and Performance Information

Fiscal Year 2009

BUDGET

JUSTIFICATIONS

The United States

Department of the Interior

Printed on

8

Recycled Paper

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
Bureau of Land Management 2009 Budget Justifications 

Table of Contents Page - 1 

Table of Contents 

I. General Statement ..............................................................................................................I-1 

Roadmap to the BLM 2009 Justifications........................................................................I-1 

Executive Summary ........................................................................................................I-5 

Public Land Rewards ......................................................................................................I-8 

2009 Budget Request ...................................................................................................I-10 

Challenges and Emphasis Areas ..................................................................................I-15 

2009 Budget Strategy and Provisions...........................................................................I-23 

President’s Management Agenda .................................................................................I-39 

 

 2009 Emphasis Areas.........................................................................................................I-47 

 Cross-Cutting Programs....................................................................................................I-113 

 

 Goal Performance.............................................................................................................I-131 

 

 Budget at a Glance ...........................................................................................................I-165 

 Other Attachments 

 Performance for Key Budgetary Changes ..................................................................I-173 

 BLM Funding by Strategic Plan Goals ........................................................................I-179 

 Summary of Bureau Appropriations ............................................................................I-185 

 Table of Organization..................................................................................................I-188 

 Employee Count by Grade..........................................................................................I-190 

II. Collections..........................................................................................................................II-1 

BLM Collections in 2006, 2007, 2008 and 2009 ............................................................II-1 

2009 Collections.............................................................................................................II-1 

III. Appropriation: Management of Lands and Resources ..................................................III-1 

Appropriation Language Sheet .....................................................................................III-1 

Authorizations ...............................................................................................................III-2 

Summary of Requirements .........................................................................................III-19 

Justification of Uncontrollable Cost Changes..............................................................III-23 

Activity: Land Resources.............................................................................................III-25 

Subactivity: Soil, Water, and Air Management ................................................III-27 

Subactivity: Rangeland Management..............................................................III-45 

Subactivity: Public Domain Forest Management.............................................III-61 

Subactivity: Riparian Management..................................................................III-75 
Bureau of Land Management 2009 Budget Justifications 

Table of Contents Page - 2 

Subactivity: Cultural Resources Management.................................................III-89 

Subactivity: Wild Horse & Burro Management ..............................................III-101 

Activity: Wildlife and Fisheries Management.............................................................III-113 

Subactivity: Wildlife Management..................................................................III-115 

Subactivity: Fisheries Management...............................................................III-125 

Activity: Threatened and Endangered Species Management ...................................III-139 

Activity: Recreation Management .............................................................................III-149 

Subactivity: Wilderness Management ...........................................................III-153 

Subactivity: Recreation Resources Management..........................................III-163 

Activity: Energy and Minerals Management..............................................................III-177 

Subactivity: Oil and Gas Management ..........................................................III-179 

Subactivity: Coal Management......................................................................III-205 

Subactivity: Other Mineral Resources ...........................................................III-213 

Activity: Alaska Minerals ...........................................................................................III-223 

Activity: Realty and Ownership Management ...........................................................III-225 

Subactivity: Alaska Conveyance ...................................................................III-227 

Subactivity: Cadastral Survey........................................................................III-237 

Subactivity: Lands and Realty Management .................................................III-251 

Activity: Communication Site Management...............................................................III-263 

Activity: Resource Protection and Maintenance........................................................III-269 

Subactivity: Resource Management Planning...............................................III-271 

Subactivity: Resource Protection & Law Enforcement ..................................III-279 

Subactivity: Hazardous Materials Management ............................................III-289 

Activity: Transportation and Facilities Maintenance ..................................................III-299 

Subactivity: Operations .................................................................................III-301 

Subactivity: Annual Maintenance ..................................................................III-307 

Subactivity: Deferred Maintenance................................................................III-315 

Activity: Challenge Cost Share..................................................................................III-327 

Activity: Workforce and Organizational Support........................................................III-337 

Subactivity: Information Systems Operations................................................III-349 

Subactivity: Administrative Support...............................................................III-359 

Subactivity: Bureau-wide Fixed Costs...........................................................III-365 

Activity: Mining Law Administration...........................................................................III-371 

Activity: Land and Resource Information Systems....................................................III-381 

Activity: National Landscape and Conservation System..........................................III-389 

Budget Schedules .....................................................................................................III-421 

IV. Appropriation: Construction ......................................................................................... IV-1 

Appropriations Language Sheet................................................................................... IV-1 

Authorizations .............................................................................................................. IV-2 

Summary of Requirements .......................................................................................... IV-3 

Activity: Construction.................................................................................................... IV-4 

Deferred Maintenance and Capital Improvement Plan .............................................. IV-11 

Budget Schedules ...................................................................................................... IV-19 
Bureau of Land Management 2009 Budget Justifications 

Table of Contents Page - 3 

V. Appropriation: Land Acquisition .................................................................................... V-1 

Appropriations Language Sheet.................................................................................... V-1 

Authorizations ............................................................................................................... V-2 

Summary of Requirements ........................................................................................... V-3 

Justification of Fixed Cost Changes.............................................................................. V-4 

Activity: Land Acquisition .............................................................................................. V-5 

Subactivity: Land Acquisition............................................................................. V-9 

Subactivity: Emergencies and Inholdings........................................................ V-23 

Subactivity: Acquisition Management.............................................................. V-26 

Budget Schedules ....................................................................................................... V-30 

VI. Appropriation: Oregon and California Grant Lands.................................................... VI-1 

Appropriations Language Sheet................................................................................... VI-1 

Appropriations Language Citations .............................................................................. VI-2 

Authorizations .............................................................................................................. VI-4 

Summary of Requirements .......................................................................................... VI-5 

Justification of Fixed Costs and Related Changes....................................................... VI-7 

Appropriation Description............................................................................................. VI-8 

Activity: Western Oregon Construction and Acquisition............................................. VI-18 

Subactivity: Acquisition................................................................................... VI-19 

Activity: Western Oregon Transportation and Facilities Maintenance........................ VI-24 

Subactivity: Operations .................................................................................. VI-26 

Subactivity: Annual Maintenance ................................................................... VI-31 

Subactivity: Deferred Maintenance................................................................. VI-36 

Activity: Western Oregon Resources Management ................................................... VI-40 

Subactivity: Western Oregon Forest Management......................................... VI-41 

Subactivity: Reforestation and Forest Development ...................................... VI-51 

Subactivity: Other Forest Resources Management........................................ VI-62 

Subactivity: Resource Management Planning................................................ VI-83 

Activity: Western Oregon Information and Data Systems .......................................... VI-91 

Activity: Western Oregon National Landscape Conservation System........................ VI-96 

Subactivity: National Monuments & National Conservation Areas................. VI-97 

Budget Schedules .................................................................................................... VI-107 

VII. Appropriation: Range Improvements ......................................................................... VII-1 

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

Appropriations Language Citations ............................................................................. VII-2 

Summary of Requirements ......................................................................................... VII-4 

Activity: Range Improvements .................................................................................... VII-5 

Budget Schedules ..................................................................................................... VII-10 

VIII. Appropriation: Service Changes, Deposits, and Forfeitures ................................. VIII-1 

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

Authorizations ............................................................................................................ VIII-2 
Bureau of Land Management 2009 Budget Justifications 

Table of Contents Page - 4 

Summary of Requirements ........................................................................................ VIII-3 

Activity: Service Changes, Deposits, and Forfeitures (Indefinite) .............................. VIII-4 

Budget Schedules ...................................................................................................... VIII-8 

IX. Appropriation: Miscellaneous Permanent Payments ................................................. IX-1 

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

Authorizations .............................................................................................................. IX-2 

Summary of Requirements .......................................................................................... IX-5 

Activity: Miscellaneous Permanent Payments ............................................................. IX-7 

2007 Payments of BLM Receipts to States & Counties Budget................................. IX-14 

Budget Schedules ...................................................................................................... IX-15 

X. Appropriation: Permanent Operating Funds ................................................................. X-1 

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

Authorizations ............................................................................................................... X-2 

Summary of Requirements ........................................................................................... X-5 

Activity: Permanent Operating Funds ........................................................................... X-7 

Budget Schedules ....................................................................................................... X-18 

XI. Appropriation: Miscellaneous Trust Funds ................................................................. XI-1 

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

Appropriations Language Citations .............................................................................. XI-2 

Authorizations .............................................................................................................. XI-3 

Summary of Requirements .......................................................................................... XI-4 

Activity: Current Land and Resource Management Trust Fund ................................... XI-5 

Activity: Permanent Land & Resource Management Trust Fund ................................. XI-7 

Budget Schedules ........................................................................................................ XI-9 

XII. Appropriation: Helium Fund and Operations ............................................................ XII-1 

Appropriations Language Sheet.................................................................................. XII-1 

Summary of Requirements ......................................................................................... XII-2 

Activity: Helium Fund and Operations......................................................................... XII-3 

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

XIII. Appropriation: Administrative Provisions ............................................................... XIII-1 

XIV. Research and Development ......................................................................................XIV-1 
Bureau of Land Management 2009 Budget Justifications 

Section I –General Statement Page I - 1 

ROADMAP TO THE BLM

2009 JUSTIFICATIONS

Document Overview 

This document explains how the 2009 President’s budget request will assist the BLM in fulfilling 

its multiple-use mission. The types and quantities of work to be accomplished by the BLM based 

on the 2009 funding levels are explained. It is organized into sections as follows: 

• Section I – The General Statement provides a description of the Bureau’s major 

accomplishments based on prior years’ funding; an overview of the priorities and 

challenges that helped the BLM to formulate the 2009 budget request; and a summary of 

the 2009 budget request. This section also includes a more detailed description of the 

Bureau’s 2009-2012 emphasis areas and the FY 2009 priority Department and Bureau 

initiatives and programs, including cross-cutting programs, which are funded by multiple 

subactivities or affect multiple program areas. Summary tables are also provided which 

lay out the 2009 budget request and funding allocations by appropriation and strategic 

goals; budgetary changes from prior years; and the resultant change in projected 

strategic goal performance levels. 

