0 0 +0 +0 +0 0 +0

Acquisition 

Mgmt.

$ 1,892 1,877 +21 +0 +0 1,898 +21

FTE 12 12 +0 +0 -1 11 -1

Emergencies & 

Hardships

$ 1,506 1,498 +0 +0 +118 1,616 +118

FTE 0 0 +0 +0 +0 0 +0

Total 

Appropriated

$ 22,481 22,344 +21 +0 +10,252 32,618 +10,274

FTE 12 12 +0 +0 -1 11 -1

Other Sources:

Proposed for FY 2014, Permanent Appropriation: Permanent Land Acquisition2 16,308 16,308

1 Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates. 2 In addition to this current request, the Administration will submit a legislative proposal to permanently authorize 

annual funding without further appropriation from the Land and Water Conservation Fund.

The 2014 budget proposes to fund the Land Acquisition program with an appropriation from the 

Land and Water Conservation Fund at a total level of $32,618,000 and 11 FTE, a program 

change of +$10,274,000 and -1 FTE from the 2012 enacted level. 

ACTIVITY DESCRIPTION

The BLM is authorized to acquire intermingled and adjacent non-Federal lands through 

purchase, exchange, and donation for specified public benefits. Consolidation of the public 

lands through land acquisition increases management efficiency in pursuing land management 

goals such as maintaining open space, providing opportunities for environmentally responsible 

recreation, preserving natural and cultural heritage resources, restoring at-risk botanical, 

fisheries and wildlife resources, and maintaining functioning ecosystems. The BLM’s Land 

Acquisition program utilizes Land and Water Conservation Fund (LWCF) monies for Land 

Acquisition, Inholding, Emergency and Hardship, and Acquisition Management. 

In addition to acquiring land by purchase with LWCF appropriated funds, the BLM acquires land 

by exchange. When an exchange is proposed, every attempt is made to equalize values 

between the lands coming into Federal ownership and the lands leaving Federal ownership. In 

those instances where land values are not equal, the BLM attempts to equalize land values by 

decreasing or increasing the land leaving Federal ownership. In certain instances where values 

are not equal and there is no available land in Federal ownership to equalize values, a cash 

payment can be made to the exchange proponent. This cash payment, an “equalization 

payment” cannot exceed 25 percent of the difference between the values of the lands coming 

into Federal ownership and the lands leaving Federal ownership. 

Activity: Land Acquisition
Bureau of Land Management 2014 Budget Justifications

Chapter IX – Land Acquisition Page IX - 6

Major Components of BLM’s Land Acquisition Program

($000) 2012

Enacted

2013 Fullyear CR2014 Budget 

Request

Land Acquisition - Core Projects 18,969 13,511 16,109

Land Acquisition - Collaborative Projects 0 5,572 29,303

Total Land Acquisition Project Funding 18,969 19,083* 45,412

Acquisition Management 1,877 1,892 1,898

Inholdings, Emergencies and Hardships 1,498 1,506 1,616

Total BLM Land Acquisition Funding 22,344 22,481 48,926**

* The 2013 Full-year CR amount includes a portion of funding for hunter and angler access.

** This amount is comprised of funding from both current and permanent appropriations.
Bureau of Land Management 2014 Budget Justifications

Chapter IX – Land Acquisition Page IX - 7

Activity: Land Acquisition

Subactivity: Land Acquisition

2013 

Full Year 

CR

2012 

Enacted

2014

Change 

from 

2012 

Enacted

(+/-)

Fixed 

Costs &

Related 

Changes 

(+/-)

Internal 

Transfers 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Land Acquisition 

($000) 19,083 18,969 +0 +0 +10,135 29,104 +10,135

FTE 0 0 +0 +0 +0 0 +0

Summary of 2014 Program Changes for Land Acquisition

Request Component ($000) FTE

Program Changes:

• Land Acquisition Projects +10,135 0

TOTAL, Program Changes +10,135 0

1) Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

JUSTIFICATION OF 2014 PROGRAM CHANGES

The 2014 budget request for the Land Acquisition program is $29,104,000, a program change of

+$10,135,000 from the 2012 enacted level.

Increase Landscape Acquisition Projects (+$10,135,000) – In 2014, the BLM will acquire 

high priority acquisition projects in the core and collaborative landscape planning land 

acquisition programs. The 2014 core program is $5.5 million and will fund three of BLM’s 

highest priorities. The collaborative landscape planning component builds on efforts started in 

2011 and to strategically invest in interagency landscape-scale conservation projects while 

continuing to meet bureau-specific programmatic needs. The Department of the Interior and the 

Forest Service collaborated extensively to develop a process to more effectively coordinate land 

acquisitions with government and local community partners to achieve the highest priority 

shared conservation goals. The 2014 request includes a total of $23.6 million for 2 collaborative 

landscape planning project. Within this total, BLM includes $2.6 million for Crown of the 

Continent/Northern Rockies landscape and $21.0 million for projects that are part of the 

Collaborative Landscape Planning in the Southwest Deserts

Permanent Appropriation: Permanent Land Acquisition

The Department of the Interior’s 2014 budget request proposes a multi-year strategy leading to 

full and permanent funding for the Land and Water Conservation Fund. Permanent funding 

would help to fulfill the commitment of LWCF: a fair return of the profits from oil and gas 

development to improve and increase the availability of outdoor opportunities for all Americans. 

The 2014 permanent request through LWCF includes $16.308 million in land acquisitions for 

BLM. The proposed LWCF – Land Acquisition permanent appropriation and this current land 

acquisition project request would provide a total of $45.4 million in project funding.
Bureau of Land Management 2014 Budget Justifications

Chapter IX – Land Acquisition Page IX - 8

PROGRAM OVERVIEW

The Land Acquisition Program promotes the conservation of natural landscapes and resources 

by consolidating public lands through purchase, exchange and donation to increase 

management efficiency and preserve areas of natural, cultural, and recreational importance. 

Acquisition projects occur within or adjacent to nationally-designated management units, 

including National Monuments, National Conservation Areas, Wilderness, National Wild and 

Scenic Rivers, National Scenic Trails, and National Historic Trails, as well as in BLM-designated 

Areas of Critical Environmental Concern and Special Recreation Management Areas. Land 

acquisition funding is also necessary to acquire small parcels of land and/or access easements 

through these lands to provide public access to “landlocked” BLM lands. The BLM estimates 23 

million acres (or 9 percent) of BLM-managed public lands lack public access or have inadequate 

public access, primarily due to checkerboard land ownership patterns. Securing and improving 

public access to these lands will serve various recreational activities, including hunting and 

fishing. 

The Land Acquisition Program improves river and riparian conservation and restoration;

conserves and protects wildlife habitat; preserves natural and cultural heritage resources;

provides opportunities for environmentally responsible recreation; restores at-risk resources;

and maintains functioning ecosystems through land acquisition. Communication, cooperation, 

and consultation with local communities and interested parties are key elements of the Land 

Acquisition Program. Funds for the Land Acquisition program are derived from the Land and 

Water Conservation Fund (LWCF). 

The BLM also has funding from other sources outside the Land Acquisition appropriation, such 

as from the Southern Nevada Public Land Management Act and other land sale authorizations. 

The Budget includes a legislative proposal to reauthorize the Federal Land Transaction 

Facilitation Act and allow lands identified as suitable for disposal in recent land use plans to be 

sold using the FLTFA authority. FLTFA sales revenues would continue to be used to fund the 

acquisition of environmentally sensitive lands and the administrative costs associated with 

conducting sales, which would provide funding for land acquisition as well. These legal 

authorities are described in the Lands and Realty Management chapter, and various land sale 

accounts are described in the Permanent Operation Funds chapter.

Collaborative Landscape Planning at the U.S. Department of the Interior

The 2014 Federal Land Acquisition Program builds on efforts started in 2011 to develop a 

program that supports strategic interagency landscape-scale conservation projects, while 

continuing to meet agency-specific programmatic needs. These efforts were partially initiated in 

response to Congressional direction to the Department and the U.S. Forest Service (USFS) to 

use LWCF land acquisition funds jointly and more strategically to protect contiguous landscapes 

and meet shared conservation goals. Interior bureaus collaborated extensively with the USFS

to develop a process to coordinate land acquisition planning with government and local 

community partners to achieve the highest priority shared conservation goals more effectively. 
Bureau of Land Management 2014 Budget Justifications

Chapter IX – Land Acquisition Page IX - 9

The resulting Collaborative Landscape Planning process is designed to: 

• Use the LWCF to incentivize collaborative planning for measurable outcomes at the 

landscape scale; 

• Invest LWCF resources in some of the most ecologically important landscapes; and 

• Invest in projects that have a clear strategy to reach shared goals grounded in sciencebased planning, are driven by and responsive to local community initiatives, and will 

make the most efficient use of Federal funds.

The joint Interior-Agriculture National Selection Committee identified a number of ecosystems 

throughout the Nation where high priority shared conservation goals can be achieved based on 

existing locally-driven conservation efforts. Through the rigorous merit based evaluation 

process, four ecosystems were selected for inclusion in the 2014 budget including: the Crown of 

the Continent, Longleaf Pine, California Desert Southwest and National Trails System 

landscapes.

Investing now in these ecologically important but threatened landscapes will ensure that they 

remain resilient in the face of development pressures and global climate change. Smart 

investment in strategic conservation in these landscapes will prevent further ecosystem decline 

or collapse, which is expected to preclude the need for future investments in restoration. The 

proposed Federal investments in these landscapes will additionally leverage significant private 

commitments to land and water conservation in the Crown of the Continent and Longleaf Pine 

ecosystems.

2014 PROGRAM PERFORMANCE

In 2014, the BLM has plans for 22 acquisition projects in eight States. These acquisitions will 

strengthen the BLM’s efforts to preserve wildlife habitat and wilderness, conserve and protect 

cultural and historic resources, retain open space, and enhance public recreation opportunities 

in the western U.S. in perpetuity. The BLM will utilize innovative methods to acquire lands, 

including conservation easements, leveraged purchases, and the purchase of development 

rights where these methods meet management objectives and landowner needs. Planned 

acquisitions for 2014 are listed on the following page. The subsequent pages include maps of 

the acquisition projects and project descriptions.

The following lists of proposed land acquisition projects is the current set of land acquisition 

priorities that has been vetted and approved by the BLM and Departmental leadership to meet 

the high priority programmatic needs during fiscal year 2014. 
Bureau of Land Management 2014 Budget Justifications

Chapter IX – Land Acquisition Page IX - 10
Bureau of Land Management 2014 Budget Justifications

Chapter IX – Land Acquisition Page IX - 11

Bureau of Land Management

Land and Water Conservation Fund

2014 National Project Priorities (Integrated) Map
Bureau of Land Management 2014 Budget Justifications

Chapter IX – Land Acquisition Page IX - 12

Bureau of Land Management

Acronyms:

ACEC = Area of Critical Environmental Concern

SRMA = Special Recreation Management Area

Acquisition Management 1,898

Inholdings, Emergencies and Hardships 1,616

 3,514

Project (In Priority Order) Acres 2014

1 MT Blackfoot River Watershed/Douglas Creek1/ 3,680 2,600

2 CO Canyons of the Ancients National Monument3/ 1,562 1,703

3 CA California Coastal National Monument (Point Arena) 23 2,000

4 ID Lower Salmon River ACEC/SRMA 4,604 1,820

5 CA California Wilderness 12,235 6,702

6 CA Santa Rosa and San Jacinto Mountains National Monument 5,948

7 CA Pacific Crest National Scenic Trail 2,920

8 CA Big Morongo Canyon ACEC 738 1,330

9 CA Coachella Valley Fringe-Toed Lizard ACEC 1,971 1,971

10 CA San Felipe/San Sebastian Marsh ACEC 497 200

11 CA Johnson Canyon ACEC 295 1,060

12 CA Dos Palmas ACEC 176 850

Subtotal, BLM line-item projects - discretionary funds 25,781 29,104

13 OR Cascade-Siskiyou National Monument 1,320 2,000

14 AZ Ironwood Forest National Monument 612 1,000

15 OR Crooked National Wild and Scenic River 101 975

16 UT North Platte River SRMA 70 900

17 MT

Nez Perce National Historic Trail/Lewis and Clark National Historic 

Trail/Upper Missouri National Wild and Scenic River

 779

1,600

18 OR Pacific Crest National Scenic Trail 4,122

19 UT Red Cliffs National Conservation Area 100 4,000

20 AZ Agua Fria National Monument 40 111

21 CO Dominguez-Escalante National Conservation Area 135 600

22 ID Henrys Lake ACEC 515 1,000

Subtotal, BLM line-item projects - mandatory funds 3,672 16,308

Subtotal, All BLM line-item projects 45,412

Subtotal, Federal Land Acquisition -- Discretionary Funds 32,618

Subtotal, Federal Land Acquisition -- Mandatory Funds 16,308

Total, Federal Land Acquisition 48,926

FY 2014 Land Acquisition 

Core and Collaborative Landscape Planning Acquisitions

(dollars in thousands)

4/These projects are part of the Collaborative Landscape Planning for the National Trails landscape.

3/These project are part of the Collaborative Landscape Planning for the Southwest Deserts landscape.

1/These projects are part of the Collaborative Landscape Planning for the Crown of the Continent/ Northern Rockies 

2/These project are part of the Collaborative Landscape Planning for the Longleaf Pine landscape.
Bureau of Land Management 2014 Budget Justifications

Chapter IX – Land Acquisition Page IX - 13

 

Blackfoot River Watershed

Douglas Creek

DISCRETIONARY

MONTANA Missoula and Powell Counties Congressional District: 1

Location Western Montana, 40 miles east of 

Missoula.

Acquired to Date1

Method Acres2 Cost ($)

Purchase 12,363 15,102,000

Purpose Protect exceptional biological diversity, 

wildlife habitat and rural landscapes 

from the impacts of residential 

subdivision. Prevent denial and loss of 

public access providing year-round 

recreational opportunities.

Exchange3 11,730 21,587,000

Donation3 196 197,000

Other 0 0

Partners 112,800 71,900,000

Proposed for FY2014

Method Acres2 Cost ($)

Purchase

Opportunities

Funding request continues an ongoing 

phased acquisition of properties

purchased and held by the partner for 

conveyance to federal and state agency 

partners.

Purchase 3,680 2,600,000

Pending Future Action

Method Acres2 Cost ($)

Pending 8,000 10,000,000

1 Includes Blackfoot River SRMA accomplishments 2 Includes fee and conservation easement interest

3 For donation and exchange “Cost” = “value”

Partner The Nature Conservancy.

Cooperators U.S. Fish and Wildlife Service, U.S. Forest Service, Montana Department of Fish, 

Wildlife and Parks, Montana Department of Natural Resource and Conservation, 

Blackfoot Challenge.

Project 

Description

The Blackfoot River watershed is celebrated nationally and treasured locally for its 

outstanding values – legendary fishing and floating, threatened and endangered 

species and big game habitat, unspoiled natural beauty and a rural lifestyle symbolic of 

values vanishing in the West. The Blackfoot River watershed occupies a critical 

location in the Northern Continental Divide Ecosystem, serving as the southern 

“bookend” for the Yellowstone to Yukon (Y2Y) Conservation Initiative. The watershed 

serves as a buffer and linkage zone for wildlife moving in and out of the Bob Marshall/ 

Scapegoat Wilderness Complex, along the Continental Divide and between the Clark 

Fork River drainage and the Garnet Range.

As a part of the larger Crown of the Continent ecosystem the Blackfoot watershed 

system possesses exceptional wetlands, riparian, grasslands, and forestland 

vegetation associations. These ecosystems possess exceptional biodiversity and high 

scenic value. The proposed acquisition supports community-based conservation 

efforts to build resiliency in these ecosystems. Building ecological resiliency includes 

maintaining intact, interconnected landscapes, and restoring fragmented or degraded 

(but restorable) habitats. The parcel contains occupied grizzly bear (threatened) 

habitat and Canada lynx (threatened) designated critical habitat as well as fisheries 

habitat for westslope cutthroat trout (sensitive).

The proposed acquisition, supported by the U.S. Fish and Wildlife Service and 

Montana Department of Fish, Wildlife and Parks is a component of Blackfoot 

Challenge and The Nature Conservancy’s broader Blackfoot Community Project.

O&M Cost Estimated “start-up” cost: $5,000. Estimated “annual” maintenance: $1,000.
Bureau of Land Management 2014 Budget Justifications

Chapter IX – Land Acquisition Page IX - 14

Canyons of the Ancients National Monument

DISCRETIONARY

COLORADO Montezuma County Congressional District: 3

Location Southwest Colorado, 20 miles west and 

northwest of Cortez.

Acquired to Date

Method Acres1 Cost ($)

Purchase 7,010 5,520,000

Purpose Purchase multiple private inholdings 

and edgeholdings to protect significant 

cultural, scenic, recreation and wildlife 

values and to preserve the integrity of 

the landscape.

Exchange2 1,080 756,000

Donation2 440 600,000

Other 0 0

Partners 0 0

Proposed for FY2014

Method Acres1 Cost ($)

Purchase

Opportunities

Multiple properties facing immediate 

threat from rural residential 

development, vandalism, and degrading 

land use practices.

Purchase 1,562 1,703,000

Pending Future Action

Method Acres1 Cost ($)

Pending 9,678 11,537,000

1 Includes fee and conservation easement interest

2 For donation and exchange “Cost” = “value”

Partner The Conservation Fund.

Cooperators National Trust for Historic Preservation, The Archaeological Conservancy, Colorado 

Preservation, Inc., Crow Canyon Archaeological Center, San Juan Mountains 

Association, San Juan Citizen’s Alliance, Colorado Division of Wildlife, Colorado 

Archaeological Society-Hisaatsinom Chapter, McElmo Canyon residents.

Project 

Description

The 173,000-acre Canyons of the Ancients National Monument was established in 

2000 to protect cultural and natural resources on a landscape scale. The remarkable 

cultural resources here have been a focal point of explorers and researchers for 130 

years. The Monument contains the highest density of cultural resource sites in the 

Nation with more than 100 sites/square mile; 6,000 sites are documented and a total of 

20,000-30,000 are predicted. Site types include cliff dwellings, villages, great kivas, 

shrines, agricultural fields, check dams, petroglyphs and pictographs, and pottery kilns. 

Many sites have standing walls. Eight sites and one District, including 167 sites, are 

listed on the National Register of Historic Places. Lowry Pueblo is a National Historic 

Landmark. Native Americans maintain close ties to the landscape and to the sites 

occupied by their ancestors. The BLM staff regularly involves tribal consultants in 

interpretation and education projects. Canyons of the Ancients offers an unparalleled 

opportunity to observe, study, and experience how cultures lived and adapted over 

time in the American Southwest.

Monument resources include spectacular land forms with deeply incised canyons, 

sheer sandstone cliffs, and panoramic vistas; riparian areas with habitat for the 

threatened and endangered Southwestern Willow flycatcher; and unique herpetological 

species such as the Longnose Leopard lizard and the Desert Spiny lizard, both on the 

State Director’s Sensitive Species List. Wildlife includes deer, elk, mountain lions, 

bears, coyotes, foxes, wild turkeys, falcons and eagles. The Monument includes three 

Wilderness Study Areas and surrounds three units of Hovenweep National Monument, 

managed by the National Park Service. About 45,000 annual visitors take advantage 

of opportunities for visiting cultural resource sites, camping, hiking, horseback riding, 

mountain biking and ATVs (on existing roads), hunting, and wildlife viewing. 

O&M Cost Estimated “start-up” cost: $7,500. Estimated “annual” maintenance: $2,000.
Bureau of Land Management 2014 Budget Justifications

Chapter IX – Land Acquisition Page IX - 15

California Coastal National Monument

Point Arena

DISCRETIONARY

CALIFORNIA Mendocino County Congressional District: 1

Location Northern California, approximately 130 

miles north of San Francisco.

Acquired to Date

Method Acres1 Cost ($)

Purchase 251 3,000,000

Purpose Establish a contact area to provide for 

public education and interpretation of 

the multiple resource and recreational 

values associated with the Monument.

Exchange2 0 0

Donation2 1,132 7,260,000

Other 579 433,500

Partners 0 0

Proposed for FY2014

Method Acres1 Cost ($)

Purchase

Opportunities

Two oceanfront edgeholding parcels 

are currently available from highly 

motivated willing sellers. Coastal 

properties in California face immediate 

threat from commercial and rural 

residential development.

Purchase 23 2,000,000

Pending Future Action

Method Acres1 Cost ($)

Pending 0 0

1 Includes fee and conservation easement interest

2 For donation and exchange “Cost” = “value”

Partner The Trust for Public Land.

Cooperators U.S. Fish and Wildlife Service, The California Coastal Conservancy, California 

Department of Fish and Game, Wildlife Conservation Board, Coastwalk California.

Project 

Description

Located along the entire 1,100-mile California coastline, the California Coastal National 

Monument (NM) comprises more than 20,000 small islands, rocks, exposed reefs, and 

pinnacles between Mexico and Oregon, covering approximately 1,000 acres of land. 

The creation of the Monument ensures the protection of these features extending from 

mean high tide to within 12 nautical miles of the shoreline.

In an effort to meet the challenge of interpreting a predominately offshore Monument, 

the BLM seeks to establish a number of publically-accessible sites along the California 

coast where the resource and recreational values of the Monument can be better 

offered for public interpretation. Many of these contact areas have been developed 

within areas currently managed by BLM, however the length of the California coast and 

population demographics indicate the need for additional sites dedicated to better 

interpret the Monument to the public. In 2004 the BLM accepted donation of the 

neighboring 1,132-acre Stornetta parcel from The Nature Conservancy. Now known 

as the Stornetta Area of Critical Environmental Concern the property includes 2.5 miles 

of coastline, abuts the historic Point Arena Lighthouse and shares a common boundary 

with the 760-acre Manchester State Park.

The BLM completed acquisition of the Cypress Abbey (Phase I) parcel in January 

2012 with a $2M leverage from the California Coastal Conservancy. Funding for 

Phase II of Cypress Abbey parcel was requested in the 2013 President’s Budget. This 

request would provide funding for two small coastal inholdings and complete the Point 

Arena purchase. The property contains critical habitat for two endangered species, the 

Behrens’ Silverspot Butterfly and the Point Arena subspecies of Mountain Beaver. 

Both species are only found on this stretch of the California coast.

O&M Cost Estimated “start-up” cost: $35,000. Estimated “annual” maintenance: $15,000.
Bureau of Land Management 2014 Budget Justifications

Chapter IX – Land Acquisition Page IX - 16

Lower Salmon River

Area of Critical Environmental Concern/Special Recreation 

Management Area

DISCRETIONARY

IDAHO Idaho County Congressional District: 1

Location North Central Idaho, 45 miles south of 

Lewiston.

Acquired to Date

Method Acres1 Cost ($)

Purchase 7,194 8,570,000

Purpose Conserve and enhance the special 

recreation, scenic and wildlife values of 

the Lower Salmon River, in addition to 

the protection of Endangered Species 

Act (ESA) listed species, 

paleontological and archeological sites.

Exchange2 745 450,000

Donation2 0 0

Other 0 0

Partners 0 0

Proposed for FY2014

Method Acres1 Cost ($)

Purchase

Opportunities

Two properties threatened with rural 

residential development within the 

viewshed of the Lower Salmon River 

Area of Critical Environmental Concern 

(ACEC) and Special Recreation 

Management Area (SRMA).

Purchase 4,604 1,820,000

Pending Future Action

Method Acres1 Cost ($)

Pending 4,710 2,100,000

1 Includes fee and conservation easement interest

2 For donation and exchange “Cost” = “value”

Partner Western Rivers Conservancy.

Cooperators U.S. Fish and Wildlife Service, National Park Service, Idaho Department of Lands, The 

Nez Perce Tribe, National Trust for Historic Preservation, Idaho Conservation League, 

Trout Unlimited, Multiple Commercial Rafting Companies, Oregon State University 

Department of Anthropology, 

Project 

Description

Carving its way through a canyon deeper than Arizona’s Grand Canyon, the Salmon 

River is the longest free-flowing river in the lower 48 States. The Salmon River enjoys 

national and regional prominence for high quality scenic, recreational, cultural, and 

ecological resource values.

The 14,335-acre Lower Salmon River ACEC/SRMA is among Idaho’s premier national 

outdoor recreation destinations, supporting 600,000 annual visitors including anglers, 

whitewater rafters, jetboaters, campers, picnickers, hikers, equestrian enthusiasts, 

hunters, and outfitters. The area has exceptional diversity of cultural resources 

including a river crossing associated with the Nez Perce National Historic Trail, and a 

13,000-year-old archaeological site (Cooper’s Ferry, one of the oldest in the country) 

as well as numerous historic mining sites, all listed on the National Register of Historic 

Places. The ancient cultural sites are recognized as a unique, one-of-a-kind, regional 

storehouse of paleoenvironmental data including ancient freshwater mussel shells 

which reveal paleoclimate precipitation levels and plant phytoliths that tell the story of 

the millennia of vegetation changes unique to this area since the last ice age.

The Salmon River corridor provides critical habitat to a multitude of ESA-listed fish 

species, including Sockeye Salmon, Spring/Summer Chinook Salmon, fall Chinook 

Salmon, Steelhead Trout, Bull Trout, as well as ESA-listed plants including Spalding’s 

catchfly and MacFarlane’s four o’clock. The corridor also provides habitat for migratory 

bird species. Proposed acquisitions would maintain watershed conditions, secure 

special status species habitats, protect big game winter range, preserve significant 

cultural resources, and conserve other important resource values.

O&M Cost Estimated “start-up” cost: $1,000. Estimated “annual” maintenance: $1,000.
Bureau of Land Management 2014 Budget Justifications

Chapter IX – Land Acquisition Page IX - 17

 

California Wilderness

DISCRETIONARY

CALIFORNIA Imperial, Kern, Riverside, 

San Bernardino and Tulare Counties

Congressional Districts: 

21, 22, 25, 41, 45 and 51

Location All of California, with priority directed to 

the California SW Desert landscape.

Acquired to Date

Method Acres1 Cost ($)

Purchase 106,205 16,384,275

Purpose Consolidate public ownership within 

designated wilderness to preserve 

wilderness character, and increase 

opportunities for the public to 

experience primitive recreation.

Exchange2 100,500 19,500,000

Donation2 83,340 19,512,000

Other 0 0

Partners 0 0

Proposed for FY2014

Method Acres1 Cost ($)

Purchase

Opportunities

Multiple properties facing immediate 

threat from commercial, industrial, rural 

residential and suburban development, 

and unregulated motorized recreational 

use.

Purchase 12,235 6,701,600

Pending Future Action

Method Acres1 Cost ($)

Pending 193,618 145,198,400

1 Includes fee and conservation easement interest

2 For donation and exchange “Cost” = “value”

Partners Mojave Desert Land Trust, Friends of the Desert Mountains, Wilderness Land Trust, 

Resources Legacy Fund Foundation.

Cooperators The Wilderness Society, The California Wilderness Coalition, The Nature 

Conservancy, The Sierra Club, The Wildlands Conservancy, California State Lands 

Commission, California Native Plants Society, Pacific Crest Trail Association.

Project 

Description

There are 88 designated Wilderness areas encompassing over 3.9 million acres of 

public land in California. The first 69 Wilderness areas were designated in southern 

California with the passage of the California Desert Protection Act of 1994. 

Subsequently the Otay Mountain Wilderness Act of 1999, Big Sur Wilderness and 

Conservation Act of 2002, Northern California Coastal Wild Heritage Act of 2006, and 

most recently the Omnibus Public Lands Management Act of 2009 designated 19 

additional Wilderness areas on BLM lands in California. These Wilderness areas 

stretch from the north coast of California to the peaks of the Sierra Nevada to lands 

along the Mexican border. 

Over 37 million people live in California. These Wilderness areas offer places of 

solitude where people can experience freedom from our fast-paced industrialized 

society. They are places where people can renew the human spirit through 

association with the natural world and offer a respite from the pressure of an ever 

increasing urban lifestyle. 

These Wilderness areas also provide important habitat to a wide variety of animal and 

plant species, many threatened and endangered, and some Federally-listed species. 

There are six Wilderness areas that are transected by the 2,638-mile Pacific Crest 

National Scenic Trail, as well as seven Wilderness areas that are located adjacent to 

the Juan Bautista de Anza and Old Spanish National Historic Trails.

O&M Cost Estimated “start-up” cost: $20,000. Estimated “annual” maintenance: $10,000.
Bureau of Land Management 2014 Budget Justifications

Chapter IX – Land Acquisition Page IX - 18

Santa Rosa and San Jacinto Mountains National Monument

DISCRETIONARY

CALIFORNIA Riverside County Congressional District: 45

Location Southern California, directly west of 

Palm Springs.

Acquired to Date

Method Acres1 Cost ($)

Purchase 19,985 16,739,000

Purpose Conserve significant scenic, 

recreational, and wilderness resources 

within the Santa Rosa and San Jacinto 

Mountains National Monument (NM). 

Increase recreational access/public use.

Exchange2 3,672 2,223,000

Donation2 1,267 1,605,668

Other 0 0

Partners 48,862 49,900,750

Proposed for FY2014

Method Acres1 Cost ($)

Purchase

Opportunities

Multiple properties facing immediate 

threat from energy development and 

incompatible recreational use and 

demands.

Purchase 3,261 5,948,000

Pending Future Action

Method Acres1 Cost ($)

Pending 22,054 20,512,000

1 Includes fee and conservation easement interest 2 For donation and exchange “Cost” = “value”

Partners Friends of the Desert Mountains, Coachella Valley Mountains Conservancy.

Cooperators U.S. Fish and Wildlife Service, U.S. Forest Service, California Department of Fish and 

Game, Coachella Valley Conservation Commission, Cities of Palm Desert, Palm 

Springs, Cathedral City, La Quinta, and Rancho Mirage, Agua Caliente Band of 

Cahuilla Indians.

Project 

Description

Providing a rugged backdrop to the gateway communities of Palm Springs, Palm 

Desert and La Quinta, the Santa Rosa and San Jacinto Mountains National Monument 

hosted approximately 1,500,000 visitors in 2008. Ironically, rapid urbanization, 

immediately adjacent to the Monument is threatening the tremendous scenic and 

wildlife resource values, which helped to establish these resort communities in the 

early 1900’s.

Encompassing 272,000 acres, the Santa Rosa and San Jacinto Mountains NM is a 

series of steep escarpments, ranging from sea level to nearly 11,000 feet in elevation. 

This undeveloped “island” is home to over 600 animal and plant species, residing 

within several distinct climatic zones. Numerous threatened and endangered species, 

including one of the nation’s largest herds of Peninsular bighorn sheep, the least Bell’s 

vireo, populations of desert tortoise and desert slender salamander, and unique fan 

palm oases, are found among the area’s perennial streams, springs and seeps. The 

Monument is within the Coachella Valley Multiple Species Habitat Conservation Plan.

The Monument is co-administered by the BLM and U.S. Forest Service (64,400 acres 

of the Monument lie within the San Bernardino National Forest). Three Wilderness 

areas, the 94,989-acre Santa Rosa Mountain Wilderness, administered by BLM, and 

the 19,695-acre Santa Rosa Wilderness and a portion of the 33,177-acre San Jacinto 

Wilderness, administered by the Forest Service are imbedded within the Monument 

boundary. The 2,683-mile Pacific Crest National Scenic Trail passes through the 

Monument.

O&M Cost Estimated “start-up” cost: $20,000. Estimated “annual” maintenance: $10,000.
Bureau of Land Management 2014 Budget Justifications

Chapter IX – Land Acquisition Page IX - 19

Pacific Crest National Scenic Trail

California

DISCRETIONARY

CALIFORNIA Riverside County Congressional District: 45

Location Southern California, 20 miles northwest 

of Palm Springs.

Acquired to Date

Method Acres1 Cost ($)

Purchase 16,000 19,185,000

Purpose Acquire one parcel (a consolidation of 

20 smaller parcels) containing the tread 

of the Pacific Crest National Scenic 

Trail.

Exchange2 22,000 28,760,000

Donation2 3,900 7,665,000

Other 600 1,000,000

Partners 3,400 7,197,090

Proposed for FY2014

Method Acres1 Cost ($)

Purchase

Opportunities

The 20 parcels have been prepurchased and held by Friends of the 

Desert Mountains for resale to BLM. 

The parcels are threatened with 

renewable energy development and 

associated facilities.

Purchase 620 2,920,000

Pending Future Action

Method Acres1 Cost ($)

Pending 64,640 $46,930,000

1 Includes fee and conservation easement interest 2 For donation and exchange “Cost” = “value”

Partner Friends of the Desert Mountains.

Cooperators Pacific Crest Trail Association, Back Country Horseman’s Association, Endangered 

Habitats League, Wildlands Conservancy, Coachella Valley Mountains Conservancy.

Project 

Description

From scorching desert valleys in Southern California to rain forests in the Pacific 

Northwest, the 2,663-mile long Pacific Crest National Scenic Trail (NST) offers hikers 

and equestrians a unique, varied experience from Mexico to Canada through three 

western states. It reveals the beauty of the desert, unfolds the glaciated expanses of 

the Sierra Nevada, and provides commanding vistas of volcanic peaks and glaciers in 

the Cascade Range. The trail also passes through historic mining sites and evidence 

of man’s endless quest for natural resources. 

The Pacific Crest NST was congressionally designated a National Scenic Trail in 1968. 

Thousands of hikers and equestrians enjoy this national treasure each year. Some 

only travel a few miles, while others complete every mile in a single season. About 

300 hikers attempt to cover the full length of the Pacific Crest NST each year. In 

California, hikers and riders often must cover 20-30 miles of trail between water 

sources.

Located within driving distance of San Diego and Los Angeles, the southern reaches of 

the Pacific Crest NST is both easily accessible and blissfully wild at the same time. 

The Pacific Crest NST departs from the Mexican border near the small town of Campo. 

O&M Cost Estimated “start-up” cost: $10,000. Estimated “annual” maintenance: $5,000.
Bureau of Land Management 2014 Budget Justifications

Chapter IX – Land Acquisition Page IX - 20

Big Morongo Canyon

Area of Critical Environmental Concern

DISCRETIONARY

CALIFORNIA Riverside and San Bernardino Counties Congressional District: 41

Location Southern California, 20 miles northeast 

of Palm Springs.

Acquired to Date

Method Acres1 Cost ($)

Purchase 6,150 1,944,500

Purpose Protect and preserve a desert riparian 

ecosystem which provides habitat for 

endangered species, a key wildlife 

corridor, and ecological processes. 

Consolidate Federal ownership and 

increase recreational access/public use.

Exchange2 0 0

Donation2 2,350 700,000

Other 0 0

Partners 0 0

Proposed for FY2014

Method Acres1 Cost ($)

Purchase

Opportunities

A major inholding has recently been 

acquired by Friends of the Desert 

Mountains for resale to BLM.

Purchase 738 1,330,000

Pending Future Action

Method Acres1 Cost ($)

Pending 2,040 2,270,000

1 Includes fee and conservation easement interest

2 For donation and exchange “Cost” = “value”

Partner Friends of the Desert Mountains.

Cooperators National Park Service, Coachella Valley Mountains Conservancy, California 

Department of Fish and Game, San Bernardino County Parks, City of Desert Hot 

Springs, The Wildlands Conservancy.

Project 

Description

The 31,000-acre Big Morongo Canyon Area of Critical Environmental Concern (ACEC) 

is a biologically rich area within the Little San Bernardino Mountains. Located just east 

of Highway 62 and north or Interstate 10, it is noted for its high species diversity, birdwatching opportunities, and recreational trails. Annual visitation is approximately 

60,000 persons per year. 

Big Morongo Canyon, in the heart of the ACEC, includes a lush desert oasis and one 

of the largest cottonwood-willow riparian and marsh habitats in the California desert.

The proposed acquisitions would conserve significant habitat for rare and endangered 

species, ecological processes, and a key wildlife corridor between the Little San 

Bernardino and San Bernardino Mountains. Species include the threatened desert 

tortoise, endangered triple-ribbed milkvetch and the BLM sensitive Little San 

Bernardino Mountains linanthus. The ACEC serves as a lambing and watering area 

for the desert bighorn sheep – the wildlife corridor is an annual migration route.

This acquisition is part of a larger initiative by the Coachella Valley Conservation 

Commission and others to acquire a number of parcels in and around the ACEC to 

meet important Coachella Valley Multiple Species Habitat Conservation Plan goals.

O&M Cost Estimated “start-up” cost: $10,000. Estimated “annual” maintenance: $5,000.
Bureau of Land Management 2014 Budget Justifications

Chapter IX – Land Acquisition Page IX - 21

Coachella Valley Fringe-Toed Lizard

Area of Critical Environmental Concern

DISCRETIONARY

CALIFORNIA Riverside County Congressional District: 45

Location Southern California, 10 miles northeast

of Palm Springs.

Acquired to Date

Method Acres1 Cost ($)

Purchase 1,274 2,825,000

Purpose Protect and preserve a desert fluvial

sand ecosystem which provides habitat 

for endangered species, a key wildlife 

corridor, and ecological processes. 

Consolidate Federal ownership.

Exchange2 6,723 9,770,000

Donation2 280 1,000,000

Other 162 200,000

Partners 0 0

Proposed for FY2014

Method Acres1 Cost ($)

Purchase

Opportunities

A major parcel has been acquired by 

Friends of the Desert Mountains for 

resale to BLM.

Purchase 1,971 1,971,000

Pending Future Action

Method Acres1 Cost ($)

Pending 2,930 3,808,000

1 Includes fee and conservation easement interest

2 For donation and exchange “Cost” = “value”

Partner Friends of the Desert Mountains.

Cooperators State of California, U.S. Fish and Wildlife Service, California Departments of Fish and 

Game and California Department of Parks and Recreation, Riverside County, National 

Park Service, Coachella Valley Mountains Conservancy.