• Section II – Provides summary information on the projected and historical amounts of 

receipts and fees collected from non-Federal sources which are deposited into the 

General Fund or other legally-designated Funds. A portion of these funds in turn are 

appropriated back to the BLM for management of the public lands. 

• Sections III through XIII – Provide a description of the BLM programs supported by a 

particular activity and subactivity under each appropriation. This section provides in 

greater detail the 2009 funding allocation relative to prior years; a description of the 

strategic goals to be accomplished along with performance data; and a description of the 

direct relationship between the subactivity program and objectives, the funding level, and 

the types of products or workloads to be accomplished. 

• Section XIV – Provides a description of the BLM’s Research and Development 

programs. 

The development of the President’s 2009 budget request was principally guided by the 

Department of the Interior 2007-2012 Strategic Plan (www.doi.gov) and the President’s 

Management Agenda. The BLM illustrates its commitment to providing multiple-use of its land 

resources by distributing funding across each of the four Department’s strategic plan mission 

areas: 1) Resource Protection, 2) Resource Use, 3) Recreation, and 4) Serving Communities. 

To help prioritize its complex, multiple-use responsibilities, the BLM identified six emphasis 

areas, listed below, to formulate the 2009 budget request. The emphasis areas were used to 

develop initiatives and programs to be implemented for the 2009 program of work. The 

emphasis areas and many of the resultant initiatives and programs cross-cut several funding 

activities and subactivities in keeping with the philosophy that no one program operates 
Bureau of Land Management 2009 Budget Justifications 

Section I –General Statement Page I - 2 

Bureau of Land Management: Summary of the Emphasis Areas 

1. Land Health: The BLM will focus on land resource rehabilitation, protection, and 

management for multiple objectives including biological diversity, preservation, 

and sustainable development of the resources. Land conservation and 

restoration efforts are targeted toward priority watersheds to achieve integrated 

resource objectives. 

2. National Landscape Conservation System (NLCS): The following four priority 

areas are central to the work that the NLCS units accomplish: 1) conservation, 

protection, and restoration; 2) communities and partnerships; 3) science; and 4) 

recreation, education, and visitor services. Partnerships, public outreach, 

education, and research provide the means through which much work is 

accomplished in the NLCS. 

3. Border Issues: The BLM will improve its capacity to ensure public and employee 

safety and to protect natural and cultural resources in the US-Mexico borderlands 

through law enforcement, communication, mitigation, and coordination with other 

agencies and nearby communities. 

4. Energy Security: The BLM will continue to do its part in providing dependable 

energy for the Nation by providing access to public land resources while ensuring 

that energy activities on public lands are conducted in an environmentally 

responsible manner. 

5. Community Growth: Population growth in the American West is creating new 

demands for the use of the public lands. The BLM will address the challenges by 

re-directing resources to high growth areas and focusing funding on coordination 

with local jurisdictions; travel and transportation management; rights-of-way, 

minerals materials, and recreation permit administration; and reducing noxious 

weeds, illegal dumping, and public hazards. 

6. Non-Energy Commodity Use: The BLM will continue to focus on maintaining 

working landscapes by providing timely grazing permit renewals; making forest 

and woodland products available for commercial production; and making 

available non-energy minerals such as sand and gravel for growing communities. 

effectively in a vacuum. The complexity of BLM’s multiple-use mission requires that initiatives 

and programs be interdisciplinary. A description of the budget activities and subactivities, as 

well as BLM’s appropriation structure is further defined below. 

 

The BLM’s Appropriation Structure 

The BLM receives funding authority from numerous sources, including annual direct 

appropriations from the General Fund of the U.S. Treasury and various special funds such as 

the Land and Water Conservation Fund. Annual appropriations are also derived from offsetting 

collections from non-Federal sources such as mining claim maintenance fees. The current year 
Bureau of Land Management 2009 Budget Justifications 

Section I –General Statement Page I - 3 

appropriations are allocated directly to the BLM on a yearly basis. A summary table of the 

various direct annual appropriations is provided below. 

Table 1. Direct Appropriations Allocated Yearly 

Appropriation Revenue Source Description 

Management of 

Lands and 

Resources (MLR) 

General Fund 

and offsetting collections

Provides funds for operating programs such 

as energy and minerals development, 

protection of lands and resources, land use 

planning, management of wild horses and 

burros, wildlife, grazing, use authorizations 

of the public lands, and cadastral surveys 

Oregon and 

California (O&C) 

Grant Lands 

General Fund Management of BLM lands and resources in 

western Oregon in accordance with the 

Oregon and California Grant Lands Act

Land Acquisition Land & Water 

Conservation Fund 

Used to purchase lands and interest in lands 

in certain designated conservation areas 

Construction General Fund Used to construct facilities on public lands 

Service Charges, 

Deposits & 

Forfeitures 

Fees collected for activities 

such as to recover costs of 

processing applications 

and documents, providing 

copies of documents, and 

rents for commercial 

filming on public lands 

Used for purposes such as to process 

applications and documents and provide 

copies of public land documents 

Range 

Improvements 

Grazing Fees and General 

Fund 

Fund projects for rangeland improvement 

Miscellaneous 

Trust Funds 

Receipts from non-Federal 

sources 

Provides for resource protection and 

development of public lands 

Each of the appropriations is divided into budget activities and further sub-divided into 

subactivities. Each of the subactivities represents a program of work or operational function to 

be accomplished with the funding provided. The Management of Lands and Resources (MLR) 

appropriation is BLM’s largest funding source and provides the BLM its primary source of funds 

for management of national resources, including range, wild horses and burros, wildlife, 

fisheries, threatened and endangered species, wilderness, recreation, all minerals, lands and 

realty, cadastral surveys, and land use planning. An outline of the activities and subactivities 

listed under MLR is provided in the Budget-at-a-Glance table.

When it is advantageous to the government, the BLM is authorized under the Economy Act to 

enter into reimbursable agreements with other Federal agencies. In some instances, 

appropriations to other Federal agencies are transferred to the BLM, such as transfers from the 

U.S. Forest Service to the BLM for pest control and cadastral survey programs. 

The Miscellaneous Trust Funds appropriation comes from both annual and permanent 

appropriations, which provides for resource protection and development of public lands with 

funds contributed to the BLM from non-Federal sources. The Service Charges, Deposits and 

Forfeitures is a direct appropriation funded from sources such as fees collected to recover the 

costs of processing applications and documents and providing copies of public land documents. 

Each year, Congress appropriates the fees collected to the BLM. 
Bureau of Land Management 2009 Budget Justifications 

Section I –General Statement Page I - 4 

The BLM funds administrative expenses from the Workforce and Organizational Support 

program and the Land and Resource Information Systems program in the Management of 

Lands and Resources appropriation, and the Western Oregon Information and Data Systems 

program in the Oregon and California Grant Lands appropriation. In addition, the BLM funds 

administrative expenses through program assessments at the National and State Office level. A 

description of administrative support assessment process, as required by section 405 of the 

Department of the Interior and Related Agencies Appropriation Act of 2006, is included in the 

Workforce and Organization Support section. 

Some funds do not require an annual appropriation but are permanently appropriated by various 

laws. In this category are permanent appropriations for payments to States, counties, and 

Native corporations derived from revenues collected by the BLM from the sale, lease, or use of 

public lands and resources; for example, 2009 payments to western Oregon Counties are 

derived from a share of the proceeds from sales of public timber under the Revested Oregon 

and California Railroad and Reconveyed Coos Bay Wagon Road Grant Lands Act. 

Other permanent appropriations are made available to the BLM each year for specified 

purposes; for example, fees collected at recreation sites and revenues from land sales 

authorized by the Southern Nevada Public Land Management Act (SNPLMA). Under SNPLMA,

85 percent of the receipts from the sale of public lands in Clark County, Nevada are deposited in 

a special account and used for the acquisition of environmentally sensitive lands in Nevada and 

other purposes authorized by Congress. 

Beginning in 2009, the BLM’s Wildland Fire Management appropriation will be reassigned to the 

Office of the Secretary to facilitate better coordination among the Interior agencies (BLM, NPS, 

FWS, BIA). For the purposes of this document, the interface of the wildland fire program to 

other BLM programs will be discussed; however, the specifics of the Wildland Fire Management 

appropriation will be addressed in the Wildland Fire Management Budget Justifications prepared 

by the Department’s Office of Wildland Fire Coordination (OWFC). 

 
Bureau of Land Management 2009 Budget Justifications 

Section I –General Statement Page I - 5 

EXECUTIVE SUMMARY

Public Land Rewards

• The BLM administers more land than any other Federal Agency, with 258 million surface 

acres and 700 million acres of onshore Federal mineral estate.