Project 

Description

The Coachella Valley is a low-desert environment surrounded by steeply rising 

mountains to the southwest and north. The valleys and canyons form a desert oasis 

replete with scenic vistas, localized water, natural biodiversity, cultural heritage and 

recreational opportunities.

The ACEC provides a critical habitat linkage with the Joshua Tree National Park for 

wildlife movement, and protection of the fluvial sand transport system and hydrological 

regime that are essential for dunes communities. This project area supports numerous 

threatened and endangered species, including one of the Nation’s largest herds of 

Peninsular bighorn sheep, the least Bell’s vireo, populations of desert tortoise and 

Desert Slender salamander. The area contains a unique diversity of vegetation 

including Sonoran creosote bush scrub, Mojave mixed woody scrub, and fan palm 

oases are found among the areas’ perennial streams, springs, and seeps.

Rapid urbanization adjacent to and in the vicinity of the project area, including the 

communities of Palm Springs, Palm Desert, and La Quinta, threatens the viability of 

the area for maintaining the tremendous wildlife resource values in the project area.

The ACEC includes a diverse habitat, including open water in ponds, streams, 

marshes, closed canopy cover of trees, open scrub, sand dunes, and rocky slopes, 

among others. It provides key wildlife habitat and maintains a biological corridor 

linking the Coachella Valley Fringe-Toed Lizard Preserve (both the Coachella Valley 

Fringe-Toed Lizard ACEC and the Coachella Valley National Wildlife Refuge lie within 

the Preserve) and Joshua Tree National Park. In addition to the Coachella Valley 

Fringe-Toed Lizard, the area is known habitat for desert tortoise. 

O&M Cost Estimated “start-up” cost: $10,000. Estimated “annual” maintenance: $5,000.
Bureau of Land Management 2014 Budget Justifications

Chapter IX – Land Acquisition Page IX - 22

San Felipe/San Sebastian Marsh

Area of Critical Environmental Concern

DISCRETIONARY

CALIFORNIA Imperial County Congressional District: 51

Location Southern California, 30 miles northwest 

of El Centro.

Acquired to Date

Method Acres1 Cost ($)

Purchase 356 99,000

Purpose Protect and preserve a desert riparian 

ecosystem which provides habitat for 

endangered species, a key wildlife 

corridor and ecological processes. 

Consolidate Federal ownership.

Exchange2 0 0

Donation2 1,133 285,000

Other 80 36,000

Partners 1,213 320,000

Proposed for FY2014

Method Acres1 Cost ($)

Purchase

Opportunities

Parcels currently available for purchase 

in the Area of Critical Environmental 

Concern (ACEC).

Purchase 497 200,000

Pending Future Action

Method Acres1 Cost ($)

Pending 8,830 2,500,000

1 Includes fee and conservation easement interest

2 For donation and exchange “Cost” = “value”

Partner The Trust for Public Lands.

Cooperators California Department of Fish and Game, U.S. Fish and Wildlife Service, U.S. Bureau 

of Reclamation, U.S. Geological Survey, University of California at Davis.

Project 

Description

The San Felipe/San Sebastian Marsh ACEC is located in western Imperial County and 

is situated in a shallow basin varying in width from a few hundred feet to over a half of 

a mile, which drains northeast into the Salton Sea. This unique, water-based habitat 

along San Felipe Creek has supplied a permanent, dependable source of water for 

people and wildlife since ancient times. The marsh was a stopping place for the 

Spanish explorer de Anza, who named it after his Indian guide Sebastian Tarabel. 

The marsh is designated critical habitat for the desert pupfish, an endangered species.

An isolated population of the leopard frog has also been recorded. This area is 

contains a number of BLM sensitive bird species and a total of 88 different bird species 

has been observed here. Because of its importance in sustaining this unique 

marshland environment. San Felipe Creek is a registered National Natural Landmark. 

San Felipe Creek has also been designated an Area of Critical Environmental Concern 

(ACEC). 

The area around the creek and marsh are easily damaged and very sensitive. The 

marsh is closed to vehicle use, with closure of boundaries clearly posted. However, 

because the land ownership pattern is a checkerboard, managing this special habitat is 

very challenging. Land acquisitions can greatly assist in our management of this 

ACEC. San Sebastian Marsh is open to hiking and is a popular area for nature study. 

O&M Cost Estimated “start-up” cost: $10,000. Estimated “annual” maintenance: $5,000.
Bureau of Land Management 2014 Budget Justifications

Chapter IX – Land Acquisition Page IX - 23

Johnson Canyon

Area of Critical Environmental Concern

DISCRETIONARY

CALIFORNIA San Diego County Congressional District: 49

Location Southern California, approximately 50 

miles northeast of San Diego.

Acquired to Date

Method Acres1 Cost ($)

Purchase 186 234,000

Purpose Protect a desert riparian ecosystem that 

provides habitat for endangered 

species, consolidate Federal ownership 

to improve management and provide for 

public access.

Exchange2 0 0

Donation2 0 0

Other 1,789 4,660,500

Partners 1,603 4,000,000

Proposed for FY2014

Method Acres1 Cost ($)

Purchase

Opportunities

Parcels are currently available for 

purchase in the Area of Critical 

Environmental Concern (ACEC).

Purchase 295 1,060,000

Pending Future Action

Method Acres1 Cost ($)

Pending 375 1,000,000

1 Includes fee and conservation easement interest

2 For donation and exchange “Cost” = “value”

Partner The Conservation Fund.

Cooperators Resources Legacy Fund Foundation, Anza-Borrego Foundation, Back Country Land 

Trust of San Diego County, North San Diego County Multiple Species Conservation 

Program Task Force of the Sierra Club - San Diego Chapter, The Wilderness Society.

Project 

Description

The Adams parcel is within the Beauty Mountain Management Area and lies within and 

adjacent to the Johnson Canyon ACEC. The property is contiguous to BLM lands on 

its eastern and southeastern borders and the ACEC is contiguous to Cleveland 

National Forest lands on its southern border. The South Coast Resource Management 

Plan established a goal of acquiring lands within both this management area and 

adjacent to this ACEC due to its high value resource and recreational values.

Nearby BLM lands are within the Beauty Mountain Wilderness Area, a portion of which 

has been proposed by Congressman Issa for further wilderness protection. Eastward, 

the Johnson Canyon ACEC BLM lands meet the Anza Borrego Desert State Park 

boundary.

Because of this adjacency to thousands of acres of publicly owned lands, the 

acquisition of the Adams property will provide a vital wilderness linkage and help to 

offset increasing development pressure in this sensitive ecological area. The ACEC 

adjoins Anza-Borrego Desert State Park and designated State Wilderness as well as 

provides important connectivity for habitat and wildlife movement between protected 

lands in the Cleveland National Forest, Anza-Borrego Desert State Park and 

Wilderness, and the Beauty Mountain Wilderness. Most importantly, these lands are 

within a key wildlife linkage identified in the interagency and hugely collaborative 

“South Coast Missing Linkages Project, A Linkage Design for the Palomar-San 

Jacinto/Santa Rosa Connection” dated May 2006.

O&M Cost Estimated “start-up” cost: $10,000. Estimated “annual” maintenance: $5,000.
Bureau of Land Management 2014 Budget Justifications

Chapter IX – Land Acquisition Page IX - 24

Dos Palmas

Area of Critical Environmental Concern

DISCRETIONARY

CALIFORNIA Riverside County Congressional District: 45

Location Southern California, approximately 50 

miles southeast of Palm Springs.

Acquired to Date

Method Acres1 Cost ($)

Purchase 1,400 1,200,000

Purpose Protect a desert riparian ecosystem 

which provides habitat for endangered 

species, consolidate Federal ownership 

to improve management and provide for 

and public access.

Exchange2 1,200 1,900,000

Donation2 60 60,000

Other 0 0

Partners 1,200 3,500,000

Proposed for FY2014

Method Acres1 Cost ($)

Purchase

Opportunities

Multiple inholdings have been acquired 

by Friends of the Desert Mountains for 

resale to BLM.

Purchase 176 850,000

Pending Future Action

Method Acres1 Cost ($)

Pending 7,000 3,500,000

1 Includes fee and conservation easement interest

2 For donation and exchange “Cost” = “value”

Partner Friends of the Desert Mountains.

Cooperators Bureau of Reclamation, Coachella Valley Mountains Conservancy, California 

Department of Transportation, San Diego County Water Authority, Coachella Valley 

Water District, Center for Natural Lands Management, Coachella Valley Conservation 

Commission, The Nature Conservancy.

Project 

Description

The Dos Palmas Area of Critical Environmental Concern (ACEC) was designated the 

Salt Creek Desert Pupfish/Rail Habitat ACEC in the Bureau of Land Management’s 

1980 California Desert Conservation Area (CDCA) Plan, and was expanded and 

renamed the Dos Palmas ACEC in a 1998 amendment to the CDCA Plan. It is part of 

a larger Conservation Area designated in the Coachella Valley Multiple Species 

Habitat Conservation Plan/Natural Community Conservation Plan, approved in 2008 

by USFWS and the California Department of Fish and Game. Under this plan, the 

14,880 acre ACEC is part of the larger Dos Palmas Conservation Area, which includes 

an additional 10,180 acres to be conserved by a local, State, and Federal partnership. 

Other agencies, including water districts and Caltrans have acquired lands in the 

ACEC and the Conservation Area as mitigation for projects, including lining of the 

Coachella Canal to prevent water loss and local area highway improvements.

The ACEC protects a desert riparian ecosystem which provides habitat for the 

endangered Desert Pupfish and Yuma Clapper Rail. Seeps and springs in the area 

form a freshwater marsh draining into Salt Creek and on to the Salton Sea. The 

surrounding upland areas provide habitat for the flat-tailed horned lizard, a California 

Species of Special Concern. The area receives an estimated 5,000 annual visits. 

BLM actively manages the ACEC to remove non-native vegetation, (primarily tamarisk) 

and to maintain water levels in ponds. BLM and the public currently access the ACEC 

over an existing road, which crosses over the private property proposed for acquisition.

O&M Cost Estimated “start-up” cost: $5,000. Estimated “annual” maintenance: $2,000.
Bureau of Land Management 2014 Budget Justifications

Chapter IX – Land Acquisition Page IX - 25

Cascade-Siskiyou National Monument

MANDATORY

OREGON Jackson County Congressional District: 2

Location Southwest Oregon, 11 miles southeast 

of Ashland.

Acquired to Date

Method Acres1 Cost ($)

Purchase 8,378 11,693,684

Purpose Consolidate checkerboard land 

ownership pattern within the Monument 

to conserve and restore native and 

endemic plants and habitats within the 

greater Klamath-Cascade eco-region.

Exchange2 0 0

Donation2 0 0

Other 147 66,500

Partners 0 0

Proposed for FY2014

Method Acres1 Cost ($)

Purchase

Opportunities

Acquisition of key lands from willing 

sellers in order to increase the 

connectivity of protected monument 

lands and biologic, geologic, and 

hydrologic resources.

Purchase 1,320 2,000,000

Pending Future Action

Method Acres1 Cost ($)

Pending 23,697 25,000,000

1 Includes fee and conservation easement interest

2 For donation and exchange “Cost” = “value”

Partners The Conservation Fund, The Pacific Forest Trust.

Cooperators The Wilderness Society, Rocky Mountain Elk Foundation, Pacific Crest Trail 

Association, Soda Mountain Wilderness Council, Friends of the Cascade-Siskiyou 

National Monument, the Southern Oregon Lands Conservancy.

Project 

Description

Fir forests, oak groves, wildflower meadows and steep canyons make the 85,105-acre 

Cascade-Siskiyou National Monument (CSNM) an ecological wonder, with biological 

diversity unmatched in the Cascade Range. A tremendous variety of plants and animals make 

homes amidst the Monument’s towering forests, sunlit groves, wildflower-strewn meadows, and 

steep canyons. The Monument is a bird sanctuary, with more than 200 species identified, 

including the Northern Spotted Owl, the Great Gray Owl, the Peregrine Falcon and the Willow 

Flycatcher.

The properties proposed for acquisition include a mix of Douglas-fir, ponderosa pine, 

other conifers and oak species. They also contain alpine meadows supporting 

wildflowers including the rare Greene’s Mariposa Lily. The parcels are bordered by 

BLM-identified Old Growth Emphasis and Diversity Emphasis Areas including Soda 

Mountain Wilderness, and provide important connectivity within the Monument’s

ecosystem. Several parcels make up the “land bridge” between the mountain systems 

and the Eco-regions. Multiple properties include cold-water springs containing rare 

and endemic snails. The CSNM provides habitat for three endemic bureau sensitive 

fish species: Jenny Creek suckers, the speckled dace and a long-isolated stock of 

redband trout. The lands support populations of white-headed woodpecker, western 

pond turtle and beaver. 

Several tracts include, abut, or are within the viewshed of a popular section of the 

2,638-mile Pacific Crest National Scenic Trail (NST). The Pacific Crest NST acts as 

the “gateway” to the Monument from Interstate 5.

O&M Cost Estimated “start-up” cost: $15,000. Estimated “annual” maintenance: $5,000.
Bureau of Land Management 2014 Budget Justifications

Chapter IX – Land Acquisition Page IX - 26

Ironwood Forest National Monument

MANDATORY

ARIZONA Pima County Congressional District: 7

Location Southeast Arizona, approximately 25 

miles northwest of Tucson.

Acquired to Date

Method Acres1 Cost ($)

Purchase 0 0

Purpose To prevent residential development and 

mining within Ironwood Forest National 

Monument, and provide long-term 

protection of ecosystem, open space, 

species and watershed values.

Exchange2 41 24,500

Donation2 0 0

Other 0 0

Partners 0 0

Proposed for FY2014

Method Acres1 Cost ($)

Purchase

Opportunities

One inholding parcel is available from a 

highly-motivated willing seller. 

Acquisition of the parcels would 

consolidate land ownership and further 

the protection of Monument objects.

Purchase 612 1,000,000

Pending Future Action

Method Acres1 Cost ($)

Pending 5,760 14,000,000

1 Includes fee and conservation easement interest

2 For donation and exchange “Cost” = “value”

Partner Arizona Land and Water Trust.

Cooperators Tohono O’odham Indian Nation, Pima County, National Trust for Historic Preservation, 

Friends of Ironwood Forest,

Project 

Description

Taking its name from one of the longest living trees in the Arizona desert, the 129,000-

acre Ironwood Forest National Monument is a true Sonoran Desert showcase. The 

Ironwood is a very long-lived tree, with some specimens estimated to be more than 

800 years old. Ironwood is a keystone species because it provides a nursery 

environment of shade and protection that enables young seedlings of other species to 

become established despite the harsh desert climate, where night-time lows can 

exceed 105°F. Studies by the Arizona-Sonora Desert Museum have documented 560 

plant species. Resident birdwatchers have documented more than 80 species of 

migratory and non-migratory birds.

The proposal involves the proposed acquisition of one property. The parcel has been 

proposed for residential development in the recent past, and the local economic 

downturn has prompted the landowner to express a willingness to sell. The Silverbell 

parcel is located in the heart of the Monument. An acquisition would allow public 

access to the peak of Ragged Top Mountain, the Monument’s crown jewel. The 

Silverbell parcel also provides habitat to a small population of Nichol Turk’s Head 

cactus, occurring in localized limestone-rich areas. The Nichol Turk’s Head is a very 

slow-growing cactus, and was listed as endangered in 1976 and has an approved 

recovery plan.

More than 200 Hohokam and Paleoindian archaeological sites dated between 600 and 

1450 (including many petroglyphs) have been identified within the Monument, some 

are likely to occur on this tract. Acquisition of this property would improve future 

access to Monument lands, increase recreational amenities, protect plant and animal 

habitat, and limit the rapidly encroaching rural residential development occurring in the 

area.

The Arizona Land and Water Trust has been conducting pre-purchase actions 

associated with these parcels, after receiving favorable support from the BLM.

O&M Cost Estimated “start-up” cost: $5,000. Estimated “annual” maintenance: $1,000.
Bureau of Land Management 2014 Budget Justifications

Chapter IX – Land Acquisition Page IX - 27

Crooked National Wild and Scenic River

MANDATORY

OREGON Jefferson County Congressional District: 2

Location Central Oregon, approximately 40 miles 

northwest of Bend.

Acquired to Date

Method Acres1 Cost ($)

Purchase 0 0

Purpose Acquire lands within the Crooked 

National Wild and Scenic River corridor 

containing important cultural and 

resource value and provide opportunity 

for improved public access.

Exchange2 0 0

Donation2 0 0

Other 0 0

Partners 0 0

Proposed for FY2014

Method Acres1 Cost ($)

Purchase

Opportunities

Strategic parcel within the Crooked 

National Wild and Scenic River corridor

with nearly a mile of river frontage. 

Parcel is highly vulnerable to rural 

residential development.

Purchase 101 975,000

Pending Future Action

Method Acres1 Cost ($)

Pending 0 0

1 Includes fee and conservation easement interest

2 For donation and exchange “Cost” = “value”

Partner The Trust for Public Land.

Cooperators U.S. Forest Service, American Whitewater, Oregon Natural Desert Association, 

Northwest Steelheaders Association.

Project 

Description

The Crooked National Wild and Scenic River cuts a dramatic 800-foot canyon deep 

into the basalt plateau of Central Oregon. This scenic river canyon borders the 

Crooked River National Grassland (administered by the U.S. Forest Service) and the 

Crooked River Ranch Subdivision with a growing population of 4,500 residents. 

Recreational access (including hunter and angler access) into the canyon is extremely 

limited and the parcel proposed for acquisition offers the best trail into the canyon.

The parcel provides excellent habitat for several sensitive fish species including

Summer Steelhead, Spring Chinook and Red Band Trout. Raptors found in the 

canyon include golden eagles, red tail hawks and prairie falcon. Beaver and river otter 

are present and the California Floater Mussel, a candidate species, has been recently 

discovered in the river.

This stretch of river contains a unique hydrologic system with significant spring flows 

that add 1,200 cubic feet per second (CFS) to the flow in a distance of seven miles. 

This ground water inflow can constitute over 95% of the river’s flow during the summer 

low flows.

The canyons and surrounding plateaus are rich in historic homesteads and prehistoric 

pictographs. Historic artifacts related to a hydro-ram pumping system and associated 

ladders that lifted water from the river to the canyon rim are present on the parcel. The 

parcel proposed for acquisition contains some of the area’s best pictograph sites. The 

Crooked River offers outstanding primitive recreation opportunities, solitude, and a 

high degree of physical challenge. Opportunities include world-class whitewater 

kayaking, fishing, bird watching, hiking, sight-seeing, and nature photography.

O&M Cost Estimated “start-up” cost: $5,000. Estimated “annual” maintenance: $5,000.
Bureau of Land Management 2014 Budget Justifications

Chapter IX – Land Acquisition Page IX - 28

North Platte River

Special Recreation Management Area

MANDATORY

WYOMING Natrona County Congressional District: 1

Location Central Wyoming, up to 50 miles 

southwest of Casper.

Acquired to Date

Method Acres1 Cost ($)

Purchase 1,063 6,996,000

Purpose Enhance public recreation 

opportunities, preserve riparian/wetland 

and endangered species habitat along 

the North Platte River, and conserve 

Greater Sage-Grouse habitat.

Exchange2 0 0

Donation2 0 0

Other 0 0

Partners 713 890,000

Proposed for FY2014

Method Acres1 Cost ($)

Purchase

Opportunities

A strategic riverfront property, facing 

threats from commercial and rural 

residential development, is immediately 

available.

Purchase 70 900,000

Pending Future Action

Method Acres1 Cost ($)

Pending 36,550 40,421,000

1 Includes fee and conservation easement interest

2 For donation and exchange “Cost” = “value”

Partner The Conservation Fund.

Cooperators Wyoming Game and Fish Department (WGFD), Platte River Parkway Trust, Wyoming 

Fly Casters, North Platte Walleyes Unlimited.

Project 

Description

Weaving a fragile thread of green through the high plains of central Wyoming, the 

vegetative corridor hugging the banks of the North Platte River represents the rarest of 

Western ecosystems, only 1% of land in Wyoming constitutes riparian/wetland habitat.

The 4,600-acre North Platte River Special Recreation Management Area (SRMA) 

includes a 45-mile segment of the North Platte, between Pathfinder National Wildlife 

Refuge (administered by the U.S. Fish and Wildlife Service) and the City of Casper. 

While the flow of the North Platte is regulated, the river remains lightly impacted by

agriculture, mining, and rural residential subdivision. Native cottonwood stands along 

the river are critical to a wintering bald eagle population. The Oregon, California, 

Mormon Pioneer, and Pony Express National Historic Trails, diverging from and 

interpreted at Casper’s National Historic Trails Interpretive Center led pioneers along 

the natural contour of the North Platte River valley more than a century ago.

An intermingled land ownership pattern stymies public access to and use of the river.

Minutes away from Casper’s 50,000 residents, local outdoor enthusiasts and area

visitors have turned to the BLM to address their growing demand for river access. The 

popularity of the Platte River Parkway, Casper’s highly successful “greenway” project 

initiated in 1982, and public fishing access easements purchased by the Wyoming 

Game and Fish Department along the North Platte are indicators of public use. The 

North Platte is regarded by the WGFD as a "Blue Ribbon/Class I" trout fishery.

Over 62,000 acres of sage-grouse core area combine with abundant natural 

resources, amidst vast relatively untrammeled landscapes. Short grass prairies and 

sagebrush steppe communities are intermixed with mountain shrubs bounded by 

riparian corridors. Uplifts along with sandstone hogbacks and cuestas add color and 

create diversity in this vast landscape. The combination of these varied components is 

critical to the life cycle and long-term survival of the sage-grouse.

O&M Cost Estimated “start-up” cost: $5,000. Estimated “annual” maintenance: $5,000.
Bureau of Land Management 2014 Budget Justifications

Chapter IX – Land Acquisition Page IX - 29

Nez Perce (Nee-Me-Poo)/Lewis and Clark National Historic Trails/

Upper Missouri National Wild and Scenic River

MANDATORY

MONTANA Blaine County Congressional District: 1

Location Central Montana, 70 miles northeast of 

Lewistown on the Missouri River.

Acquired to Date

Method Acres1 Cost ($)

Purchase 10,055 4,540,000

Purpose Preserve a historic landscape 

associated with two National Historic 

Trails and the Upper Missouri National 

Wild and Scenic River and enhance 

recreational opportunities.

Exchange2 110 28,000

Donation2 0 0

Other 0 0

Partners 0 0

Proposed for FY2014

Method Acres1 Cost ($)

Purchase

Opportunities

One inholding property available from a 

highly-motivated willing seller at the 

confluence of the Missouri River and 

Cow Creek. The property faces 

potential threat of rural residential 

and/or recreational development.

Purchase 779 1,600,000

Pending Future Action

Method Acres1 Cost ($)

Pending 34,110 23,877,000 1

Includes fee and conservation easement interest

2

For donation and exchange “cost” = “value”

Partner The Conservation Fund.

Cooperators National Trust for Historic Preservation, Montana Wildlife Federation, Montana 

Wilderness Association, Montana Preservation Alliance, Lewis and Clark Trust, Inc.

Project 

Description

Flowing beneath the blue of central Montana’s vast “Big Sky” country through some of 

the most isolated lands in the continental United States, this 149-mile segment of the 

Missouri was designated as a National Wild and Scenic River (NWSR) in 1976. Here, 

the Missouri flows through a geologically stark landscape of rugged and sparsely 

vegetated uplands, deeply eroded badlands exposing geology’s layered millenia, and 

sporadic cottonwood galleries – all a testament to the river’s power. 

Along this course of the Missouri the tread of the 3,700-mile Lewis and Clark National 

Historic Trail is historically braided with the river’s riparian corridor. The remote 

landscape contains a spectacular array of biological, historical, geological, cultural, and 

wildlife resources, while offering opportunities for solitude. This isolation provides an 

unspoiled, natural setting for outstanding recreational and cultural tourism 

opportunities. The remote nature of this segment of the Missouri River has buffered it 

from most human influence and maintains the same vistas experienced by the Lewis 

and Clark expedition in 1805 and 1806. Acquisition of this riverfront and breaks/upland 

property, at the confluence of the Missouri River and Cow Creek, would preserve the 

scenic beauty and wild experience of the area in perpetuity.

Cow Creek, a sizeable tributary to the Missouri River, provided a natural trail to the 

river through the steep surrounding country, and the solid river bottom created a 

natural ford known to native people for thousands of years. Later, explorers, trappers, 

traders and others used this area in the same manner as well as for camping, 

steamboat landings and homesteading. Decaying remnants of abandoned 

homesteads remain. In 1877, Chief Joseph led the Nez Perce toward Canada to avoid 

being confined to a reservation. The Nez Perce National Historic Trail crosses the 

Missouri River at this location.

O&M Cost Estimated “start-up” cost: $1,000 Estimated “annual” maintenance: $1,000
Bureau of Land Management 2014 Budget Justifications

Chapter IX – Land Acquisition Page IX - 30

Pacific Crest National Scenic Trail

Oregon

MANDATORY

OREGON Jackson County Congressional District: 2

Location Southwest Oregon, 11 miles southeast 

of Ashland.

Acquired to Date

Method Acres1 Cost ($)

Purchase 220 37,000

Purpose Acquire a parcel of private property 

containing the tread of the Pacific Crest 

National Scenic Trail. The parcel lies 

west of Cascade-Siskiyou National 

Monument.

Exchange2 0 0

Donation2 0 0

Other 0 0

Partners 0 0

Proposed for FY2014

Method Acres1 Cost ($)

Purchase

Opportunities

One parcel is available from a highlymotivated willing seller and has been 

negotiated for purchase with a third 

party partner for resale to BLM. The 

parcel is threatened with rural 

residential development and use which 

would be incompatible with Trail use.

Purchase 3,573 4,122,260

Pending Future Action

Method Acres1 Cost ($)

Pending 4,142 3,886,000

1 Includes fee and conservation easement interest

2 For donation and exchange “Cost” = “value”

Partner Pacific Forest Trust.

Cooperators Pacific Crest Trail Association, The Conservation Fund, The Wilderness Society, 

Rocky Mountain Elk Foundation, Soda Mountain Wilderness Council, Friends of the 

Cascade-Siskiyou National Monument, the Southern Oregon Lands Conservancy.

Project 

Description

From scorching desert valleys in Southern California to rain forests in the Pacific 

Northwest, the 2,663-mile long Pacific Crest National Scenic Trail (NST) offers hikers 

and equestrians a unique, varied experience from Mexico to Canada through three 

western states. It reveals the beauty of the desert, unfolds the glaciated expanses of 

the Sierra Nevada, and provides commanding vistas of volcanic peaks and glaciers in 

the Cascade Range. The trail also passes through historic mining sites and evidence 

of man’s endless quest for natural resources.

The Pacific Crest NST was congressionally designated a National Scenic Trail in 1968. 

Thousands of hikers and equestrians enjoy this national treasure each year. Some 

only travel a few miles, while others complete every mile in a single season. About 

300 hikers attempt to cover the full length of the Pacific Crest NST each year.

The BLM-managed portion of the Pacific Crest NST crosses approximately 50 parcels 

of private property in Oregon, totaling over 7,700 acres. The request focuses on a 

parcel of private land immediately west of Cascade-Siskiyou National Monument, 

crossed by a mile of the Pacific Crest NST. Numerous recent purchases within 

Cascade-Siskiyou National Monument have included portions of the Pacific Crest NST. 

The parcel is currently available from a willing seller.

O&M Cost Estimated “start-up” cost: $1,000. Estimated “annual” maintenance: $10,000.
Bureau of Land Management 2014 Budget Justifications

Chapter IX – Land Acquisition Page IX - 31

Red Cliffs National Conservation Area

MANDATORY

UTAH Washington County Congressional District: 2

Location Southwest Utah, immediately north of 

St. George.

Acquired to Date

Method Acres1 Cost ($)

Purchase 1,953 17,231,983

Purpose Consolidate land ownership pattern 

within the Red Cliffs National 

Conservation Area (NCA) to improve 

management of designated critical 

habitat for the Federally-listed 

threatened Mojave Desert tortoise.

Exchange2 4,643 28,407,573

Donation2 0 0

Other 0 0

Partners 546 21,741,197

Proposed for FY2014

Method Acres1 Cost ($)

Purchase

Opportunities

Acquisition would eliminate threat of 

development which is inconsistent with 

NCA management and provide for 

continued growth and development of 

nearby communities.

Purchase 100 4,000,000

Pending Future Action

Method Acres1 Cost ($)

Pending 6,620 132,000,000

1 Includes fee and conservation easement interest 2 For donation and exchange “Cost” = “value”

Partner The Trust for Public Land.

Cooperators U.S. Fish and Wildlife Service, Utah Department of Natural Resources, Washington 

County, City of St. George, Washington County Water Conservancy District, The 

Nature Conservancy, the Saint George business community.

Project 

Description

Known for its spectacular red rock canyons and basaltic lava flows, the 45,000-acre

Red Cliffs NCA is surrounded by the towering Pine Valley Mountains and the Dixie 

National Forest to the north and an arc of growing communities to the south. The 

Omnibus Public Land Management Act of 2009 designated the Red Cliffs NCA to 

conserve, protect, and enhance ecological, scenic, wildlife, recreational, cultural, 

historical, natural, educational, and scientific resources. The legislation directed the 

BLM to develop a resource management plan for the Red Cliffs NCA to guide longrange management and provide protection to those resources for which the NCA was 

designated.

The NCA is a major component of the 62,000-acre Red Cliffs Desert Reserve, a multijurisdictional land base collaboratively managed by BLM, the State of Utah, 

Washington County, and local municipalities since 1996 to protect populations and 

habitat of the threatened Mojave Desert tortoise and other at-risk native plant and 

animal species. Acquisition of inholdings within the NCA would satisfy goals from the 

Mojave Desert Tortoise Recovery Plan (USFWS/1994) related to the protection of 

tortoise populations and preservation of critical habitat.

The NCA boundary is adjacent to the Dixie National Forest and Snow Canyon State 

Park. The NCA is the largest block of undeveloped land contiguous to one of the 

fastest-growing metropolitan area in the nation. In 2010, the U.S. Census Bureau 

reported the population in Washington County to be 138,115. St. George is projected 

to grow from its current 140,000 residents to 700,000 residents by 2050. The area 

offers the recreating public a wide variety of options, including camping and day use 

areas, challenges offered by more than 130 miles of non-motorized trails, and remote 

scenic vistas and solitude at Red Mountain Wilderness and Cottonwood Canyon 

Wilderness. In addition to LWCF appropriations, funding from specific land sale 

authority, land exchanges, and partnering with third party partners are being pursued.

O&M Cost Estimated “start-up” cost: $50,000. Estimated “annual” maintenance: $5,000.
Bureau of Land Management 2014 Budget Justifications

Chapter IX – Land Acquisition Page IX - 32

 

Agua Fria National Monument

MANDATORY

ARIZONA Yavapai County Congressional District: 2

Location Central Arizona; approximately 40 miles 

north of the Phoenix metropolitan area.

Acquired to Date

Method Acres1 Cost ($)

Purchase 0 0

Purpose Enhance management efficiency and 

preservation of Monument values and 

objects, including open space, 

recreation opportunities, and cultural 

resources.

Exchange2 160 288,000

Donation2 0 0

Other 0 0

Partners 199 3,300,000

Proposed for FY2014

Method Acres1 Cost ($)

Purchase

Opportunities

One small parcel (Phase I) is available 

from a willing seller. The parcel is 

highly threatened by rural residential 

development. 

Purchase 40 110,740

Pending Future Action

Method Acres1 Cost ($)

Pending 1,316 5,575,000

1 Includes fee and conservation easement interest

2 For donation and exchange “Cost” = “value”

Partner The Conservation Fund.

Cooperators U.S. Forest Service, Arizona Game and Fish Department, The Trust for Public Land, 

National Trust for Historic Preservation, Friends of the Agua Fria. There is strong 

community and user group support.

Project 

Description

Adjacent to rapidly expanding communities, the 71,000-acre Agua Fria National 

Monument is located on a high plateau cut by the canyon of the Agua Fria River. 

Ephemeral and perennial drainages that confluence with the Agua Fria shelter 

valuable ribbons of riparian forest. These riparian features, within this semi-desert 

environment, contribute to outstanding biological resources. The diversity of 

vegetative communities, topographic features, and a dormant volcano accentuate a 

rocky landscape. The Agua Fria river canyon cuts through this plateau exposing 

precambrian rock along the canyon walls. Elevations range from 2,150 feet above sea 

level along the Agua Fria Canyon to about 4,600 feet in the northern hills. This 

expansive mosaic of semi-desert area and the associated riparian forest, offers one of 

the most significant systems of prehistoric sites in the American Southwest.

The Monument encases many significant archaeological sites, including distinctive 

rock art, settlements, stone pueblos and clusters of pueblos and forts, all amid visually 

spectacular settings. The extraordinary array of biological and scientific resources, 

include riparian areas, upland high-desert grasslands, year-round flowing streams, and 

a 21-mile segment of the Agua Fria River. This segment of the Agua Fria River is 

proposed for designation as a National Wild and Scenic River. 

The upland property proposed for acquisition is an isolated Monument inholding, 

completely surrounded by BLM-managed public land. The uplands encompass 

numerous pueblo ruins, rock art sites, and artifact scatters. The property is highly 

scenic and includes dense stands of saguaro cacti, and other rare plant species. 

Acquisition would contribute to maintaining connectedness and resource integrity of 

important grassland habitat types as part of the Central Arizona Grasslands Strategy. 

O&M Cost Estimated “start-up” cost: $2,500. Estimated “annual” maintenance: $2,000.
Bureau of Land Management 2014 Budget Justifications

Chapter IX – Land Acquisition Page IX - 33

Dominguez-Escalante National Conservation Area

MANDATORY

COLORADO Delta, Mesa and Montrose Counties Congressional District: 3

Location West Central Colorado, approximately 8

miles south of Grand Junction.

Acquired to Date

Method Acres1 Cost ($)

Purchase 825 3,621,500

Purpose Acquisition of a critical inholding for 

endangered fish habitat preservation, 

riparian and scenic resource protection, 

and recreational opportunity 

enhancement.

Exchange2 0 0

Donation2 0 0

Other 0 0

Partners 0 0

Proposed for FY2014

Method Acres1 Cost ($)

Purchase

Opportunities

One parcel of private land within the 

Dominguez-Escalante National 

Conservation Area (NCA) and with 

frontage on the Gunnison River is 

available for purchase from a willing 

seller.

Purchase 135 600,000

Pending Future Action

Method Acres1 Cost ($)

Pending 7,560 15,000,000

1 Includes fee and conservation easement interest

2 For donation and exchange “Cost” = “value”

Partner Western Rivers Conservancy.

Cooperators U.S. Fish and Wildlife Service, Colorado Division of Wildlife, Colorado Environmental 

Coalition, American Rivers, Audubon Society, Colorado River Outfitters Association, 

Trout Unlimited.

Project 

Description

The 210,000-acre Dominguez-Escalante NCA, encompassing a 66,000-acre 

wilderness area, was established to protect its geological, cultural, paleontological, 

wilderness, recreation, wildlife, riparian, and scenic values. Spectacular red rock 

canyons and cliffs covered in pinion juniper forests hold geological and paleontological 

resources spanning 600 million years, as well as many cultural and historic sites. The 

Escalante, Cottonwood, Little- and Big Dominguez Creeks, draining the eastern 

Uncompahgre Plateau, confluence with the nearly 30 miles of the Gunnison River that 

flow through the NCA. The Gunnison River is designated critical habitat for two 

endangered fish species. Threatened plant species, and rare and diverse wildlife call 

the area home, including desert bighorn sheep, mule deer, golden eagle, mountain 

lion, black bear, and elk. The area is bounded by the BLM’s Bangs Canyon Special 

Recreation Management Area and the Uncompahgre National Forest, and 

encompasses and adjoins the Escalante State Wildlife Area.

The 135-acre Upchurch property includes approximately one mile of an alluvial bench 

along the Gunnison River. This section of the Gunnison is listed as critical habitat for 

two federally endangered fish species, and is potential habitat for two other federally 

endangered fish species. This parcel also contains other riparian, scenic, and 

recreation values. The Mesa Land Trust holds a conservation easement on the 

property, which allows development of two residential building sites and certain 

agricultural structures. This acquisition would provide an important link for a 

recreational trail along the Gunnison River from Whitewater to Delta and would protect 

the area from residential development by extinguishing the two reserved building sites. 

Development of the inholding property would be incompatible with the management 

objectives of the adjacent NCA lands.

O&M Cost Estimated “start-up” cost: $5,000. Estimated “annual” maintenance: $5,000.
Bureau of Land Management 2014 Budget Justifications

Chapter IX – Land Acquisition Page IX - 34

Henrys Lake

Area of Critical Environmental Concern

MANDATORY

IDAHO Fremont County Congressional District: 2

Location Southeast Idaho, 14 miles west of 

Yellowstone National Park.

Acquired to Date

Method Acres1 Cost ($)

Purchase 2,076 2,357,192

Purpose Continue a highly successful 

conservation easement purchase 

program to conserve working ranch 

land, open spaces, wetlands, and 

wildlife habitat for recreation.

Exchange2 383 1,005,000

Donation2 N/A 93,000

Other 597 374,180

Partners 2,791 4,639,080

Proposed for FY2014

Method Acres1 Cost ($)

Purchase

Opportunities

Excellent opportunities to protect 

remaining ranch lands by providing a 

significant economic incentive to keep 

these ranch properties intact.

Purchase 515 1,000,000

Pending Future Action

Method Acres1 Cost ($)

Pending 5,000 6,000,000

1 Includes fee and conservation easement interest 2 For donation and exchange “Cost” = “value”

Partner The Nature Conservancy.

Cooperators Teton Regional Land Trust, Idaho Department of Fish & Game, Henrys Fork Legacy 

Project, Greater Yellowstone Coalition, Henrys Fork Foundation.

Project 

Description

On the western doorstep of Yellowstone National Park and surrounded by the 

Continental Divide, the 35,875-acre Henrys Lake Area of Critical Environmental 

Concern’s exceptional aesthetic and wildlife values have been an attraction to 

generations of Americans who have fished, hiked, hunted, skied and snowmobiled 

here. The area offers high quality open space, rangeland, streams, wetlands, and 

wildlife and fish resources to the approximately 4,000,000 annual visitors who pass 

through the project area. Antelope, elk, moose, and mule deer utilize the region for 

summer/winter range and as a migratory corridor connecting summer range in 

Yellowstone National Park with winter range in Idaho and Montana. The worldrenowned Henrys Lake fishery is the last stronghold in the Henrys Fork basin for the 

Yellowstone cutthroat trout. White spruce/aspen forested wetlands on the east and 

north shores of the lake are globally rare and found nowhere else in the continental 

United States. Chief Joseph led his Nez Perce Tribe through the basin on his failed 

flight to Canada, their journey now represented by the Nez Perce National Historic 

Trail.

Working ranches in the area provide valuable summer range for cattle operations 

based throughout Idaho, contributing an important economic base for ranching 

families. Diverse recreation, attracted to the basin’s natural open space, provides a 

critical economic base to the local communities. To compensate for agricultural 

revenue shortfalls and to meet estate tax commitments, an increasing amount of these 

productive lands are being lost to second home and resort development, sacrificing the 

natural amenities of open space and wildlife, which originally attracted recreational 

development.

O&M Cost Estimated “start-up” cost: $5,000. Estimated “annual” maintenance: $5,000.
Bureau of Land Management 2014 Budget Justifications

Chapter IX – Land Acquisition Page IX - 35

2013 

Full 

Year 

CR

2012 

Enacted

2014

Change 

from 

2012 

Enacted

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Internal 

Transfers 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Inholding, Emergency

& Hardship ($000) 1,506 1,498 +0 +0 +118 1,616 +118

FTE 0 0 +0 +0 +0 0 +0

Summary of 2014 Program Changes for Inholding, Emergency & Hardship

Request Component ($000) FTE

Program Changes:

• General Program Increase +118 0

TOTAL, Program Changes +118 0

1) Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

JUSTIFICATION OF 2014 PROGRAM CHANGES

The 2014 budget request for the Inholding, Emergency and Hardship program is $1,616,000 

and 0 FTE, a program increase of $118,000 from the 2012 enacted level. 

General Program Increase (+$118,000/0 FTE) – The BLM will continue to acquire lands 

available on short notice on a case-by-case basis. Funding will prevent adverse land use that 

may conflict with management objectives for adjacent public lands.

PROGRAM OVERVIEW

The Inholding, Emergency and Hardship program allows the BLM to promote conservation of 

natural landscapes and resources by consolidating privately owned land with publicly owned 

land when properties become available on short notice and would not remain available unless 

immediate action is taken. The availability of funds for Inholding, Emergency, and Hardship 

purchases permits timely actions to alleviate hardships and prevent adverse land use that may 

conflict with management objectives for adjacent public lands. The BLM’s parcels targeted for 

purchase with these funds, although typically small and generally inexpensive, conserve and 

protect cultural and historic resources, permit retention of increasingly limited open spaces, 

preserve wildlife habitat and wilderness, enhance public recreation opportunities, and are 

strongly supported for Federal acquisition by local communities.

2014 PROGRAM PERFORMANCE

In 2014, the BLM will respond to field requests for Inholding, Emergency and Hardship funding 

as they are submitted for consideration on a case-by-case basis. The Bureau will continue to 

focus on acquisitions that conserve and protect cultural and historic resources, retain open 

Activity: Land Acquisition

Subactivity: Inholding, Emergency and Hardship
Bureau of Land Management 2014 Budget Justifications

Chapter IX – Land Acquisition Page IX - 36

space, preserve wildlife habitat and wilderness, and enhance public recreation opportunities in 

the western U.S. in perpetuity.
Bureau of Land Management 2014 Budget Justifications

Chapter X – Land Acquisition Page IX - 37

Activity: Land Acquisition

Subactivity: Acquisition Management

2013 

Full 

Year 

CR

2012 

Enacted

2014

Change 

from 

2012 

Enacted

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Internal 

Transfers 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Acquisition 

Management ($000) 1,892 1,877 +21 +0 +0 1,898 +21

FTE 12 12 +0 +0 -1 11 -1

1) Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

JUSTIFICATION OF 2014 PROGRAM CHANGES

The 2014 budget request for the Acquisition Management program is $1,898,000 and 11 FTE. 

PROGRAM OVERVIEW

The Acquisition Management program completes the administrative tasks necessary for the 

Land Acquisition program to acquire land funded through the Land and Water Conservation 

Fund. Acquisition Management program funds are used for title research, appraisal, appraisal 

review, project planning, boundary surveys, relocation, taxes, escrow, closing, coordination with 

BLM multi-resource programs, and coordination with local governments and private parties.

The BLM closely monitors funds spent for processing costs associated with the purchase of 

land and interests in land. Processing costs typically range between $50,000 and $100,000 per 

project, depending on the complexity of title searches and appraisals, boundary surveys, the 

number of parcels contained in each purchase, costs associated with the purchase of 

conservation easements, and other factors. Close communication with field offices and close 

monitoring of funds spent, allows the BLM to allocate the appropriate amount of funding to each 

office.

The Acquisition Management program receives assistance from dozens of third-party partners 

such as the Audubon Society, the Conservation Fund, the Nature Conservancy, and the Trust 

for Public Land and the Wilderness Land Trust. These partners continually assist local 

communities and the BLM in supporting the acquisition and management of specific properties 

for cultural, recreational and wildlife values and to preserve open space. While the majority of 

these partners support acquisition of lands through grassroots political advocacy and long-term 

conservation management, some regional and national partners directly assist the BLM by 

becoming transactionally involved in the purchase of fee and conservation easement property 

interests. Approximately 80 percent of BLM purchase transactions are completed with the 

assistance of these third-party conservation partners. This assistance is a major cost savings 

for the BLM.
Bureau of Land Management 2014 Budget Justifications

Chapter X – Land Acquisition Page IX - 38

2014 PROGRAM PERFORMANCE

In 2014, the BLM will complete the administrative tasks necessary to acquire fee or easement 

interests in lands designated for purchase under the Land Acquisition program.
Bureau of Land Management 2014 Budget Justifications

Chapter X – Land Acquisition Page IX - 39

Budget Schedules - Current Law

Account Symbol and Title

14X5033

Land Acquisition

Line 2012 Act 2013 CY 2014 BY

Program and Financing (P) ($ in Millions)

Obligations by program activity:

 Land acquisition 0001 24 24 16

 Acquisition management 0002 2 3 2

Total new obligations 0900 26 27 18

Budgetary Resources:

 Unobligated balance:

 Unobligated balance brought forward, Oct 1 1000 19 15 10

 Budget authority:

 Appropriations, discretionary:

 Appropriation (special or trust fund) 1101 22 22 33

 Appropriation, discretionary (total) 1160 22 22 33

 Discretionary, Appropriations Committee

 Appropriation [Protected Conserving New 

Lands-LWCF] **OL Rates**

1160-40 22 22 33

 Baseline Non-Pay 1160-50 0 21 21

 Baseline Civilian Pay 1160-50 0 1 1

Total budgetary resources available 1930 41 37 43

 Memorandum (non-add) entries:

 Unexpired unobligated balance, end of year 1941 15 10 25

Change in obligated balance:

 Unpaid obligations:

 Unpaid obligations, brought forward, Oct 1 3000 2 3 6

 Obligations incurred, unexpired accounts 3010 26 27 18

 Outlays (gross) 3020 -25 -24 -19

 Unpaid obligations, end of year 3050 3 6 5

 Memorandum (non-add) entries:

 Obligated balance, start of year 3100 2 3 6

 Obligated balance, end of year 3200 3 6 5

Budget authority and outlays, net:

 Discretionary:

 Budget authority, gross 4000 22 22 33

 Outlays, gross:

 Outlays from new discretionary authority 4010 13 6 8

 Outlays from discretionary balances 4011 12 18 11

 Outlays, gross (total) 4020 25 24 19

 Budget authority, net (discretionary) 4070 22 22 33

 Outlays, net (discretionary) 4080 25 24 19
Bureau of Land Management 2014 Budget Justifications

Chapter X – Land Acquisition Page IX - 40

Budget Schedules - Current Law

Account Symbol and Title

14X5033

Land Acquisition

Line 2012 Act 2013 CY 2014 BY

Program and Financing (P) ($ in Millions)

Budget authority, net (total) 4180 22 22 33

Outlays, net (total) 4190 25 24 19

Object Classification (O) ($ in Millions)

Direct obligations:

Personnel compensation:

 Personnel compensation: Full-time permanent 1111 1 1 1

 Other services from non-Federal sources 1252 1 0 0

 Land and structures 1320 24 26 17

 Total new obligations 9999 26 27 18

 Physical assets:

 Major equipment:

 Purchases and sales of land and structures for Federal use:

 Direct Federal programs:

 Budget Authority 1340-01 22 22 33

 Outlays 1340-02 25 24 19

Employment Summary (Q)

Direct civilian full-time equivalent employment 1001 12 12 11

Appropriations Requests in Thousands of Dollars (T)

Budget year budgetary resources [14-5033] 1000 0 32,618
Bureau of Land Management 2014 Budget Justifications

Chapter X – Land Acquisition Page IX - 41

Budget Schedules - Proposal

Account Symbol and Title

14X5033

Land Acquisition

Line 2012 Act 2013 CY 2014 BY

Program and Financing (P) ($ in Millions)

Obligations by program activity:

 Land acquisition 0001 0 0 9

 Acquisition management 0002 0 0 1

Total new obligations (object class 32.0) 0900 0 0 10

Budgetary Resources:

 Budget authority:

 Appropriations, mandatory:

 Appropriations transferred from other accts [14-

5005]

1221 0 0 16

 Appropriations, mandatory (total) 1260 0 0 16

 Appropriations, mandatory - Computed Totals 1260-20 0 0 16

 Mandatory, Appropriations Committee

 Appropriation [LWCF] 1260-40 0 0 16

Total budgetary resources available 1930 0 0 16

 Memorandum (non-add) entries:

 Unexpired unobligated balance, end of year 1941 0 0 6

Change in obligated balance:

 Unpaid obligations:

 Unpaid obligations, brought forward, Oct 1 3000 0 0 0

 Obligations incurred, unexpired accounts 3010 0 0 10

 Unpaid obligations, end of year 3050 0 0 10

 Memorandum (non-add) entries:

 Obligated balance, start of year 3100 0 0 0

 Obligated balance, end of year 3200 0 0 10

Budget authority and outlays, net:

 Mandatory:

 Budget authority, gross 4090 0 0 16

 Budget authority, net (mandatory) 4160 0 0 16

Budget authority, net (total) 4180 0 0 16

Outlays, net (total) 4190 0 0 0

Object Classification (O) ($ in Millions)

Direct obligations:

Direct obligations: Land and structures 1320 0 0 10

 Physical assets:
Bureau of Land Management 2014 Budget Justifications

Chapter X – Land Acquisition Page IX - 42

Budget Schedules - Proposal

Account Symbol and Title

14X5033

Land Acquisition

Line 2012 Act 2013 CY 2014 BY

Program and Financing (P) ($ in Millions)

 Major equipment:

 Purchases and sales of land and structures for Federal use:

 Direct Federal programs:

 Budget Authority 1340-01 0 0 16

 Outlays 1340-02 0 0 0

Employment Summary (Q)

Direct civilian full-time equivalent employment 1001 0 0 0
Oregon and California

Grant Lands

Bureau of Land Management 2014 Budget Justifications

Chapter X – Oregon and California Grant Lands Page X - 1

OREGON AND CALIFORNIA

GRANT LANDS

APPROPRIATIONS LANGUAGE

For expenses necessary for management, protection, and development of resources and for 

construction, operation, and maintenance of access roads, reforestation, and other 

improvements on the revested Oregon and California Railroad grant lands, on other Federal 

lands in the Oregon and California land-grant counties of Oregon, and on adjacent rights-ofway; and acquisition of lands or interests therein, including existing connecting roads on or 

adjacent to such grant lands; 115,543,000, to remain available until expended: Provided, That 

25 percent of the aggregate of all receipts during the current fiscal year from the revested 

Oregon and California Railroad grant lands is hereby made charge against the Oregon and 

California land-grant fund and shall be transferred to the General Fund in the Treasury in 

accordance with the second paragraph of subsection (b) of title II of the Act of August 28, 1937 

50 Stat. 876). 

Note.—A full-year 2013 appropriation for this account was not enacted at the time the budget 

was prepared; therefore, this account is operating under a continuing resolution (P.L. 112–175). 

The amounts included for 2013 reflect the annualized level provided by the continuing 

resolution. 

APPROPRIATIONS LANGUAGE CITATIONS AND AUTHORIZATIONS

The Oregon and California Grant Lands Act of 1937 (43 U.S.C. 1181) provides for 

conservation, management, permanent forest production, and sale of timber from revested 

Oregon and California (O&C) grant lands and reconveyed Coos Bay Wagon Road (CBWR) 

grant lands located in western Oregon.

The Federal Land Policy and Management Act of 1976, 43 U.S.C. 1701 et seq., as 

amended, provides for the public lands to be generally retained in Federal ownership; for 

periodic and systematic inventory of the public lands and their resources; for a review of existing 

withdrawals and classifications; for establishing comprehensive rules and regulations for 

administering public land statutes; for multiple use management on a sustained yield basis; for 

protection of scientific, scenic, historical, ecological, environmental, air and atmospheric, water 

resource, and archaeological values; for receiving fair market value for the use of the public 

lands and their resources; for establishing uniform procedures for any disposal, acquisition, or 

exchange; for protecting areas of critical environmental concern; and for recognizing the 

Nation's need for domestic sources of minerals, food, timber, and fiber from the public lands, 

including implementation of the Mining and Minerals Policy Act of 1970.

The Federal Land Policy and Management Act applies to all public lands that include the 

O&C grant lands by definition (Sec. 103(e)). However, Sec. 701(b) of FLPMA (43 U.S.C. 1701

note) provides that if any provision of FLPMA is in conflict with or inconsistent with the O&C Act

and Coos Bay Wagon Road Act, insofar as they relate to management of timber resources and 

disposition of revenue from lands and resources, the latter Acts will prevail. In addition, many 
Bureau of Land Management 2014 Budget Justifications

Chapter X – Oregon and California Grant Lands Page X - 2

other Federal statutes regarding natural resource management and protection apply to the 

management of the O&C and CBWR grant lands in western Oregon.

The Act of May 24, 1939 (53 Stat. 753) relates to the disposition of funds from the CBWR grant 

lands located in western Oregon. 

The Timber Protection Act of 1922 (16 U.S.C. 594) provides for the protection of timber from 

fire, insects, and disease.

The Secure Rural Schools and Community Self-Determination Act of 2000 (P.L. 106-393)

authorizes stabilized payments to O&C and CBWR Counties for 2001 through 2006. Each 

county that received at least one payment during the eligibility period (1986-1999) received an 

amount equal to the average of the three highest 50-percent payments and safety net payments 

made for the years of the eligibility period. The payments were adjusted to reflect changes in 

the Consumer Price Index. The Act expired in 2006. The final payments for 2006 were made in 

2007, consistent with the Act.

P.L. 110-28 provided one additional year of payments to O&C grant lands and Coos Bay 

Wagon Road counties.

Sec. 601. of P.L. 110-343 Secure Rural Schools and Community Self-Determination 

Program provided an extension and ramping down of payments to the O&C grant lands and the

Coos Bay Wagon Road counties through fiscal year 2011.

P.L. 112-141 provided an extension of one year of payments to O&C grant lands and Coos Bay 

Wagon Road counties.

Public Land Order 5490, dated February 12, 1975, reserved all public lands in and west of 

Range 8 East of the Willamette Meridian and all lands within that area which hereinafter 

become public lands for multiple use management, including sustained yield of forest resources 

in connection with intermingled revested Oregon and California Railroad Grant Lands and 

reconveyed Coos Bay Wagon Road Grant Lands. 

Healthy Forest Restoration Act (P.L. 108-148) authorizes the BLM and the U.S. Forest 

Service to conduct hazardous fuels reduction projects on federal land in wildland-urban 

interface (WUI) areas and on certain other federal lands using expedited procedures.

Land Conveyance to Douglas County, Oregon, (P.L. 108-206) authorized conveyance to 

Douglas County, Oregon, of approximately 68.8 acres of BLM-managed land in Douglas County 

in order to improve management of and recreational access to the Oregon Dunes National 

Recreation Area. 
Bureau of Land Management 2014 Budget Justifications

Chapter X – Oregon and California Grant Lands Page X - 3

2013

Full Year CR

2012

Enacted Fixed 

Costs

Internal 

Transfers

Program 

Changes

(+/-)

2014

President's 

Budget

Change From 

2012 Enacted

FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount

Oregon and California Grant Lands

Western Oregon Construction and Acquisition

Acquisition Mgt. 3 313 3 310 +5 +0 +0 +0 3 315 0 +5

Total, Western Oregon Construction and 

Acquisition 3 313 3 310 +5 +0 +0 +0 3 315 0 +5

Western Oregon Transportation & Facilities 

Maintenance

Operations 0 19 2,081 +0 -2,081 -19 +0 0 0 -19 -2,081

Annual Maintenance 0 55 7,864 +0 -7,864 -55 +0 0 0 -55 -7,864

Deferred Maintenance 3 878 3 1,039 +0 -1,039 -3 +0 0 0 -3 -1,039

Operations and Annual Maintenance 74 10,030 [74] [0] +118 +9,945 +76 +0 76 10,063 +76 +10,063

Total, Western Oregon Transportation & Facilities 

Maintenance 77 10,908 77 10,984 +118 -1,039 -1 +0 76 10,063 -1 -921

Western Oregon Resources Management

Forest Management 279 32,301 279 32,060 +444 +0 -3 +1,801 276 34,305 -3 +2,245

Reforestation & Forest Development 140 23,799 140 23,622 +229 +0 +10 +0 150 23,851 +10 +229

Other Forest Resources 231 36,891 231 36,616 +369 +0 +0 +0 231 36,985 0 +369

Resource Management Planning 33 5,643 33 5,601 +52 +0 -7 +1,670 26 7,323 -7 +1,722

Total, Western Oregon Resources Management 683 98,634 683 97,899 +1,094 +0 +0 +3,471 683 102,464 +0 +4,565,

Western Oregon Information & Data Systems

Information Systems Operation & Maintenance 10 1,937 10 1,923 +17 +0 +1 +0 11 1,940 +1 +17

Total, Western Oregon Information & Data 

Systems 10 1,937 10 1,923 +17 +0 +1 +0 11 1,940 +1 +17

Nat'l Landscape Conservation System

Nat'l Monuments & Nat'l Cons. Areas 7 757 7 748 +13 +0 +2 +0 9 761 +2 +13

Nat'l Landscape Conservation System 7 757 7 748 +13 +0 +2 +0 9 761 +2 +13

Total, Oregon and California Grant Lands 780 112,549 780 111,864 +1,247 -1,039 +2 +3,471 782 115,543 +2 +3,679 
Bureau of Land Management 2014 Budget Justifications

Chapter X – Oregon and California Grant Lands Page X - 4

Justification of Fixed Costs and Internal Realignments

Oregon and California Grant Lands

(Dollars In Thousands)

Other Fixed Cost Changes and Projections 2012 Total 

or Change

2012 to 2014 

Change

Change in Number of Paid Days - +290 

The combined fixed cost estimate includes an adjustment for 

one additional paid day between FY2012 and FY2013. The 

number of paid days do not change between FY2013 and 

FY2014.

Pay Raise - +505 

The PY column reflects the total pay raise changes as reflected 

in the the PY President's Budget. The BY Change column 

reflects the total pay raise changes between FY2012-FY2014.

Employer Share of Federal Health Benefit Plans +452 

The change reflects expected increases in employer's share of 

Federal Health Benefit Plans.

Appropriation Description

The Oregon and California (O&C) grant lands appropriation provides for management of the 

revested O&C Railroad grant lands and the reconveyed Coos Bay Wagon Road (CBWR) grant 

lands. The BLM manages these lands for forest diversity and sustainability while providing an 

array of multiple-use benefits and services to local communities and the public (see discussion 

under each activity and subactivity). As mandated by the O&C Act of 1937 (43 U.S.C. 1181), 

these lands are managed for timber production under the principle of sustained yield. Activities 

focus on forest management including commodity production; watershed health and productivity 

including soil and water restoration projects; wildlife and fisheries habitat improvement; 

recreation opportunities; cultural resources protection; and infrastructure maintenance.

The BLM manages 2.4 million acres of O&C grant lands, CBWR lands, and intermingled public 

domain lands with this appropriation. The BLM manages resources on public domain land (10 

percent of the area) under the provisions of the Federal Land Policy and Management Act of 

1976. Programs conducted on certain O&C grant lands within National Forests are under the 

jurisdiction of the U.S. Forest Service (USFS) and managed with USFS funds. The USFS 

returns receipts generated from activities on these lands to the BLM for payment to counties in 

accordance with the Act. The five budget activities of the O&C appropriation are summarized 

below. Through these activities, the BLM implements resource management plans (RMPs) and 

supports resource activities on the O&C and CBWR grant lands under the BLM’s jurisdiction.

Western Oregon Construction and Acquisition provides for the acquisition of 

easements, road-use agreements for timber site access, and the design of access roads 

for general resource management purposes. 

Western Oregon Transportation and Facilities Maintenance provides for 

maintenance activities for the transportation system, office buildings, warehouse and 

storage structures, shops, greenhouses, and recreation sites. This program’s efforts 

maintain the transportation system necessary for effective implementation of the RMPs. 
Bureau of Land Management 2014 Budget Justifications

Chapter X – Oregon and California Grant Lands Page X - 5

Road maintenance activities help to reduce or eliminate negative impacts of poor road 

conditions on aquatic and fisheries resources, including Pacific salmon and other 

resident and anadromous fish populations in the Northwest. Beginning in 2014, deferred 

Maintenance and Capital Improvement projects will no longer be funded through this 

budget activity, but will instead be funded through the Management for Land and 

Resources Deferred Maintenance and Capital Improvements budget subactivity.

Western Oregon Resources Management provides for preparing, offering, 

administering and monitoring timber sales; maintaining the sustainability of forest 

resources and timber harvest through reforestation and restoration techniques; 

managing wildlife habitat; and maintaining or improving water and air quality. 

Western Oregon Information and Resource Data Systems provides for the 

acquisition, operation, and maintenance of the automated data support systems required 

for the management of the O&C grant lands. The focus of this program is to make data 

operational for monitoring and adaptive management; and for developing activity plans, 

such as timber sales and habitat management plans.

Western Oregon National Monuments and National Conservation Areas provides 

for the management of National Monuments and National Conservation Areas and other 

similar Congressionally designated areas in western Oregon. 

O&C LANDS IN WESTERN OREGON

(ACRES)

BLM-Managed Lands 

O&C Grant Lands 2,084,816 

CBWR Lands 74,547 

Public Domain Lands 239,500

 Total – BLM 2,398,863 

U.S. Forest Service-Managed Lands 

Controverted O&C Lands 462,678 

Special Act O&C Lands 29,721 

 Total - U.S. Forest Service 492,399 

Source: Public Land Statistics, 2011

Additional Funding Methods

In addition to the O&C Grant Lands appropriation, two Permanent Operating Fund 

Appropriations that are available for use do not require annual appropriation action. These are 

the Timber Sale Pipeline Restoration Fund and the Forest Ecosystem Health and Recovery 

Fund as outlined in Chapter XI – Permanent Operating Funds, 2014 Budget Justification. 

Management of Oregon and California Grant Lands

The BLM manages 2.4 million acres of O&C and Coos Bay Wagon Road lands in western 

Oregon. The BLM has practiced sustainable forest management, as outlined in the O&C Act of 

1937, which includes a provision for the western Oregon counties to receive shares of timber 

sale receipts. In the late 1970's, USFS researchers observed a rapid decline in the populations 

of the northern spotted owl, a species associated with old-growth forests. In 1990, the U.S. Fish 

and Wildlife Service (FWS) listed the northern spotted owl as threatened under the Endangered 

Species Act of 1973, citing loss of old-growth habitat. The BLM modified management of 
Bureau of Land Management 2014 Budget Justifications

Chapter X – Oregon and California Grant Lands Page X - 6

forested lands in response, reducing the annual timber sale volumes and thus reducing receipts 

to counties.

Soon after the listing of the owl, President Clinton convened a group of scientists called the 

Forest Ecosystem Management Assessment Team. Their Assessment report in 1993, led to 

the development of the Northwest Forest Plan (NWFP) in 1994; the NWFP amended BLM and 

USFS land use plans within the range of the northern spotted owl. This plan set out land use 

allocations, standards and guidelines for management designed to contribute to the recovery of 

northern spotted owls and marbled murrelets and to produce a predictable and sustainable level

of timber sales. Under the NWFP, agencies are required to survey and manage for rare, 

uncommon, or little known species of plants and animals. 

The BLM has managed the O&C lands under the NWFP since 1994. The change in 

management resulting from the NWFP has not been without controversy. Both the 

environmental and industry communities have litigated BLM timber sales. The Secure Rural 

Schools and Community Self-Determination Act of 2000 (and as amended) allowed Counties to 

opt for a Federal payment rather than a portion of timber receipts. 

Despite the challenges, the BLM is committed to managing forests in the Pacific Northwest to:

Contribute to the restoration of functional and sustainable ecological conditions in 

Federal forests; conserve old-growth forests and trees; 

Assist in the recovery of threatened species; 

Provide economic opportunities to help sustain local communities; and 

Maintain a highly skilled workforce and milling infrastructure. 

In 2009, the Western Oregon Plan Revisions (2008 RODs/RMPs), finalized in December, 2008, 

were withdrawn by the Secretary. He determined the process was legally flawed, having failed 

to complete consultation under the Endangered Species Act. The decision to withdraw the 2008 

RODs/RMPs was accompanied with the direction to revert to managing the O&C lands under 

the Northwest Forest Plan (1995 RODs/RMP). Since 2009, the BLM has subsequently designed 

timber sale program of work consistent with the 1995 RODs/RMPs, Northwest Forest Plan, the 

Endangered Species Act, and other laws and regulations. Forest restoration is one of the goals 

of the forest plan, and is emphasized where appropriate in the context of the timber sale 

planning process. BLM management plans in western Oregon continue to be litigated from both 

conservation and industry groups, resulting in a complicated and changing legal framework 

under which managers must implement projects. 

In October 2009, former BLM Director Abbey and the late FWS Director Sam Hamilton 

convened the interdisciplinary Western Oregon Task Force. The task force, composed of 

experts across a range of resource disciplines, from the BLM, the FWS, the National Marine 

Fisheries Service and the USFS, examined the Western Oregon Plan Revisions process and 

the long-standing challenges of managing the forests for multiple goals. The task force issued 

recommendations that the BLM and other Federal agencies have been working on in order to 

find new approaches for forest management.

In December 2010, the Secretary initiated a plan applying the principles of ecological 

restoration, as suggested by Drs. Norm Johnson and Jerry Franklin, on BLM lands. This 

ongoing initiative explores ways to restore ecological processes and address economic issues 

on O&C lands. The BLM is currently working on three pilot projects in various stages of 
Bureau of Land Management 2014 Budget Justifications

Chapter X – Oregon and California Grant Lands Page X - 7

development in the Medford, Roseburg, and Coos Bay Districts, with input and expertise from 

Drs. Johnson and Franklin. The projects seek to:

Demonstrate a landscape level approach to forest ecosystem restoration through active 

management;

Restore functional and sustainable ecological conditions in Federal forests;

Allow recovery for threatened species; and 

Provide needed employment opportunities. 

The FWS is assisting in development and review of the restoration efforts. The BLM is using a 

variety of means to inform and involve stakeholders to stimulate collaboration across the 

spectrum. The Medford District sold the first pilot timber sale in 2011, and in 2012, Roseburg 

sold two and Coos Bay sold one. Additional 2013 and 2014 timber sales are being designed 

and prepared using Johnson and Franklin ecological principles.

In July 2011, a Settlement Agreement for Survey and Manage was finalized, which reinstated 

the January 2001 ROD for Survey and Manage, revised the 2001 species list, and added 

exemptions for pre-disturbance surveys for some activities. Harvest of stands greater than 80 

years of age require Survey and Manage species surveys and potentially additional protection 

measures on documented sites.

In June 2011, the FWS issued their Revised Recovery Plan for the Northern Spotted Owl, and 

in November 2012, issued the final Critical Habitat Rule for the Northern Spotted Owl. Both the 

Recovery Plan and the final Critical Habitat Rule emphasize maintenance and enhancement of 

northern spotted owl habitat, including active forest management, where appropriate, to 

increase stand resiliency and promote ecological diversity. The western Oregon districts are 

assessing the impacts of the Critical Habitat Rule and Recovery Plan on out-year sale plans. 

In February 2012, the BLM announced new planning efforts for the six West-side Oregon 

Districts. The BLM expects to complete the plans in the summer of 2015.

Timber Harvest Targets and Volumes

The long-term annual timber target or allowable sale quantity (ASQ) of the NWFP is 203 MMBF 

on western Oregon O&C lands. Additional volume from the reserve land use allocations does 

not count towards the ASQ target, but contributes to the BLM target of timber volume sold in 

each fiscal year. The NWFP timber targets and accomplishments displayed in the tables below 

are for the BLM-managed lands in both western Oregon and northern California, even though 

timber activities in northern California are funded by other appropriations.
Bureau of Land Management 2014 Budget Justifications

Chapter X – Oregon and California Grant Lands Page X - 8

BLM O&C WESTERN OREGON AND CALIFORNIA ALLOWABLE

SALE QUANTITY – TOTAL VOLUME OFFERED UNDER THE NWFP

Year

Allowable Sale Quantity 

Target Total Volume Offered

OR CA Total OR CA Total

1995 118 15 133 127.3 22.8 150.1

1996 180 2.5 182.5 189.7 5.8 195.5

1997 211 2.5 213.5 212 10.2 222.2

1998 211 2.5 213.5 257.5 0.4 257.9

1999 203 2.5 205.5 61.7 3.1 64.8

2000 203 2.5 205.5 69.2 0.7 69.9

2001 203 1 204 56.4 0.1 56.5

2002 203 1 204 162.5 0.4 162.9

2003 203 1 204 162.7 0 162.7

2004 203 1 204 140 0.1 140.1

2005 203 1 204 198.2 7.7 205.9

2006 203 1 204 200.6 0.6 201.2

2007 203 1 204 195.6 3.2 198.8

2008 203 1 204 230.2 0.8 236.8

2009 203 1 204 202 0.8 202.8

2010 203 1 204 233 0.8 233.8

2011 203 1 204 197 1.8 198.8

2012 203 1 204 206.4 0.5 206.9

2013 est.* 203 1 204 197 0.8 197.8

2014 est.* 203 1 204 197 0.8 197.8

Note: Timber volumes displayed include BLM-managed lands in California managed within 

the area of the NWFP, even though activities are funded by BLM appropriations other than 

O&C funds. 

*Volume estimates include approximately 70% ASQ volume with the balance of volume 

coming from Late-Successional and Riparian Reserve land-use allocations. The BLM is in 

the process of reviewing the November 2012 Final Northern Spotted Owl Critical Habitat 

Rule to assess impacts to volume estimates.

O&C Revenues and Receipts

0

50

100

150

200

250

M

M

B

F

O&C Volume Offered for Sale 2001-

2012
Bureau of Land Management 2014 Budget Justifications

Chapter X – Oregon and California Grant Lands Page X - 9

The BLM derives timber receipts used for O&C payments from the harvest of timber on O&C 

lands managed by the BLM, and controverted O&C grant lands under the jurisdiction of the 

USFS. While the O&C Act of 1937 governs sustained yield management of all BLM lands in 

western Oregon, receipts derived from the sale of timber on CBWR lands and Public Domain 

lands in western Oregon are not considered O&C receipts. 

The economic downturn reduced the demand for wood products and caused financial hardship 

for many timber purchasers. In 2009, the Secretary directed the BLM to extend a limited-time 

offer to negotiate cancellation of certain existing timber sale contracts to avoid purchaser default 

and subsequent loss of industry infrastructure. The BLM received forty-five requests in western 

Oregon. To date, 28 contracts have been cancelled through mutual agreement. 

Due to a shortage of new timber offered for sale from other lands in the Pacific Northwest, sales 

offered in fiscal years 2010 and 2011 were sought out by the industry and many purchasers 

began operations immediately following approval of the contract. Since the bid price for these 

sales is based on current market conditions, purchasers are able to operate on them and thus 

maintain their logging and sawmilling infrastructure in the region.

TIMBER RECEIPTS FOR WESTERN OREGON BLM LANDS 

(Million $)

2008 2009 2010 2011 2012 2013 

est.

2014 

est.

O&C Grant Lands

Regular Sales 13.0 14.2 9.7 11.6 11.5 10 10

Salvage Sales 4.3 5.5 3.2 2.7 4.3 3.9 3.9

Subtotal 17.3 19.7 12.9 14.3 15.8 13.9 13.9

CBWR Lands

Regular Sales 0.3 0.2 .8 0 1.0 0.6 0.6

Salvage Sales 0 0 0 0 0.2 0.1 0.1

Subtotal 0.3 0.2 0.8 0 1.2 0.7 0.7

Timber Sale Pipeline Restoration Fund

PD, O&C, and CBWR 10.4 5.2 4.3 4.0 3.8 1.9 1.9

Stewardship Contract Excess Proceeds

PD, O&C, and CBWR 0 .1 0 0.1 0.3 0.02 0.02

Total Receipts 28.0 25.2 18.0 18.4 21.1 16.5 16.5

Timber Sale Pipeline Restoration Fund

The Timber Sale Pipeline Restoration Fund (the Pipeline Fund) was established under Section 

327 of the Omnibus Consolidated Rescissions and Appropriations Act of 1996. The Act 

established separate funds for the USFS and the BLM, using revenues generated by timber 

sales released under Section 2001(k) of the 1995 Supplemental Appropriations for Disaster 

Assistance and Rescissions Act, which directs that 75 percent of the Pipeline Fund be used to 

fill each agency’s timber sale “pipeline” and that 25 percent of the Pipeline Fund be used to 

address maintenance backlog for recreation projects on BLM and USFS lands after statutory 

payments are made to State and local governments and the U.S. Treasury.

At the end of 2012, the balance in BLM’s Fund was approximately $7.6 million. The BLM has 

implemented a spend-down plan to bring the Fund balance down to approximately $5.8 million 
Bureau of Land Management 2014 Budget Justifications

Chapter X – Oregon and California Grant Lands Page X - 10

by the end of fiscal year 2013. This carryover balance offsets irregular yearly deposits caused 

by fluctuations in timber market conditions. A balance at the end of the year permits continued 

use of the Fund to meet the Fund’s annual objective of rebuilding the timber sale pipeline. 

Receipts, deposits and cumulative expenditures are described in the Permanent Operating 

Funds chapter. 

Payments to the O&C Counties

Timber harvest levels have dropped significantly from the historical levels of the late 1980s and 

early 1990s. The traditional payment formulas defined in Title II of the Oregon and California 

Grant Lands Act of 1937, U.S.C. 43 1181f, (50 Stat. 876, Title II) were modified to account for 

these declines and provide fiscal predictability to the O&C counties.

Receipts from public domain lands within the O&C grant lands are distributed to the State of 

Oregon (four percent), the General Fund of the U.S. Treasury (20 percent), and the 

Reclamation Fund (76 percent), except those generated through projects funded by the Forest 

Ecosystem Healthy Recovery Fund and the Pipeline Fund, which are deposited into those 

accounts.

Under the Secure Rural Schools and Community SelfDetermination Act of 2000 (P.L. 106-393), the annual 

payments to the 18 O&C counties were derived from 

any revenues, fees, penalties, or miscellaneous 

receipts (exclusive of deposits to any relevant trust 

fund, or permanent operating funds such as the 

Timber Sale Pipeline Restoration or the Forest 

Ecosystem Health and Recovery funds) received by 

the Federal government from activities by the BLM on 

O&C lands, and to the extent of any shortfall, out of 

any funds in the Treasury not otherwise appropriated. 

The Secure Rural Schools Act of 2000 provided that,

for 2001-2006, each payment to eligible counties 

would be an amount equal to the average of the three 

highest payments made during fiscal years 1986-1999. 

For each payment made by the BLM under the law, 

the full payment amount would be adjusted for 

inflation. The Secure Rural Schools Act of 2000 

expired in 2006 and final payments for 2006 were 

made in 2007, consistent with the Act. Public Law 110-

28 provided payments for one additional year. 

Also under the Secure Rural Schools Act of 2000, the 

BLM worked collaboratively with the five western 

Oregon Resource Advisory Committees, which 

reviewed over 1,024 restoration projects and 

recommended 591 projects for implementation worth 

approximately $42.8 million. 