• The BLM estimates that revenue generated by the public lands will total $6.1 billion in 

2009, including oil and gas royalties from leases on BLM and other Federal lands.

 2009 Budget Request

• The President’s request for new budget authority for the BLM is $1,002,161,000 in current 

appropriations, a net decrease of $5,736,000 from the 2008 enacted budget. Including the 

proposed cancellation of $24,746,000 in unobligated balances, the net 2009 request is 

$977,415,000. 

• Beginning in 2009, the BLM’s Wildland Fire Management appropriation will be reassigned 

to the Office of the Secretary to facilitate better coordination among the Interior agencies 

(BLM, NPS, FWS, BIA).

Challenges and Emphasis Areas

• The complexity of BLM’s multiple-use mission is increasing as the West continues to 

urbanize and the combined effects of prolonged drought, weed invasions, and changing 

fire regimes are resulting in sweeping changes across landscapes. 

• The BLM identified six priority emphasis areas to guide development of initiatives and 

programs for the period 2009 through 2012. These areas are as follows: 

o Land Health: The BLM will focus on land resource protection and rehabilitation at 

the landscape level through the Healthy Lands Initiative, in service of multiple 

objectives including biological diversity and sustainable development of the 

resources. 

o National Landscape Conservation System (NLCS): In 2009, the BLM will focus on 

1) conservation, protection, and restoration; 2) communities and partnerships; 3) 

science; and 4) recreation, education, and visitor services. 

o Border Issues: The BLM will improve its capacity to ensure public and employee 

safety, and to protect natural and cultural resources in the public lands near the USMexico border through law enforcement, communication, mitigation, and 

coordination with agencies and communities. 

o Energy Security: The BLM will continue to do its part to provide dependable energy 

for the Nation by providing access to public land resources in an environmentally 

responsible manner. 

o Community Growth: Population growth in the West is creating new demands for the 

use of the public lands. The BLM will address the challenges by re-directing funding 

resources to high-growth areas, focusing on off-highway vehicle and transportation 

management, and on protection of critical wildlife and cultural resources. 

o Non-Energy Commodity Use: The BLM will continue to focus on conserving 

working landscapes through grazing, timber production, mineral material sales, and 

other commodity uses. 
Bureau of Land Management 2009 Budget Justifications 

Section I –General Statement Page I - 6 

• The emphasis areas and many of the resultant initiatives and programs by nature cross-cut 

several funding activities and subactivities in keeping with an emerging philosophy that the 

BLM can more effectively take on the challenges of public land management from an 

interdisciplinary perspective. 

 2009 Budget Strategy and Provisions

• The 2009 Budget Strategy is built around four main themes: 

o The BLM will maintain its core functions, focusing on the 2009-2012 emphasis 

areas, employee and visitor safety, building safety, and being good stewards of the 

BLM’s financial and human resources; 

o The BLM will enhance its capability in several key programs; 

o The BLM will make the most of partnerships, both internal and external; 

o The BLM will continue its multi-year effort to realign itself organizationally, to gain 

work efficiencies and improve budget effectiveness. 

• Major 2009 budget provisions are compared to the 2008 enacted level and summarized 

as follows:

o Fixed (uncontrollable) costs – provides $18.0 million increase to cover 82% of fixed 

costs. The remaining increase will be absorbed through cost savings;

o Healthy Lands Initiative – provides $10 million increase; 

o Southwest Border – provides additional $1.0 million for environmental restoration in 

the Southwest border area; 

o Wild Horse and Burro – provides a $678,000 increase; 

o Alaska Legacy Well Remediation – provides an increase of $11.2 million to 

remediate government-drilled wells on Alaska’s North Slope; 

o Oil and Gas Management – restores $12.5 million of Oil and Gas base 

appropriations shifted to offsetting collections in 2008; 

o North Slope Science Initiative – provides $376,000 increase; 

o Oregon & California Resource Management Planning – reduces funding by $1 

million due to scheduled completion of land use plans in 2009; 

o MLR Deferred Maintenance – reduction of $10.0 million; 

o MLR Resource Management Planning – reduction of $4.0 million; 

o Construction – reduction of $1.9 million; 

o National Fish and Wildlife Foundation – elimination of $2.9 million pass-through 

funds; 

o Gas Hydrates research and assessment– reduced by $425,000; 

o Oil Shale EIS and Rulemaking – reduced by $1.95 million as work nears 

completion; 

o Oil and Gas Inspection and Enforcement – redirect $400,000 in oil shale funding 

for oil and gas inspections and enforcement activities; 

o Range Improvement Program – elimination of $10 million program; 

o Land Acquisition Line Item Projects – Reduction of $3.8 million; 

o Alaska Conveyance Program – reduction of $3.1 million, including earmarks; 

o National Scenic Trails – reduction of $738,000; 

o Reduction of 2008 Add-ons and Earmarks not in 2008 President’s budget: 

 Partial reduction of 2008 add-on for NLCS - $1.9 million decrease 

 Reduction of earmarks, excluding Land Acquisition Line Items - 

$3.0 million decrease 

 Reduction of 2008 add-ons not otherwise noted - $6.0 million decrease 

o Cancellation of unobligated balances (Sale of Water, Naval Oil Shale Reserve Anvil 

Points cleanup)– reduction of $24.7 million; 
Bureau of Land Management 2009 Budget Justifications 

Section I –General Statement Page I - 7 

o Cross-cutting reductions – The following reductions were applied to multiple 

programs and some of the program funding changes noted above reflect the impact 

of the these cross-cutting reductions and savings: 

 Organizational and Administrative Streamlining - $4.7 million reduction 

representing savings from the Managing for Excellence initiative; 

 Travel and Relocation Expenses – reduction of $3.0 million; 

 Performance Contracting Savings – reduction of $1.0 million; 

President’s Management Agenda

The BLM is committed to implementing the President's Management Agenda in 2009 for 

improving management and performance of the Federal Government, and for practicing the 

Secretary's vision of citizen-centered management excellence. 

• Strategic Management of Human Capital - The BLM has an overall retirement eligibility 

rate of 35 percent over the next five years; however this rate is substantially higher in some 

key positions, such as Range Management Specialists and Foresters. The new Bureau 

Workforce Plan identifies five action areas to ensure BLM has the right person in the right 

place at the right time. The five action areas are 1) recruitment, 2) succession 

management retention strategies, 3) workforce management and 5) organizational 

improvement and refinement. 

• Competitive Sourcing – In 2009, The BLM will continue to compare and analyze the quality 

and costs of the BLM’s in-house performance capacity to private sector performance 

capacity, as appropriate. 

• Improved Financial Performance - The BLM continues to make progress in a number of 

areas, including using financial information to inform decision-making and drive results as 

well as implementing a plan for continuously expanding and improving the usefulness of 

financial information. The BLM’s success in providing employees accurate information on 

the full and incremental cost of outputs, performance goals, and performance measures 

has earned the BLM 13 consecutive years of unqualified audit opinions on its financial 

statements. 

• Expanded Electronic Government – The BLM supports this initiative by contributing to the 

Department’s Working Capital Fund Account and posting metadata, spatial resource 

information, land records, and map services on the internet. The BLM continues to finetune its web presence and other means of electronic communication, and is expanding 

partnerships to enhance and improve the quality of data provided to the public. 

• Budget and Performance Integration - The performance appraisal plans for managers tie 

directly to the DOI Strategic Plan and related performance targets are cascaded 

throughout the organization to individual employee appraisal plans. The full cost of 

achieving performance goals are reported to the Department quarterly. The BLM utilizes 

Activity Based Costing information to evaluate and improve annual performance, to provide 

allocations for the Annual Work Plan and Planning Target Allocation, and to develop its 

annual budget requests. 
Bureau of Land Management 2009 Budget Justifications 

Section I –General Statement Page I - 8 

PUBLIC LAND REWARDS

The multiple-use mission of BLM, as set forth by the Federal Land Policy and Management 

Act of 1976, is a challenging and important mission that has served the American public well. 

• The BLM provides for a variety of valuable public land uses, such as recreation, 

livestock grazing, energy development and timber harvesting, while protecting a wide 

array of natural, cultural and historical resources. 

• The BLM administers more land than any other Federal Agency, with 258 million surface 

acres and 700 million acres of onshore Federal subsurface minerals, all with a workforce 

of 10,548 estimated full-time equivalent employees in 2009. 

• The BLM maintains vigilance over public land stewardship by ensuring a sound return on 

the investments of the public land assets, with 13 successive clean audits of the agency 

financial records. 

The BLM contributes to the economic strength and energy security of this Nation: 

• The BLM estimates that revenue generated by the public lands will total $6.1 billion in 

2009, including oil and gas royalties collected by the Minerals Management Service from 

leases on BLM-managed and other Federal lands. 

• Revenues from onshore oil, gas and coal leasing are shared with State governments, 

providing critical revenue for a host of State services. In 2007, the BLM returned more 

than $1.9 billion in mineral royalties, rents and bonuses to the States. 

• The BLM managed 42 percent of the Nation's total coal production in 2007. 

• The BLM manages over 100 wind energy authorizations, of which 25 produce 327 

megawatts annually. 

• Production from Federal onshore oil and gas wells accounts for about 14 percent of the 

natural gas and 5 percent of oil produced domestically. 