In October 2008, Congress enacted Section 601 of 

Public Law 110-343, which extended the Secure Rural 

PAYMENT TO WESTERN OREGON 

COUNTIES (MILLION $)

Year O&C

Lands

CBWR

Lands

Total 

Payment

1994 $78.6 $0.6 $79.2

1995 75.8 0.6 76.4

1996 73.0 0.6 73.6

1997 70.3 0.6 70.9

1998 67.5 0.5 68.0

1999 64.7 0.5 65.2

2000 61.9 0.5 62.4

2001 0 0 0

2002 108.7 1.0 109.7

2003 109.6 1.0 110.6

2004 110.9 1.0 111.9

2005 112.3 1.0 113.3

2006 114.9 1.0 115.9

2007 116.3 1.0 117.3

2008 115.9 1.0 116.9

2009 104.5 0.9 105.4

2010 94.0 0.8 94.8

2011 84.7 0.7 85.5

2012 39.7 0.3 40.0

2013†

39.7 0.3 40.0

†

BLM made 90% of payments in 

February 2013, reserving $4 million 

against sequestration per OMB direction
Bureau of Land Management 2014 Budget Justifications

Chapter X – Oregon and California Grant Lands Page X - 11

Schools Act of 2000. Public Law 110-343 provided an extension of payments to the O&C grant 

lands and the Coos Bay Wagon Road counties through fiscal year 2011. As in the prior act, 

payments were to be made for the year prior. The payments for 2008 through 2010 are 

described in the law as “transition” payments, and are a declining percentage of the payments 

made in 2006; the payment in 2009 (for 2008) is 90 percent of the amount paid in 2006, the 

payment in 2010 (for 2009) is 81 percent, and the payment in 2011 (for 2010) is 73 percent. 

The payments made to counties in 2012 (for 2011) used a formula based on several factors that 

include acreage of Federal land, previous payments, and per capita personal income. More 

information on these payments is contained in the Miscellaneous Permanent Payments chapter. 

In 2012 under PL 112-141, the Secure Rural Schools Act was reauthorized for one year ( 2012). 

The payments made to counties in 2013 (for 2012) again used a formula based on acreage of 

Federal land, previous payments, and per capita personal income. The budget includes a 

legislative proposal to reauthorize the Secure Rural Schools Act with funding through mandatory 

U.S. Forest Service appropriations. This SRS proposal revises the allocation split between the 

three portions of the program from the current authority emphasizing enhancement of forest 

ecosystems, restoration and improvement of land health and water quality, and the increase of

economic activity. 
Bureau of Land Management 2014 Budget Justifications

Chapter X – Oregon and California Grant Lands Page X - 12

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Bureau of Land Management 2014 Budget Justifications

Chapter X – Oregon and California Grant Lands Page X - 13

Activity: Western Oregon Acquisition 

2013 

Full 

Year 

CR

2012 

Enacted1

2014 Change 

from 

2012 

Enacted

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Internal 

Transfers 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Acquisition ($000) 313 310 +5 +0 +0 315 +5

FTE 3 3 +0 +0 +0 3 +0

1

Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

JUSTIFICATION OF 2014 PROGRAM CHANGES

The 2014 Budget Request for the Western Oregon Acquisition Program is $315,000 and 3 FTE. 

ACTIVITY DESCRIPTION

The Western Oregon Acquisition Program uses appropriated funds to acquire and protect 

access to public lands in western Oregon, providing access to BLM timber sales and other 

activities associated with managing Oregon and California (O&C) lands. The BLM estimates 

that nearly 5,000 separate tracts of O&C lands require some form of access for proper 

management. The BLM obtains access by purchase of perpetual easements, acquisition, or 

condemnation. Acquisition funding is also used to acquire lands or interests in lands needed for 

infrastructure development, including recreation sites, administrative sites, and transportation 

facilities. 

The BLM has long-standing reciprocal right-of-way agreements with surrounding and adjacent 

private landowners allowing reciprocal use of each owner’s roads. Access to western Oregon 

O&C lands is dependent upon the continual upkeep of these long standing reciprocal rights-ofway agreements. As adjacent private lands change ownership, existing agreements need to be 

continuously negotiated and updated. The BLM prioritizes reciprocal right-of-way agreements 

based upon both private requests and the land management needs. Generally, right-of-way 

agreements necessary to meet timber management performance measures for the BLM and 

adjacent private harvesting plans receive the highest priority, while access to recreational and 

key administrative facilities also receive high priority.

Other Funding Sources –Timber haul roads, or “fee roads” negotiated under reciprocal rightof-way agreements are often maintained using road maintenance fees collected from such 

roads.

2014 PROGRAM PERFORMANCE

In 2014, the Western Oregon Acquisition Program proposes to:

Complete up to 20 new reciprocal right-of-way agreements, amendments, or 

assignments.

Continue uploading historic 1950s reciprocal O&C ROW agreement data into 

an electronic and GIS databases that facilitate analysis for 14,000 miles of 

roads.
Bureau of Land Management 2014 Budget Justifications

Chapter X – Oregon and California Grant Lands Page X - 14

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Bureau of Land Management 2014 Budget Justifications

Chapter X – Oregon and California Grant Lands Page X - 15

Activity: Western Oregon Transportation and 

Facilities Maintenance 

Subactivity

2013

Full Year 

CR

2012

Enacted1

2014

Change 

from 

2012 

Enacted

(+/-)

Fixed 

Costs &

Related 

Changes

(+/ -)

Internal 

Transfers

(+/-)

Program

Changes

(+/ -)

Budget

Request

Operations $ 0 2,081 +0 -2,081 +0 0 -2,081

FTE 0 19 +0 -19 +0 0 -19

Annual 

Maintenance

$ 0 7,864 +0 -7,864 +0 0 -7,864

FTE 0 55 +0 -55 +0 0 -55

Deferred 

Maintenance

$ 878 1,039 +0 -1,039 +0 0 -1,039

FTE 3 3 +0 -3 +0 0 -3

Operations 

and Annual 

Maintenance

$ 10,030 [0] +118 +9,945 +0 10,063 +10,063

FTE 74 [74] +0 +74 +2 76 +76

Total Activity $ 10,908 10,984 +118 -1,039 +0 10,063 -921

FTE 77 771+0 -3 +2 76 -1

1

Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

The 2014 budget request for the Western Oregon Transportation and Facilities Maintenance

Activity is $10,063,000 and 76 FTE. 

ACTIVITY DESCRIPTION

The Western Oregon Transportation and Facilities Maintenance Program sustains the condition 

of facilities and the transportation system by performing preventative and corrective 

maintenance to a standard that protects resource values, meets public health and safety 

standards, and protects the public’s investment. The BLM conducts condition assessments on 

facilities and transportation systems to identify annual and deferred maintenance needs. The 

types of facilities maintained by the BLM in western Oregon include:

Sixty-five administrative sites with 162 buildings, served by 230 separate mechanical, 

plumbing and electrical systems;

One hundred, seventy recreation sites with 350 buildings, serve by trash collection, 

sanitation facilities, and safe drinking water;

Three dams; and

A system of 14,200 miles of roads, including 131 miles designated as Back Country 

Byways, 324 miles of trails, along with related structures including 410 bridges, 586 

major culverts, and multiple retaining walls and subsurface drainage systems. 
Bureau of Land Management 2014 Budget Justifications

Chapter X – Oregon and California Grant Lands Page X - 16

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2013 

Full 

Year 

CR

2012 

Enacted1

2014

Change 

from 

2012 

Enacted

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Internal 

Transfers 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Deferred 

Maintenance ($000) 878 1,039 +0 -1,039 +0 0 -1,039

FTE 3 3

1

+0 -3 +0 0 -3

1

Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

Summary of 2014 Program Changes/Internal Transfers for Deferred Maintenance

Request Component ($000) FTE

Program Changes:

• Transfer Funds to MLR Deferred Maintenance & Capital Improvements 

Subactivity -1,039 -3

TOTAL, Program Changes -1,039 -3

JUSTIFICATION OF 2013 PROGRAM CHANGES

The 2014 budget request for Western Oregon Deferred Maintenance program is $0 and 0 FTE, 

a net change of -$1,039,000 and -3 FTE from the 2012 enacted level. 

Beginning in 2014, deferred maintenance and capital improvement projects will no longer be 

funded through this budget activity, but instead will be funded through the MLR Deferred 

Maintenance and Capital Improvements subactivity. Please see the MLR Deferred Maintenance 

and Capital Improvements chapter in Section IV for a further discussion of this change. 

Activity: Western Oregon Transportation and Facilities 

Maintenance 

Subactivity: Deferred Maintenance
Bureau of Land Management 2014 Budget Justifications

Chapter X – Oregon and California Grant Lands Page X - 18

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Bureau of Land Management 2014 Budget Justifications

Chapter X – Oregon and California Grant Lands Page X - 19

2013 

Full 

Year CR

2012 

Enacted1

2014 Change 

from 

2012 

Enacted

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Internal 

Transfer

s 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Operations and 

Annual 

Maintenance 

($000) 10,030 [9,945] +118 +9,945 +0 10,063 +10,063

FTE 74 [74]1

+0 +74 +2 76 +76

1

Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

Summary of 2014 Program Changes for Operations and Annual Maintenance

Request Component ($000) FTE

Program Changes:

• Create new Operations and Maintenance Subactivity (non-add in 2013) +9,945 +76

TOTAL, Program Changes +9,945 +76

JUSTIFICATION OF 2014 PROGRAM CHANGES

The 2014 budget request for Western Oregon Operations and Annual Maintenance Program is 

$10,063,000 and 76 FTE, a net change of +$10,063,000 and +76 FTE from the 2012 enacted 

level. The net change includes an internal transfer of +$2,081,000 into this new subactivity from 

the former Operations subactivity and an internal transfer of +$7,864,000 from the former 

Annual Maintenance subactivity. The consolidation of these two subactivities into one will 

promote program management efficiencies and better recognize the overlap between the type 

of work that is funded and performed within these two programs.

PROGRAM OVERVIEW

The Operations and Annual Maintenance Program maintains the BLM’s investment in the 

transportation network, preserves public safety, and minimizes environmental impacts,

especially related to water quality and soil erosion, and provides for functional utilities and other 

services at visitor and administrative sites supporting the O&C grant land functions. BLMmanaged roads serve commercial, administrative, and local government functions, as well as 

individual land users, including providing for timber haul, school bus and emergency routes, and 

access to private, local, State, and Federal lands.

Critical Factors

The following factors can impact program performance:

Heavy winter rains alter maintenance priorities, requiring changes to planned work; 

Activity: Western Oregon Transportation and Facilities 

Maintenance 

Subactivity: Operations and Annual Maintenance
Bureau of Land Management 2014 Budget Justifications

Chapter X – Oregon and California Grant Lands Page X - 20

Road closures due to wildland fire redirect road maintenance to coastal locations;

State of Oregon Parks and Recreation surveys indicate that public use of BLM’s 

recreational facilities and the roads accessing them is increasing.

Maintenance priorities are established at the district and field office level annually using a 

Maintenance Operation Plan (MOP). This prioritization is based on roads and facilities that are 

essential to the districts and have the highest 

impact on the health and safety of employees, 

contractors, and the general public. 

Emergency repair work that is identified as high 

priority is completed as soon as funding is 

available. 

Other Funding Sources

Most O&C roads and trails used by the public 

are maintained using appropriated funds. 

Timber haul roads, or “fee roads,” are 

maintained using both appropriated funds and road maintenance fees that are collected from 

commercial users and deposited into a permanent operating fund for road maintenance. 

Recreation facility maintenance activities are partially funded by the O&C Recreation 

Management Program, use fees, and the National Landscape Conservation System program.

Eighteen of 170 O&C recreation sites participate in the Recreation Site Fee program. 

2014 PROGRAM PERFORMANCE

In 2014, the Western Oregon Transportation and Facilities Management Program proposes to 

complete routine annual maintenance at 275 recreation sites, 88 bridges, 175 BLM 

administrative buildings, and 45 BLM non-building sites. In addition, over 14,000 miles of roads 

will be assessed to prioritize where 2,000 miles of annual road maintenance planned for 2014. 

Annual routine maintenance will also include upkeep of wells, sanitation facilities and trails to 

reduce public health and safety risks and provide positive recreational experiences. 

Program Process Improvements

Periodic maintenance reviews are performed 

within each district to assure the maintenance 

work meets or exceeds district expectations 

and is within established budgets. Districts are 

also required to complete annual Maintenance 

Operation Plans (MOP’s) to show their planned 

work. Costs can then be monitored against the 

planned targets by WO, state, and district 

program leads to determine the effectiveness of 

the maintenance program.
Bureau of Land Management 2014 Budget Justifications

Chapter X – Oregon and California Grant Lands Page X - 21

Activity: Western Oregon Resources Management 

Subactivity 2013 Full 

Year CR

2012

Enacted1

2014 Change 

from 

2012 

Enacted

(+/-)

Fixed 

Costs &

Related 

Changes

(+/ -)

Internal 

Transfers 

(+/-)

Program

Changes

(+/ -)

Budget

Request

Forest 

Mgmt. $ 32,301 32,060 +444 +0 +1,801 34,305 +2,245

FTE 279 279 +0 +0 -3 276 -3

Reforestati

on & 

Forest 

Developme

nt $ 23,799 23,622 +229 +0 +0 23,851 +229

FTE 140 140 +0 +0 +10 150 +10

Other 

Forest 

Resources $ 36,891 36,616 +369 +0 +0 36,985 +369

FTE 231 231 +0 +0 +0 231 +0

Resource 

Mgmt. 

Planning $ 5,643 5,601 +52 +0 +1,670 7,323 +1,722

FTE 33 33 +0 +0 -7 26 -7

Total 

Activity $ 98,634 97,899 +1,094 +0 +3,471 102,464 +4,565

FTE 683 683 +0 +0 +2 683 +2

1

Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

The 2014 budget request for the Western Oregon Resources Management activity is 

$102,464,000 and 683 FTE, a program increase of $3,471,000 and +2 FTE from the 2012 

enacted level.

ACTIVITY DESCRIPTION

The Western Oregon Resources Management activity provides for the management of 2.4 

million acres of Oregon and California (O&C) and Coos Bay Wagon Road grant lands, and 

intermingled Public Domain lands. This program’s objectives are to:

Restore and maintain the ecological health of forested watersheds; 

Provide well-distributed blocks of late-successional and old-growth forest habitat to 

benefit threatened, endangered and other sensitive species;

Provide recreational opportunities to a growing number of users; and 

Provide a sustainable supply of timber and other forest products.

The BLM’s active forest management approach develops landscape level solutions to resource 

management, maintaining and restoring forest landscapes and terrestrial and aquatic habitat for 
Bureau of Land Management 2014 Budget Justifications

Chapter X – Oregon and California Grant Lands Page X - 22

resiliency to disturbance factors such as wildfire, insects and climate change. The BLM works 

closely with Federal, State, local, and tribal partners, as well as private organizations and 

individuals during the planning and implementation of this active management approach to 

address timber production, fuels reduction, species habitat considerations and restoration 

opportunities.
Bureau of Land Management 2014 Budget Justifications

Chapter X – Oregon and California Grant Lands Page X - 23

2013 

Full 

Year 

CR

2012 

Enacted1

2014

Change 

from 

2012 

Enacted

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Internal 

Transfers 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Forest Management 

($000) 32,301 32,060 +444 +0 +1,801 34,305 +2,245

FTE 279 2731

+0 +0 +3 276 -3

Other Major 

Resources:

POF: Timber Pipeline 

Restoration (58xx) 3,824 4,023 +0 +0 -2,213 1,810 -2,213

POF: Forest 

Ecosystem Health & 

Recy (5900)26,043 6,437 +0 +0 -1,861 4,576 -1,861

1

Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

2

Forest Ecosystem Health and Recovery Funds are used on both Public Domain Forest land and Oregon and 

California Grant Lands

Summary of 2014 Program Changes for Forest Management

Request Component ($000) FTE

Program Changes:

• Increase Base Funding for Secretary's Western Oregon Strategy +1,081 0

TOTAL, Program Changes +1,081 0

JUSTIFICATION OF 2014 PROGRAM CHANGES

The 2014 budget request for the Western Oregon Forest Management program is $34,305,000 

and 276 FTE, a program change of +$1,801,000 and -3 FTE.

Increase Base Funding for the Secretary’s Western Oregon Strategy (+$1,801,000/-3 FTE) 

– The strategy aims to increase the volume of timber offered for sale; increase survey of rare, 

uncommon, or endangered species; facilitate the development and implementation of a 

recovery plan for the northern spotted owl; and provide landscape-level timber sale project 

environmental analyses. Because the process of offering timber at auction is part of a 3 to 5 

year planning cycle, there is a delay between an initial increase in budget and realization of 

completed timber sales. 

PROGRAM OVERVIEW

The Western Oregon Forest Management Program includes costs associated with 

management, maintenance and enhancement of forests on the public lands, including the O&C 

Grant lands, the Coos Bay Wagon Road lands, and Public Domain land within western Oregon, 

except for activities directly related to reforestation and forest development. 

Activity: Western Oregon Resources Management

Subactivity: Forest Management
Bureau of Land Management 2014 Budget Justifications

Chapter X – Oregon and California Grant Lands Page X - 24

Critical Factors

Compliance with the six 1995 western Oregon Resource Management Plans, the 1995 

Northwest Forest Plan, the 2011 Northern Spotted Owl Recovery Plan, the 2012 Northern 

Spotted Owl Critical Habitat Plan, and the 2011 Survey and Manage Settlement Agreement 

remain critical factors to the success of the program. The BLM has continued work with 

governmental and other stakeholders, including interagency coordination in project level 

National Environmental Policy Act (NEPA) development and consultation, to support efforts to 

meet performance targets for timber offered. Additionally, the BLM is engaged in the resolution 

of pending and new protests, appeals and litigation of timber sale contracts, and permits the 

actual harvesting of timber. Within existing regulations, the program will test a modification of 

the administrative review process with the strategy and objective of resolving project level 

issues early on and prior to offering timber sales.

Means and Strategies 

Within the framework of the Endangered Species Act, the Clean Water Act, the O&C Act, and 

the Northwest Forest Plan, the program provides a sustainable source of timber, protects 

watersheds, and contributes to conservation, restoration, species recovery, and economic 

stability. The BLM develops forest management projects using landscape and watershed 

approaches to determine the suite of treatment activities. Work continues in coordination with 

the U.S. Fish and Wildlife Service (FWS) to implement active forest management prescriptions 

and continue the implementation and monitoring of ecological timber sales, incorporating 

lessons learned from the pilot projects initiated by the Secretary in December 2010 to apply the 

principles of ecological restoration on O&C lands. The components of the program include:

Forest landscape planning and project level NEPA development;

Forest inventory and monitoring;

Trespass prevention and investigation;

Maintenance of existing right-of-way agreements;

Maintenance and restoration of late-successional and old-growth forest structure;

Sales of timber and other forest and vegetative products; and

Maintenance and development of the national Forest Resource Information System (FRIS) 

databases to assure data integrity. 

The Forest Management Program cooperates with the USFS in the Integrated Vegetation 

Management Group to support projects that overlap Forest Service and BLM lands. 

Other Funding Sources

In addition to the O&C Grant Lands appropriation, two Permanent Operating Funds are 

available for use on O&C lands. These are the Timber Sale Pipeline Restoration Fund and the 

Forest Ecosystem Health and Recovery Fund as outlined in Permanent Operating Funds. 

2014 PROGRAM PERFORMANCE

In 2014, the O&C Forest Management Program proposes to:

Offer 197 million board feet (MMBF) of timber for sale
Bureau of Land Management 2014 Budget Justifications

Chapter X – Oregon and California Grant Lands Page X - 25

Inventory 1,000 acres of forest and woodland vegetation

Offer 8,000 tons of biomass through firewood permits and stewardship contracts through 

a combination of the Forest Management Program and Forest Development Program.

Harvest 180 MMBF of volume from 10,000+ acres under contract from the current and 

previous year’s operational timber sales (normal 3-year contracts)
Bureau of Land Management 2014 Budget Justifications

Chapter X – Oregon and California Grant Lands Page X - 26

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Activity: Western Oregon Resources Management

Subactivity: Reforestation and Forest Development

2013 

Full 

Year 

CR

2012 

Enacted1

2014 Change 

from 

2012 

Enacted

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Internal 

Transfers 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Reforestation & 

Forest Development 

($000) 23,799 23,622 +229 +0 +0 23,851 +229

FTE 140 1401

+10 150 +10

1

Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

JUSTIFICATION OF 2014 PROGRAM CHANGES

The 2014 budget request for the Western Oregon Reforestation and Forest Development 

Program is $23,851,000 and 150 FTE, a program change of +10 FTE from the 2012 enacted

level. 

PROGRAM OVERVIEW

The Reforestation & Forest Development Program includes costs associated with reforestation,

intermediate stand management and forest health treatments in young growth forest stands on 

the Public Lands in western Oregon. This program sustains forest restoration through active 

management to achieve healthy and productive watersheds. 

Program Components

The focus areas for the Western Oregon Reforestation and Forest Development Program 

include:

Forest regeneration and restoration activities of commercial and non-commercial forest 

lands that establish young stands and restore habitat in riparian and other reserve areas;

Intermediate stand management activities in young growth forests that promote forest 

growth, health, value enhancement, fuel hazard reduction and structure development to 

provide for future timber harvest, biomass utilization, habitat requirements, and fire recovery;

Treatments to control the spread of forest pathogens and destructive insects;

Forest monitoring and adaptive management assessments that inform active forest 

management to achieve stand objectives and provide for the sustainable harvest of timber;

Non-native and noxious weed management;

Forest inventory, data acquisition, and consolidation of data storage and retrieval 

capabilities to facilitate coordination with other programs; and

Cooperative research on developing technologies and management activities with other 

Federal and State resource management agencies and universities..
Bureau of Land Management 2014 Budget Justifications

Chapter X – Oregon and California Grant Lands Page X - 28

Critical Factors

The Reforestation and Forest Development Program is implementing the Cooperative 

Landscape Conservation Adaptation Initiative through climate change management planning 

and carbon sequestration. The BLM participates with the Task Force on Adapting Forests to 

Climate Change, a cooperative project that 

addresses how forest managers will modify seed 

zones in response to future climate conditions.

Continually, the BLM assures that landscape-level 

planning and project-level NEPA compliance work 

is integrated into and analyzes the full suite of 

reforestation and forest development treatments 

and restoration needs in the analysis areas. As 

part of the overall process, the BLM works with 

external and internal stakeholders to ensure that 

program goals are achieved.

Means and Strategies 

The BLM uses the following strategies in western 

Oregon reforestation and forest development:

Employing emerging technologies such as 

Light and Detection and Ranging (LiDAR) to 

provide better, more cost-effective information 

for decision-makers;

Supporting the Secretarial pilot projects and follow-up ecological principle projects by 

developing site-specific prescriptions, modeling, and monitoring;

Supporting the Cooperative Landscape Conservation strategy through work with the USFS

to study the potential for assisted migration of Douglas-fir in response to future climate 

conditions;

Balancing workforce and operational capacity to prepare and administer service contracts, 

stewardship contracts, and agreements to reforest and implement high-priority forest 

development treatments;

Implementing intermediate stand management activities using a variety of authorities 

including stewardship contracts, service contracts, and timber sale contracts to offer 

biomass, reduce hazardous fuels, improve forest health, and enhance growth in young 

growth stands, achieving multiple resource objectives;

Working with the USFS, Oregon Department of Forestry, Oregon Department of Agriculture, 

and Oregon State University to treat and monitor sudden oak death in Curry County, Oregon 

in accordance with a federally mandated quarantine zone; and

Engaging in several collaborative efforts to maintain and enhance ecosystem function, such 

as the Medford Small Log Collaborative, Tillamook Watershed restoration projects, and

Klamath Falls small diameter log and juniper utilization.

2014 PROGRAM PERFORMANCE

In 2014, the Reforestation and Forest Development Program will:

Treat a total of approximately 15,000 acres of matrix and forest reserve forests to assure 

adequate growth and habitat development.

Foresters planting seedlings as part of an 

O&C reforestation project
Bureau of Land Management 2014 Budget Justifications

Chapter X – Oregon and California Grant Lands Page X - 29

Monitor 44,700 acres post-treatment.

Inventory 27,000 acres of forest or woodland vegetation

Inventory 23,000 acres for the presence of invasive or noxious weeds

Treat 5,000 acres of noxious and invasive weeds or pathogens, including the fungus 

involved in sudden oak death

Produce 1,000 pounds of Improved Seed from western Oregon seed orchards. 

Summarize use of LiDAR technology and its cost-effective benefits for decision-makers.
Bureau of Land Management 2014 Budget Justifications

Chapter X – Oregon and California Grant Lands Page X - 30

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2013 

Full 

Year 

CR

2012 

Enacted1

2014

Change 

from 2012 

Enacted

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Internal 

Transfers 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Other Forest 

Resources ($000) 36,891 36,616 +369 +0 +0 36,985 +369

FTE 231 2311

+0 231 +0

1

Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

JUSTIFICATION OF 2014 PROGRAM CHANGES

The 2014 budget request for the Western Oregon Other Forest Management Program is 

$36,985,000 and 231 FTE.

PROGRAM OVERVIEW

The O&C Grant Lands Other Forest Resources Management Program includes funding for four 

programs critical to effective multiple-use management across BLM lands in western Oregon:

Rangeland Management; Recreation Management; Soil, Water and Air Management; and 

Wildlife and Fish Habitat Management.

In western Oregon, the BLM addresses public demand for recreation, clean water and 

productive soil, while managing the sustained yield timber production as required by the Oregon 

and California Act of 1937. Additionally, this program provides necessary funding supporting fish 

and wildlife environmental clearances related to this management of BLM forestlands in western 

Oregon. This program supports species and habitat management and associated data 

collection, aquatic restoration for clean water and fish habitat, as well as the timber sale 

program in the form of surveys, clearances, interdisciplinary team participation, and 

environmental assessment preparation. In turn, the Forest Management Program supports 

habitat management within the reserve land use allocations designed to benefit fish and wildlife 

species in the long term.

Critical Factors

Rangeland Management – Coordination with permittees, private landowners, county, State 

and Federal agencies to integrate best management practices and mitigation measures to 

reduce spread of noxious weeds. Utilize approved herbicides and mechanical means to 

improve habitat.

Recreation Management - Road maintenance continues to be a challenge throughout much 

of the O&C lands. With less harvest activities over the past two decades, regular 

maintenance of haul routes associated with timber sales has been reduced. As a result, 

many roads that were accessible in the past are now threatened with encroachment of thick 

vegetation and slough and slide material that has closed some road systems. This has 

Activity: Western Oregon Resources Management

Subactivity: Other Forest Resources Management 
Bureau of Land Management 2014 Budget Justifications

Chapter X – Oregon and California Grant Lands Page X - 32

reduced access for forest management activities and reduced access to the public for 

recreation opportunities.

Soil, Water, and Air Management – Coordination with county, State, and Federal agencies 

to assure compliance with regulatory framework. Address climate change concerns at the 

appropriate scale. 

Fish and Wildlife Management – Coordination with regulatory agencies to complete 

necessary surveys to assess biological impacts in support of proposed forest management 

activities. Coordinate implementation at the appropriate scale the implementation of the 

regulatory framework to meet Endangered Species, Clean Water and other regulatory 

requirements. 

Means and Strategies

The Other Forest Resources Management Program uses collaborative cooperative 

conservation principles, engaging commodity users, private groups, local communities, 

government agencies, and other stakeholders when planning and implementing management 

activities. 

The BLM biologists in western Oregon consult closely with their FWS counterparts to implement 

an array of forest management and other resource restoration projects. The BLM works with 

the USFS to implement an interagency Special Status Species Program and Clean Water Act 

compliance activities that extend across 

administrative boundaries. Applying the concept of 

Service First and sharing skills accommodates an 

interagency approach toward resource conservation. 

Partnering improves administrative efficiencies, and 

decreases the cost of program administration. In the 

Soil, Water and Air Management Program, key 

partnerships with the USFS, the EPA, and the 

Oregon Department of Environmental Quality have 

contributed toward administrative streamlining, 

restoration prioritization, and water quality standard 

updates- all of which contribute to the BLM’s role as a 

Designated Management Agency under the Clean 

Water Act.

The BLM also partners with The Nature Conservancy, 

NatureServe, and local watershed councils to share data and planning strategies that extend 

across private, State, and Federal jurisdictions. Additionally, the management of invasive 

species benefits from coordination with other landowners and land management agencies to 

control the spread of noxious weeds in high-priority habitats. Eradication efforts focus on rapid 

detection and an early response and prevention, including seeking approval for the use of 

additional and more effective herbicides.

The Soil, Water and Air Management Program in western Oregon is focused on designing 

projects and implementing BLM Water Quality Restoration Plan objectives, which emphasize 

the protection of drinking water sources and improvement of aquatic species habitat through 

restoration of water quality and improvement of aquatic and riparian conditions while 

incorporating stakeholder input and involvement in development of program priorities. The 

program involves long-term coordination and collaboration with the fisheries and riparian 

management programs of multiple agencies and landowners. The program is tasked with 

White water rafting on the Rogue River
Bureau of Land Management 2014 Budget Justifications

Chapter X – Oregon and California Grant Lands Page X - 33

managing for soil stabilization, health and productivity; impacts from invasive species to riparian 

and upland habitat; upland forest and rangeland health; habitat for sensitive species; and the 

Bureau’s wild and scenic rivers.

Much of the work involves assessment, monitoring, and restoring of watersheds to comply with 

the Clean Water Act and the Safe Drinking Water Act. This is accomplished through 

development and implementation of restoration projects and activities defined within the context 

of water quality restoration plans, which support the State of Oregon’s Total Maximum Daily 

Loads program. 

Additionally, the program funds studies necessary to establish in-stream flows that are required 

to support wild and scenic river outstandingly remarkable values; work to obtain or maintain 

Federal reserve water rights, and inter-agency agreements with the United States Geological 

Survey and Oregon State University to develop flow and water quality monitoring data 

necessary for developing NEPA planning documents.

2014 PROGRAM PERFORMANCE

The Rangeland Program consists of 95 grazing allotments (52 active and 43 vacant) covering 

about 352,000 acres of the Medford District, and 11 allotments covering about 14,400 acres in 

the Klamath Resource Area, Lakeview District. Nine allotments in the Medford District providing

2,714 Animal Unit Months of forage are partially or completely within the Cascade-Siskiyou 

National Monument (CSNM). In 2014, the O&C Rangeland Management program proposes to:

Issue 7 grazing allotment permits/leases;

Maintain 49 grazing use authorizations;

Complete 18 shrub, grassland, woodland and forest projects related to range 

management;

Monitor 5 grazing allotments;

Inspect 8 grazing allotments for compliance; and

Complete 4 Land Health Evaluations

The America’s Great Outdoors Initiative continues to be a focus in 2014. The program promotes

and expands outdoor recreation opportunities for youth and supports the Secretary’s Youth in 

the Great Outdoors Initiative. Another high priority will be improving public access and 

protecting resources through Comprehensive Travel and Transportation Management. The BLM 

will manage rivers and trails to protect their special values, minimize user conflicts, promote a 

quality recreational experience in a preferred setting, and promote public safety. In 2014, the 

O&C Recreation Management Program proposes to:

Inventory Recreation Resources on 2,400 acres;

Assess 250 Linear Miles of Recreation Resources;

Assess 50 Nationally Designated Rivers and Trails;

Prepare 4 Recreation Activity Plans;

Process 290 Commercial and Group Special Recreation Permits;

Issue and Manage 45,000 Recreation Use Permits;

Evaluate Recreation Areas on 15,000 acres; and

Monitor 291 acres of Wilderness and Wilderness Study Areas
Bureau of Land Management 2014 Budget Justifications

Chapter X – Oregon and California Grant Lands Page X - 34

The program supports the Energy Policy Act of 2005 through involvement in the Federal Energy 

Regulatory Commission re-licensing process. 

In 2014, the O&C Soil, Water and Air Management Program proposes to: 

Inventory 144 water resources 

Monitor air resources/climatic conditions at 11 sites 

Monitor 140 water resources 

The Western Oregon Wildlife and Fish Habitat Program combines habitat management and 

habitat restoration actions for fish, wildlife and botany with inventory and monitoring for key 

species of management concern. Management for, and monitoring of, specific habitat conditions 

to meet the requirements of the NWFP and the 2011 Survey and Manage Settlement 

Agreement are critical elements of the program. The program supports the Forest Management 

and the Reforestation and Forest Development Programs through pre-disturbance surveys, 

project level NEPA analysis and appropriate consultation of proposed treatments. The program 

is responsible under the NWFP, the Endangered Species Act and Bureau policies for 

inventorying, monitoring and managing habitat for 68 federally endangered or threatened 

species and 632 Bureau sensitive fish, wildlife and plant species.

Specific wildlife emphasis includes a partnership with the USFS to monitor northern spotted owl 

populations and increasing old-growth forest characteristics within the Late-Successional 

Reserve. Fisheries management emphasis is on continued cooperation with the Oregon 

Watershed Enhancement Board, watershed councils and the National Marine Fisheries Service 

to improve habitat for Pacific salmon species. 

Some work is focused on identifying priority watersheds from a landscape perspective to 

increase effectiveness of restoration efforts in contributing to recovery of listed salmonids. 

Identifying priority watersheds in conjunction with other Federal and State partners allows for 

identification of areas with overlapping priorities and the opportunity to form partnerships that 

leverage additional resources.

In 2014, the O&C Wildlife and Fish Habitat Management program proposes to: 

Inventory 165 miles of streams and riparian areas;

Inventory 45,000 acres of wildlife and plant habitat;

Implement 45 species recovery and conservation actions;

Monitor 70 acres of lake and wetland habitat;

Monitor 2,000,000 acres of terrestrial habitat; and

Monitor 625 species populations.
Bureau of Land Management 2014 Budget Justifications

Chapter X – Oregon and California Grant Lands Page X - 35

2013 

Full 

Year 

CR

2012 

Enacted1

2014

Change from 

2012 Enacted

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Internal 

Transfers 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Resource 

Management 

Planning 

($000) 5,643 5,601 +52 +0 +1,670 7,323 +1,722

FTE 33 331

-7 26 -7

1

Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

Summary of 2014 Program Changes for Resource Management Planning

Request Component ($000) FTE

Program Changes:

• Increase Base Funding for Secretary’s Western Oregon Strategy +1,670 -7

TOTAL, Program Changes +1,670 -7

JUSTIFICATION OF 2014 PROGRAM CHANGES

The 2014 budget request for the Western Oregon Resource Management Planning program is 

$7,323,000 and 26 FTE, a program increase of $1,670,670,000 and -7 FTE from the 2012 

enacted level.

Increase Base Funding for the Secretary’s Western Oregon Strategy (+$1,670,000/-7 FTE) 

– The funding will implement a new process to respond to protests, appeals, and litigation, 

support an early consultation team involving NOAA/FWS for successful ESA consultation for the 

RMPs for Western Oregon. The funding will be used to increase support for analytical model 

review in order to properly validate model inputs and outputs, expand outreach efforts and 

coordination to stakeholders and the State of Oregon regarding potential solutions for forest 

management in western Oregon and the relationship with the BLM planning effort.

PROGRAM OVERVIEW

The Western Oregon Resource Management Planning Program emphasizes the development, 

implementation, and maintenance of Resource Management Plans for BLM-managed land in 

western Oregon communities.

Program Components

As part of the Secretary’s Western Oregon Strategy, the BLM initiated the revision process for 

its Western Oregon Resource Management Plans (RMP) in 2012. These efforts draw upon 

Activity: Western Oregon Resources Management

Subactivity: Resource Management Planning
Bureau of Land Management 2014 Budget Justifications

Chapter X – Oregon and California Grant Lands Page X - 36

many developments since the Secretary withdrew the previous plan revisions to develop Land 

Use Plans for the six western Oregon BLM districts. These efforts include:

Assuring compliance with applicable laws, regulations, and policies, including, but not 

limited to, the O&C Act, the National Environmental Policy Act (NEPA), the Federal Land 

Policy and Management Act, the Endangered Species Act, and the Clean Water Act;

Completing environmental assessments, categorical exclusions, and determinations of 

NEPA adequacy as appropriate for project implementation;

Responding to appeals and lawsuits associated with projects and NEPA documents; and 

deploying and implementing e-planning.

The revision efforts will also support landscape-scale spatial analysis done by a team of BLM 

employees and contractors, updated economic analyses and logistical support for team 

members. It will be possible to draw upon some existing analysis tools and the geo-spatial data 

base gained from the 2008 western Oregon plan revisions reducing the overall cost and the 

time needed to complete the plan revision efforts. 

Critical Factors:

The revised RMPs are scheduled for completion in June of 2015. Litigation over the 2008 

planning effort, the Northwest Forest Plan and the BLM’s western Oregon timber sale program 

continues. 

Recent developments related to western Oregon planning include:

On-going litigation associated with the 2008 planning effort;

A new recovery plan for the northern spotted owl (2011);

Final Critical Habitat Rule for the northern spotted owl (2012);

Revised critical habitat for the marbled murrelet; and 

Secretarial Pilot Projects to employ the ecological restoration principles. 

The RMP revisions will consider this new information in western Oregon, including lessons 

learned from the prior effort to revise these RMPs. Until completion of the new RMPs, western 

Oregon forest management projects will comply with the existing 1995 RMPs as well as the new 

regulatory framework. 

Means and Strategies

The BLM uses collaboration and facilitation tools to assure input from stakeholders for 

the new RMPs, and independent facilitators are being used at multiple levels. 

The BLM is engaged with DOI’s Office of Collaborative Action and Dispute Resolution 

(CADR) to assist with interagency discussions on ESA consultation strategy with FWS 

and the National Marine Fisheries Service for the new RMPs. With CADR assistance, 

the three agencies have been drafting a consultation agreement outlining commitments 

to coordinate and resolve complex issues, and ensure the proposed RMPs do not 

jeopardize the recovery of T&E species or adversely modify their critical habitats.

Regionally, the BLM has drawn together a group of over 20 different cooperators who 

will continue to assist the BLM by providing strategic input into the plans.

The Western Oregon Resource Management Planning program supports 

implementation of NEPA by providing a network of planning experts who provide 
Bureau of Land Management 2014 Budget Justifications

Chapter X – Oregon and California Grant Lands Page X - 37

oversight, extensive advice and review of the various NEPA documents to assure 

compliance with the existing Resource Management Plans. High-quality NEPA 

documentation is a critical step in agency decision-making and project implementation. 

In the implementation of project environmental assessments, the BLM anticipates some

streamlining in project development and implementation

2014 PROGRAM PERFORMANCE

In 2014, the Western Oregon Resource Management Planning Program proposes to:

Continue planning activities and support implementation of existing RMPs and NWFP;

Incorporate recommendations of the Western Oregon Task Force, appointed by the 

Secretary to advise the BLM and FWS on future planning efforts for the O&C timberlands, 

into a new plan revision effort; 

Incorporate the 2011 Survey and Manage Settlement Agreement, the 2011 Northern 

Spotted Owl Recovery Plan and the 2012 Critical Habitat designation into the ongoing 

planning effort;

Complete the Analysis of the Management Situation for the new planning effort;

Develop and analyze a range of alternatives for the new planning effort; and

Develop and finalize analytical methodologies, assumptions and tools for the program.
Bureau of Land Management 2014 Budget Justifications

Chapter X – Oregon and California Grant Lands Page X - 38

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Bureau of Land Management 2014 Budget Justifications

Chapter X – Oregon and California Grant Lands Page X - 39

Activity: Western Oregon Information and Data Systems 

Subactivity: Western Oregon Information Systems Operation and 

Maintenance

2013 

Full 

Year 

CR

2012 

Enacted1

2014 Change 

from 

2012 

Enacted

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Internal 

Transfers 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Information Systems 

Operation & 

Maintenance ($000) 1,937 1,923 +17 +0 +0 1,940 +17

FTE 10 10 +1 11 +1

1

Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

JUSTIFICATION OF 2014 PROGRAM CHANGES

The 2014 budget request for the Western Oregon Information Systems Operation and 

Maintenance program is $1,940,000 and 11 FTE, an increase of $17,000 and 1 FTE from the 

2012 enacted level. 

PROGRAM OVERVIEW

Program Components

This program deploys hardware and software necessary to implement Resource Management 

Plans, develops data sets supporting decision-making, and provides technology for resource 

management, such as mobile geographic information system (GIS) and internet mapping 

services. This program manages infrastructure, including workstations, networks, Web services 

and software, and ensures system security, integrity and reliability.

Means and Strategies

The BLM instituted corporate spatial data standards to ensure GIS data integrity, facilitate 

integration with partners, and implement Web-based collaboration and mapping tools to 

enhance access and communication. In 2014, the BLM will continue to centralize management 

of IT support services. Efforts will continue under Service First to align the GIS functions and 

leverage BLM and U.S. Forest Service (USFS) data resources to reduce costs to both agencies, 

facilitate knowledge transfer, and standardize data and procedures. 

Other Funding Sources

Public Domain Forest Management funding in the Management of Lands and Resources 

Appropriation supports the maintenance and development of the suite of Forest Management 

databases within the Forest Information Database Systems.
Bureau of Land Management 2014 Budget Justifications

Chapter X – Oregon and California Grant Lands Page X - 40

2014 PROGRAM PERFORMANCE

BLM has several on-going projects with other agencies and other partners:

Working with the USFS to align both agencies’ GIS programs;

Collaborating with the USFS and U.S. Geological Survey to build a single hydrographic 

data set for common use in the Pacific Northwest; and

Partnering with the Oregon Light Detection and Remote Sensing Consortium to pool 

money from Federal, State and county and agencies to collect remote sensing data.
Bureau of Land Management 2014 Budget Justifications

Chapter X – Oregon and California Grant Lands Page X - 41

2013 

Full 

Year 

CR

2012 

Enacted1

2014 Change 

from 

2012 

Enacted

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Internal 

Transfers 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

National 

Monuments & 

National 

Conservation 

Areas ($000) 757 748 +13 +0 +0 761 +13

FTE 7 7 +2 9 +2

1

Estimated changes in FTEs compare against actual 2012 FTE usage, not 2012 enacted formulation estimates.

JUSTIFICATION OF 2014 PROGRAM CHANGES

The 2014 budget request for the Western Oregon National Monuments & National Conservation 

Areas program is $761,000 and 9 FTE, an increase of $13,000 and +2 FTE from the 2012 

actual level.

 

PROGRAM OVERVIEW

Program Components

The Cascade Siskiyou National Monument (CSNM) in southwestern Oregon and the Yaquina 

Head Outstanding Natural Area (YHONA) located in the central coast near Newport, Oregon, 

are the two units that comprise the Western Oregon National Monuments and National 

Conservation Areas program. These are both units of the BLM’s National Landscape 

Conservation System (NLCS).

Critical Factors

In support of NLCS goals, in 2014 the BLM will focus on these critical factors: 

Law Enforcement Presence and Visibility — Law enforcement is a key factor in ensuring 

visitor safety and protecting fragile or rare geologic, archeological, paleontological, and 

biological resources. Threats include vandalism of natural features, archeological sites, 

facilities, and theft of irreplaceable archeological and paleontological resources. 

Activity: Western Oregon National Landscape 

Conservation System

Subactivity: National Monuments & National 

Conservation Areas
Bureau of Land Management 2014 Budget Justifications

Chapter X – Oregon and California Grant Lands Page X - 42

Critical Inventories and Monitoring Programs — Inventories define the critical resource 

values representative of each unit’s uniqueness, and the information provided is 

essential to the development and implementation of management plans.

Restoration — Both CSNM and YHONA are home to a variety of ecosystems. These 

areas contribute to protection and restoration of native plant and animal communities, 

including riparian habitats, corridors, and migration routes, to sustain and conserve 

public land resources affected by climate change, altered fire regimes, and invasive 

species.

Comprehensive Travel and Transportation Management — Unmanaged recreation use 

levels have increased adverse impacts to resources in the monuments through 

increased erosion, vegetative damage, spread of weeds and invasive plants, and 

impacts to wildlife habitat. 

Visitor and Community Education — Interpretation and environmental education improve 

visitor experiences, providing information about the cultural, ecological, and scientific 

values of units and the BLM’s balanced resource mission. 

Maintenance and Operations of Recreation Facilities — This program supports a 

number of education and visitor centers along with other facilities to enhance the visitor 

experience in the natural setting.

Supporting Soda Mountain Wilderness Stewardship Plan Implementation – The BLM will 

continue to implement the new plan, including activities such as decommissioning former 

roads, conducting roads-to-trails projects, removing unneeded grazing management 

facilities and other human infrastructure, and other “re-wilding” projects.

Means and Strategies

Both the CSNM and the YHONA work with volunteers, partners, and communities. The BLM 

works closely with the public to ensure that recreation in these units meets the needs of user 

groups while remaining compatible with the values for which each unit was designated. 

2014 PROGRAM PERFORMANCE

To fulfill the goals of the NLCS program at CSNM and YHONA, the BLM will:

• Manage monuments and conservation areas to conserve, protect, and restore the values for 

which they were designated, as guided by each unit’s enabling legislation or proclamation;

• Manage valid existing rights and compatible uses;

• Support and encourage scientific study and research, while ensuring that research 

methodologies conserve and protect resources;

• Develop and maintain partnerships with local, State, Federal, and tribal government 

agencies, as well as scientists, local communities, public land users, non-governmental 

organizations, and the public; and

• Recognize gateway communities as vital links to monuments and conservation areas and 

where practical, locate developed recreation and interpretive facilities adjacent to NLCS 

lands.
Bureau of Land Management 2014 Budget Justifications

Chapter X – Oregon and California Grant Lands Page X - 43

Budget Schedules

Account Symbol and Title

14X1116

Oregon and California Grant Lands

Line 2012 Act 2013 CY 2014 BY

Program and Financing (P) ($ in Millions)

Obligations by program activity:

 Western Oregon Maintenance 0002 11 10 10

 Western Oregon Resource Management 0004 107 95 99

 Western Oregon Data Systems Operation & 

Management

0005 2 2 2

 Western Oregon National Monuments & NCA 0006 1 2 2

Total new obligations 0900 121 109 113

Budgetary Resources:

 Unobligated balance:

 Unobligated balance brought forward, Oct 1 1000 9 4 8

 Recoveries of prior year unpaid obligations 1021 4 0 0

 Unobligated balance (total) 1050 13 4 8

 Budget authority:

 Appropriations, discretionary:

 Appropriation 1100 112 113 116

 Appropriation, discretionary (total) 1160 112 113 116

 Discretionary, Appropriations Committee

 Appropriation [O&C] **OL Rates** 1160-40 112 113 116

 Baseline Non-Pay 1160-50 0 38 39

 Baseline Civilian Pay 1160-50 0 75 78

Total budgetary resources available 1930 125 117 124

 Memorandum (non-add) entries:

 Unexpired unobligated balance, end of year 1941 4 8 11

Change in obligated balance:

 Unpaid obligations:

 Unpaid obligations, brought forward, Oct 1 3000 39 48 47

 Obligations incurred, unexpired accounts 3010 121 109 113

 Outlays (gross) 3020 -108 -110 -116

 Recoveries of prior year unpaid obligations, 

unexpired

3040 -4 0 0

 Unpaid obligations, end of year 3050 48 47 44

 Memorandum (non-add) entries:

 Obligated balance, start of year 3100 39 48 47

 Obligated balance, end of year 3200 48 47 44
Bureau of Land Management 2014 Budget Justifications

Chapter X – Oregon and California Grant Lands Page X - 44

Budget Schedules

Account Symbol and Title

14X1116

Oregon and California Grant Lands

Line 2012 Act 2013 CY 2014 BY

Program and Financing (P) ($ in Millions)

Budget authority and outlays, net:

 Discretionary:

 Budget authority, gross 4000 112 113 116

 Outlays, gross:

 Outlays from new discretionary authority 4010 81 84 86

 Outlays from discretionary balances 4011 27 26 30

 Outlays, gross (total) 4020 108 110 116

 Budget authority, net (discretionary) 4070 112 113 116

 Outlays, net (discretionary) 4080 108 110 116

Budget authority, net (total) 4180 112 113 116

Outlays, net (total) 4190 108 110 116

Object Classification (O) ($ in Millions)

Direct obligations:

 Personnel compensation:

 Full-time permanent 1111 47 47 48

 Other than full-time permanent 1113 5 5 5

 Other personnel compensation 1115 2 2 2

 Total personnel compensation 1119 54 54 55

 Civilian personnel benefits 1121 17 17 17

 Travel and transportation of persons 1210 1 1 1

 Transportation of things 1220 3 1 1

 Communications, utilities, and miscellaneous 

charges

1233 3 3 3

 Advisory and assistance services 1251 2 1 1

 Other services from non-Federal sources 1252 17 12 13

 Other goods and services from Federal 

sources

1253 7 3 4

 Operation and maintenance of facilities 1254 0 2 3

 Operation and maintenance of equipment 1257 2 2 2

 Supplies and materials 1260 3 3 3

 Equipment 1310 5 5 5

 Grants, subsidies, and contributions 1410 7 5 5

 Total new obligations 9999 121 109 113

 Direct Federal programs:

 Budget Authority 2004-01 112 113 116

 Outlays 2004-02 108 110 116

Employment Summary (Q)

Direct civilian full-time equivalent employment 1001 780 780 782
Bureau of Land Management 2014 Budget Justifications

Chapter X – Oregon and California Grant Lands Page X - 45

Budget Schedules

Account Symbol and Title

14X1116

Oregon and California Grant Lands

Line 2012 Act 2013 CY 2014 BY

Program and Financing (P) ($ in Millions)

Appropriations Requests in Thousands of 

Dollars (T)

Budget year budgetary resources [14-1116] 1000 0 115,543
Bureau of Land Management 2014 Budget Justifications

Chapter X – Oregon and California Grant Lands Page X - 46

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Range Improvements

Bureau of Land Management 2014 Budget Justifications

Chapter XI – Range Improvements Page XI - 1

RANGE IMPROVEMENTS

APPROPRIATIONS LANGUAGE

For rehabilitation, protection, and acquisition of lands and interests therein, and improvement of 

Federal rangelands pursuant to section 401 of the Federal Land Policy and Management Act of 

1976 (43 U. S. C. 1701), notwithstanding any other Act, sums equal to 50 percent of all moneys 

received during the prior fiscal year under sections 3 and 15 of the Taylor Grazing Act (43 U. S. 

C. 315 et seq. ) and the amount designated for range improvements from grazing fees and 

mineral leasing receipts from Bankhead-Jones lands transferred to the Department of the 

Interior pursuant to law, but not less than $10,000,000, to remain available until expended:

Provided, That not to exceed $600,000 shall be available for administrative expenses. 

(Department of the Interior, Environment, and Related Agencies Appropriations Act, 2012.)

APPROPRIATIONS LANGUAGE CITATIONS AND AUTHORIZATIONS

Section 401 of Federal Land Policy & Management Act (FLPMA) (43 U.S.C. 1751), as 

amended by the Public Rangelands Improvement Act of 1978 (43 U.S.C. 1901-1905),

provides that 50 percent of all moneys received by the U.S. as fees for grazing domestic 

livestock on public land under the Taylor Grazing Act (43 U.S.C. 315) and the Act of August 28, 

1937 (43 U.S.C. 1181d) shall be credited to a separate account in the Treasury and made 

available for the purpose of on-the-ground range rehabilitation, protection, and improvements,

including, but not limited to, seeding and reseeding, fence construction, weed control, water 

development, and fish and wildlife habitat enhancement.

Taylor Grazing Act of 1934 (43 U.S.C 315) as, amended by the Act of August 28, 1937 (43 

U.S.C. 1181d), authorizes the establishment of grazing districts, regulation, and administration 

of grazing on the public lands, and improvement of the public rangelands. It also authorizes the 

Secretary to accept contributions for the administration, protection, and improvement of grazing 

lands, and establishment of a trust fund to be used for these purposes.

7 U.S.C. 1010 (the Bankhead Jones Farm Tenant Act of 1937), provides that the Secretary of 

Agriculture is authorized and directed to develop a program of land conservation and utilization 

in order to correct maladjustments in land use, and thus assist in controlling soil erosion, 

conducting reforestation, preserving natural resources, protecting fish and wildlife, developing 

and protecting recreational facilities, mitigating floods, preventing impairment of dams and 

reservoirs, conserving surface and subsurface moisture, protecting the watersheds of navigable 

streams, and protecting the public land, health, safety, and welfare; but not to build industrial 

parks or establish private industrial or commercial enterprises.

Executive Orders 10046, et al., provide that land under the jurisdiction of the Secretary of 

Agriculture under the provision of §32 of the Bankhead Jones Farm Tenant Act is transferred 

from the Department of Agriculture to the Department of the Interior for use, administration, or 

exchange under the applicable provisions of the Taylor Grazing Act.

30 U.S.C. 355, provides that all mineral leasing receipts derived from leases issued under the 

authority of the Mineral Leasing Act for Acquired Lands of 1947 shall be paid into the same 
Bureau of Land Management 2014 Budget Justifications

Chapter XI – Range Improvements Page XI - 2

funds or accounts in the Treasury and shall be distributed in the same manner as prescribed for 

other receipts from the lands affected by the lease. The intention is that this act shall not affect 

the distribution of receipts pursuant to legislation applicable to such lands.

Federal Noxious Weed Act of 1974, as amended (7 U.S.C. 2814), provides for the 

designation of a lead office and person trained in the management of undesirable plants; 

establishes and funds an undesirable plant management program; completes and implements 

cooperative agreements with State agencies; and establishes integrated management systems 

to control undesirable plant species.

The Annual Department of the Interior, Environment, and Related Agencies 

Appropriations Acts, provide that a minimum amount is appropriated, that the appropriation 

shall remain available until expended, and that a maximum of $600,000 is available from this 

appropriation for BLM administrative expenses.

Under the provisions of the Balanced Budget and Emergency Deficit Control Act of 1985 

and the Budget Enforcement Act of 1990, this account is classified as a current, mandatory 

account.
Bureau of Land Management 2014 Budget Justifications

Chapter XI – Range Improvements Page XI - 3

Summary of Requirements ($000)

Activity/

Subactivity

2013 

Full Year CR 2012 Enacted

2014

Change

From

2012 Enacted

(+/-)

Fixed Costs

& Related 

Changes

(+/-)

Program Changes

(+/-)

2014

Budget

Request

FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount

Range 

Improvements 42 10,000 42 10,000 0 0 0 0 42 10,000 0 0

Public Lands 

Improvement 33 7,873 33 7,873 0 0 0 0 33 7,873 0 0

Farm Tenant Act 

Lands Improvement

9 1,527 9 1,527 0 0 0 0 9 1,527 0 0

Administrative 

Expenses 0 600 0 600 0 0 0 0 0 600 0 0
Bureau of Land Management 2014 Budget Justifications

Chapter XI – Range Improvements Page XI - 4

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Bureau of Land Management 2014 Budget Justifications

Chapter XI – Range Improvements Page XI - 5

Appropriation: Range Improvements

2013 

Full 

Year 

CR

2012 

Enacted

2014

Change 

from 

2012 

Enacted

(+/-)

Fixed 

Costs & 

Related 

Changes 

(+/-)

Internal 

Transfers 

(+/-)

Program 

Changes 

(+/-)

Budget 

Request

Public Lands 

Improvement 

$ 7,873 7,873 +0 +0 +0 7,873 +0

FTE 33 33 +0 +0 +0 33 +0

Farm Tenant 

Act Lands 

Improvement

$ 1,527 1,527 +0 +0 +0 1,527 +0

FTE 9 9 +0 +0 +0 9 +0

Administrative 

Expenses

$ 600 600 +0 +0 +0 600 +0

FTE 0 0 +0 +0 +0 0 +0

Total Activity $ 10,000 10,000 +0 +0 +0 10,000 +0

FTE 42 42 +0 +0 +0 42 +0

JUSTIFICATION OF 2014 PROGRAM CHANGES

The 2014 budget request for the Range Improvement Account is $10,000,000 and 42 FTE. 

PROGRAM OVERVIEW

Program Components

The Range Improvement Account functions as the primary support program for Rangeland 

Management and is used to construct on-the-ground projects, such as vegetation management

treatments, fencing, and wildlife-livestock water developments.

These funds are used to improve land health and resource conditions, facilitating the production 

of a wide variety of ecosystem goods and services, such as high quality water. Areas identified 

through land health evaluations are prioritized at the district level for funding. Examples of areas 

not achieving rangeland health standards could be riparian areas functioning at-risk with a 

downward trend, areas with unacceptable plant community composition including areas invaded 

by noxious and invasive weeds or other invasive species, or areas with unnaturally high 

amounts of exposed soil that would be subject to accelerated erosion. 

Healthy landscapes in the West today are at greater risk due to more intense and extended 

droughts, increasing wildfire frequency, and continuing migration of invasive species. Range 

Improvement funds also provide field offices with the flexibility to address changing resource 

conditions such as drought, wildfire, newly listed species, critical habitat, and candidate species 
Bureau of Land Management 2014 Budget Justifications

Chapter XI – Range Improvements Page XI - 6

such as sage-grouse. The 2012 wildfire season was record-setting for the BLM - 3.3 million 

acres of BLM-managed land was burned. The BLM will work to stabilize, rehabilitate and 

restore plant communities as a result of these fires.

 

Solar-powered wells are used to improve livestock distribution in areas unable to 

sustain land health standards as a result of livestock grazing.

Means and Strategies

• The BLM uses funding from the Range Improvement Account in addition to funding from 

other programs and contributions from permittees and partner organizations to support 

rangeland health. The amount of funding the BLM is able to leverage from partners and 

stakeholders is a factor used to help prioritize projects for funding. 

• Other workload priorities such as wildfire, droughts, floods, or litigation can affect the BLM’s 

ability to complete range improvement projects.

• Project prioritization is based on resource issues, such as protection of sensitive species 

through management of sage-grouse habitat, reduction of wildfire risks through the 

management of fuel loads, and coordination with post-fire rehabilitation efforts to help 

manage the spread of invasive or noxious weeds. 

Funding for the Range Improvement Appropriations

Fifty percent of the grazing fees collected on public lands, or $10.0 million, whichever is greater, 

is appropriated annually into the Range Improvement Account. Funding is distributed to the 

BLM grazing districts according to where the receipts were collected. This funding remains 

available until exhausted and is to be used for on-the-ground projects, principally for improving 

public lands not achieving land health standards. 

Please refer to the Collections chapter for information on grazing fees collected on public lands.
Bureau of Land Management 2014 Budget Justifications

Chapter XI – Range Improvements Page XI - 7

Grazing Fees

Grazing fees are set each year under the authority of FLPMA and the Public Range 

Improvement Act. The fee for 2013 will remain $1.35 per Animal Unit Month (AUM), as 

announced on January 31, 2013. A portion of the grazing fees are deposited into the Treasury 

and 50 percent of the fees are appropriated to the BLM in this Range Improvement Account for 

the purposes described in this chapter. 

These fees do not fund the Rangeland Management Program, and they also differ from the 

proposed grazing permit administrative fee. More information on the Rangeland Management 

Program and the proposed cost recovery measure can be found in the MLR appropriation 

section.

2014 PROGRAM PERFORMANCE

In 2014, the focus and priorities of the Range Improvement Account will remain as described in 

the overview section. It is estimated that approximately 18,000 acres would receive vegetation 

treatment, 300 new structural projects would be constructed, 250 existing projects would be reconstructed/maintained and 50,000 acres of weed treatment would be completed. 

Aerial application of Tebuthirion, vegetation treatment herbicide, is used to spray mesquite 

(problematic invasive species) for restoration of desert grassland in New Mexico.
Bureau of Land Management 2014 Budget Justifications

Chapter XI – Range Improvements Page XI - 8

Budget Schedules – Current Law

Account Symbol and Title

14X5132

Range Improvements

Line 2012 Act 2013 CY 2014 BY

Program and Financing (P) ($ in Millions)

Obligations by program activity:

 Public Lands Improvements 0001 2 7 7

 Farm Tenant Act Lands Improvements 0002 8 3 3

Total new obligations 0900 10 10 10

Budgetary Resources:

 Unobligated balance:

 Unobligated balance brought forward, Oct 1 1000 2 3 3

 Recoveries of prior year unpaid obligations 1021 1 0 0

 Unobligated balance (total) 1050 3 3 3

 Budget authority:

 Appropriations, mandatory:

 Appropriation (General Fund) 1200 2 3 3

 Appropriation (special or trust fund) 1201 8 7 7

 Appropriations, mandatory (total) 1260 10 10 10

 Appropriations, mandatory - Computed Totals 1260-20 10 10 10

 Mandatory, Appropriations Committee

 Appropriation [Indefinite] **OL Rates** 1260-40 2 3 3

 Baseline Non-Pay 1260-50 0 3 3

 Baseline Civilian Pay 1260-50 0 0 0

 Appropriation [Special Fund, Indefinite] **OL 

Rates**

1260-40 8 7 7

 Baseline Non-Pay 1260-50 0 4 4

 Baseline Civilian Pay 1260-50 0 3 3

Total budgetary resources available 1930 13 13 13

 Memorandum (non-add) entries:

 Unexpired unobligated balance, end of year 1941 3 3 3

Change in obligated balance:

 Unpaid obligations:

 Unpaid obligations, brought forward, Oct 1 3000 6 4 4

 Obligations incurred, unexpired accounts 3010 10 10 10

 Outlays (gross) 3020 -11 -10 -10

 Recoveries of prior year unpaid obligations, 

unexpired

3040 -1 0 0

 Unpaid obligations, end of year 3050 4 4 4

 Memorandum (non-add) entries:

 Obligated balance, start of year 3100 6 4 4

 Obligated balance, end of year 3200 4 4 4
Bureau of Land Management 2014 Budget Justifications

Chapter XI – Range Improvements Page XI - 9

Budget Schedules – Current Law

Account Symbol and Title

14X5132

Range Improvements

Line 2012 Act 2013 CY 2014 BY

Program and Financing (P) ($ in Millions)

Budget authority and outlays, net:

 Mandatory:

 Budget authority, gross 4090 10 10 10

 Outlays, gross:

 Outlays from new mandatory authority 4100 5 4 4

 Outlays from mandatory balances 4101 6 6 6

 Outlays, gross (total) 4110 11 10 10

 Budget authority, net (mandatory) 4160 10 10 10

 Outlays, net (mandatory) 4170 11 10 10

Budget authority, net (total) 4180 10 10 10

Outlays, net (total) 4190 11 10 10

Object Classification (O) ($ in Millions)

Direct obligations:

Personnel compensation:

 Personnel compensation: Full-time permanent 1111 2 2 2

 Civilian personnel benefits 1121 1 1 1

 Other services from non-Federal sources 1252 1 0 0

 Other goods and services from Federal sources 1253 1 2 2

 Supplies and materials 1260 2 2 2

 Land and structures 1320 2 2 2

 Grants, subsidies, and contributions 1410 1 1 1

 Total new obligations 9999 10 10 10

 Physical assets:

 Major equipment:

 Other physical assets:

 Direct Federal programs:

 Budget Authority 1352-01 10 10 10

 Outlays 1352-02 11 10 10

Employment Summary (Q)

Direct civilian full-time equivalent employment 1001 42 42 42
Bureau of Land Management 2014 Budget Justifications

Chapter XI – Range Improvements Page XI - 10

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Service Charges, Deposits

and Forfeitures

Bureau of Land Management 2014 Budget Justifications

Chapter XII – Service Charges, Deposits, and Forfeitures Page XII - 1

SERVICE CHARGES,

DEPOSITS AND FORFEITURES

APPROPRIATIONS LANGUAGE

For administrative expenses and other costs related to processing application documents and 

other authorizations for use and disposal of public lands and resources, for costs of providing 

copies of official public land documents, for monitoring construction, operation, and termination 

of facilities in conjunction with use authorizations, and for rehabilitation of damaged property, 

such amounts as may be collected under Public Law 94–579, as amended, and Public Law 93–

153, to remain available until expended: Provided, That, notwithstanding any provision to the 

contrary of section 305(a) of Public Law 94–579 (43 U. S. C. 1735(a)), any moneys that have 

been or will be received pursuant to that section, whether as a result of forfeiture, compromise, 

or settlement, if not appropriate for refund pursuant to section 305(c) of that Act (43 U. S. C. 

1735(c)), shall be available and may be expended under the authority of this Act by the 

Secretary to improve, protect, or rehabilitate any public lands administered through the Bureau 

of Land Management which have been damaged by the action of a resource developer, 

purchaser, permittee, or any unauthorized person, without regard to whether all moneys 

collected from each such action are used on the exact lands damaged which led to the action:

Provided further, That any such moneys that are in excess of amounts needed to repair damage 

to the exact land for which funds were collected may be used to repair other damaged public 

lands. (Department of the Interior, Environment, and Related Agencies Appropriations Act, 

2012.)

APPROPRIATION LANGUAGE CITATIONS AND AUTHORIZATIONS

Federal Land Policy and 

Management Act of 1976, as 

amended (43 U.S.C. 1735)

Authorizes the BLM to receive deposits and forfeitures.

The Mineral Leasing Act of 

1920, as amended by the 

Trans-Alaska Pipeline Act of 

1973, §101 (Public Law 93-

153) (30 U.S.C. 185)

Authorizes rights-of-way for oil, gas, and other fuels. It further 

authorizes the Secretary to issue Rights-Of-Way and other land 

use authorizations related to the Trans-Alaska Pipeline. Rightsof-way applicants and permittees are to reimburse the U.S. for all 

costs associated with processing applications and monitoring 

pipeline construction and operations.

The Alaska Natural Gas 

Transportation Act of 1976 

(15 U.S.C. 719)

Authorizes the granting of certificates, rights-of-way permits, and 

leases.

The National Environmental 

Policy Act of 1969 (42 U.S.C. 

4321, 4331-4335, 4341-4347)

Requires the preparation of environmental impact statements for 

Federal projects that may have a significant effect on the 

environment.
Bureau of Land Management 2014 Budget Justifications

Chapter XII – Service Charges, Deposits, and Forfeitures Page XII - 2

The Wild Free Roaming 

Horse and Burro Act of 

1971, as amended by the 

Public Rangelands 

Improvement Act of 1978 (16 

U.S.C. 1331-1340)

Authorizes adoption of wild horses and burros by private 

individuals under cooperative agreements with the Government.

The Public Rangelands 

Improvement Act of 1978 (43 

U.S.C. 1901-1908)

Establishes the policy of improving Federal rangeland conditions 

and facilitates the humane adoption or disposal of excess wild 

free-roaming horses and burros.

Omnibus Public Land 

Management Act, 2009 (P.L. 

111-11)

Among numerous other things, authorizes the disposal of certain 

lands in the Boise District of the Bureau of Land Management, in 

Washington County, Utah, and in Carson City, Nevada. It 

authorizes BLM to retain and spend most of the proceeds of 

these sales to acquire lands in wilderness and other areas and 

for other purposes, and to pay a portion to the states in which the 

sold land was located. 
Bureau of Land Management 2014 Budget Justifications

Chapter XII – Service Charges, Deposits, and Forfeitures Page XII - 3

SUMMARY OF REQUIREMENTS

(Dollars in Thousands)

Comparison

by Activity/

Subactivity

2013

Full-Year CR 2012 Enacted

2014

Change from 

2012

Enacted

(+/ -)

Program 

Changes

(+/ -)

Budget Request

FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount

Service 

Charges, 

Deposits, & 

Forfeitures

211 31,965 211 34,448 -3 500 208 32,465 -3 +17

Offsets -31,965 -32,448 -500 -32,465 -17

Right-Of-Way 

Processing

[5101, 5102 & 

5103]

122 16,900 122 16,847 -3 +53 119 16,900 -3 +53

Energy and 

Minerals Cost 

Recovery

[5110 & 5104]

34 3,320 34 3,292 -4 +28 30 3,320 -4 +28

Trans Alaska 

Pipeline [5106 

& 5109]

26 4,000 26 3,866 0 +134 26 4,000 0 +134

Adopt-A-Horse 

Program

[5200 thru 

5220]

0 450 0 455 0 -5 0 450 0 -5

Repair of 

Damaged 

Lands

[5330, 5310, & 

5320]

12 3,550 12 3,890 +6 -340 18 3,550 +6 -340

Cost 

Recoverable 

Realty Cases

[5410 thru 

5440]

3 900 3 814 +1 +86 4 900 +1 +86

Timber Contract 

Expenses

[5500 & 5600]

0 20 0 67 +1 -47 1 20 +1 -47

Commercial 

Film & 

Photography 

Fees [5441]

2 225 2 224 -1 +1 1 225 -1 +1

Recreation Cost 

Recovery 

[5105]

5 1,500 5 1,890 -1 +110 4 2,000 -1 +110

Copy Fee 

Account [5700]

7 1,100 7 1,103 -2 -3 5 1,100 -2 -3
Bureau of Land Management 2014 Budget Justifications

Chapter XII – Service Charges, Deposits, and Forfeitures Page XII - 4

PROGRAM OVERVIEW

Rights-Of-Way Processing and Energy and Minerals Cost Recovery – The BLM recovers 

certain costs of processing documents related to rights-of-way (ROW), and energy and minerals 

authorizations. These funds are deposited in the Service Charges, Deposits, and Forfeitures 

account and used by BLM for labor and other expenses of processing these documents. More 

detail for each type of cost recovery is described below.

Rights-Of-Way Processing – ROW processing is funded through a combination of applicant 

deposits made into this indefinite appropriation and a direct appropriation of funds in the 

Management of Lands and Resources (MLR) appropriation, which include the Renewable 

Energy subactivity as well as the Land and Realty Management subactivity.

The BLM recovers costs for the processing of ROW applications pursuant to the Mineral 

Leasing Act (MLA) and the Federal Land Policy and Management Act (FLPMA). Processing 

fees are determined by a fee schedule for minor category ROWs (those which require fewer 

than 50 Federal work hours). Processing fees for major category ROWs (those which require 

greater than 50 Federal work hours) are based on reasonable costs (FLPMA) or actual costs 

(MLA). In 2012, the average cost to process a major category right-of-way application was 

slightly over $220,000. . Major category ROW projects are usually for oil and gas pipelines, 

electric transmission lines, wind and solar energy development sites, or other projects 

associated with energy development. Twenty percent of BLM’s ROW applications are for these 

types of projects. The BLM estimates that it will recover 80 percent of the reasonable or actual 

processing costs of the larger scale project types of applications.

At least 80 percent of the ROW projects are minor category which usually consists of short 

roads, well gathering pipelines, and electric distribution lines. Minor category ROW applications 

cost an average of $1,200 each to process in 2011. Information on the cost in 2012 is not yet 

available. For these smaller-scale projects, the BLM recovers 50 percent of the actual costs of 

each right-of-way application.

Only those costs directly associated with processing an application or issuing a ROW grant are 

charged to an individual project. Costs of land use planning or studies to determine placement 

of ROW corridors, and other general costs that are not specific to a ROW application, cannot be 

charged to the individual ROW cost recovery account. These costs are funded entirely from the 

MLR appropriation. In addition, certain types of ROW applicants are exempted, by law, from 

cost recovery. These applicants include States and local governments. 

The BLM currently administers more than 170,000 ROW authorizations. The Bureau will 

continue to expedite the granting of ROWs by processing applications, issuing grants, and 

monitoring construction involved with the operation and termination of ROWs on the public land 

as authorized by the FLPMA and the MLA.

Energy and Minerals Cost-Recovery - The BLM issued a final rule effective November 7, 

2005, to amend its mineral resources regulations to increase certain fees and to impose new 

Appropriation: Service Charges, Deposits, and 

Forfeitures (Indefinite)
Bureau of Land Management 2014 Budget Justifications

Chapter XII – Service Charges, Deposits, and Forfeitures Page XII - 5

fees to cover BLM’s costs of processing documents relating to its minerals programs. The new 

fees include costs of actions such as environmental studies performed by the BLM, lease 

applications, name changes, corporate mergers, lease consolidations and reinstatements, and 

other processing-related costs. The BLM charges the fees pursuant to authorities under the 

Independent Offices Appropriation Act, as amended, 31 U.S.C. 9701 (IOAA); Section 304(a) of 

FLPMA; and OMB Circular A-25; DOI Manual 346 DM 1.2 A; and case law (also see the 

preamble to the proposed rule at 70 FR 41533 and Solicitor's Opinion M-36987 (December 5, 

1996)).

The Administration will re-propose legislation to repeal, beginning in 2015, the provisions in 

Section 365 of the Energy Policy Act of 2005 that divert leasing rental receipts from the 

Treasury to the BLM oil and gas program and prohibit the BLM from implementing cost recovery 

fees for processing applications for permits to drill. Following adoption of the legislative 

proposal, the Administration will promulgate a new energy cost recovery rulemaking to impose 

Application for Permit to Drill (APD) processing fees. The cost recovery fee will replace the 

legislative permit fee that is currently set through annual appropriations language. The 

rulemaking will provide for cost recovery fees to replace the mandatory funding from lease 

rental receipts which would be repealed beginning in 2015. The proposed increased reliance on 

cost recoveries is consistent with the findings of previous Inspector General reports and the 

2005 Program Assessment Rating Tool (PART) review of this program, which found that the 

program does not adequately charge identifiable users for costs incurred on their behalf. The 

funds collected from this cost recovery regulation will be deposited in the Service Charges, 

Deposits and Forfeitures account.

The energy and mineral cost recovery revenues will be expended by the BLM for labor and 

other costs to process these leases and permits. In addition, the BLM is analyzing options for 

implementing inspection fees in the Coal and Other Minerals Management programs. The BLM 

expects to begin drafting regulations that will shift a greater share of program costs, such as 

inspection and enforcement activities, to the entities that benefit from the service, thereby 

reducing the impact on taxpayers for funding these activities.

Recreation Cost Recovery – The BLM recovers its costs associated with authorizing and 

administering certain recreation activities or events. The BLM uses Special Recreation Permits 

to authorize events such as off-highway vehicle areas, shooting ranges, and specialized trail 

systems; or to authorize group activities or recreation events. This subactivity covers revenues 

and expenditures associated with any Special Recreation Permit that has been determined to 

be cost recoverable by BLM personnel as outlined in 43 CFR 2930-1 Permits for Recreation on 

Public Lands and H-2930-1, Recreation Permit Administration Handbook. Primary work in this 

program involves processing the application and administering the permit, which includes 

environmental analysis and monitoring. 

Adopt-a-Horse Program – The BLM conducts adoptions of wild horses and burros gathered 

from its public lands multiple times throughout the year. In 2014, the BLM anticipates making 

2,700 animals available for adoption to qualified applicants. The BLM administers animal 

adoptions primarily through a competitive bidding process, receiving a minimum of $125 per 

horse or burro to offset veterinary, transportation, and animal maintenance costs.

Repair of Damaged Lands – Under FLPMA, the BLM is authorized to collect money for land 

damaged by users who have not fulfilled the requirements of contracts or bonds. If excess 

funding exists after repair has been made to the exact land for which funds were collected or 
Bureau of Land Management 2014 Budget Justifications

Chapter XII – Service Charges, Deposits, and Forfeitures Page XII - 6

forfeited, then the BLM may use these funds to improve, protect, or rehabilitate any damaged

public land.

Cost-Recoverable Realty Cases – The BLM performs certain types of realty work on a costrecoverable basis. Regulations promulgated pursuant to FLPMA allow the BLM to collect from 

applicants the costs of processing applications for realty work, as described below.

• Conveyance of Federally Owned Mineral Interests –The BLM collects fees from 

applicants to cover administrative costs, including the costs of conducting an exploratory 

program to determine the type and amount of mineral deposits, establishing the fair market 

value of the mineral interests to be conveyed, and preparing conveyance documents.

• Recordable Disclaimers of Interest – The BLM collects fees from applicants to cover 

administrative costs, including the costs to determine if the U.S. has an interest in the 

property or boundary definitions, as well as preparing the riparian specialist’s report or 

preparing and issuing the document of disclaimer.

• Leases, Permits, and Easements – The BLM collects fees from applicants to cover 

administrative costs, including the cost of processing applications, monitoring construction, 

operating and maintaining authorized facilities, and monitoring rehabilitation and restoration 

of the land. 

Applicants may deposit money in an approved account for the BLM’s use in completing specific 

realty work. These dollars become immediately available to the BLM without further 

appropriation.