• The BLM manages more than 49,100 oil and gas leases, of which more than 21,600 are 

currently capable of production. 

• The BLM manages over 70,000 producing oil and gas wells and 333,000 mining claims. 

• The BLM-managed geothermal resources generate 48 percent of the Nation’s 

geothermal energy. 

• The BLM has fiduciary responsibilities for 56 million acres of Indian minerals and 

cadastral survey. 

• The BLM manages more than 69 million acres of commercial forests and woodlands. 

The BLM contributes to the quality of life of growing communities: 

• As the West continues to urbanize, more than 57 million people now live within 25 miles 

of public lands. 

• The BLM helps conserve watersheds critical to 4,100 communities near public lands. 

• Visitation to BLM-administered recreation sites has increased from just over 51 million 

visitors in 2001 to more than 58 million today; more visitors are utilizing all-terrain and 

off-highway-vehicles to recreate on the public lands. 

• Recreational opportunities are vital to the quality of life enjoyed by the residents of 

Western states, as well as national and international visitors. 

• The BLM provides access to public lands in support of community infrastructure, such as 

fiber optic, electrical transmission and gas lines, vehicular rights-of-ways, and land sales. 
Bureau of Land Management 2009 Budget Justifications 

Section I –General Statement Page I - 9 

• The BLM manages more than 93,000 rights-of-way, including electrical transmission 

lines and oil and gas pipelines. These energy-related rights-of way across public lands 

are expected to grow 10 percent annually over the next few years. 

• As part of the Healthy Lands Initiative, the BLM, in partnership with the U.S. Fish and 

Wildlife Service and U.S. Geological Survey, are working together with State and local 

partners to achieve accelerated and more effective habitat restoration on a landscape 

scale across public and private lands. The BLM’s initial $3 million investment in 2007 

brought in $2 million in partner contributions. 

The BLM contributes to the Nation’s extraordinary heritage of natural resources: 

• The BLM’s National Landscape Conservation System contains more than 850 units, 

dedicated to preserving the wild places which helped define the American experience 

and will serve as a legacy for future generations. 

• The BLM-managed lands are home to approximately 30,000 free roaming wild horses 

and burros; approximately 31,000 additional animals are cared for in short-term and 

long-term holding facilities. 

• The BLM manages 781 Wilderness and Wilderness Study Areas, extending over 21.5 

million acres of protected wilderness lands. 

• The BLM manages 38 Wild and Scenic Rivers flowing over 2,000 miles, equivalent to 

256,000 acres. 

• The BLM manages 13 National Scenic and Historic Trails extending over 5,500 miles. 

• The BLM manages 16,000 miles of multiple-use trails, including approximately 6,000 

miles of trails classified within the National Trails System. 

• The BLM-managed lands contain a vast array of geologic, historic and archaeological 

sites, including 800 caves and 271,000 archaeological and historic recorded sites such 

as lighthouses, ghost towns, petroglyphs, pictographs, and cliff dwellings. Some date 

back 13,000 years and all are important resources for scientific and historical research 

and environmental education. 

• The BLM manages more than 117,000 miles of fisheries habitat and 4 million acres of 

reservoirs and lakes. 

The BLM is dedicated to partnerships and cooperative efforts: 

• The BLM encourages and facilitates citizen participation in order to address competing 

demands in constructive ways. 

• The BLM initiates cooperative efforts with other Federal and state agencies to facilitate 

better communication and improved work processes, such as pilot offices set up to more 

efficiently process applications for permits to drill for oil and gas vital to this Nation’s 

economy and to conduct inspection and enforcement activities. 

• The BLM’s partners often provide matching funds to benefit BLM-managed lands and 

resources. For example: 

o The Recreation Resources Management program receives partner contributions 

which often exceed a five to one match of Federal appropriations ; 

o Partners provide between four and four dollars for every dollar the BLM invests in 

wildlife habitat projects in the Challenge Cost Share program; and 

o Volunteers and stakeholders donated almost 1,377,000 million hours in 2008. 
Bureau of Land Management 2009 Budget Justifications 

Section I –General Statement Page I - 10 

2009 BUDGET REQUEST

 2009 Budget Request

The President’s 2009 budget request is $1,002,161,000 in new budget authority, a net decrease 

of $5,736,000 from the 2008 enacted level. The table below (Table 2) shows the total budget 

request. The current year appropriations are allocated directly to the BLM on a yearly basis. 

Permanent appropriations do not require an annual appropriation but are appropriated by law 

for a specified period of time. Table 3 shows the total BLM budget by Appropriation. The 

Budget-at-a-Glance table (Section III of this document) displays the 2009 budget request at the 

activity-subactivity level, and a more detailed description is provided in the Activity sections of 

this document. 

 Table 2. OVERVIEW OF FY 2009 BUDGET REQUEST 

(Dollars in Thousands) 

Budget Authority 2007 Enacted 2008 Enacted 2009 Request 

2009 Request Change 

from 2008 Enacted 

 Amount Percent 

Current 1,029,498 1,007,897 1,002,161 -5,736 -0.6%

Cancel Unobligated balances -24,746 -24,746 

Total - Net 1,029,498 1,007,897 977,415 -30,482 -3.0%

Permanent 365,942 415,647 202,493 -213,154 -51.3%

Total 1,395,440 1,423,544 1,179,908 -243,636 -17.1%

FTEs 10,577 10,584 10,548 -36 -0.3%

The 2009 Budget Request by Strategic Plan Mission Area

The complexity of the Bureau of Land Management’s multiple-use responsibilities is illustrated 

by the distribution of funding across each of the four mission areas identified in the Department 

of the Interior’s (DOI) 2007-2012 Strategic Plan (www.doi.gov), in support of the Department of 

the Interior’s mission goals (Figure 1). 
Bureau of Land Management 2

Section I –General Statement 

Table 2. Bureau of Land Management Appropriations ($000) 

2007 Enacted 

2008 

Enacted 

Fixed Cost 

Changes 

Organization

& Admin. 

Streamlining 

Travel& 

Relocation 

Expense 

Perform. 

Contracting 

Other 

Program 

Changes 

Total MLR Appropriation 866,911 853,931 16,583 -4,234 -2,836 -886 +2,26Total O&C Appropriation 108,991 108,522 1,429 -355 -229 -114 -1,00Total, Land Acquisition - Appropriated 8,634 8,939 29 -111 -6 0 -4,37Total, Construction Appropriation 11,751 6,375 0 0 -14 0 -1,88Total, Service Charges, Deposits, Forfeitures 26,388 28,490 0 0 0 0 +33,50Total Offset, Service Charges, Deposits, Forfeitures -26,388 -28,490 0 0 0 0 -33,50Total, Current Discretionary 996,287 977,767 18,041 -4,700 -3,085 -1,000 -4,99Cancellation of Permanent Operating Account Balances 00 0 -24,74Total-Net Current Discretionary 996,287 977,767 18,041 -4,700 -3,085 -1,000 -29,73Total, Range Improvement Appropriations 10,000 10,000 0 0 0 0 -10,00Total, Miscellaneous Trust Funds 23,211 20,130 0 0 0 0 +Total, Current Mandatory 33,211 30,130 0 0 0 0 -10,00TOTAL CURRENT APPROPS - New Authorizations 1,029,498 1,007,897 18,041 -4,700 -3,085 -1,000 -39,73Total, Miscellaneous Perm. Payments 144,465 26,981 0 0 0 0 8,81P.L. 110-28 2008 carryover [144,465] [143,846] 0 0 0 0 [8,81Total, Perm. Operating Fund 219,631 270,001 0 0 0 0 -105,10Total, Misc. Trust Funds 1,846 1,800 0 0 0 0 Total, Permanent Funds 365,942 415,647 0 0 0 0 -96,28TOTAL CURR (Net) & PERM APPROPS 1,395,440 1,423,544 18,041 -4,700 -3,085 -1,000 -136,02Fire Transfers -2,585 Fire Repayments 5,000 2,585 TOTAL 1,397,855 1,426,129 18,041 -4,700 -3,085 -1,000 -136,02Mining Law Administration 32,696 34,696 Communication Sites Mgmt 2,000 2,000 APD Fees 0 25,500 -25,50Service Charges, Deposits, Forfeit. 26,388 28,490 0 00 0 +33,50Total, Offsets 61,084 90,686 0 00 0 8,00

NOTE: The last four items in the above table are major programs in which BLM has additional spending capacity, but do not affect appropriations totals bec
Bureau of Land Management 2

Section I –General Statement Figure 1. Department of the Interior 2007-2012 Strategic Plan Mission Areas
Bureau of Land Management 2009 Budget Justifications 

Section I –General Statement Page I - 13 

In addition to supporting the Department of the Interior’s mission goals, funding will support the 

BLM’s mission of sustaining the health, diversity, and productivity of the public lands for the use 

and enjoyment of present and future generations. The table below (Table 4) describes the 

funding by Department mission goals and displays a comparison to the 2008 budget enacted. 

Table 4. Funding by DOI Strategic Plan Mission Goal 

BLM Mission Goals Summary 

(Dollars in Thousands) 

Mission Goal 

 2007 

Enacted 

2008 

Enacted 

2009 

Request 

 2009 

Change 

Resource Protection 318,973 352,085 348,107 -3,978

Resource Use 305,894 264,554 288,370 23,816

Recreation 106,576 109,669 106,150 -3,519

Serving Communities 298,055 281,589 259,534 -22,103

Total 1,029,498 1,007,897 1,002,161 -5,784

The 2009 budget request also sustains the BLM’s commitment to pursuing management 

excellence and maintaining agency capacity in a fiscally responsible manner. In formulating the 

2009 budget request, the BLM used cost and management data, and directed funding 

resources to current priority needs. 

The 2009 funding request compared to the DOI strategic plan mission goals is displayed with 

the pie chart below (Figure 2). The funding comparison between the BLM’s 2008 enacted level 

and the 2009 budget request is shown by the bar graph (Figure 3). 

Figure 2. Funding by DOI Strategic Plan Mission Goals 

 2009 Bureau of Land Management

Funding by Strategic Goal

(Dollars in Thousands)

Resource 

Protection

348,107

35%

Resource Use

288,370

29%

Recreation

106,150

11%

Serving 

Communities

259,534

26%
Bureau of Land Management 2009 Budget Justifications 

Section I –General Statement Page I - 14 

Figure 3. Funding changes, 2008 Enacted – 2009 Request 

Funding Changes, 2008 Enacted - 2009 Request

(Dollars in Thousands)

352,085

264,554

109,669

281,589

348,107

288,370

106,150

259,534

0

50,000

100,000

150,000

200,000

250,000

300,000

350,000

400,000

Resource Protection Resource Use Recreation Serving Communities

2008 Enacted 2009 Request
Bureau of Land Management 2009 Budget Justifications 

Section I –General Statement Page I - 15 

CHALLENGES AND EMPHASIS AREAS 

The Challenges of a Multiple-Use Mission

The Bureau of Land Management is one of eight bureaus under the United States Department 

of the Interior. The BLM administers more land than any other Federal agency, with 258 million 

surface acres and 700 million acres of onshore Federal subsurface minerals, all with a 

workforce of fewer than 10,000 full-time permanent employees (as of November 2007). The 

BLM’s multiple-use mission, as set forth in the Federal Land Policy and Management Act of 

1976, is a challenging one as the BLM provides for a variety of public land uses, such as 

livestock grazing, energy development, recreation, and timber harvesting, while protecting a 

wide array of natural, cultural and historical resources. 

The complexity of BLM’s mission is increasing as the West continues to urbanize and the 

combined effects of prolonged drought, weed invasions and changing fire regimes are resulting 

in sweeping changes across landscapes. Over 57 million people now reside within 25 miles of 

BLM-managed public lands, resulting in increased demand for use of public lands; offering 

partnerships opportunities; and an array of wildland-urban interface challenges. The traditional 

uses of public lands (for example, grazing, mining, and logging) continue, while demand grows 

for other uses such as communication site rights-of-way, wind energy development, and multijurisdictional habitat conservation planning. These multiple uses increasingly compete with one 

another. 

The complexity of the BLM’s multiple-use mission is prompting an emerging philosophy that no 

one program can effectively operate independent of other programs. In order for the BLM to 

effectively take on the challenges of public land management, the BLM must address them from 

an interdisciplinary perspective. A good example of the interdisciplinary nature of the BLM’s 

mission is the management of rangelands throughout the West. Livestock grazing is only one of 

the many uses of open range. The Wildlife and Wild Horse and Burro programs depend on the 

open range to provide forage for wildlife species and free-roaming wild horses and burros. At 

the same time, the rangelands are being affected by many factors, such as fire, drought, 

invasive species, increasing off-highway vehicle use, and a wildland-urban interface expanding 

into the rangelands. The loss of forage due to wildfires in the Great Basin prompted the need 

for emergency wild horse and burro gathers in September 2007, and the BLM required local 

ranchers to remove livestock from the public lands earlier in the season. Prolonged drought and 

invasive species are changing the available forage for livestock and wildlife species. 

Unmanaged off-highway vehicle use and the expanding land and resource needs of growing 

communities are resulting in loss of useable rangeland. To effectively address the multitude of 

issues affecting the rangelands, the BLM must employ an interdisciplinary approach. 

Another example of the interdisciplinary nature of the BLM mission is the wildland fire 

management program. Fire plays a critical role in the management of public lands, affecting all 

resource programs. The hazardous fuels reduction treatments conducted on public lands do 

more than just reduce the risk of fire; they have benefits that achieve a wide array of land 

management goals. Fuels treatments are designed by interdisciplinary teams to promote 

healthier forests and rangelands, to achieve desired future plant communities by removing 

invasive species, to help public lands withstand periods of drought, and disease and insect 

invasions. Another benefit of hazardous fuels reduction is the ability to utilize woody biomass 
Bureau of Land Management 2009 Budget Justifications 

Section I –General Statement Page I - 16 

harvested to fuel electrical power plants and to provide a source of materials for secondary 

wood manufacturers. 

Responding to the Challenges through Emphasis Areas

The BLM Budget Strategy Team develops recommendations that guide the budget and 

operational priorities for the Bureau. This team advises the BLM Director and consists of 

members from all levels of the organization, including two State Directors, a Field Manager, a 

District Manager, a State Office Budget Officer, the Bureau Budget Officer, Assistant Directors 

in the Washington Office, and the Deputy Director for Operations. In spring 2007, the Budget 

Strategy Team identified the six priority emphasis areas presented in this document to focus the 

BLM for the next three to five years. 

The 2009-2012 emphasis areas reflect changes to the original emphasis areas developed in 

2003. In developing the emphasis areas, the Team considered the dramatic social and 

ecological changes taking place across the West affecting the BLM’s on-the-ground work; 

identified how BLM programs can collaborate to meet the goals; considered rising business 

costs and identified both internal and possible external funding sources; and for some areas, 

identified criteria for allocating funds to priority work by state or region. The Team considered 

the Administration’s and the Secretary of the Interior’s priorities for the management of public 

lands, the DOI 2007-2012 Strategic Plan, and on-the-ground needs and issues identified by the 

BLM State Directors. A summary of the major challenges the BLM is facing along with the 

corresponding emphasis areas is provided at the end of this section. 

The Team developed initiatives and programs to be implemented in 2009, based on the 2009-

2012 emphasis areas. The emphasis areas, and many of the initiatives and programs, 

incorporate several funding activities and subactivities, consistent with the philosophy that the 

BLM can more effectively address land management challenges from an interdisciplinary 

perspective. A more detailed description of the initiatives and programs proposed for 2009 is 

provided in the cross-cutting section and the activity-subactivity sections of this document. The 

2009-2012 emphasis areas are summarized below: 

1. Land Health: Historically, the public lands have been working landscapes, contributing to 

the economic well-being of this Nation through oil and gas development, mining, grazing, and 

other resource uses. Advances in ecological scientific research are providing the BLM an 

understanding of how to sustain healthy, working landscapes. Toward that end, the BLM has 

strengthened environmental standards to minimize erosion, habitat fragmentation, weed 

invasions and other disturbances, particularly at the local level. Much work remains to be done 

at the landscape scale to restore land health while keeping pace with the increase in demands 

for energy development, recreation, rights-of-way, and land and resource use to support 

community growth. 

During the period of 2009 to 2012, the BLM will continue to focus on land resource protection 

and rehabilitation, in service of multiple objectives, including: biological diversity, conservation, 

and sustainable development. Monitoring, land health assessments and planning analyses will 

continue to be useful for assessing land health. The long term goal is to sustain natural 

resources and keep species healthy and resilient in light of increasing pressures on the public 

lands. Land restoration efforts will be targeted toward priority watersheds to achieve integrated 

resource objectives. 
Bureau of Land Management 2009 Budget Justifications 

Section I –General Statement Page I - 17 

The Healthy Lands Initiative (HLI) is a key component of the Land Health emphasis area. The 

Healthy Lands Initiative, begun in 2007, is a multi-year program to implement large-scale, 

focused habitat restoration and conservation projects on BLM-managed public lands. The goal 

of the Healthy Lands Initiative is to preserve the diversity and productivity of public and private 

lands across the landscape, utilizing a science-based, collaborative approach. Appropriated 

funds are matched through partnerships to increase land restoration treatments across all 

jurisdictions. In 2007 and 2008, the BLM focused its efforts on adjoining State and private lands 

in six specific geographic areas of the West (called HLI emphasis areas) while maintaining other 

uses of the land, including access for energy development. 

The 2009 President’s budget request proposes to expand the landscape restoration component 

of the Healthy Lands Initiative to seven HLI emphasis areas to include California; the northwest 

portion of Colorado will be added to the Western Colorado HLI emphasis area. The California 

HLI emphasis area incorporates three smaller initiatives, namely: the San Joaquin Valley 

Landscape Initiative, the California Desert Conservation Area Landscape Initiative, and the 

Modoc Plateau Sagebrush Steppe Restoration Initiative. The remaining HLI emphasis areas 

remain unchanged from 2008: New Mexico (San Juan Basin and Permian Basin), Utah, 

Southeast Oregon-Southwest Idaho-Northern Nevada, South-central Idaho, and Southwest 

Wyoming. In 2009, the BLM will continue to complete priority projects in the six HLI emphasis 

areas identified in 2008. The BLM will work with the US Geological Survey and with other 

partners in these targeted areas to conduct regional assessments and to implement regional 

monitoring protocols. These assessments and protocols will help ensure that project work is 

appropriately focused and will help the BLM evaluate and report on project effectiveness. This 

initiative is funded by various subactivities, including: Soil-Water-Air, Range, Forestry, Riparian, 

Wildlife, Fisheries, and Threatened & Endangered Species. 