Timber Contract Expenses – Many BLM timber contracts have provisions that allow the 

purchaser to make cash payments to the BLM in lieu of performing specified work directly. The 

BLM uses these funds as required by the contract. This involves performing timber slash 

disposal and reforestation.

Commercial Film and Photography – A permit is required for all commercial filming activities 

on public lands. Commercial filming is defined as the use of motion picture, videotaping, sound 

recording, or other moving image or audio recording equipment on public lands that involves the 

advertisement of a product or service, the creation of a product for sale, or the use of actors, 

models, sets, or props, but not including activities associated with broadcasts for news

programs. Creation of a product for sale includes a film, videotape, television broadcast, or 

documentary of participants in commercial sporting or recreation event created for the purpose 

of generating income. These fees are exclusive of cost recovery fees for processing the permits 

which are collected under leases, permits, and easements. 

Copy Fees – The BLM is the custodian of the official public land records of the United States. 

There are more than 500,000 requests annually from industry, user organizations, and the 

general public, for copies of these official records. The BLM charges a fee for copies of these 

documents (maps, plats, field notes, copies of use authorizations, reservations of easements 

and rights-of-way (ROW), serial register pages, and master title plats). This fee covers the cost 

of research, staff time, and the supplies required for printing.
Bureau of Land Management 2014 Budget Justifications

Chapter XII – Service Charges, Deposits, and Forfeitures Page XII - 7

Budget Schedules

Account Symbol and Title

14X5017

Service Charges, Deposits, and Forfeitures

Line 2012 Act 2013 CY 2014 BY

Program and Financing (P) ($ in Millions)

Obligations by program activity:

 Right-of-way processing 0001 15 15 15

 Energy and minerals cost recovery 0004 3 3 3

 Wild horse and burro cost recover 0005 2 2 2

 Repair of damaged lands 0006 4 4 4

 Cost recoverable realty 0007 1 1 1

 Recreation cost recovery 0008 2 2 2

 Copy fees 0009 1 1 1

 Trans Alaska Pipeline Authority 0011 4 4 4

Total new obligations 0900 32 32 32

Budgetary Resources:

 Unobligated balance:

 Unobligated balance brought forward, Oct 1 1000 47 47 47

 Budget authority:

 Appropriations, discretionary:

 Appropriation (special or trust fund) 1101 32 32 32

 Appropriation, discretionary (total) 1160 32 32 32

 Discretionary, Appropriations Committee

 Appropriation [Text] **OL Rates** 1160-40 32 32 32

 Baseline Non-Pay 1160-50 0 11 11

 Baseline Civilian Pay 1160-50 0 21 22

Total budgetary resources available 1930 79 79 79

 Memorandum (non-add) entries:

 Unexpired unobligated balance, end of year 1941 47 47 47

Change in obligated balance:

 Unpaid obligations:

 Unpaid obligations, brought forward, Oct 1 3000 6 8 6

 Obligations incurred, unexpired accounts 3010 32 32 32

 Outlays (gross) 3020 -30 -34 -34

 Unpaid obligations, end of year 3050 8 6 4

 Memorandum (non-add) entries:

 Obligated balance, start of year 3100 6 8 6

 Obligated balance, end of year 3200 8 6 4

Budget authority and outlays, net:

 Discretionary:
Bureau of Land Management 2014 Budget Justifications

Chapter XII – Service Charges, Deposits, and Forfeitures Page XII - 8

Account Symbol and Title

14X5017

Service Charges, Deposits, and Forfeitures

Line 2012 Act 2013 CY 2014 BY

 Budget authority, gross 4000 32 32 32

 Outlays, gross:

 Outlays from new discretionary authority 4010 15 16 16

 Outlays from discretionary balances 4011 15 18 18

 Outlays, gross (total) 4020 30 34 34

 Budget authority, net (discretionary) 4070 32 32 32

 Outlays, net (discretionary) 4080 30 34 34

Budget authority, net (total) 4180 32 32 32

Outlays, net (total) 4190 30 34 34

Object Classification (O) ($ in Millions)

Direct obligations:

 Personnel compensation:

 Full-time permanent 1111 14 14 14

 Other than full-time permanent 1113 1 1 1

 Other personnel compensation 1115 1 1 1

 Total personnel compensation 1119 16 16 16

 Civilian personnel benefits 1121 5 5 5

 Travel and transportation of persons 1210 1 1 1

 Advisory and assistance services 1251 0 1 1

 Other services from non-Federal sources 1252 3 3 3

 Other goods and services from Federal 

sources

1253 4 3 3

 Supplies and materials 1260 1 1 1

 Land and structures 1320 1 1 1

 Grants, subsidies, and contributions 1410 1 1 1

 Total new obligations 9999 32 32 32

 Direct Federal programs:

 Budget Authority 2004-01 32 32 32

 Outlays 2004-02 30 34 34

Employment Summary (Q)

Direct civilian full-time equivalent employment 1001 211 211 208

Appropriations Requests in Thousands of 

Dollars (T)

Budget year budgetary resources [14-5017] 1000 0 32465
Miscellaneous Permanent

Payments

Bureau of Land Management 2014 Budget Justifications

Chapter XIII – Miscellaneous Permanent Payments Page XIII - 1

MISCELLANEOUS

PERMANENT PAYMENTS

APPROPRIATIONS LANGUAGE

No Appropriations Language

EXPLANATION

The Permanent Payment Accounts provide for sharing specified receipts collected from the 

sale, lease, or use of the public lands and resources with States and counties. They do not 

require annual appropriations action. Amounts are estimated based on anticipated collections, 

or in some cases, upon provisions required by permanent legislation. The Bureau of Land 

Management (BLM) distributes these funds in accordance with the provisions of the various 

laws that specify the percentages to be paid to the applicable recipient jurisdictions and, in 

some cases, how the States and counties must use these funds. These payments are made 

subject to the authorities of permanent law, and the amounts are made available by operation of 

permanent laws. The payment amounts shown for each year are the amounts paid, or 

estimated to be paid, in that year.
Bureau of Land Management 2014 Budget Justifications

Chapter XIII – Miscellaneous Permanent Payments Page XIII - 2

AUTHORIZATIONS

30 U.S.C. 191, 286; 95 

Stat. 12051

Mineral leasing receipts are collected from the leasing of 

public land (including bonuses, royalties and rents) for 

exploration of oil and gas, coal, oil shale, and other minerals. 

The amount charged depends on the type of mineral that is 

leased.

1952 Interior and 

Related Agencies 

Appropriations Act (65 

Stat. 252)

States are paid five percent of the net proceeds (four percent 

of gross proceeds) from the sale of public land and public land 

products.

Taylor Grazing Act of 

1934 (43 U.S.C. 315 b, i 

and m)

States are paid 121⁄2 percent of the grazing fee receipts from 

lands within organized grazing district boundaries; States are 

paid 50 percent of the grazing fee receipts from public land 

outside of organized grazing districts; and States are paid 

specifically determined amounts from grazing fee and mineral 

receipts from miscellaneous lands within grazing districts that 

are administered under certain cooperative agreements which 

stipulate that the fees be retained by the BLM for distribution.

The Oregon and 

California Grant Lands 

Act of 1937 (50 STAT. 

874)

Provides for payments to 18 western Oregon counties of 75

percent of receipts derived from BLM activities on Oregon and 

California (O&C) grant lands. The percentage was changed 

to 50 percent by agreement between Oregon and the Federal 

government. 

The Act of May 24, 1939 

(53 STAT. 753)

Provides for payments in lieu of taxes to Coos and Douglas 

counties in Oregon of not to exceed 75 percent of receipts 

derived from the activities of BLM on Coos Bay Wagon Road 

grant lands. 

7 U.S.C. 1012, the 

Bankhead Jones Farm 

Tenant Act of 1937, and 

Executive Orders 

107878 and 10890

25 percent of the revenues received from the use of these 

land use project lands, including grazing and mineral leasing, 

are paid to the counties in which such lands are located. The 

Act transfers the management of certain Farm Tenant ActLand Utilization Project lands to the jurisdiction of the 

Department of the Interior.

The Burton-Santini Act 

of 1980 (P.L. 96-586) 

and P.L. 105-263

Authorizes and directs the sale of up to 700 acres per year of 

certain lands in Clark County, Nevada, and the acquisition of 

environmentally sensitive lands in the Lake Tahoe Basin, with 

85 percent of the proceeds. The remaining 15 percent of 

proceeds from sales are distributed to Nevada and Clark 

County.
Bureau of Land Management 2014 Budget Justifications

Chapter XIII – Miscellaneous Permanent Payments Page XIII - 3

Southern Nevada Public 

Land Management Act, 

P.L. 105-263, as 

amended by P.L. 107-

282.

Authorizes the disposal through sale of 27,000 acres in Clark 

County, Nevada, the proceeds of which are distributed as 

follows: (a) Five percent for use in the general education 

program of the State of Nevada; (b) 10 percent for use by 

Southern Nevada Water Authority for water treatment and 

transmission facility infrastructure in Clark County, Nevada; 

and (c) the remaining 85 percent to be used to acquire 

environmentally sensitive lands in Nevada; to make capital 

improvements to areas administered by the NPS, the FWS 

and the BLM in Clark County, Nevada; to develop a multispecies habitat plan in Clark County, Nevada; to develop 

parks, trails, and natural areas in Clark County, Nevada; and 

to provide reimbursements for BLM costs incurred in 

arranging sales and exchanges under this Act.

The Alaska Native 

Claims Settlement Act 

of 1971 as amended by 

Public Law 94-204 of 

1976 (43 U.S.C. 1611)

Directs the Secretary to make conveyances to Cook Inlet 

Region, Inc. (CIRI) in accordance with the "Terms and 

Conditions for Land Consolidation and Management in Cook 

Inlet Area.''

The Alaska National 

Interest Lands 

Conservation Act of 

1980 (43 U.S.C. 1611)

Authorizes CIRI to bid on surplus property in accordance with 

the Federal Property and Administrative Services Act of 1940 

(40 U.S.C. 484), and provides for the establishment of a CIRI 

surplus property account by the Secretary of the Treasury.

The Alaska Railroad 

Transfer Act of 1982 (43 

U.S.C. 1611)

Expands the account by allowing CIRI to bid on properties 

anywhere in the United States.

The 1988 Department of 

Defense Appropriations 

Act (101 Stat. 1329- 318)

Authorizes CIRI to bid at any public sale of property by any 

agent of the United States, including the Department of the 

Defense.

The 1990 Department of 

Defense Appropriation 

Act (16 U.S.C 396f)

Appropriated monies to be placed into the CIRI Property 

Account in the U.S. Treasury as permanent budget authority.

Alaska Land Status 

Technical Corrections 

Act of 1992 (P.L. 102-

415)

Authorizes payments to the Haida and Gold Creek 

Corporations to reimburse them for claims in earlier land 

settlements.
Bureau of Land Management 2014 Budget Justifications

Chapter XIII – Miscellaneous Permanent Payments Page XIII - 4

The Secure Rural 

Schools and 

Community SelfDetermination Act of 

2000 (P.L. 106-393) as 

amended by P.L. 110-

343, October, 2008.

Authorizes stabilized payments to O&C Grant lands and Coos 

Bay Wagon Road Counties for fiscal years 2001 through 

2006. Each county that received a payment during the 

eligibility period (1988-1999) had an option to receive an 

amount equal to the average of the three highest 50 percent 

payments and safety net payments made for the fiscal years 

of the eligibility period. The payments were adjusted to reflect 

50 percent of the cumulative changes in the Consumer Price 

Index that occur after publication of the index for fiscal year 

2000. The final payments for 2006 were made in 2007, 

consistent with the Act. Public Law 110–28, May 25, 2007

provided payments for one additional year. The fiscal year 

2007 payments under the original act were made in October,

2007, that is in FY2008. 

Public Law 110-28 Provided one additional year of payments to O&C Grant 

Lands and Coos Bay Wagon Road counties for 2007 to be 

made in 2008. 

Public Law 110-343 Secure Rural Schools and Community Self-Determination Act 

payments were authorized to be made in 2009 through 2012 

(for 2008 through 2011) to O&C Grant Lands and Coos Bay 

Wagon Road counties.

Public Law 112-141 Secure Rural Schools and Community Self-Determination Act 

payments were authorized to be made in 2013 (for 2012) to 

O&C Grant Lands and Coos Bay Wagon Road counties.

Clark County 

Conservation of Public 

Land and Natural 

Resources Act of 2002 

(P.L. 107-282) as 

amended by P.L. 108-

447

Enlarges the area in which the BLM can sell lands under the 

Southern Nevada Public Land Management Act; approves a 

land exchange in the Red Rock Canyon Area; designates 

wilderness; designates certain BLM lands for a new airport for 

Las Vegas; and gives land to the State and City for certain 

purposes. 

Lincoln County 

Conservation, 

Recreation and 

Development Act (PL 

108-424)

Addresses a wide-range of public lands issues in Lincoln 

County, Nevada, designates as wilderness 768,294 acres of 

BLM-managed lands and releases from wilderness study area 

(WSA) status 251,965 acres of public land. The bill also 

directs the BLM to dispose of up to 90,000 acres of public 

land and divides the proceeds 85 percent to a Federal fund 

and 15 percent to State and County entities, establishes utility 

corridors, transfers public lands for State and County parks, 

creates a 260-mile OHV trail and resolves other public lands 

issues.
Bureau of Land Management 2014 Budget Justifications

Chapter XIII – Miscellaneous Permanent Payments Page XIII - 5

Public Law 109-432, 

White Pine County Land 

Sales

Authorizes the disposal through sale of 45,000 acres in White 

Pine County, Nevada, the proceeds of which are distributed 

as follows: (a) Five percent for use in the general education 

program of the State of Nevada; (b) 10 percent shall be paid 

to the County for use for fire protection, law enforcement, 

education, public safety, housing, social services, 

transportation, and planning; and (c) the remaining 85 percent 

to be used to reimburse the BLM and Interior for certain costs, 

to manage unique archaeological resources, for wilderness 

and endangered species protection, for improving recreational 

opportunities in the County, and for other specified purposes.

Public Law 111–11, 

State Share, Carson 

City Land Sales 

Authorizes five percent of the proceeds from Carson City, 

Nevada land sales to be paid to the State for the general 

education program of the State.
Bureau of Land Management 2014 Budget Justifications

Chapter XIII – Miscellaneous Permanent Payments Page XIII - 6

SUMMARY OF REQUIREMENTS

(Dollars in Thousands)

Comparison by 

Activity/Subactivity

2012 Actual 2013 Full-Year 

CR

2014 Change from 

2013 (+/-) Program 

Changes Budget Request

FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount

Miscellaneous 

Permanent Payments 

Appropriation Total

9 43,766 9 45,729 -9 -41,360 0 4,369 -9 -41,360

Payments to States from 

Proceeds of Sales 

[5133]

647 661 149 810 149

Payments to States from 

Grazing Fees, etc. on 

Public Lands outside 

Grazing Districts [5016]

887 875 -25 850 -25

Payments to States from 

Grazing Fees, etc. on 

Public Lands within 

Grazing Districts [5032]

1,328 1,250 0 1,250 0

Payments to States from 

Grazing Fees, etc. on 

Public Lands within 

Grazing Districts, Misc. 

[5044]

105 25 0 25 0

Payments to Counties, 

National Grass Lands 

(Farm Tenant Lands) 

[5896]

762 602 -12 590 -12

Payments to Nevada 

from Receipts on Land 

Sales (includes 15%) 

[5129]

0 2,253 -1,409 844 -1,409

State Share, Carson 

City Land Sales [5561] 0 11 -11 0 -11

Secure Rural Schools 9 40,037 9 40,052 -9 -40,052 0 0 -9 -40,052

Payments to O&C 

Counties, Title I/III 35,992 35,884 -35,884 0 -35,884

Payments to Coos 

Bay Wagon Road 

Counties, Title I/III

318 296 -296 0 -296

Payments to O&C 

and Coos Bay 

Wagon Road 

Counties, Title II

9 3,727 9 3,872 -9 -3,872 0 0 -9 -3,872
Bureau of Land Management 2014 Budget Justifications

Chapter XIII – Miscellaneous Permanent Payments Page XIII - 7

Appropriation: Miscellaneous Permanent Payments

PROGRAM OVERVIEW

The following activities include payments made to States and counties from the sale, lease, or 

use of other public lands or resources under the provisions of permanent legislation and do not 

require annual appropriations. The payment amounts for 2013 and 2014 are estimated based 

on several factors, including the provisions of various laws that specify the percentage of 

receipts to be paid to designated States, counties, or other recipients, and the amounts of 

collections or receipts as authorized by applicable legislation.

Payments to States from Proceeds of Sales - The Bureau of Land Management (BLM)

collects funds from the sale of public lands and materials in the limits of public domain lands 

pursuant to 31 U.S.C. 1305. States are paid five percent of the net proceeds of these sales. 

The BLM makes these payments annually and payments are used by States either for 

educational purposes or for the construction and improvement of public roads. The payments in 

2012 were $647,000. The estimated payments for 2013 and 2014 are $661,000 and $810,000

respectively.

Payments to States from Grazing Receipts, etc., on Public Lands outside Grazing 

Districts – The States are paid 50 percent of the grazing receipts from public lands outside 

grazing districts (43 U.S.C. 315i, 315m). These funds are to be expended by the State for the 

benefit of the counties in which the lands are located. The States will continue to receive 

receipts from public lands outside organized grazing districts. The BLM makes these payments 

annually. The actual payments for 2012 are $887,000 and estimated payments for 2013 and 

2014 are $875,000, and $850,000 respectively. 

Payments to States from Grazing Receipts, etc., on Public Lands within Grazing Districts 

–The States are paid 121⁄2 percent of grazing receipts from public lands inside grazing districts 

(43 U.S.C. 315b, 315i). These funds are to be expended by the State for the benefit of the 

counties in which the lands are located. The BLM makes the payments annually. The actual 

payments for 2012 are $1,328,000 and estimated payments for 2013 and 2014 both are 

$1,250,000. 

Payments to States from Grazing Fees, etc. on Public Lands within Grazing Districts, 

misc. – Also included are grazing receipts from isolated or disconnected tracts. The States are 

paid specifically determined amounts from grazing receipts derived from miscellaneous lands 

within grazing districts when payment is not feasible on a percentage basis (43 U.S.C. 315m). 

These funds are to be expended by the State for the benefit of the counties in which the lands 

are located. The BLM makes these payments annually. The actual payments for 2012 are 

$105,000 and estimated payments for 2013 and 2014 both are $25,000.

Payments to Counties, National Grasslands (Farm Tenant Act Lands) – Of the revenues 

received from the use of Bankhead-Jones Act lands administered by the BLM, 25 percent is 

paid to the counties in which such lands are situated for schools and roads (7 U.S.C. 1012). 

The BLM makes payments annually on a calendar-year basis. The actual payments for 2012 

are $762,000 and estimated payments for 2013 and 2014 are $602,000, and $590,000 

respectively.
Bureau of Land Management 2014 Budget Justifications

Chapter XIII – Miscellaneous Permanent Payments Page XIII - 8

Payments to Nevada from Receipts on Land Sales – Payments to the State of Nevada are 

authorized by two Acts. The Burton-Santini Act authorizes and directs the Secretary to sell not 

more than 700 acres of public lands per calendar year in and around Las Vegas, Nevada, the 

proceeds of which are to be used to acquire environmentally sensitive land in the Lake Tahoe 

Basin of California and Nevada. Annual revenues are distributed to the State of Nevada (five 

percent) and the county in which the land is located (ten percent). 

The Southern Nevada Public Land Management Act, as amended, authorizes the disposal 

through sale of approximately 50,000 acres in Clark County, Nevada, the proceeds of which are 

to be distributed as follows: (a) Five percent for use in the general education program of the 

State of Nevada (b) 10 percent for use by Southern Nevada Water Authority for water treatment 

and transmission facility infrastructure in Clark County, Nevada and (c) the remaining 85 

percent for various uses by BLM and other Federal lands. (For more information, see the 

Southern Nevada Public Land Management Act, P.L. 105-263, as amended by P.L. 107-282.)

The BLM made no payments in 2012. Estimated payments for 2013 and 2014 are $2,254,000 

and $844,000 respectively based on the estimates of collections from planned land sales. 

Sales values for these lands in Clark County have stabilized, but collections are still relatively 

low compared to the past. The BLM collected $7,767,000 in 2012 from land sales and 

estimates collections from land sales in 2013 and 2014 will be $14,900,000 and $5,300,000 

respectively. Some receipts for sales held in the latter half of one fiscal year are not collected in 

full until the next fiscal year because of normal delay in the acceptance of bids. 

States Share, Carson City Land Sales – Under the 2009 Omnibus Public Land Management 

Act, five percent of Carson City land sales authorized by that Act is paid to the State of Nevada 

for use in the general education program of the State. There was no payment in 2012 because 

no sales were held. The State’s share of 2013 revenues is estimated to be $11,000. No sales 

and payments are estimated in 2014. 

Payments to Oregon and California Grant Lands Counties – Under the Oregon and 

California Act of 1937, BLM paid 50 percent of receipts from Federal activities on O&C lands 

(mainly from timber sales) to 18 counties in western Oregon. These revenues decreased since 

the 1980s due to changes in Federal timber policies. 

The Secure Rural Schools and Community Self-Determination Act of 2000 (P.L. 106-393) was 

enacted on October 30, 2000. The Act was designed to provide a predictable payment to 

States and counties, in lieu of funds derived from federal timber harvests. Payments were 

based on historical payments, adjusted for inflation. 

Payments to the 18 O&C counties were derived from: 

1. Revenues from Federal activities on O&C lands in the previous fiscal year that are not 

deposited to permanent operating funds such as the Timber Sale Pipeline Restoration or 

the Forest Ecosystem Health and Recovery, and, 

2. To the extent of any shortfall, out of any funds in the Treasury not otherwise appropriated. 

Under P.L. 106-393, and in the extensions of it, payments for a fiscal year were made in the 

following fiscal year. For example, payments for 2001 were made in 2002. Payments were 
Bureau of Land Management 2014 Budget Justifications

Chapter XIII – Miscellaneous Permanent Payments Page XIII - 9

made for 2001 through 2006 in 2002 through 2007. 

Payments have been extended three times. 

P.L. 110-28 provided authorized payments for 2007 which were made in 2008. Payments in 

2008 were distributed among the countries in the same way as payments in 2007. Payments 

were limited to a total of $525,000,000 for both the BLM and the Forest Service, $100,000,000 

from receipts and $425,000,000 from the General Fund. The BLM share was $116,865,000.

In October, 2008, Congress enacted Section 601 of Public Law 110-343, which extended the 

Secure Rural Schools Act of 2000. Public Law 110-343 provided an extension of payments to 

the O&C Grant Lands and the Coos Bay Wagon Road counties through fiscal year 2011 (with 

final payment to be made in 2012). As in the prior act, payments were to be made for the year 

prior. The payments for 2008 through 2010 are described in the law as “transition” payments, 

and are a declining percentage of the payments made in 2006; the payment in 2009 (for 2008) 

is 90 percent of the amount paid in 2006, the payment in 2010 (for 2009) is 81 percent, and the 

payment in 2011 (for 2010) is 73 percent. The payments made to counties in 2012 (for 2011) 

used formula based on several factors that included acreage of Federal land, previous 

payments, and per capita personal income. The table below shows payments made from 2002 

(for 2001) through the payments for 2011 (in 2012). The payments to the Coos and Douglas 

counties have followed the same pattern as payments to O&C counties under the Secure Rural 

Schools Act and extensions. 

In July 2012, Congress enacted Public Law 112-141, which extended the Secure Rural Schools 

Act of 2000. Public Law 112-141 provided an extension of payments to the O&C Grant Lands 

and the Coos Bay Wagon Road counties through fiscal year 2012 (with the final payment to be 

made in 2013), As in the prior act, payments were made in the year following the year for which 

they were authorized. 

The Budget reflects a five-year reauthorization of the Secure Rural Schools Act with funding 

through mandatory U.S. Forest Service appropriations starting with payments for 2013 that will 

be made in 2014. This proposal revises the allocation split between the three portions of the 

program from the current authority emphasizing enhancement of forest ecosystems, restoration 

and improvement of land health and water quality and the increase of economic activity. For 

more information on this proposal, see the U.S. Forest Service 2014 Budget Justification.

For any of the 18 counties in Western Oregon choosing not to receive payments for 2013 (in 

2014) under the reauthorization proposal discussed above, the payments would revert back to 

payments under the 1937 O&C Act and subsequent amendments. The 1937 statute authorizes 

payments of 50 percent of Federal receipts from activities on O&C grant lands. In the case of 

Coos and Douglas Counties, if they were to choose not to receive payments for 2013 (in 2014)

under the proposal, the 1939 statute authorizes payments for lost tax revenue not to exceed 75 

percent of the receipts from activities on Coos Bay Wagon Road grant lands. 
Bureau of Land Management 2014 Budget Justifications

Chapter XIII – Miscellaneous Permanent Payments Page XIII - 10

Secure Rural Schools Payments ($ in thousands)

Payments for 2001 in 2002 O&C CBWR Total

Amount from Receipts: $15,540 $330 $15,869

Amount from General Fund: $93,192 $618 $93,811

Total $108,732 $948 $109,680

Title I/III $101,085 $875 $101,960

Title II $7,647 $73 $7,720

Total $108,732 $948 $109,680

Payments for 2002 in 2003 O&C CBWR Total

Amount from Receipts: $11,519 $229 $11,748

Amount from General Fund: $98,083 $727 $98,809

Total $109,602 $956 $110,558

Title I/III $101,433 $834 $102,266

Title II $8,169 $122 $8,291

Total $109,602 $956 $110,558

Payments for 2003 in 2004 O&C CBWR Total

Amount from Receipts: $6,199 $51 $6,249

Amount from General Fund: $104,718 $917 $105,635

Total $110,917 $967 $111,884

Title I/III $102,468 $844 $103,312

Title II $8,449 $124 $8,572

Total $110,917 $967 $111,884

Payments for 2004 in 2005 O&C CBWR Total

Amount from Receipts: $11,935 $133 $12,068

Amount from General Fund: $100,424 $847 $101,271

Total $112,359 $980 $113,339

Title I/III $103,595 $936 $104,531

Title II $8,763 $44 $8,808

Total $112,359 $980 $113,339

Payments for 2005 in 2006 O&C CBWR Total

Amount from Receipts: $11,100 $251 $11,351

Amount from General Fund: $103,843 $751 $104,594

Total $114,943 $1,002 $115,946

Title I/III $106,123 $955 $107,077

Title II $8,820 $48 $8,868

Total $114,943 $1,002 $115,946
Bureau of Land Management 2014 Budget Justifications

Chapter XIII – Miscellaneous Permanent Payments Page XIII - 11

Payments for 2006 in 2007 O&C CBWR Total

Amount from Receipts: $11,720 $530 $12,250

Amount from General Fund: $104,373 $394 $104,767

Total $116,093 $924 $117,017

Title I/III $107,928 $924 $108,852

Title II $8,165 $88 $8,253

Total $116,093 $1,013 $117,105

Payments for 2007 in 2008* O&C CBWR Total

Amount from Receipts: $6,354 $297 $6,652

Amount from General Fund: $109,500 $713 $110,213

Total $115,854 $1,010 $116,865

Title I/III $110,873 $995 $111,868

Title II $4,982 $15 $4,997

Total $115,854 $1,010 $116,865

* PL. 110-28 extended Secure Rural Schools payments for one year. 

Payments for 2008 in 2009 O&C CBWR Total

Amount from Receipts: $12,999 $312 $13,311

Amount from General Fund: $91,484 $599 $92,083

Total $104,483 $911 $105,394

Title I/III $95,870 $838 $96,708

Title II $8,614 $73 $8,686

Total $104,483 $911 $105,394

Payments for 2009 in 2010 O&C CBWR Total

Amount from Receipts: $14,423 $248 $27,733

Amount from General Fund: $79,812 $573 $67,122

Total $94,035 $820 $94,855

Title I/III $86,420 $755 $87,175

Title II $7,615 $65 $7,680

Total $94,035 $820 $94,855

Payments for 2010 in 2011 O&C CBWR Total

Amount from Receipts: $9, 670 $636 $10,306

Amount from General Fund: $75,077 $102 $75,180

Total $84,748 $739 $85,487

Title I/III $77,393 $636 $78,029

Title II $7,354 $102 $7,457

Total $84,748 $739 $85,487
Bureau of Land Management 2014 Budget Justifications

Chapter XIII – Miscellaneous Permanent Payments Page XIII - 12

Payments for 2011 in 2012 O&C CBWR Total

Amount from Receipts: $11,575 0 $11,575

Amount from General Fund: $28,116 $346 $28,463

Total $39,691 $346 $40,037

Title I/III $35,992 $318 $36,310

Title II $3,699 $28 $3,727

Total $39,691 $346 $40,037

Payments enacted for 2012 in 2013 O&C CBWR Total

Amount from Receipts: $11,521 $344 $11,864

Amount from General Fund: $28,187 $0 $28,187

Total $39,708 $344 $40,052

Title I/III $35,884 $296 $36,179

Title II $3,824 $48 $3,872

Total $39,708 $344 $40,052

Note: Amounts may not add due to rounding
Bureau of Land Management 2014 Budget Justifications

Chapter XIII – Miscellaneous Permanent Payments Page XIII - 13

2012 Total Payments of BLM Receipts to States and Counties

(in Dollars)

Taylor Grazing Act

State Mineral 

Leasing 

Act ROW 

Payments

Sec. 15 Sec. 3 Other Proceeds 

of Sales

Other Total 

Payments

Alaska 77,257 0 0 0 1,969 0 79,226 

Arizona 130,718 76,562 54,692 0 45,922 0 307,894 

California 656,280 57,651 15,102 0 75,813 0 804,846 

Colorado 563,984 29,592 60,276 15,634 22,530 0 692,016 

Florida 0 0 0 0 2 0 2 

Idaho 38,014 21,039 173,234 0 44,290 0 276,577 

Louisiana 597 0 0 0 0 0 597 

Montana 13,453 105,329 135,383 0 27,834 754,344 a/ 1,036,343 

Nebraska 0 833 0 0 0 0 833 

Nevada 520,903 6,310 240,642 0 115,837 842,271 b/ 1,725,963 

New Mexico 1,554,848 136,574 219,850 15 154,981 7,503 a/ 2,073,771 

North Dakota 1,562 7,177 0 0 28 0 8,767 

Oklahoma 0 64 0 0 0 0 64 

Oregon 33,571 21,625 131,914 0 5,536 40,037,161 

c/ 

40,229,807 

South Dakota 0 80,152 22 0 340 0 80,514 

Utah 367,424 0 132,520 0 49,990 0 549,934 

Washington 19,963 22,451 0 0 27,580 0 69,994 

Wisconsin 0 0 0 0 2,946 0 2,946 

Wyoming 1,327,124 321,613 164,804 89,424 71,156 0 1,974,121 

Total 5,305,698 886,972 1,328,439 105,073 646,754 41,641,279 49,914,215 

Note: The amounts shown above are outlays some of which may be from prior year budget authority, and therefore may 

be different than the amounts reported for fiscal year 2012 in the Summary of Requirements table at the beginning of this 

chapter.

a/ LU lands under the Bankhead-Jones Farm Tenant Act (7 U.S.C. 1012). 

b/ Land sales under the Southern Nevada Public Land Management Act resulted in direct payments at the time of sale 

totaling $842,271. Calendar year payments to Clark County, Nevada and the State of Nevada under the Santini-Burton 

Act totaled $0

c/ The timing of the payments for Oregon and California (O&C) grant lands and Coos Bay Wagon Road (CBWR) grant 

land counties was changed from "on or before September 30" to "as soon as practicable after the end of the fiscal year," 

according to Public Law 106-393, October 30, 2000. This change was effective for the Fiscal Year 2001 payments, 

which were made in Fiscal Year 2002. For Fiscal Year 2011 receipts paid in FY2012, a total of $3,726,916 of the 

$40,037,161 is money that was returned to BLM for Title II projects.
Bureau of Land Management 2014 Budget Justifications

Chapter XIII – Miscellaneous Permanent Payments Page XIII - 14

Budget Schedules - Current Law

Account Symbol and Title

14X9921

Miscellaneous Permanent Payment Accounts

Line 2012 Act 2013 CY 2014 BY

Program and Financing (P) ($ in Millions)

Obligations by program activity:

 Payments to O&C Counties, Title I/III 5884 0001 36 36 0

 Payment to O&C and CBWR Counties, Title II 5485 0003 6 4 0

 From grazing fees, etc., public lands outside grazing 

districts 5016

0004 1 1 1

 From grazing fees, etc., public lands within grazing 

districts 5032

0005 1 1 1

 Proceeds from sales 5133 0009 1 1 1

 Payments to counties from national grasslands 5896 0010 1 1 1

 Payments to State and Counties from Nevada Land 

Sales

0013 0 2 1

 Payments to O&C counties under 1937 statute 0014 0 0 8

 Payments to CBWR counties under 1939 statute 0015 0 0 1

Total new obligations 0900 46 46 14

Budgetary Resources:

 Unobligated balance:

 Unobligated balance brought forward, Oct 1 1000 6 4 4

 Budget authority:

 Appropriations, mandatory:

 SRS O&C Payments from GF- Title I/III 1200 24 24 0

 SRS Payments from GF-Title II 1200 4 4 0

 SRS O&C Title I/III Payments from receipts 1201 12 12 0

 Proceeds of sales-payments to states 1201 1 1 1

 Payments from grazing fees outside grazing 

districts

1201 1 1 1

 Payments from grazing fees within grazing 

districts

1201 1 1 1

 Payments to Counties, National Grasslands, BLM 1201 1 1 1

 Payments from Nevada Land Sales 1201 0 2 1

 Payments to O&C Grants lands counties under 

1937 statute

1201 0 0 8

 Payments to CBWR counties under 1939 statute 1201 0 0 1

 Appropriations, mandatory (total) 1260 44 46 14

 Appropriations, mandatory - Computed Totals 1260-20 44 46 14

 Mandatory, Authorizing Committee

 302-Appropriation [Text] **OL Rates** 1260-40 44 46 14

 302-Baseline Non-Pay 1260-50 0 45 14

 302-Baseline Civilian Pay 1260-50 0 1 0

 302-New Authority 1260-61 1 37 11

 302-Balances (excl of EOY PY Bal) 1260-62 46 0 9

 302-End of PY Balances 1260-63 0 3 3

 302-Subtotal, outlays 1260-64 47 40 23

 302-New Authority 1260-81 0 37 11
Bureau of Land Management 2014 Budget Justifications

Chapter XIII – Miscellaneous Permanent Payments Page XIII - 15

Budget Schedules - Current Law

Account Symbol and Title

14X9921

Miscellaneous Permanent Payment Accounts

Line 2012 Act 2013 CY 2014 BY

Program and Financing (P) ($ in Millions)

 302-Balances (excl of EOY PY Bal) 1260-82 0 0 9

 302-End of PY Balances 1260-83 0 3 3

 302-Subtotal, outlays 1260-84 0 40 23

Total budgetary resources available 1930 50 50 18

 Memorandum (non-add) entries:

 Unexpired unobligated balance, end of year 1941 4 4 4

Change in obligated balance:

 Unpaid obligations:

 Unpaid obligations, brought forward, Oct 1 3000 8 7 13

 Obligations incurred, unexpired accounts 3010 46 46 14

 Outlays (gross) 3020 -47 -40 -23

 Unpaid obligations, end of year 3050 7 13 4

 Memorandum (non-add) entries:

 Obligated balance, start of year 3100 8 7 13

 Obligated balance, end of year 3200 7 13 4

Budget authority and outlays, net:

 Mandatory:

 Budget authority, gross 4090 44 46 14

 Outlays, gross:

 Outlays from new mandatory authority 4100 1 37 11

 Outlays from mandatory balances 4101 46 3 12

 Outlays, gross (total) 4110 47 40 23

 Budget authority, net (mandatory) 4160 44 46 14

 Outlays, net (mandatory) 4170 47 40 23

Budget authority, net (total) 4180 44 46 14

Outlays, net (total) 4190 47 40 23

Object Classification (O) ($ in Millions)

Direct obligations:

Personnel compensation:

 Personnel compensation: Full-time permanent 1111 1 1 0

 Other services from non-Federal sources 1252 2 2 0

 Grants, subsidies, and contributions 1410 43 43 14

 Total new obligations 9999 46 46 14

 Grants to State and local govts:

 302-Other than shared revenues

 302-Mandatory, Authorizing Committee

 302-Budget Authority 2001-01 44 46 14

 302-Outlays 2001-02 47 40 23
Bureau of Land Management 2014 Budget Justifications

Chapter XIII – Miscellaneous Permanent Payments Page XIII - 16

Budget Schedules - Current Law

Account Symbol and Title

14X9921

Miscellaneous Permanent Payment Accounts

Line 2012 Act 2013 CY 2014 BY

Program and Financing (P) ($ in Millions)

Employment Summary (Q)

Direct civilian full-time equivalent employment 1001 9 9 0

Appropriations Requests in Thousands of Dollars (T)

Budget year budgetary resources [14-9921] 1000 0 0
Bureau of Land Management 2014 Budget Justifications

Chapter XIII – Miscellaneous Permanent Payments Page XIII - 17

Budget Schedules - Proposal

Account Symbol and Title

14X9921

Miscellaneous Permanent Payment Accounts

Line 2012 Act 2013 CY 2014 BY

Program and Financing (P) ($ in Millions)

Obligations by program activity:

 Payments to O&C counties under 1937 statute 0014 0 0 -8

 Payments to CBWR counties under 1939 statute 0015 0 0 -1

Total new obligations (object class 41.0) 0900 0 0 -9

Budgetary Resources:

 Budget authority:

 Appropriations, mandatory:

 Payments to O&C Grants lands counties under 

1937 statute

1201 0 0 -8

 Payments to CBWR counties under 1939 

statute

1201 0 0 -1

 Appropriations, mandatory (total) 1260 0 0 -9

 Appropriations, mandatory - Computed Totals 1260-20 0 0 -9

 Mandatory, Authorizing Committee

 302-Appropriation [payments to western 

Oregon counties] **OL Rates**

1260-40 0 0 -9

 302-New Authority 1260-61 0 0 -9

 302-Balances (excl of EOY PY Bal) 1260-62 0 0 0

 302-End of PY Balances 1260-63 0 0 0

 302-Subtotal, outlays 1260-64 0 0 -9

Total budgetary resources available 1930 0 0 -9

Change in obligated balance:

 Unpaid obligations:

 Unpaid obligations, brought forward, Oct 1 3000 0 0 0

 Obligations incurred, unexpired accounts 3010 0 0 -9

 Outlays (gross) 3020 0 0 9

 Unpaid obligations, end of year 3050 0 0 0

 Memorandum (non-add) entries:

 Obligated balance, start of year 3100 0 0 0

 Obligated balance, end of year 3200 0 0 0

Budget authority and outlays, net:

 Mandatory:

 Budget authority, gross 4090 0 0 -9

 Outlays, gross:

 Outlays from new mandatory authority 4100 0 0 -9

 Budget authority, net (mandatory) 4160 0 0 -9

 Outlays, net (mandatory) 4170 0 0 -9

Budget authority, net (total) 4180 0 0 -9
Bureau of Land Management 2014 Budget Justifications

Chapter XIII – Miscellaneous Permanent Payments Page XIII - 18

Budget Schedules - Proposal

Account Symbol and Title

14X9921

Miscellaneous Permanent Payment Accounts

Line 2012 Act 2013 CY 2014 BY

Program and Financing (P) ($ in Millions)

Outlays, net (total) 4190 0 0 -9

Object Classification (O) ($ in Millions)

Direct obligations:

Direct obligations: Grants, subsidies, and 

contributions

1410 0 0 -9

 Grants to State and local govts:

 302-Other than shared revenues

 302-Mandatory, Authorizing Committee

 302-Budget Authority 2001-01 0 0 -9

 302-Outlays 2001-02 0 0 -9

Employment Summary (Q)

Direct civilian full-time equivalent employment 1001 0 0 0
Permanent Operating Funds

Bureau of Land Management 2014 Budget Justifications

Chapter XIV – Permanent Operating Funds Page XIV - 1

PERMANENT OPERATING FUNDS

APPROPRIATION LANGUAGE SHEET

No Appropriation Language Sheet

EXPLANATION

The Permanent Operating Funds Appropriation contains funds available for use by the BLM for 

the purposes specified in permanent laws and do not require annual appropriation action. The 

activities authorized by the appropriations are funded through various receipts received from the 

sale, lease or use of the public lands and resources. Amounts shown for 2013 and 2014 are 

estimates based on anticipated collections. 