Achieving appropriate management levels of free-roaming wild horses and burros on public 

lands is also a critical part of meeting the Land Health emphasis area goal. The thriving wild 

horse populations in many areas of the West compete with wild ungulates and livestock for 

available forage, resulting in overgrazing of forage resources, increased soil erosion, reduced 

water quality and the spread of invasive species or weeds. The appropriate management level 

for all Herd Management Areas is approximately 26,000 animals on the open range. The 

appropriate management level is adjusted as necessary based on land health monitoring. The 

BLM works to remove excess animals in order to maintain healthy rangelands. 

Approximately 66 percent of the animals managed by the BLM’s Wild Horse and Burro program 

are located in the Healthy Lands Initiative areas. The BLM will dedicate a portion of the Wild 

Horse and Burro program funding to remove excess animals from these areas in an effort to 

achieve appropriate management levels and to maintain healthy rangelands within the Healthy 

Lands Initiative emphasis areas. The BLM also relies on other benefiting subactivities, such as 

Range, Wildlife and even Fire to provide support for the Wild Horse and Burro program. 

 

2. National Landscape Conservation System (NLCS): Established in 1999, the BLM’s NLCS 

is comprised of congressionally and administratively recognized conservation areas on the 

public lands, including National Conservation Areas, National Monuments, National Scenic and 

Historic Trails, Wild and Scenic Rivers, and Wilderness Areas. In this BLM emphasis area, BLM 

will promote the protection and effective management of the NLCS. 

As part of a bureau-wide planning initiative, in 2000 the BLM identified land use planning as a 

priority workload for the NLCS units. Many of these plans are now completed and the BLM is 

poised to implement them. During the period 2009 - 2012, the BLM will focus on the following 
Bureau of Land Management 2009 Budget Justifications 

Section I –General Statement Page I - 18 

four priority areas which are central to the work that the NLCS units accomplish: 1) providing 

conservation, protection, and restoration; 2) supporting communities and partnerships; 3) 

supporting science; and 4) providing recreation, education, and visitor services. Partnerships, 

public outreach, education, and research provide the means through which much work is 

accomplished in the NLCS. 

The 2009 President’s budget request is proposing two new subactivities, one in the 

Management of Lands and Resources appropriation and the other in the Oregon and California 

Grant Lands appropriation to cover a portion of the NLCS. These subactivities will cover 

National Monuments and National Conservation Areas. The BLM will shift funds from a number 

of other subactivities within each appropriation to the National Monuments and National 

Conservation Areas subactivities respectively. The shifted funds represent base funding for 

each geographic unit. Base funding is defined as the historic annually recurring costs for basic 

personnel and operations at each unit. It does not include one-time or non-recurring costs such 

as those for land health assessments, special projects, or land use planning. These costs will 

continue to be funded through appropriate subactivities. 

3. Border Issues: The Southwest borderlands are lands along and extending approximately 

100 miles north of the international border between the U.S. and Mexico. The BLM is 

responsible for managing over 8.8 million acres of these borderlands in Arizona (3.7 million 

acres), California (3.3 million acres), and New Mexico (1.8 million acres). These lands are 

severely affected by activities associated with illegal immigration and drug smuggling, creating a 

hazardous environment for public use and recreation, endangering BLM employees and 

contractors, and causing degradation and destruction of natural resources. These public lands 

include National Landscape Conservation System units, recreation areas, and other areas of 

significant resource value. The BLM will emphasize protection of BLM employees and visitors 

and the BLM-managed public lands located in the borderlands during 2009 to 2012. 

The Department initiated the Safe Borderlands Initiative to achieve the following goals: 1) to 

enhance employee, visitor, and resident safety; 2) to improve communications; 3) to enhance 

interagency coordination; and 4) to mitigate environmental damage. The BLM will improve its 

capacity to ensure public and employee safety and to protect natural and cultural resources in 

the U.S.-Mexico borderlands through more effective law enforcement, improved 

communications infrastructure, continual mitigation of resource damages, and better 

coordination with other Federal, State, tribal, and local agencies and communities. 

The 2009 President’s budget request proposes a $1.0 million increase in 2009 over the 2008 

enacted funding level to mitigate environmental damage associated with illegal immigration and 

drug smuggling along the Southwest border. With this increase, the BLM will continue 

coordinate with other Federal, state and local governments to accomplish on-the-ground 

projects in Arizona, California and New Mexico, including: mine shaft closures; removal of 

thousands of pounds of litter, abandoned vehicles and bicycles; repair of infrastructure; signage; 

and environmental education. This funding increase is requested under the Hazardous 

Materials program subactivity in the Management of Lands and Resources appropriation. 

In 2008, Congress provided the Law Enforcement program an additional $3.937 million in 

funding over the 2008 President’s budget as a general program increase and for use on the 

Southwest border. In 2008, the BLM will use $2.800 million for the Safe Borderlands Initiative 

and the remaining $1.137 million for other high priority Law Enforcement program projects. The 

BLM will use the Safe Borderlands Initiative funds in 2008 to improve critical communications 

along the southwest border in Arizona, California and New Mexico. The communications 
Bureau of Land Management 2009 Budget Justifications 

Section I –General Statement Page I - 19 

capability improvements include: hiring six additional radio dispatchers at the Phoenix Dispatch 

Center to extend current center hours from 16 hours a day to a 24-hour operation; fund several 

new radio repeaters and base stations at remote locations; update the dispatch console station; 

and upgrade, modify and enhance several existing remote radio sites, equipment and 

infrastructure. Enhancing the BLM’s radio communications system will also benefit the 

Department of Homeland Security by providing better communication around mountain tops and 

wilderness locations, and improved coordination with the BLM and other agencies. The balance 

of the 2008 funding increase will be used to support hiring, background investigation costs, 

relocation costs, training, and equipment for three additional special agents for border/drug 

investigations and six additional rangers. More capacity for law enforcement oversight of the 

public lands is needed to provide for visitor safety; to protect natural and cultural heritage 

values; and to better respond to increasing demands in several emphasis areas, particularly in 

areas with growing communities and along the Southwest border. 

The 2009 President’s budget proposes to retain the $3.937 million increase provided in 2008 

above the 2008 President’s budget request. In 2009, the BLM will use $2.341 million of these 

funds on the Southwest border in the same specific areas of communications, special 

agents/rangers, and other Southwest border priorities. The remaining $1.596 million will be 

used in the Law Enforcement program to fund other high priority projects. These projects 

include the funding of dispatch service agreements, complying with the new national radio 

program objectives, providing a cache of technical investigative equipment to be used by 

rangers and agents in the field, offering more support for the investigation and eradication of 

drugs from public lands; providing for overtime and travel costs for rangers and agents to 

support areas of high visitation during holidays and special events; and increasing funds for 

general operations to support major investigation into crimes involving Archaeological Resource 

Protection Act, oil & gas, paleontological resources, and wild horses & burros. The following 

table summarizes the proposed allocation of funds for the Safe Borderlands Initiative and Law 

Enforcement program for 2008 and 2009: 

Safe Borderlands Initiative 2008 2009 

Communications (includes 6 dispatchers) 666,000 549,000 

Special Agents/Rangers (includes 3 agents & 6 rangers) 1,862,000 1,170,000 

Other Southwest Border Priorities (includes service 

agreements, drug eradication support & other costs) 272,000 622,000 

Subtotal – Law Enforcement on the S.W. Border 2,800,000 2,341,000 

Hazardous Materials Management Program (Resource Clean-up on S.W. Border) 1,000,000 

Subtotal – Safe Borderlands Initiative 2,800,000 3,341,000 

Law Enforcement Program – Outside Border Area (includes 1 

agent, 1 ranger & other costs) 1,137,000 1,596,000 

Grand Total 3,937,000 4,937,000 

4. Energy Security: During the period 2009 to 2012, the BLM will continue to provide access to 

dependable energy for the Nation while ensuring that energy exploration and development on 

public lands is conducted in an environmentally responsible manner. The BLM will encourage 

the use of new technologies to enhance energy development and to prevent unnecessary or 

undue degradation of public lands. 

With increased funding over the last several years, the BLM authorized a significant increase in 

the development of oil and gas, coal and other conventional energy resources on Federal and 

tribal lands. During the same period, the BLM also established a framework for the 

development of wind, solar and other renewable resources and initiated work to explore the 
Bureau of Land Management 2009 Budget Justifications 

Section I –General Statement Page I - 20 

potential development of oil shale and tar sands on the public lands. Having authorized this 

increased activity, BLM is now in the process of expanding the associated inspection, 

production verification and monitoring activities. The BLM is also providing improved tools such 

as an updated oil and gas Gold Book in order to assure that applications are complete and 

appropriate Best Management Practices are applied. 

The BLM Oil and Gas Management program is responsible for trust responsibilities to Indian 

Tribes and Indian mineral owners. In fulfilling this obligation, the BLM supervises operational 

activities on 3,700 Indian oil and gas leases, and provides advice on leasing and operational 

matters to the Bureau of Indian Affairs, Indian Tribes, and individual Indian mineral owners. The 

BLM is also responsible for cadastral survey on Indian land. 

The 2009 President’s budget request proposes that a provision of the Energy Policy Act of 2005

be repealed, to allow the BLM to implement regulations for new cost recovery in the oil and gas 

program. The BLM also proposes to redirect base funding towards inspection, enforcement and 

production accountability workloads. The BLM proposes an increase in funding to complete 

remediation at the Atigaru Alaska abandoned well site. 

5. Community Growth: Many of the fastest growing metropolitan areas in the nation are 

located in the West. Over 4,100 communities, with a combined population of over 57 million 

people, are located within 25 miles of BLM-managed public lands and waters. During the period 

2009 – 2012, the BLM will improve management of public lands in areas of rapid community 

growth. These areas have the highest demands and are at the greatest risk for resource 

damage. They must accommodate increasing numbers of recreational users, especially offhighway vehicle users, and increasing demands for land tenure adjustments, rights-of-way, 

mineral resources, and other use authorizations. 

Areas of high growth are in need of increased law enforcement to address activities such as 

unauthorized trash dumping, hazardous materials management, uncontrolled off-highway 

vehicle use, and an array of wildland-urban interface issues. Maintaining an adequate law 

enforcement presence along with public education and outreach will be key factors to ensuring 

visitor safety and protection of the public land resources. The 2009 President’s budget request 

proposes to address Community Growth issues on various fronts, including proposed funding 

increases in the Law Enforcement program; focusing recreational opportunities within National 

Landscape Conservation System areas and in high-use recreation areas; and redirecting $8 

million in base funding to BLM offices in areas experiencing impacts from rapid population 

growth, from field offices in areas less affected by population growth. These re-directed funds 

will be focused on management of off-highway vehicles (OHVs) and the protection of critical 

wildlife and cultural resources. These proposed funding shifts would occur within the states, 

and not between states. 

6. Non-Energy Commodity Use: During the period 2009-2012, the BLM will continue to focus 

on providing non-energy commodities to local governments, small businesses, permittees and 

other users of public lands, by providing timely grazing permit renewals; making forest woodland 

products available for commercial production; and making available non-energy minerals such 

as sand and gravel for growing communities. 

The BLM is continuing work to eliminate the grazing permit renewal backlog and to issue 

grazing permit renewals on 158 million acres of public lands. The BLM is facing several 

challenges in issuing the grazing permit renewals, including an increase in litigation that 

requires more analysis in the associated National Environmental Policy Act documentation, as 
Bureau of Land Management 2009 Budget Justifications 

Section I –General Statement Page I - 21 

well as a 2007 wildlfire season that temporarily diverted staff. The 2009 President’s Budget 

Request proposes a one year extension, through the end of 2009, of Section 325 Interior 

Appropriation language (P.L. 108-108). This proposal is found in Section 418 of the General 

Provisions. The provision in P.L. 108-108 provided BLM the ability to renew grazing permit and 

leases before completion of environmental analyses, for the years 2004-2008. The BLM is also 

proposing to increase timber harvest levels through the Western Oregon Plan Revision, 

scheduled to be completed in 2009. 

 
Bureau of Land Management 2009 Budget Justifications 

Section I –General Statement Page I - 22 

Table 5: The BLM’s Response to Major Challenges 

The BLM Challenges... The BLM’s Responses... 

1. Ensuring Land Health: 

The BLM is adopting the Healthy Lands Initiative, a 

landscape-level approach to restoration by bringing in 

partners to protect entire habitats or corridors needed to 

support species. Priority is to target areas in the West most 

adversely affected by drought, invasive species, fire & past 

overuse. 

• Drought, invasive species, 

fire & past overuse 

• Dependence of wildlife on 

Federal lands for highquality habitat 

The BLM will work to reach and maintain appropriate 

management levels for Wild Horses and Burros and work with 

Friends’ groups and volunteers. 

2. Conserving recreational and heritage resources at NLCS sites: 

• Protect heritage resources 

• Manage visitation increase 

and maintain high quality 

recreational opportunities 

As land use plans are completed, the BLM will focus on 

conserving heritage and recreational resources, capitalizing 

on use of matching contributed funds. 

3. Providing for public safety along the Southwest border 

• Threats to employee and 

public safety 

• Assist Department of Home 

-land Security to pursue 

their mission 

As part of the Safe Borderlands Initiative, the BLM will 

improve communication capability along the Southwest 

border. The BLM will continue to focus on employee and 

public safety, and on minimizing resource damage. 

4. Providing energy security for the Nation 

Processing new applications for renewable and nonrenewable energy and transmission projects continues to be a 

high priority, including utilizing the Energy Policy & 

Conservation Act study results to guide future authorizations. 

The BLM is increasing inspections, enforcement and 

monitoring of existing portfolio authorizations. 

The HLI and improved management practices will help reduce 

adverse impacts to significant resource values; continue pilot 

office innovations and reclaim legacy disturbances. 

• Demand for renewable and 

non-renewable energy and 

energy transmission lines 

• Large portfolio of existing 

authorizations to manage 

• Cumulative impacts to other 

significant resource values 

• Increased potential for 

conflicts with adjacent 

landowners and other 

public land users

The BLM will use public involvement processes to work with 

industry, States, citizens, and other private partners to 

develop clear and fair regulations to bring energy to market. 

5. Meet the needs of growing communities 

• Meeting the infrastructure 

needs of communities and 

minimizing trespass 

• Managing public lands as 

community “backyards” 

The Community Growth proposal will redirect funding in 

various MLR subactivities to offices with high growth areas 

and will focus on travel management, increased OHV use, 

protecting critical wildlife and cultural resources, and providing 

rights-of-way and mineral leases for community infrastructure. 

6. Conserving working landscapes (non-energy commodity use) 

• Loss of forage due to 

drought, invasive species, 

fire, and past overuse 

• Demand for sand & gravel 

• Meeting timber production 

targets 

The BLM will work to eliminate the grazing permit renewal 

backlog. The BLM will complete and begin implementing the 

Western Oregon Plan Revision, making forest and woodland 

products available for commercial production. The BLM will 

emphasize use of cost recovery to meet the needs of growing 

communities for sand and gravel resources. 
Bureau of Land Management 2009 Budget Justifications 

Section I –General Statement Page I - 23 

2009 BUDGET STRATEGY 

AND PROVISIONS 

The 2009 Budget Strategy

In 2009, the BLM will prioritize its work around core functions and realign itself organizationally 

to achieve greater work efficiency and budget effectiveness. The 2009 Budget Strategy outlines 

the priority work the BLM proposes to accomplish and how that work will be accomplished. This 

strategy is built around four themes: 

1. The BLM will maintain its core functions, as defined by the 2009-2012 emphasis areas; 

2. The BLM will enhance its capability in several key programs that support the emphasis 

areas through several budget initiatives. 

3. The BLM will make the most of partnerships, both internal and external; 

4. The BLM will continue its multi-year effort to realign itself organizationally, to gain work 

efficiencies and improve budget effectiveness. 

1. The BLM will maintain its core functions by: 

• Focusing on the 2009-2012 emphasis areas before other program work; 

• Providing for employee and visitor safety; 

• Providing structurally sound facilities; and 

• Being good stewards of the BLM’s financial and human resources. 

The corollary to this theme is that the BLM will not be focusing its work in other areas, such as: 

new construction, new planning starts, and the National Fish and Wildlife Foundation grant 

program. The BLM proposes to scale back its efforts in land acquisition, deferred maintenance 

program, and in various programs not directly related to the emphasis areas. 

In the 2008 appropriation, Congress included several increases above the 2008 President’s 

budget request in a number of subactivities. The 2009 President’s budget returns funding for 

those subactivities to the level proposed in the 2008 Budget so that BLM can address its highest 

priorities. The BLM will continue to restore and maintain core functions in the various programs 

by focusing on the highest priority projects and achieving efficiencies where possible. More 

detailed information about the proposed increases and reductions are presented under the 

subactivity descriptions. 

2. The BLM will enhance its capability in several key programs that support the emphasis 

areas through several budget initiatives. These include: 

• The Healthy Lands Initiative: The 2009 President’s budget request proposes a $10 

million increase over the 2008 enacted funding level ($4.922 million) to focus on: 

restoring or enhancing sage-grouse habitat; treatments to mitigate impacts associated 

with energy development and the expansion of communities into the wildland-urban 

interface areas; and treatments to restore resiliency in vegetative communities after 

events like wildfire and the invasion of noxious weeds. The Healthy Lands Initiative is an 

integral part of many BLM programs. Each year, from 2007 through 2009, the BLM is 

spending $8.2 million in MLR subactivity base funding in addition to the Healthy Lands 

Initiative funding on similar landscape restoration treatments in the Healthy Lands 

Initiative emphasis areas. 
Bureau of Land Management 2009 Budget Justifications 

Section I –General Statement Page I - 24 

In 2009, the landscape restoration component of the Healthy Lands Initiative is 

expanded to seven HLI emphasis areas to include California; and the northwest portion 

of Colorado will be added to the Western Colorado HLI emphasis area. The California 

HLI emphasis area incorporates three smaller initiatives, namely: the San Joaquin Valley 

Landscape Initiative, the California Desert Conservation Area Landscape Initiative, and 

the Modoc Plateau Sagebrush Steppe Restoration Initiative. The remaining HLI 

emphasis areas remain unchanged from 2008: New Mexico (San Juan Basin and 

Permian Basin), Utah, Southeast Oregon-Southwest Idaho-Northern Nevada, Southcentral Idaho, and Southwest Wyoming. 