AUTHORIZATIONS

Forest Ecosystem 

Health & Recovery Fund 

(P.L. 102-381)

The initial purpose of this fund was to allow quick response to 

fire and reforestation of forests damaged by insects, disease, 

and fire. Expanded authorization in the 1998 Interior and 

Related Agencies Appropriations Act allows activities 

designed to reduce the risk of catastrophic damage to forests 

in addition to responding to damage events. Funds in this 

account are derived from the Federal share (defined as the 

portion of receipts not paid to the counties under 43 U.S.C. 

1181f and 43 U.S.C. 1181-1 et seq., and P.L. 106-393) of 

receipts from all BLM timber salvage sales and all BLM forest 

health restoration treatments funded by this account. The 

authority to make deposits and to spend from this fund was 

limited by the 2010 Interior Appropriations Act (P.L. 111-88, 

123 STAT. 2906) to fiscal year 2015. 

Omnibus Consolidated 

Appropriations Act of 

1996, section 327

This Act established the Timber Sale Pipeline Restoration 

Fund, using revenues generated by timber sales released 

under Section 2001(k) of the 1995 Supplemental 

Appropriations for Disaster Assistance and Rescissions Act, 

which directs that 75 percent of the Pipeline Fund be used to 

fill each agency’s timber sale “pipeline” and that 25 percent of 

the Pipeline Fund be used to address the maintenance 

backlog for recreation projects on BLM and U.S. Forest 

Service lands after statutory payments are made to State and 

local governments and the U.S. Treasury. 

1985 Interior and 

Related Agencies, 

Appropriations Act (P.L. 

Established a permanent account in each bureau for the 

operation and maintenance of quarters, starting with 1985 and 

each fiscal year thereafter.
Bureau of Land Management 2014 Budget Justifications

Chapter XIV – Permanent Operating Funds Page XIV - 2

98-473), Section 320

75th Congress, 1st 

Session – Ch. 876 –

August 28, 1937, 50 

Stat. 874

An Act relating to the revested Oregon and California Railroad 

and reconveyed Coos Bay Wagon Road grant lands situated 

in the State of Oregon provides that eighteen counties in 

western Oregon be paid fifty percent of the revenues from 

Oregon and California grant lands. 

76th Congress, 1st 

Session – Ch. 142-144 –

May 24, 1939, 53 Stat. 

753

An Act Relating to the disposition of funds derived from the 

Coos Bay Wagon Road grant lands provides that Coos and 

Douglas counties in western Oregon be paid for lost tax 

revenue. 

The Omnibus Budget 

Reconciliation Act of 

1993

Amended the Land and Water Conservation Fund Act and 

further expanded collection of recreation use fees to be 

deposited into a special account established for each agency 

in the U.S. Treasury to offset the cost of collecting fees. 

The 1993 Interior and 

Related Agencies 

Appropriations Act

The Federal share of receipts from the disposal of salvage 

timber from lands under BLM jurisdiction is deposited in a 

special fund in the U.S. Treasury.

Section 502(c) of the 

Federal Land Policy and 

Management Act of 

1976 (43 U.S.C. 1762(c))

Provides for the permanent appropriation of money collected 

from commercial road users in lieu of user maintenance. 

Receipts are permanently appropriated to the BLM for road 

maintenance.

Act of October 30, 1998

(P.L. 105-321)

The legislation provides that the BLM will convey property to 

Deschutes County, Oregon, and the amount paid by the 

County pursuant to the Act, may be used by the Secretary of 

the Interior to purchase environmentally sensitive land east of 

Range 9 East of Willamette Meridian, Oregon.

Lincoln County 

Conservation, 

Recreation and 

Development Act 

(PL 108-424)

Addresses a wide range of public lands issues in Lincoln 

County, Nevada, designates as wilderness 768,294 acres of 

BLM-managed lands and releases from Wilderness Study 

Area (WSA) status 251,965 acres of public land. The Act also 

directs the BLM to dispose of up to 90,000 acres of public 

land and divides the proceeds 85 percent to a Federal fund 

and 15 percent to State and County entities, establishes utility 

corridors, transfers public lands for State and County parks, 

creates a 260-mile off-highway vehicle trail and resolves other 

public lands issues.

Lincoln County Land 

Sales (P.L. 106-298) 

The Lincoln County Land Act of 2000, among other things, 

authorizes the Secretary to dispose of certain lands in Lincoln 

County, Nevada, to distribute the proceeds as follows: Five

percent to the State of Nevada, 10 percent the County, and 

85 percent to an interest bearing account that is available for 

expenditure without further appropriation.
Bureau of Land Management 2014 Budget Justifications

Chapter XIV – Permanent Operating Funds Page XIV - 3

White River Oil Shale 

Mine, Utah Property 

Sale Provisions, The 

2001 Interior and 

Related Agencies 

Appropriations Act (P.L. 

106-291)

The Act authorized the sale of improvements and equipment 

at the White River Oil Shale Mine with the proceeds to be 

available for expenditure without further appropriation to

reimburse (A) the Administrator for the direct costs of the sale; 

and (B) the Bureau of Land Management Utah State Office for 

the costs of closing and rehabilitating the mine. 

The Federal Land 

Transaction Facilitation 

Act (P.L. 106-248)

The Federal Land Transaction Facilitation Act (FLTFA)

provides that the Administration may conduct sales of lands 

that have been classified as suitable for disposal under 

current resource management plans. This law provides that 

receipts from such sales may be used to acquire non-Federal 

lands with significant resource values that fall within the 

boundaries of areas now managed by the Department. 

FLTFA expired on July 25, 2010. It was reauthorized through 

July 25, 2011 by the 2010 Supplemental Appropriations Act 

(P.L. 111-212). The 2014 Budget includes a proposal to

reauthorize FLTFA and allow lands identified as suitable for 

disposal in recent land use plans to be sold using the FLTFA 

authority. FLTFA sales revenues would continue to be used 

to fund the acquisition of environmentally sensitive lands and 

the administrative costs associated with conducting sales.

Southern Nevada Public 

Land Management Act 

(P.L. 105-263). 

Provides for the orderly disposal of certain Federal lands in 

Clark County, Nevada, and to provide for the acquisition of 

environmentally sensitive lands in the State of Nevada. 

Receipts are generated primarily through the sale of public 

lands in the Las Vegas Valley. 

Federal Lands 

Recreation 

Enhancement Act (Title 

VIII of P.L. 108-447)

Enacted as Title VIII of the Consolidated Appropriations Act, 

2005, this Act provides authority for 10 years for the BLM to 

manage public lands for recreational purposes and to collect 

and spend recreation use fees. The purposes for which the 

collections may be spent are generally for maintenance and 

repair of recreation facilities, visitor services, habitat 

restoration related to recreation, law enforcement related to 

public use and recreation, and direct operating and capital 

costs of the recreation fee program. 

Energy Policy Act of 

2005 (P.L. 109-58, 

Sections 224 and 234,

Section 365, Section 

332, and Section 349)

Established three multi-year appropriations to use a portion of 

onshore mineral leasing receipts to improve oil and gas permit 

processing, facilitate the implementation of the Geothermal 

Steam Act, and clean up environmental contamination on the 

Naval Petroleum Reserve Numbered 2 in California. It also 

authorized the Secretary of the Interior to establish standards 

under which leaseholders may reduce payments owed by the 

reasonable actual costs of remediating, reclaiming, and 

closing orphaned wells. 
Bureau of Land Management 2014 Budget Justifications

Chapter XIV – Permanent Operating Funds Page XIV - 4

Public Law 109-432, 

White Pine County Land 

Sales

Authorizes the disposal through sale of 45,000 acres in White 

Pine County, Nevada, the proceeds of which are distributed 

as follows: (a) Five percent for use in the general education 

program of the State of Nevada; (b) 10 percent shall be paid 

to the County for use for fire protection, law enforcement, 

education, public safety, housing, social services, 

transportation, and planning; and (c) the remaining 85 percent 

to be used to the reimburse the Bureau of Land Management 

and the Department of the Interior for certain costs, to 

manage unique archaeological resources, for wilderness and 

endangered species protection, for improving recreational 

opportunities in the County, and for other specified purposes.

Public Law 111-11, 

Omnibus

Public Land 

Management Act of 

2009

Among numerous other things, authorizes the disposal of 

certain lands in the Boise District of the Bureau of Land 

Management, in Washington County, Utah, and in Carson 

City, Nevada. It authorizes the BLM to retain and spend most 

of the proceeds of sales of those lands to acquire lands in 

wilderness and other areas and for other purposes, and to 

pay a portion to the states in which the sold land was located. 
Bureau of Land Management 2014 Budget Justifications

Chapter XIV – Permanent Operating Funds Page XIV - 5

SUMMARY OF REQUIREMENTS

(Dollars in Thousands)

Comparison

by Activity/

Subactivity

2012

Actual

2013

Full Year CR

2014 Change

From 2013 Full 

Year CR

(+/-)

Program 

Changes

(+/-)

Budget 

Request

FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount

Permanent 

Operating Funds 

Total

493 56,993 521 65,342 -67 -4,166 454 61,176 -67 -4,166

Operations & 

Maintenance of 

Quarters

1 575 1 600 +1 0 2 600 +1 0

Recreation 

Enhancement Act, 

BLM

125 17,141 125 18,000 -2 +500 123 18,500 -2 +500

Forest Ecosystem 

Health & Recovery

50 6,437 78 6,043 -22 -1,467 56 4,576 -22 -1,467

Timber Sale Pipeline 

Restoration

31 4,023 31 3,824 +4 -2,014 35 1,810 +4 -2,014

Expenses, Road 

Maintenance 

Deposits

6 2,339 6 2,000 -1 0 5 2,000 -1 0

Southern Nevada 

Public Land Sales

including interest

55 7,642 55 13,727 0 -8,216 55 5,511 0 -8,216

Lincoln County Land 

Sales including 

interest

8 35 8 22 -3 +509 5 531 -3 +509

White Pine County 

Special Account

0 0 0 171 0 +4 0 175 0 +4

Stewardship contract 

excess receipts

0 280 0 20 0 0 0 20 0 0

Federal Land 

Disposal Account

0 0 0 0 +2 +4,800 2 4,800 +2 +4,800

Owyhee Land 

Acquisition Account

0 0 0 0 0 +768 0 768 0 +768

Washington County, 

Utah Land Acquisition 

Account

0 0 0 0 0 +96 0 96 0 +96

Silver Saddle 

Endowment

0 0 0 0 0 0 0 0 0 0

Carson City Special 

Account

0 0 0 208 0 -208 0 0 0 -208

NPR-2 Lease 

Revenue Account

0 9 0 29 0 +24 0 53 0 +24

Geothermal Lease 

and Use 

Authorization Fund *

25 0 25 0 -20 0 5 0 -20 0

Oil and Gas Permit 

Processing 

Improvement Fund

192 18,512 192 20,698 -27 -1,972 165 18,726 -27 -1,972

Alaska Land 

Conveyance and 

Remediation Fund

0 0 0 0 +1 +3,010 1 3,010 +1 +3,010

* Authority for deposits to this fund has expired. Unobligated balances are being expended. 
Bureau of Land Management 2014 Budget Justifications

Chapter XIV – Permanent Operating Funds Page XIV - 6

PROGRAM OVERVIEW

The following activities account for certain receipts received from the sale, lease, or use of 

public lands or resources. They are available for use by Bureau of Land Management (BLM) for 

the purposes specified in permanent laws and do not require annual appropriation action by 

Congress. Amounts shown for 2013 and 2014 are estimates based on anticipated collections. 

Projected collection amounts consider such factors as market and economic indicators, 

expected public or industry demand levels for services or sales products, fee or collection 

schedules or structures, and certain legislative proposals expected to be enacted into law.

Operations & Maintenance of Quarters –This account is used to maintain and repair all BLM 

employee-occupied quarters from which quarters rental charges are collected. Agencies are 

required to collect quarter rentals from employees who occupy Government-owned housing and 

quarters. This housing is provided only in isolated areas or when an employee is required to 

live on-site at a Federally-owned facility or reservation. The BLM currently maintains and 

operates 248 housing or housing units in 11 States. 

Recreation Fee Program, BLM – The Federal Lands Recreation Enhancement Act (FLREA) of 

2004, Title VIII of the Consolidated Appropriations Act, 2005, Public Law 108-447, provided a 

comprehensive restatement of Federal authority, including BLM’s, to collect and spend 

recreation use fees. This statute replaced prior authorities enacted in the Land and Water 

Conservation Act, the Omnibus Budget Reconciliation Act of 1993, and the Recreational Fee 

Demonstration Program authority enacted in annual appropriation acts since 1996. During 

fiscal 2005, the BLM switched to the authorities and arrangements enacted in the FLREA. 

Recreation projects operating under the former Recreational Fee Demonstration program have 

varying fee structures depending upon the day of week, season of use, free use days, and 

standardized entrance fees. Service fees, automated fee collection machines, third-party 

collection contracts, volunteer fee collectors, entrance booths, donations, self-serve pay 

stations, reservation systems, fee collection through the mail for permitted areas, special 

recreation permits for competitive and organized groups, and online Internet reservation 

payment with credit cards are examples of new collection methods the BLM has used as a 

result of the Recreational Fee Demonstration program. The fee structure at each site is 

periodically evaluated to ensure that the fees are comparable to similar sites in the surrounding

area. These fees, combined with appropriated funds, are used to maintain buildings, shelters, 

water supply systems, fences, parking areas, and landscaping; to pump vault toilets and dump 

stations; to replace or repair broken or non-functioning facilities; to modify facilities to 

accessibility standards; and to collect trash at recreation sites.

The Administration proposes to permanently reauthorize the Department of the Interior's and 

the Department of Agriculture's recreation fee programs under the Federal Lands Recreation 

Enhancement Act, which is set to expire on December 8, 2014.

The following table provides the actual collections for 2012 and the estimated revenues 

projected for 2013 and 2014 from BLM recreational fee sites. In addition, the table provides 

Appropriation: Permanent Operating Funds
Bureau of Land Management 2014 Budget Justifications

Chapter XIV – Permanent Operating Funds Page XIV - 7

information on the number of projects approved, the type of work conducted and the amount of 

revenues spent for all three fiscal years.

RECREATION FEE PROJECTS

2012 2013 2014

Bureau of Land Management Actual Estimated Budget

Unobligated Balance Brought Forward & Recoveries 13,268 13,221 12,878

Recreation Fee Revenues 16,341 17,200 17,700

America the Beautiful pass 800 800 800

Funds Obligated 17,188 18,343 19,069

Unobligated Balance 13,221 12,878 12,309

Total Expenditures (outlays) 17,135 18,020 19,220

Obligations by Type of Project

Interp. Visitor Services, issue SRP & RUP 5,997 6,000 6,130

Law Enforcement, Recreation 2,387 2,800 3,000

Asset Repair & Maintenance

Facilities Deferred Maintenance 1,012 1,000 1,000

Facilities Capital Improvements Health & Safety 153 18 24

Facilities Routine/Annual Maintenance 3,934 4,000 4,100

Habitat Restoration, Resource Protection 840 850 890

Collection Costs 325 325 325

Fee Mgmt. Agreement & Reservation Services 1,012 2,150 2,300

Pass Administration and Overhead

Administration, Overhead, Indirect Costs < = 15% 1,528 1,200 1,300

 Total Obligations 17,188 18,343 19,069
Bureau of Land Management 2014 Budget Justifications

Chapter XIV – Permanent Operating Funds Page XIV - 8

Use of Fees

BLM’s Annual Maintenance program maintains assets on recreation sites. In fiscal year 2012, BLM 

maintained 92 percent of buildings and 89 percent of non-building assets in fair conditions. An estimated $4.1 

million of recreation fee revenue was used for annual maintenance and operations at recreation sites. 

Projects that have been completed or started are quite varied in nature, and include the following 

accomplishments:

Repair and Maintenance - Recreation fee revenues have been used for maintaining existing facilities; 

repairing roofs; paving and grading roads and bridges; trail maintenance; repairing equipment and vehicles; 

adding communication systems; repairing gates, fences and flood damage; and repairing, replacing, installing, 

and expanding water systems.

Improving Visitor Services - Recreation fee revenues have been used for retrofitting restrooms and providing 

access to picnic areas for persons with disabilities; repairing existing restrooms or constructing new ones; 

landscaping recreation sites; expanding campgrounds; adding new grills and tables; constructing trails and 

additional tent pads; creating and adding directional signs; repairing, replacing, and constructing boat ramps; 

replacing and constructing boat and fishing docks; developing maps; brochures; exhibits and other outreach 

materials; and designing and creating interpretive displays.

Providing for Fee Collection - Recreation fee revenues have been used for constructing fee collection 

facilities, purchasing and installing lighting for exhibits and kiosks, adding seasonal positions, and expanding 

partnerships.

Forest Ecosystem Health and Recovery Fund (FEHRF) - Funds in this account are derived 

from the Federal share of receipts (defined as the portion of receipts not paid to the counties 

under 43 U.S.C. 1181f and 43 U.S.C. 1181-1 et seq., and P.L. 106-393, as amended) from all 

BLM timber salvage sales, and from BLM forest health restoration treatments funded by this 

account. Funds from this account are available for planning, preparing, implementing, 

monitoring, and reforestation of salvage timber sales and forest health restoration treatments, 

including those designed to release trees from competing vegetation, control tree densities, and 

treat hazardous fuels. Most of these treatments are implemented through service contracts or 

commercial timber sales. BLM projects may occur on Oregon and California Grant Lands, Coos 

Bay Wagon Road Grant Lands in Oregon, and on the public domain lands throughout the BLM. 

The initial purpose of this fund was to allow quick response to fire and for reforestation of forests 

damaged by insects, disease, and fire. Expanded authorization in the 1998 Interior and Related 

Agencies Appropriations Act allows activities designed to promote forest health, including 

reducing the risk of catastrophic damage to forests in addition to responding to damage events. 

The Federal share of receipts in 2012 was $6.4 million. The expected receipts for 2013 and 

2014 are estimated to be $6.0 million and $4.6 million respectively.

The volume of salvage timber harvested and associated revenues in any given year may vary 

depending upon the severity of wildland fires, weather events such as drought and windstorms, 

and insect and disease mortality. The volume and value of harvest is also influenced by the 

demand for wood products. 

In 2012, the BLM treated 12,120 acres, inventoried 21,728 acres, and offered 71.4 million board 

feet of timber from salvage and forest restoration activities with FEHRF funds. In 2013, the BLM 

intends to treat 11,600 acres, inventory 4,500 acres, and offer 63 million board feet of timber 

from salvage and forest restoration activities with these funds. In 2014, the BLM plans to treat 
Bureau of Land Management 2014 Budget Justifications

Chapter XIV – Permanent Operating Funds Page XIV - 9

12,000 acres, inventory 20,000 acres and offer 70 million board feet of timber from salvage and 

forest restoration activities with these funds.

Timber Sale Pipeline Restoration Fund – The Pipeline Fund was established under Section 

327 of the Omnibus Consolidated Rescissions and Appropriations Act of 1996. The Act 

established separate funds for the U.S. Forest Service (USFS) and the BLM using revenues 

generated by timber sales released under Section 2001(k) of the 1995 Supplemental 

Appropriations for Disaster Assistance and Rescissions Act. This Act directs that 75 percent of 

the Pipeline Fund be used to fill each agency’s timber sale “pipeline”; and, that 25 percent of the 

Pipeline Fund be used to address the maintenance backlog for recreation projects on BLM and 

USFS lands. Funds are deposited into the fund after statutory payments are made to State and 

local governments. 

Receipts deposited in 2012 were $4.0 million and are estimated to be $3.8 million in 2013 and 

$1.8 million in 2014. In 2013 and 2014, 100 percent of timber sale pipeline receipts from O&C 

Grant Lands will be deposited to the Timber Sales Pipeline Restoration Fund due to the

proposed reauthorization of Secure Rural Schools payments. That law exempts deposits to 

permanent operating funds such as to the Timber Sales Pipeline Restoration Fund from being 

available for use to make Secure Rural Schools payments to western Oregon counties.

 

DEPOSITS AND EXPENDITURES,

TIMBER SALE PIPELINE RESTORATION FUND 

($000)

Year Annual Deposit Cumulative Deposit Annual Expenditure Cumulative 

Expenditure

1998 31,803 31,803 4,474 4,474

1999 3,122 38,192 10,239 14,713

2000 0 38,192 8,454 23,167

2001 6,590 41,868 7,489 30,656

2002 563 42,431 5,615 36,271

2003 2,879 45,502 5,339 41,610

2004 6,993 53,421 2,904 44,514

2005 8,843 62,301 2,887 47,401

2006 12,339 74,756 5,059 52,460

2007 10,922 85,718 8,381 60,841

2008 10,396 96,093 10,340 71,181

2009 5,162 101,274 16,768 87,949

2010 4,078 105,352 10,587 98,536

2011 4,048 109,400 4,718 103,254

2012 4,023 113,423 4,514 107,768

2013 est. 3,824 117,247 4,000 111,768

2014 est. 1,810 119,057 4,000 115,768

At the end of 2012, the unobligated balance in the Fund was $7.6 million. The BLM plans to

bring the Fund balance down to approximately $5.2 million at the end of fiscal year 2014.
Bureau of Land Management 2014 Budget Justifications

Chapter XIV – Permanent Operating Funds Page XIV - 10

Recreation Projects Funded through the Pipeline Fund – Significant progress has been made in

western Oregon to address recreation projects using funds from the Timber Sale Pipeline 

Restoration Fund. Through the end of 2012, the BLM completed $25.1 million in deferred 

maintenance work at 43 recreation sites. The principal focus of recreation spending is 

maintenance of existing facilities, resolving critical safety needs, and to meet the requirements 

of the Americans with Disabilities Act. The BLM has made considerable investment in projects 

such as renovation of water and sewer systems, upgrading restroom facilities, improving 

parking areas, and adapting existing recreation sites for handicapped visitors. In 2014, the BLM 

level of expenditures for recreation projects is estimated to be $700,000.

Timber Sales Prepared by use of the Pipeline Fund – Approximately 75 percent of the Timber 

Sale Pipeline Fund is specifically used by a multiple resource team of specialist to prepare 

timber sales, including all necessary NEPA, environmental inventories and analyses; timber 

sale layout; timber cruising and appraising; and contract preparation costs. Upon completion of 

these requirements, a timber sale is officially prepared and placed “on-the-shelf” in anticipation 

of being offered for sale in future years. 

Since 2001, the BLM has harvested approximately 510 million board feet of timber valued at 

approximately $71 million dollars from the Pipeline Fund timber sales. In 2012, the BLM 

expended an estimated $3.0 million from the Timber Sale Pipeline Fund and offered 

approximately 28 million board feet of timber for sale. The BLM expects to deposit $3.8 million 

and $1.8 million from associated timber sales into the Pipeline Fund in 2013 and 2014.

Expenses, Road Maintenance Deposits – This activity provides for the permanent 

appropriation of money collected from commercial road users in lieu of user maintenance. The 

receipts are permanently appropriated to the BLM for road maintenance. Users of certain roads 

under BLM jurisdiction make deposits for maintenance purposes. Moneys collected are 

available for needed road maintenance. Moneys collected on Oregon and California Grant 

Lands are available only for those lands (43 U.S.C. 1762(c), 43 U.S.C. 1735(b)). The BLM has 

authority to collect money for road maintenance from commercial users of the public lands and 

the public domain lands transportation system. Most of the funds generated for this account 

come from Oregon and California Grant Lands and are available for those lands only, excluding 

$225,000 that is made available for administrative expenses.

Southern Nevada Public Land Sales – This receipt account allows the BLM to record 

transactions authorized by the Southern Nevada Public Land Management Act (SNPLMA) (P.L. 

105-263). The purpose of the Act is to provide for the orderly disposal of certain Federal lands in 

Clark County, Nevada, to meet the demands for community expansion and economic 

development, and to use the proceeds from these sales to address critical environmental and 

educational needs in Clark County and other areas of Nevada. Receipts are generated primarily 

through sale to the public of lands in the Las Vegas valley. Approximately 50,000 acres of public 

land are within the disposal boundary area.

Currently, funds collected from the land sales are distributed as follows:

• Five percent to the State General Education Fund.

• Ten percent to the Southern Nevada Water Authority to fund the infrastructure needed to 

support the development resulting from land sales under the Act.

• 85 percent is deposited into a special account and available to be spent by the Secretary of 

the Interior.
Bureau of Land Management 2014 Budget Justifications

Chapter XIV – Permanent Operating Funds Page XIV - 11

To date, SNPLMA has generated more than $2.9 billion in deposits to the special fund, including 

earnings on investments, from land sales since its enactment in 1998. When SNPLMA was 

originally passed, proceeds from land sales under the bill were estimated at roughly $70 million 

per year. For more information on SNPLMA, see the 2008 report to Congress, 

at http://www.blm.gov/nv/st/en/snplma.html. See the Collections chapter for more information 

on anticipated land sales in 2013 and 2014.

Earnings on Investments, Southern Nevada Public Land Sales – This account allows the 

BLM to record interest-earning activity on funds that are derived from Southern Nevada land 

sales held by the U.S. Treasury. The SNPLMA, (P.L. 105-263) both directs the sale of specified 

public lands and authorizes the accumulation of interest earnings. Eighty-five percent of gross 

land sales receipts are deposited in a Treasury special account. Funds in the special account 

earn interest in an amount determined by the Secretary of the Treasury and are available for 

expenditure under the provisions of the Act. Earnings on investments are available for 

expenditure. 

Lincoln County Sales – This receipt account allows the BLM to record transactions authorized 

by the Lincoln County Land Sales Act (P.L. 106-298), which was enacted by Congress in 2000. 

The purpose of the Act is to provide for the disposal of certain Federal lands in Lincoln County, 

Nevada. Funds accumulated in the special account may be used to:

• Preserve archaeological resources, conserve habitat, and reimburse the BLM Nevada State 

Office for land sale costs related to this act; and

• Process public land use authorizations and rights-of-way stemming from conveyed land;

• Purchase environmentally sensitive land or interests in land in the State of Nevada, with 

priority given to land outside Clark County.

In 2012, $35,000 was deposited from interest earned on the fund balance – there were no 

receipts from land sales. In 2013, sales are expected to produce deposits of $22,000, after 

accounting for the 15 percent paid to the State and County. In 2014, deposits are projected to 

be $509,000, including interest, after accounting for the15 percent that will be paid to the State 

and County. 

Earnings on Investments, Lincoln County Land Act – This account allows the BLM to record 

interest-earning activity on funds held by the U.S. Treasury derived from Lincoln County land 

sales. Lincoln County Land Sales Act (P.L. 106-298), both directs the sale of specified public 

lands and authorizes the accumulation of interest earnings. Eighty-five percent of gross land 

sales receipts are deposited in a Treasury special account. Funds in the special account earn 

interest at a rate determined by the Secretary of the Treasury and are available for expenditure 

without further appropriation under the provisions of the Act. 

Stewardship "End Results" Contracting Fund –The 2003 Omnibus Appropriations Act (P.L. 

108-7), Section 323, amended Section 347 of the 1999 Appropriation Omnibus (P.L. 105-277, 

Oct. 21, 1998) that originally granted the USFS pilot stewardship contracting authority. Until 

September 30, 2013, the USFS and the BLM, via agreement or contract as appropriate, may 

enter into stewardship contracting projects with private persons or other public or private entities 

to perform services to achieve land management goals for the national forest and the public 

lands that meet local and rural community needs.
Bureau of Land Management 2014 Budget Justifications

Chapter XIV – Permanent Operating Funds Page XIV - 12

The Act granted the BLM the ability to utilize stewardship contracting as a tool for forest and 

rangeland restoration. The BLM may apply the value of timber or other forest products removed 

as an offset against the cost of services received, and monies from a contract under subsection 

(a) may be retained by the USFS and the BLM and shall be available for expenditure without 

further appropriation at the project site from which the monies are collected or at another project 

site. In 2012, the BLM deposited $280,000 into the fund and expects to deposit $20,000 in 2013

and 2014.

Since the current authority expires on September 30, 2013, the Budget includes a proposal 

seeking permanent authority to enter into stewardship contracts. It would provide flexibility to 

accomplish collaborative restoration work at a landscape scale. Please refer to the USFS

Justifications for more information on the Stewardship Contracting Permanent Authority 

proposal.

Federal Land Disposal Account – The Federal Land Transaction Facilitation Act (FLTFA), 

provides authority for the use of receipts from disposal actions by the BLM to purchase 

inholdings and lands adjacent to federally designated areas containing exceptional resources, 

as defined in FLTFA, from willing sellers with acceptable titles, at fair market value, to “promote 

consolidation of the ownership of public and private lands in a manner that would allow for 

better overall resource management administrative efficiency, or resource allocation.

The Act expired on July 25, 2010. On July 29, 2010, Congress passed PL 111-212, which 

included a oneyear extension of FLTFA. Because of the break in FLTFA’s authority, the funds 

in the account on July 25, 2010 were deposited into the Land and Water Conservation Fund. 

This included $37 million designated for land purchase and $13 million designated to administer 

the BLM’s land sale program, for a total of approximately $50 million. When the one year 

extension expired, the unobligated balance of $2.2 million was transferred to the Land and 

Water Conservation Fund. 

The Budget includes a proposal to reauthorize FLTFA and allow lands identified as suitable for 

disposal in recent land use plans to be sold using the FLTFA authority. FLTFA sales revenues 

would continue to be used to fund the acquisition of environmentally sensitive lands and the 

administrative costs associated with conducting sales. 

Owyhee Land Acquisition Account – The Owyhee Land Acquisition Account was established 

under Section 1505 of the Omnibus Public Land Management Act of 2009. This account 

provides a process for orderly sale of certain public lands in Boise District of the BLM that, as of 

July 25, 2000, had been identified for disposal in an appropriate resource management plan. 

Alaska Land Conveyance and Remediation Fund – The Budget proposes to temporarily halt 

revenue sharing payments to the State of Alaska from NPR-A oil and gas development in order 

to reallocate these resources to a new Alaska Land Conveyance and Remediation Fund. This 

fund would be used to supplement discretionary appropriations and address priority BLM 

program needs in Alaska, specifically the remediation of oil and gas legacy wells in NPR-A and 

the completion of remaining land title conveyances to the State of Alaska, individual Alaska 

Natives, and Alaska Native Corporations. The regular 50/50 Federal-State revenue sharing 

arrangement would resume once the work on these two Alaska-specific activities is complete. 

This approach of temporarily suspending revenue sharing payments is similar to the approach 

taken by Congress to address priority site remediation needs in the Naval Oil Shale Reserve 

No. 3 located in the State of Colorado. The Budget estimates this change would provide an 

additional $3 million for this priority work in FY 2014.
Bureau of Land Management 2014 Budget Justifications

Chapter XIV – Permanent Operating Funds Page XIV - 13

Washington County, Utah Land Acquisition Account – This account was established under 

Section 1778 of the Omnibus Public Land Management Act of 2009. This account provides a 

process for the orderly sale of certain public lands in Washington County, Utah, that, as of July 

25, 2000, had been identified for disposal in appropriate resource management plans. 

Proceeds from the sale of public land are deposited into the “Washington County, Utah Land 

Acquisitions Account”. Amounts in the account are available to the Secretary to purchase, from 

willing sellers, inholdings of lands or interest in land within the wilderness areas and National 

Conservation Area established by the Omnibus Public Land Management Act. 

Silver Saddle Endowment Account – This account was established by the Omnibus Public 

Land Management Act of 2009, and authorizes under certain conditions the sale of a 62-acre 

parcel to Carson City, Nevada. Proceeds of the sale are to be used by BLM for the oversight 

and enforcement of a perpetual conservation easement to the land to protect, preserve, and 

enhance the conservation values of the land. In 2012 there were no receipts, and none are 

estimated for 2013 and 2014. 

Carson City Special Account – This account was established by the Omnibus Public Land 

Management Act of 2009, and authorizes the sale of approximately 158 acres described in the 

law. Five percent of the proceeds will be paid directly to the State for use in the general 

education program of the State. The remainder is deposited in this account to reimburse BLM 

and the Forest Service for the costs of the sale and appraisals, and to acquire environmentally 

sensitive land or an interest in environmentally sensitive land in the city. In 2011 there were no 

receipts. In 2012 there were no receipts. In 2013, estimated receipts are $208,000; none are 

estimated for 2014. 

NPR-2 Lease Revenue Account – Section 331 of the Energy Policy Act of 2005, P.L.109–58 

transferred Naval Petroleum Reserve Numbered 2 from the Department of Energy to the 

Department of the Interior and appropriates a portion of revenues from mineral leases on the 

site to remove environmental contamination. The appropriations end when the cleanup is 

completed. 

Geothermal Steam Act Implementation Fund – Section 224 of the Energy Policy Act of 2005, 

P.L.109–58, amended the Geothermal Steam Act of 1970. The amendment provides that fifty 

percent of geothermal bonuses, rents, and royalties will be paid to the State and twenty-five 

percent will be paid to the County within the boundaries of which the leased lands or geothermal 

resources are or were located. Section 234 provided that twenty-five percent be deposited to 

BLM’s Geothermal Steam Act Implementation Fund from 2006 through 2010 for the purpose of 

expediting the development of geothermal steam as an energy source. That authority was 

repealed by Congress a year early. A deposit of $2.7 million was made in 2010 from revenues 

collected in 2009 before the authority expired. No additional deposits will be made under 

current law. More information about this fund can be found in the Oil and Gas and Renewable 

Energy Management sections of the Management of Lands and Resources chapter. 

Permit Processing Improvement Fund – As authorized by Section 365 of the Energy Policy 

Act of 2005, P.L.109–58, fifty percent of rents from onshore mineral leases for oil and gas, coal, 

and oil shale on Federal lands were to be deposited into this Fund from 2006 through 2015 for 

the purpose of identifying and implementing improvements and cost efficiencies in processing 

applications for permits to drill and related work. The Administration will submit legislation to 

eliminate this Fund in 2015. For more information on the use of this Fund, please see the Oil 

and Gas Management section in the Management of Lands and Resources Chapter. 
Bureau of Land Management 2014 Budget Justifications

Chapter XIV – Permanent Operating Funds Page XIV - 14

Budget Schedules - Current Law

Account Symbol and Title

14X9926

Permanent Operating Funds

Line 2012 Act 2013 CY 2014 BY

Program and Financing (P) ($ in Millions)

Obligations by program activity:

 Forest ecosystems health and recovery 0001 5 6 5

 Recreation fee demonstration 0002 17 18 19

 Expenses, road maintenance deposits 0003 1 1 1

 Timber sale pipeline restoration fund 0004 5 4 4

 Southern Nevada public land sales (85) 0005 101 110 114

 Lincoln County Lands Act 0008 4 5 1

 Operation and maintenance of quarters 0013 1 1 1

 Permit Processing Improvement Fund 0014 23 19 19

 Geothermal Steam Act Fund 0015 3 3 1

 NPR-2 Cleanup Fund 0018 0 0 1

Total new obligations 0900 160 167 166

Budgetary Resources:

 Unobligated balance:

 Unobligated balance brought forward, Oct 1 1000 657 625 523

 Recoveries of prior year unpaid obligations 1021 72 0 0

 Other balances withdrawn 1029 -1 0 0

 Unobligated balance (total) 1050 728 625 523

 Budget authority:

 Appropriations, mandatory:

 Recreation fee demonstration program 1201 17 18 19

 Forest ecosystem health and recovery fund 1201 6 6 3

 Timber sales pipeline restoration fund 1201 4 4 2

 Expenses, road maintenance deposits 1201 2 2 2

 S. Nevada public land management 1201 7 13 5

 S. Nevada public land management-interest 

earned

1201 1 1 1

 Permit processing improvement fund 1201 19 20 16

 Operation and maintenance of quarters 1201 1 1 1

 Owyhee Land Acquisition 1201 0 0 1

 Appropriations, mandatory (total) 1260 57 65 50

 Appropriations, mandatory - Computed Totals 1260-20 57 65 50

 Mandatory, Authorizing Committee

 Appropriation [SNPLMA] **OL Rates** 1260-40 8 14 6

 Baseline Non-Pay 1260-50 0 10 2

 Baseline Civilian Pay 1260-50 0 4 4

 Appropriation [Recreation Fees] **OL 

Rates**

1260-40 17 18 19

 Baseline Non-Pay 1260-50 0 9 10

 Baseline Civilian Pay 1260-50 0 9 9

 Appropriation [Other Perm Operating] **OL 

Rates**

1260-40 32 33 25

 Baseline Non-Pay 1260-50 0 20 12
Bureau of Land Management 2014 Budget Justifications

Chapter XIV – Permanent Operating Funds Page XIV - 15

Budget Schedules - Current Law

Account Symbol and Title

14X9926

Permanent Operating Funds

Line 2012 Act 2013 CY 2014 BY

Program and Financing (P) ($ in Millions)

 Baseline Civilian Pay 1260-50 0 13 13

Total budgetary resources available 1930 785 690 573

 Memorandum (non-add) entries:

 Unexpired unobligated balance, end of year 1941 625 523 407

 Special and non-revolving trust funds:

 Other balances withdrawn 1950 1 0 0

Change in obligated balance:

 Unpaid obligations:

 Unpaid obligations, brought forward, Oct 1 3000 754 492 376

 Obligations incurred, unexpired accounts 3010 160 167 166

 Outlays (gross) 3020 -350 -283 -220

 Recoveries of prior year unpaid obligations, 

unexpired

3040 -72 0 0

 Unpaid obligations, end of year 3050 492 376 322

 Memorandum (non-add) entries:

 Obligated balance, start of year 3100 754 492 376

 Obligated balance, end of year 3200 492 376 322

Budget authority and outlays, net:

 Mandatory:

 Budget authority, gross 4090 57 65 50

 Outlays, gross:

 Outlays from new mandatory authority 4100 20 37 30

 Outlays from mandatory balances 4101 330 246 190

 Outlays, gross (total) 4110 350 283 220

 Budget authority, net (mandatory) 4160 57 65 50

 Outlays, net (mandatory) 4170 350 283 220

Budget authority, net (total) 4180 57 65 50

Outlays, net (total) 4190 350 283 220

Memorandum (non-add) entries:

 Total investments, SOY: Federal securities: Par 

value

5000 1,166 881 666

 Total investments, EOY: Federal securities: Par 

value

5001 881 666 503

Object Classification (O) ($ in Millions)

Direct obligations:

 Personnel compensation:

 Full-time permanent 1111 24 26 21

 Other than full-time permanent 1113 3 3 3
Bureau of Land Management 2014 Budget Justifications

Chapter XIV – Permanent Operating Funds Page XIV - 16

Budget Schedules - Current Law

Account Symbol and Title

14X9926

Permanent Operating Funds

Line 2012 Act 2013 CY 2014 BY

Program and Financing (P) ($ in Millions)

 Other personnel compensation 1115 2 2 2

 Total personnel compensation 1119 29 31 26

 Civilian personnel benefits 1121 9 9 9

 Travel and transportation of persons 1210 2 2 2

 Transportation of things 1220 1 1 1

 Advisory and assistance services 1251 2 1 1

 Other services from non-Federal sources 1252 9 9 9

 Other goods and services from Federal sources 1253 9 11 11

 Operation and maintenance of equipment 1257 1 1 2

 Supplies and materials 1260 2 1 1

 Equipment 1310 1 1 1

 Land and structures 1320 4 4 4

 Grants, subsidies, and contributions 1410 7 10 13

 Subtotal, obligations, Direct obligations 1990 76 81 80

Allocation Account - direct:

Personnel compensation:

 Personnel compensation: Full-time permanent 3111 1 1 1

 Travel and transportation of persons 3210 2 2 2

 Transportation of things 3220 2 2 2

 Advisory and assistance services 3251 2 1 0

 Other services from non-Federal sources 3252 19 19 19

 Other goods and services from Federal sources 3253 22 22 22

 Operation and maintenance of equipment 3257 2 2 2

 Supplies and materials 3260 5 1 1

 Equipment 3310 2 1 1

 Land and structures 3320 10 10 10

 Grants, subsidies, and contributions 3410 17 25 26

 Subtotal, obligations, Allocation Account -

direct

3990 84 86 86

 Total new obligations 9999 160 167 166

 Direct Federal programs:

 Budget Authority 2004-01 57 65 50

 Outlays 2004-02 350 283 220

Employment Summary (Q)

Direct civilian full-time equivalent employment 1001 493 521 449

Appropriations Requests in Thousands of Dollars 

(T)

Budget year budgetary resources [14-9926] 1000 0 0
Bureau of Land Management 2014 Budget Justifications

Chapter XIV – Permanent Operating Funds Page XIV - 17

Budget Schedules - Proposal

Account Symbol and Title

14X9926

Permanent Operating Funds

Line 2012 Act 2013 CY 2014 BY

Program and Financing (P) ($ in Millions)

Obligations by program activity:

 Federal Land Disposal Account 0001 0 0 5

 FEHRF and TSPRF 0002 0 0 1

Total new obligations 0900 0 0 6

Budgetary Resources:

 Budget authority:

 Appropriations, mandatory:

 Appropriation (Timber Sales Pipeline 

Restoration Fund)

1201 0 0 1

 Appropriation (Forest Ecosystem Health & 

Recovery Fund)

1201 0 0 2

 Appropriation (Federal Land Disposal 

Account)

1201 0 0 5

 Appropriation (Alaska Land Conveyance and 

Remediation)

1201 0 0 3

 Appropriations, mandatory (total) 1260 0 0 11

 Appropriations, mandatory - Computed Totals 1260-20 0 0 11

 Mandatory, Authorizing Committee

 Appropriation [Federal Land Disposal 

Account] **OL Rates**

1260-40 0 0 5

 Appropriation [FEHRF & TSPRF] **OL 

Rates**

1260-40 0 0 3

 Appropriation [PPIF] **OL Rates** 1260-40 0 0 0

 Appropriation [Alaska Land Conveyance and 

Remediation] **OL Rates**

1260-40 0 0 3

Total budgetary resources available 1930 0 0 11

 Memorandum (non-add) entries:

 Unexpired unobligated balance, end of year 1941 0 0 5

Change in obligated balance:

 Unpaid obligations:

 Unpaid obligations, brought forward, Oct 1 3000 0 0 0

 Obligations incurred, unexpired accounts 3010 0 0 6

 Outlays (gross) 3020 0 0 -6

 Unpaid obligations, end of year 3050 0 0 0

 Memorandum (non-add) entries:

 Obligated balance, start of year 3100 0 0 0

 Obligated balance, end of year 3200 0 0 0
Bureau of Land Management 2014 Budget Justifications

Chapter XIV – Permanent Operating Funds Page XIV - 18

Budget Schedules - Proposal

Account Symbol and Title

14X9926

Permanent Operating Funds

Line 2012 Act 2013 CY 2014 BY

Program and Financing (P) ($ in Millions)

Budget authority and outlays, net:

 Mandatory:

 Budget authority, gross 4090 0 0 11

 Outlays, gross:

 Outlays from new mandatory authority 4100 0 0 6

 Budget authority, net (mandatory) 4160 0 0 11

 Outlays, net (mandatory) 4170 0 0 6

Budget authority, net (total) 4180 0 0 11

Outlays, net (total) 4190 0 0 6

Object Classification (O) ($ in Millions)

Direct obligations:

Personnel compensation:

 Personnel compensation: Full-time permanent 1111 0 0 1

 Advisory and assistance services 1251 0 0 1

 Other services from non-Federal sources 1252 0 0 1

 Other goods and services from Federal sources 1253 0 0 2

 Land and structures 1320 0 0 1

 Total new obligations 9999 0 0 6

 Direct Federal programs:

 Budget Authority 2004-01 0 0 11

 Outlays 2004-02 0 0 6

Employment Summary (Q)

Direct civilian full-time equivalent employment 1001 0 0 5
Miscellaneous Trust Funds

Bureau of Land Management 2014 Budget Justifications

Chapter XV – Miscellaneous Trust Funds Page XV - 1

MISCELLANEOUS TRUST FUNDS

APPROPRIATIONS LANGUAGE

In addition to amounts authorized to be expended under existing laws, there is hereby 

appropriated such amounts as may be contributed under section 307 of the Act of October 21, 

1976 (43 U. S. C. 1701), and such amounts as may be advanced for administrative costs, 

surveys, appraisals, and costs of making conveyances of omitted lands under section 211(b) of 

that Act, to remain available until expended. (Department of the Interior, Environment, and 

Related Agencies Appropriations Act, 2012.)

EXPLANATION

This appropriation authorizes the BLM to expend funds that are contributed to the BLM. The 

contributions cover various operating expenses. The appropriation consists of both current and 

permanent appropriations. The current appropriations are the contributions authorized by the 

Federal Land Policy Management Act (FLPMA) section 307 (c), which allows parties to 

contribute funds to the BLM for resource development, protection, and management activities; 

for acquisition and conveyance of public lands; and for cadastral surveys on Federally controlled 

or intermingled lands. The permanent appropriation allows the BLM to spend funds contributed 

under the authority of the Taylor Grazing Act and under authority of various land survey acts.
Bureau of Land Management 2014 Budget Justifications

Chapter XV – Miscellaneous Trust Funds Page XV - 2

AUTHORIZATIONS

Statutes that authorize permanent mandatory trust funds

The Taylor Grazing Act of 

1934, as amended (43 

U.S.C. 315h, 315i)

Provides for the Secretary of the Interior to accept contributions 

for the administration, protection, and improvement of grazing 

lands, and for these funds to be deposited into the Treasury in a 

trust fund; the Act also permanently appropriates them for use 

by the Secretary.

The Act of March 3, 1891, 

Section 11 (43 U.S.C. 

355)

Provides for the sale of town lots to non-Native Alaskans. This 

Act was repealed by FLPMA in 1976. However, the Comptroller 

General Opinion of November 18, 1935, and 31 U.S.C. 1321

authorize the use of trust funds to provide for survey and deed 

recordation of town lots occupied prior to passage of FLPMA.

43 U.S.C. 759 Provides for accomplishment of public surveys of whole 

townships through a trust fund; deposits for expenses deemed 

appropriated. 43 U.S.C. 761 provides for refunds from trust 

funds established in 43 U.S.C. 759 of costs in excess of 

expenses.

31 U.S.C. 1321(a)(47) and 

(48)

Classifies the activities of "Expenses, public survey work, 

general" and "Expenses, public survey work, Alaska" as trust 

funds.

48 Stat. 1224-36 Provides for payments in advance for public surveys.

Statutes that authorize current mandatory appropriations of trust funds. 

43 U.S.C. 1721(a) and (b) 

(FLPMA Section 211(a) 

and (b))

Provides for the donation of funds for surveys of omitted lands.

The Comptroller General 

Opinion of November 18, 

1935, and 31 U.S.C. 1321

Authorizes the use of trust funds to provide for survey and deed 

recordation of town lots occupied prior to passage of FLPMA.

The Sikes Act of 1974, as 

amended (16 U.S.C. 670 et 

seq.)

Provides for the conservation, restoration, and management of 

species and their habitats in cooperation with State wildlife 

agencies. 

Omnibus Appropriations 

Act, 2009, Division E—

Department of the 

Interior, Environment, and 

Related Agencies 

Appropriations Act, 2009, 

P.L. 111-8, March 10, 2009

Provides that projects to be funded pursuant to a written 

commitment by a State government to provide an identified 

amount of money in support of the project may be carried out by 

the Bureau on a reimbursable basis.
Bureau of Land Management 2014 Budget Justifications

Chapter XV – Miscellaneous Trust Funds Page XV - 3

SUMMARY OF REQUIREMENTS

(Dollars in Thousands)

2014 Change

from 2012

Enacted

(+/ -)

Comparison

by Activity/

Subactivity

2012

Enacted

2013 Full Year 

CR

Program 

Changes

(+/ -)

Budget

Request

FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount

Miscellaneous Trust 

Funds 110 24,079 110 24,925 108 24,925

CURRENT: 97 20,815 97 23,125 0 0 97 23,125 0 +2,310

Conveyance of Omitted 

Lands 0 0 0 0 0 0 0 0 0 0

Resource Development 

Protection & 

Management - FLPMA

58 14,316 58 15,905 +3 0 61 15,905 +3 1,589

Resource Development 

Protection & 

Management -

California Off-Highway

38 6,210 38 6,899 -4 0 34 6,899 -4 689

Wildlife & Fish 

Conservation & 

Rehabilitation - Sikes 

Act

1 289 1 321 1 0 2 321 1 32

Rights-Of-Way 0 0 0 0 0 0 0 0 0 0

Comparison

by Activity/

Subactivity

2012

Enacted

2013 Full Year 

CR

2014 Change

from 2013

Enacted

(+/ -)

Program 

Changes

(+/ -)

Budget

Request

FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount

PERMANENT: 13 3,264 13 1,800 -2 0 11 1,800 -2 0

Resource Development 

Protection & 

Management - Taylor 

Grazing Act

6 2,388 6 1,317 0 0 6 1,317 0 0

Public Survey 7 876 7 483 -2 0 5 483 -2 0
Bureau of Land Management 2014 Budget Justifications

Chapter XV – Miscellaneous Trust Funds Page XV - 4

ACTIVITY DESCRIPTION

The Land and Resource Management Trust Fund provides for resource development, protection, 

and management improvement of the public lands using money and services that are contributed 

to the BLM from non-Federal sources.

Contributions and donations of money from private individuals, companies, user organizations, 

State government agencies, and other non-Federal entities provide for the performance of 

certain conservation practices. Any money remaining after the project is completed is returned 

to the contributor if they desire.

Current Appropriations: 

Funds are routinely received for the following purposes: 

• Conveyance of Omitted Lands - This activity accounts for contributed funds for land and 

realty actions from non-Federal sources or applicants as agreed to through an established 

contribution agreement. 

• Resource Development, Protection, and Management--FLMPA - According to FLPMA, 

the BLM can accept contributed money or services for resource development, protection, and 

management; conveyance or acquisition of public lands; and conducting cadastral surveys. 

• Resource Development, Protection and Management of California Off-Highway 

Vehicles - Includes contributions from the State of California Off-Highway Vehicle license 

(“Green Sticker”) fund. The BLM uses this fund for the development, maintenance, and 

operation of benefiting projects on BLM-administered public lands in California. The BLM 

requests these funds from the State of California each year through a competitive process. 

The amount awarded to the BLM varies each year. 

• Wildlife & Fish Conservation & Rehabilitation--Sikes Act - The Sikes Act authorizes State 

game and fish departments to charge fees for activities such as hunting, fishing, and trapping 

on Federal lands. These funds are shared with the BLM and used by the BLM for the 

conservation, restoration, management and improvement of wildlife species and their habitat. 

• Rights-of-Way - This activity accounts for funds contributed by private entities to pay the 

casework costs of processing ROW grants requested by them. 

Permanent Appropriations: 

The following funds are permanently available as Permanent Miscellaneous Trust Funds to the 

Secretary of the Interior for efforts as specified by the authorizing Act: 

Appropriation: Miscellaneous Trust Funds

(Current and Permanent)
Bureau of Land Management 2014 Budget Justifications

Chapter XV – Miscellaneous Trust Funds Page XV - 5

• Taylor Grazing Act Contributions - These contributions are permanently appropriated as 

trust funds to the Secretary for rangeland improvement.

• Public Survey Contributions - These funds are contributions from individuals, companies or 

other users of the public lands, for cadastral survey services provided by the BLM. 

• Trustee Funds, Alaska Townsites - These contributions are provided for the sale of town 

lots to non-Native Alaskans. These trust funds provide for the survey and deed transfer of 

town lots. Purchasers pay the cost of survey and deed transfer plus $25. (Native Alaskans 

are exempt from payment.) Only lots occupied before the passage of FLPMA may be deeded 

to the occupants; all other lots are the property of the municipality. 
Bureau of Land Management 2014 Budget Justifications

Chapter XV – Miscellaneous Trust Funds Page XV - 6

Budget Schedules

Account Symbol and Title

14X9971

Miscellaneous Trust Funds

Line 2012 Act 2013 CY 2014 BY

Program and Financing (P) ($ in Millions)

Obligations by program activity:

 Resource development FLPMA 0001 17 16 16

 Resource development CA OHV 0002 6 7 7

 Resource development Taylor Grazing 0003 2 1 1

 Public survey 0004 1 1 1

 Sikes Act 0005 0 1 1

Total new obligations 0900 26 26 26

Budgetary Resources:

 Unobligated balance:

 Unobligated balance brought forward, Oct 1 1000 49 47 46

 Budget authority:

 Appropriations, mandatory:

 Appropriation (special or trust fund) 1201 24 25 25

 Appropriations, mandatory (total) 1260 24 25 25

 Appropriations, mandatory - Computed Totals 1260-20 24 25 25

 Mandatory, Appropriations Committee

 Appropriation [010-04-9971] **OL Rates** 1260-40 24 25 25

 Baseline Non-Pay 1260-50 0 15 15

 Baseline Civilian Pay 1260-50 0 10 10

Total budgetary resources available 1930 73 72 71

 Memorandum (non-add) entries:

 Unexpired unobligated balance, end of year 1941 47 46 45

Change in obligated balance:

 Unpaid obligations:

 Unpaid obligations, brought forward, Oct 1 3000 9 12 14

 Obligations incurred, unexpired accounts 3010 26 26 26

 Outlays (gross) 3020 -23 -24 -27

 Unpaid obligations, end of year 3050 12 14 13

 Memorandum (non-add) entries:

 Obligated balance, start of year 3100 9 12 14

 Obligated balance, end of year 3200 12 14 13

Budget authority and outlays, net:

 Mandatory:

 Budget authority, gross 4090 24 25 25

 Outlays, gross:

 Outlays from new mandatory authority 4100 10 13 13

 Outlays from mandatory balances 4101 13 11 14
Bureau of Land Management 2014 Budget Justifications

Chapter XV – Miscellaneous Trust Funds Page XV - 7

Budget Schedules

Account Symbol and Title

14X9971

Miscellaneous Trust Funds

Line 2012 Act 2013 CY 2014 BY

Program and Financing (P) ($ in Millions)

 Outlays, gross (total) 4110 23 24 27

 Budget authority, net (mandatory) 4160 24 25 25

 Outlays, net (mandatory) 4170 23 24 27

Budget authority, net (total) 4180 24 25 25

Outlays, net (total) 4190 23 24 27

Object Classification (O) ($ in Millions)

Direct obligations:

 Personnel compensation:

 Full-time permanent 1111 5 5 5

 Other than full-time permanent 1113 2 2 2

 Other personnel compensation 1115 1 1 1

 Total personnel compensation 1119 8 8 8

 Civilian personnel benefits 1121 2 2 2

 Communications, utilities, and miscellaneous 

charges

1233 1 0 0

 Advisory and assistance services 1251 0 1 1

 Other services from non-Federal sources 1252 4 5 5

 Other goods and services from Federal sources 1253 4 4 4

 Supplies and materials 1260 2 1 1

 Equipment 1310 0 1 1

 Land and structures 1320 2 1 1

 Grants, subsidies, and contributions 1410 3 3 3

 Total new obligations 9999 26 26 26

 Direct Federal programs:

 Budget Authority 2004-01 24 25 25

 Outlays 2004-02 23 24 27

Employment Summary (Q)

Direct civilian full-time equivalent employment 1001 110 110 108

Appropriations Requests in Thousands of Dollars (T)

Budget year budgetary resources [14-9971] 1000 0 23,125
Bureau of Land Management 2014 Budget Justifications

Chapter XV – Miscellaneous Trust Funds Page XV - 8

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Helium Fund and Operations

Bureau of Land Management 2014 Budget Justifications

Chapter XVI - Helium Fund and Operations Page XVI - 1

HELIUM FUND AND OPERATIONS

APPROPRIATIONS LANGUAGE

No Appropriations Language

EXPLANATION

The Helium Act Amendments of 1960, Public Law 86-777 (50 U.S.C. 167), authorized activities 

to provide sufficient helium to meet the current and foreseeable future needs of essential 

government activities. The Helium Privatization Act of 1996, Public Law 104-273, discontinued 

production and sale of refined helium. Regulations have been finalized to facilitate 

administration and implementation of other provisions granted under 50 U.S.C. 167. 

The current funding mechanism for the Helium Program will terminate at the beginning of 2014 

with complete repayment of the Helium debt. Therefore, the 2014 President’s Budget includes 

a proposal to extend that mechanism with modifications. 

Summary of Requirements ($000)

 2014

Comparison 2012 2013 Fixed Costs & 

Related Changes Program Changes Budget Change from 2013

by Activity/ Actual Full Year CR (+/-) (+/-) Request (+/-)

Subactivity FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount

Helium Fund 49 198,419 49 212,000 0 0 0 0 49 24,963 0 -

Helium Fund 49 198,419 49 212,000 0 0 0 01 49 24,963 0 -187,037

Offsetting 

Collections 0 -198,419 0 -212,000 0 0 0 01 0 -24,963 0 -187,037

Operating 

Programs: 49 198,419 49 212,000 0 0 0 0 49 24,963 0 -187,037

Production & 

Sales 17 192,419 17 206,0000 0 0 0 01 17 18,963 0 -187,037

Transmission & 

Storage Operations 17 3,000 17 3,000 0 0 0 01 17 3,000 0 0

Administrative & 

Other Expenses 15 3,000 15 3,000 0 0 0 01 15 3,000 0 0

1

Note: The change from 2013 to 2014 is because 2014 collections in excess of 2014 operating costs are no longer credited to the 

helium revolving fund, but are deposited to a General Fund receipt account. Only the collections needed to operate the helium 

program are credited to the revolving fund. 
Bureau of Land Management 2014 Budget Justifications

Chapter XVI - Helium Fund and Operations Page XVI - 2

Activity: Helium Fund and Operations

JUSTIFICATION OF 2014 PROGRAM CHANGES

The 2014 budget request for the Helium Fund and Operations program is $24,963,000 and 49

FTEs, a program decrease of $187,037,000 from the 2013 estimate. The change from 2013 to 

2014 is because 2014 collections in excess of 2014 operating costs are no longer credited to 

the helium revolving fund, but are deposited to a General Fund receipt account. The Helium 

Privatization Act of 1996, P.L. 104-273 specifies that all monies in the Helium Fund in excess of 

$2.0 million be returned to Treasury to apply toward repayment of the helium debt once the 

environmental cleanup for closure is completed.

The amount of the budget request is based on estimated costs of natural gas and liquid gas 

sales operations of the Crude Helium Enrichment Unit, and oversight of helium production on 

federal lands. Revenues from helium sales in 2014 are projected to be lower than the 2013

level.

PROGRAM OVERVIEW

The Helium Act Amendments of 1960, Public Law 86-777 (50 U.S.C. 167), authorized activities 

to provide sufficient helium to meet the current and foreseeable future needs of essential 

government activities. The Helium Privatization Act of 1996, Public Law 104-273, significantly 

changed the objectives and functions of the Helium program. The legislation established 

revised guidelines for the helium program:

• Discontinue production and sale of refined helium;

• Continue the storage and transmission of crude helium;

• Sell the crude helium reserve over an extended period; and

• Oversee production of helium on Federal lands.

The funding mechanism for the Helium Program terminates under current law when the helium 

debt is repaid which will occur at the beginning of 2014. Therefore, the 2014 President’s Budget 

proposes an extension of that mechanism with modifications. The proposal encourages the 

gradual exit from the helium market, development of a fair-market price for helium, and a 

national helium gas assessment.

The BLM Helium Operation is currently responsible for:

• Storing and transmitting of Federal and private crude helium via the helium storage 

system;

• Administering helium fee and royalty contracts for helium extracted from gas produced 

on Federal lands;

• Administering the in-kind and open market crude helium gas sale program; and

• Conducting helium resource evaluation and reserve tracking to determine the extent of 

helium resources.

The helium storage system ensures that excess helium produced from natural gas processing 

plants connected to the pipeline network is conserved for future use. Federally-owned natural 
Bureau of Land Management 2014 Budget Justifications

Chapter XVI - Helium Fund and Operations Page XVI - 3

gas containing marketable helium reserves will be identified and contracted for sale or royalty to 

enhance conservation of crude helium already in storage.

Under the provisions of the current law, the program has reduced personnel from 173 (in 1997) 

to 49 at the end of 2012, concluded helium refining functions, and initiated the orderly disposal 

of excess property. The remaining environmental cleanup costs will add to the funds typically 

required in a normal year. These costs vary, depending on the results of environmental 

assessments of the decommissioned production facilities.

Funding History

All the income derived from crude helium sales, private helium storage, and fee sales/royalty 

payments for helium extracted from Federal lands pays the full cost of the Helium Program.

The Helium Privatization Act also specified that all monies in the helium fund in excess of $2.0 

million be returned to Treasury to apply toward repayment of the Helium Debt once the 

environmental cleanup for closure is completed.

Funds generated from the sale of helium are used to repay the Helium Debt. The Helium Debt 

is anticipated to be paid off at the beginning of 2014. 

2014 PROGRAM PERFORMANCE

The amount of the budget request is based on estimated costs of natural gas and liquid gas 

sales operations of the Crude Helium Enrichment Unit, and oversight of helium production on 

federal lands. Revenue from helium sales in 2014 are projected to be slightly higher than the 

2013 level.

Based on the 2014 budget’s legislative proposal to reauthorize the Helium Program, in 2014,

the income derived from crude helium sales, from private helium storage, and from fee 

sales/royalty payments for helium extracted from Federal lands will continue to pay for the full 

costs of the program.

Helium Fund- The Helium Fund accounted for collections of approximately $198.4 million in 

2012. The 2014 President’s Budget includes a proposal to re-authorize the BLM's Helium Fund 

in combination with substantive reforms to BLM helium sales based on recent recommendations 

from the National Academy of Sciences. 

This proposal will allow continued operations of the Helium program while facilitating a gradual 

exit from the helium market. To minimize impacts to the helium market, the proposal will 

gradually increase the sales price of helium while reducing the total volume of helium sold each 

year, until the amount in storage reaches 3,000,000,000 standard cubic feet. At that point, the 

remaining helium will be reserved for Federal users. The proposal would enable the sale of 

helium and related products and deposits of net proceeds to the Treasury.
Bureau of Land Management 2014 Budget Justifications

Chapter XVII - Helium Fund and Operations Page XVII - 4

Budget Schedules – Current Law

Account Symbol and Title

14X4053

Helium Fund

Line 2012 Act 2013 CY 2014 BY

Program and Financing (P) ($ in Millions)

Obligations by program activity:

 Production and sales 0801 19 21 0

 Transmission and storage 0802 2 2 0

 Administration and other expenses 0803 2 4 0

Total new obligations 0900 23 27 0

Budgetary Resources:

 Unobligated balance:

 Unobligated balance brought forward, Oct 1 1000 30 27 44

 Recoveries of prior year unpaid obligations 1021 2 0 0

 Unobligated balances applied to repay debt 1023 0 0 -44

 Unobligated balance (total) 1050 32 27 0

 Budget authority:

 Spending authority from offsetting collections, mandatory:

 Collected 1800 198 212 0

 Capital transfer of spending authority from 

offsetting collections to general fund

1820 0 -168 0

 Spending authority from offsetting collections 

applied to repay debt

1825 -180 0 0

 Spending auth from offsetting collections, mand 

(total)

1850 18 44 0

 Spending auth from offsetting collections, mand -

Computed Totals

1850-20 18 44 0

 Mandatory, Authorizing Committee

 Spending authority from offsetting collections 

[Text]

1850-40 18 44 0

 Baseline Program [Text] 1850-50 0 44 0

Total budgetary resources available 1930 50 71 0

 Memorandum (non-add) entries:

 Unexpired unobligated balance, end of year 1941 27 44 0

Change in obligated balance:

 Unpaid obligations:

 Unpaid obligations, brought forward, Oct 1 3000 12 12 19

 Obligations incurred, unexpired accounts 3010 23 27 0

 Outlays (gross) 3020 -21 -20 -7

 Recoveries of prior year unpaid obligations, 

unexpired

3040 -2 0 0

 Unpaid obligations, end of year 3050 12 19 12

 Memorandum (non-add) entries:

 Obligated balance, start of year 3100 12 12 19
Bureau of Land Management 2014 Budget Justifications

Chapter XVII - Helium Fund and Operations Page XVII - 5

Budget Schedules – Current Law

Account Symbol and Title

14X4053

Helium Fund

Line 2012 Act 2013 CY 2014 BY

 Obligated balance, end of year 3200 12 19 12

Budget authority and outlays, net:

 Mandatory:

 Budget authority, gross 4090 18 44 0

 Outlays, gross:

 Outlays from new mandatory authority 4100 8 11 0

 Outlays from mandatory balances 4101 13 9 7

 Outlays, gross (total) 4110 21 20 7

 Mandatory, Authorizing Committee

 Policy Program [Text] 4123-41 -198 -212 0

 Baseline Program [Text] 4123-71 0 -212 0

 Budget authority, net (mandatory) 4160 -180 -168 0

 Outlays, net (mandatory) 4170 -177 -192 7

Budget authority, net (total) 4180 -180 -168 0

Outlays, net (total) 4190 -177 -192 7

Balance Sheet (F) ($ in Millions)

ASSETS:

Federal assets:

 Federal assets: Fund balances with Treasury 1101 73

 Other Federal assets:

 Inventories and related properties 1802 201

 Property, plant and equipment, net 1803 3

 Total assets 1999 277

LIABILITIES:

 Federal liabilities:

 Interest payable 2102 184

 Debt 2103 252

 Total liabilities 2999 436

NET POSITION:

 Cumulative results of operations 3300 -159

 Total liabilities and net position 4999 277

Object Classification (O) ($ in Millions)

Reimbursable obligations:

Personnel compensation:

 Personnel compensation: Full-time permanent 2111 3 3 0

 Civilian personnel benefits 2121 1 1 0

 Communications, utilities, and miscellaneous 

charges

2233 2 4 0

 Other services from non-Federal sources 2252 2 6 0

 Supplies and materials 2260 1 4 0

 Grants, subsidies, and contributions 2410 14 9 0

 Total new obligations 9999 23 27 0
Bureau of Land Management 2014 Budget Justifications

Chapter XVII - Helium Fund and Operations Page XVII - 6

Budget Schedules – Current Law

Account Symbol and Title

14X4053

Helium Fund

Line 2012 Act 2013 CY 2014 BY

Employment Summary (Q)

Reimbursable civilian full-time equivalent 

employment

2001 49 49 0
Bureau of Land Management 2014 Budget Justifications

Chapter XVII - Helium Fund and Operations Page XVII - 7

Budget Schedules - Proposal

Account Symbol and Title

14X4053

Helium Fund

Line 2012 Act 2013 CY 2014 BY

Program and Financing (P) ($ in Millions)

Obligations by program activity:

 Production and sales 0801 0 0 19

 Transmission and storage 0802 0 0 2

 Administration and other expenses 0803 0 0 4

Total new obligations 0900 0 0 25

Budgetary Resources:

 Budget authority:

 Spending authority from offsetting collections, mandatory:

 Collected 1800 0 0 25

 Spending auth from offsetting collections, mand 

(total)

1850 0 0 25

 Spending auth from offsetting collections, mand -

Computed Totals

1850-

20

0 0 25

 Mandatory, Authorizing Committee

 Spending authority from offsetting collections 

[Text] **OL Rates**

1850-

40

0 0 25

Total budgetary resources available 1930 0 0 25

Change in obligated balance:

 Unpaid obligations:

 Unpaid obligations, brought forward, Oct 1 3000 0 0 0

 Obligations incurred, unexpired accounts 3010 0 0 25

 Outlays (gross) 3020 0 0 -10

 Unpaid obligations, end of year 3050 0 0 15

 Memorandum (non-add) entries:

 Obligated balance, start of year 3100 0 0 0

 Obligated balance, end of year 3200 0 0 15

Budget authority and outlays, net:

 Mandatory:

 Budget authority, gross 4090 0 0 25

 Outlays, gross:

 Outlays from new mandatory authority 4100 0 0 10

 Offsets against gross budget authority and outlays:

 Offsetting collections (collected) from:

 Mandatory, Authorizing Committee

 Policy Program [Text] 4123-

41

0 0 -25

 Budget authority, net (mandatory) 4160 0 0 0
Bureau of Land Management 2014 Budget Justifications

Chapter XVII - Helium Fund and Operations Page XVII - 8

Budget Schedules - Proposal

Account Symbol and Title

14X4053

Helium Fund

Line 2012 Act 2013 CY 2014 BY

Program and Financing (P) ($ in Millions)

 Outlays, net (mandatory) 4170 0 0 -15

Budget authority, net (total) 4180 0 0 0

Outlays, net (total) 4190 0 0 -15

Object Classification (O) ($ in Millions)

Reimbursable obligations:

Personnel compensation:

 Personnel compensation: Full-time permanent 2111 0 0 3

 Civilian personnel benefits 2121 0 0 1

 Communications, utilities, and miscellaneous 

charges

2233 0 0 4

 Other services from non-Federal sources 2252 0 0 5

 Supplies and materials 2260 0 0 3

 Grants, subsidies, and contributions 2410 0 0 9

 Total new obligations 9999 0 0 25

 Physical assets:

 Major equipment:

 Other physical assets:

 Direct Federal programs:

 Budget Authority 1352-

01

0 0 0

 Outlays 1352-

02

0 0 -15

Employment Summary (Q)

Reimbursable civilian full-time equivalent employment 2001 0 0 49
Administrative Provisions

Bureau of Land Management 2014 Budget Justifications

Chapter XVII – Administrative Provisions Page XVII-1

ADMINISTRATIVE PROVISIONS

APPROPRIATIONS LANGUAGE

The Bureau of Land Management may carry out the operations funded under this Act by 

direct expenditure, contracts, grants, cooperative agreements and reimbursable 

agreements with public and private entities, including with States. Appropriations for the 

Bureau shall be available for purchase, erection, and dismantlement of temporary 

structures, and alteration and maintenance of necessary buildings and appurtenant 

facilities to which the United States has title; up to $100,000 for payments, at the 

discretion of the Secretary, for information or evidence concerning violations of laws 

administered by the Bureau; miscellaneous and emergency expenses of enforcement 

activities authorized or approved by the Secretary and to be accounted for solely on the 

Secretary's certificate, not to exceed $10,000: Provided, That notwithstanding 44 U.S.C. 

501, the Bureau may, under cooperative cost-sharing and partnership arrangements 

authorized by law, procure printing services from cooperators in connection with jointly 

produced publications for which the cooperators share the cost of printing either in cash 

or in services, and the Bureau determines the cooperator is capable of meeting 

accepted quality standards: Provided further, That projects to be funded pursuant to a 

written commitment by a State government to provide an identified amount of money in 

support of the project may be carried out by the Bureau on a reimbursable basis. 

Appropriations herein made shall not be available for the destruction of healthy, 

unadopted, wild horses and burros in the care of the Bureau or its contractors or for the 

sale of wild horses and burros that results in their destruction for processing into 

commercial products. 

APPROPRIATION LANGUAGE CITATIONS

44 U.S.C. 501 provides that all executive, congressional, and judicial printing must be done at 

the GPO, except for printing in field plants operated by executive departments or independent 

offices if approved by the Joint Committee on Printing.
Bureau of Land Management 2014 Budget Justifications

Chapter XVII – Administrative Provisions Page XVII-2

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Appendix

Bureau of Land Management 2014 Budget Justifications

Chapter XVIII – Appendix Page XVIII - 1

Employee Count by Grade

Total Employment*

2012 2013 2014

Grade Actual Estimate Estimate

Executive Level V 1 1 1

Subtotal 1 1 1

Senior Level 2 2 2

Subtotal 2 2 2

SES 23 23 23

Subtotal 23 23 23

GS - 15 101 101 101

GS - 14 361 361 361

GS - 13 963 938 938

GS -12 1,630 1,588 1,588

GS -11 2,601 2,536 2,534

GS -10 137 134 133

GS - 9 1,250 1,215 1,215

GS - 8 272 264 264

GS - 7 1,251 1,220 1,219

GS - 6 571 555 555

GS - 5 740 720 719

GS - 4 707 687 685

GS - 3 394 384 383

GS - 2 87 85 85

GS - 1 14 14 14

Subtotal 11,079 10,802 10,791

Other Pay Schedule Systems 516 503 502

Total Employment* (actual/projected) at end of 

FY 11,621 11,330 11,319

* Number of actual employees, whether employees are full or part-time.

Total FTE Usage** (actual/projected) 10,565 10,301 10,291

** FTE (Full-Time Equivalent) means the total number of regular straight-time hours 

 (i.e.,not including overtime or holiday hours) worked by employees divided by the

 number of compensable days in a fiscal year.
Bureau of Land Management 2014 Budget Justifications

Chapter XVIII – Appendix Page XVIII - 2

TABLE OF ORGANIZATION