• The Wild Horse and Burro program: The 2009 President’s budget request proposes a 

$678,000 increase over the 2008 enacted funding level for the Wild Horse and Burro 

program. The 2009 funding request retains a $4.6 million increase provided in the 2008 

enacted budget over the 2008 proposed budget. The BLM also relies on other benefiting 

subactivities, such as Range, Wildlife and even Fire to provide support for the Wild 

Horse and Burro program. 

• The National Monuments and National Conservation Areas: The 2009 President’s 

budget request retains $3 million of the $4.9 million funding increase provided in 2008. 

The BLM will also dedicate an additional $3 million in Challenge Cost Share funding to 

National Landscape Conservation System units to accomplish high priority work with 

matching partnership funds. Beginning in 2009, the President’s budget request proposes 

two new Subactivities in the MLR and O&C accounts, called National Monuments and 

National Conservation Areas. Initial funding for these new subactivities will be 

transferred from programs which provide annually recurring costs for managing National 

Monuments and National Conservation Areas. 

• The Safe Borderlands Initiative: The 2009 President’s budget request proposes a $1.0 

million increase in 2009 over the 2008 enacted funding level to mitigate environmental 

damage associated with illegal immigration and drug smuggling along the Southwest 

border. The 2009 funding request also retains a $3.9 million funding increase provided in 

the Law Enforcement program in 2008 over the 2008 requested funding levels. The Law 

Enforcement program increases will be used for general law enforcement and to support 

the Department’s Safe Borderlands Initiative. 

• Energy Security: The 2009 BLM budget proposes a net increase of $9.4 million in total 

funding resources available for Oil and Gas Management, which includes a net program 

increase of $7.8 million. The net program increase includes an $11.2 million increase to 

remediate the Atigaru legacy well site. Atigaru is the next highest priority legacy well site 

on the Alaska North Slope after the East Teshepuk site. The Oil and Gas Management 

budget also includes a program reduction of $1.95 million in oil shale management, 

made possible by the completion of most portions of the programmatic environmental 

impact statement. An additional $400,000 in base funding for the oil shale program will 

be redirected to oil and gas inspection activities to improve the BLM’s ability to keep 

pace with industry’s on-the-ground operations and better ensure that oil and gas 

operations are conducted in an environmentally sound manner. This builds on the $1.95 

million increase for inspection activities provided in 2008. The budget proposal for Oil 

and Gas Management also includes a $376,000 increase for the North Slope Science 

Initiative and a reduction of $425,000 for gas hydrates research. 
Bureau of Land Management 2009 Budget Justifications 

Section I –General Statement Page I - 25 

In the 2008 Consolidated Appropriations Act, Congress imposed a one-time assessment 

fee of $4,000 for applications for permits to drill (APDs) processed by the BLM. As the 

fee authority was included in the BLM’s annual appropriations language, it expires at the 

end of 2008. The 2008 appropriations bill assumed the BLM would raise $25.5. million in 

offsetting collections through this authority, allowing Congress to impose a significant 

reduction in direct appropriations for the BLM’s Oil and Gas Management program 

without reducing the funds available for processing APDs and associated use 

authorizations. The 2009 budget effectively makes permanent the intent of the 2008 

Congressional action with respect to charging a fee to APD applicants. The 

Administration will re-propose legislation to amend Section 365 of the Energy Policy Act 

of 2005 to allow the BLM to undertake a rulemaking to permanently institute cost 

recovery fees on APDs and to authorize a $4,150 interim fee while the rulemaking is 

under development. Thus, the budget assumes an initial APD processing fee of $4,150 

that is estimated to generate $34 million in cost recoveries in 2009. The Administration’s 

legislative proposal will further amend Section 365 to redirect mineral leasing rental 

revenues from the BLM Permit Processing Improvement Fund back to the General Fund 

of the U.S. Treasury. Replacing the $25.5 million in offsetting collections and the 

estimated spending of $21.0 million in Section 365 mandatory funds with the $20.3 

million requested program increase in direct appropriations for Oil and Gas Management 

plus an estimated $34 million in APD cost recoveries will result in a net program 

increase of $7.8 million of total funding resources available for the oil and gas 

management program in 2009. 

• Community Growth: To address needs in areas affected by high population growth, the 

2009 President’s budget request proposes to redirect $8 million of base funding in 2009 

to high-growth areas from areas experiencing little or no growth. These funding shifts will 

occur wholly within states. 

3. The BLM will make the most of 

partnerships. The BLM will continue to engage 

in both internal and external partnerships, to 

more effectively take on the challenges of 

public land management. Externally, the BLM 

has always strived to be a good neighbor, 

particularly at the local level, and has many 

land management success stories built around 

partnerships. What is pressing now is the scale 

and complexity of the BLM’s multiple-use 

mission which is making partnerships a key 

factor in successfully addressing land 

management issues across landscapes, both in 

leveraging financial resources and in garnering 

more ideas for innovative solutions. Similarly, 

internally, the BLM can no longer afford for 

programs to work independent from one 

another. BLM can make the most of its 

financial resources by addressing land 

management challenges from an 

interdisciplinary perspective. 

Pecos District – New Mexico Success 

Story: Working closely with private, state, 

and other Federal partners, 40,000 acres 

of BLM-managed lands, 9,043 acres of 

private and State land, and 12,013 acres of 

other Federal lands were treated to 

minimize habitat fragmentation and benefit 

Federal sensitive species - the Lesser 

Prairie Chicken and Aplomado Falcon. 
Bureau of Land Management 2009 Budget Justifications 

Section I –General Statement Page I - 26 

4. The BLM will continue its multi-year effort to realign itself organizationally, capitalizing 

on advances in technology, to gain work efficiencies and to improve budget effectiveness. In 

addition to the Department-wide efforts outlined in the President’s Management Agenda, the 

BLM has launched several initiatives to realize cost savings in its business practices, in keeping 

with national trends within public and private sectors. 

• The BLM will continue realizing costs savings in 2009 as the Managing for Excellence 

initiative (begun in 2007) is implemented. 

o Reorganize the Washington Office Headquarters and Centers to improve 

efficiency and to reduce the number of staff. 

o Consolidate existing business functions at the National Operations Center in 

Denver, Colorado. 

o Centralize personnel services and the Information Technology infrastructure at 

the National Operations Center. 

o Maintain state, district and field office organizational structure to keep decisions 

as close to the field level as possible. 

• Several BLM State Offices have initiated their own strategic/workforce planning efforts, 

similar to the Managing for Excellence initiative, to ensure future capacity in core work 

functions in the face of increasing retirement rates and a changing workforce. 

• The 2009 President’s budget request proposes to realize savings through performancebased contracting. 

• With the policy commitment to E-government and the increasing role of web-based 

technology in business applications, the BLM is reviewing the various systems used to 

manage and process data and is looking for ways to maintain data integrity and 

relevance and to achieve cost savings. 

• The BLM will increase capabilities to collect revenues the government is owed. 

• The BLM will make increasing use of video conferencing to reduce the number of trips 

and control expenses of necessary travel and relocation. 

• The BLM will continue to make appropriate use of its available cost-recovery authorities. 

• The BLM will continue to look for opportunities to reach agreement with other Federal 

agencies to share office space and to collocate personnel with related land or resource 

management responsibilities to improve operational efficiency and to deliver better 

customer service as in cases such as Service First offices where the BLM is in 

partnership with the U.S. Forest Service. 

Summary of 2009 Budget Provisions and Analysis of Budgetary Changes

This section describes how the BLM proposes to implement the budget strategy in light of the 

budget provisions proposed for each of the programs. The budget provisions are presented as 

increases, reductions or no change from the 2008 enacted funding levels. 

The program-level increases, reductions, and funding shifts are shown in the 2009 Analysis of 

Budgetary Changes Table, and then briefly described. More detail is also provided in the 

Budget-at-a-Glance table. 
Bureau of Land Management 2009 Budget Justifications 

Section I –General Statement Page I - 27 

2009 ANALYSIS OF BUDGETARY CHANGES TABLE 

BUREAU OF LAND MANAGEMENT 

(thousands of dollars) 

 Bureau 2008 Enacted 1,007,897

Increases 

 Fixed Cost Changes +18,041

 Healthy Lands Initiative +10,000

 Southwest Border - Environmental Restoration +1,000

 Wild Horse and Burro Management +678

 Alaska Legacy Wells (Oil and Gas Management) +11,200

 Restoration of Oil & Gas Base Appropriations Shifted to Offsetting Collections in 2008 +12,469

 North Slope Science Initiative +376

Reductions 

 Oregon & California Resource Management (Planning Activities) -1,000

 Deferred Maintenance Projects -9,976

 Organizational and Administrative Streamlining -4,700

 Travel and Relocation Expenses -3,085

 Performance Contracting Savings -1,000

 Resource Management Planning -3,993

 Construction Projects -1,885

 National Fish & Wildlife Foundation Pass-through funds -2,855

 Gas Hydrates -425

 Oil Shale EIS -1,950

 Reduction of 2008 Add-ons Not in 2008 President's Budget (not otherwise noted) -6,021

 Partial reduction of 2008 Add-on Not in 2008 President's Budget for NLCS -1,922

 Reduction of 2008 Earmarks (excluding Land Acquisition Line Items) -3,031

 Elimination of Range Improvement Program -10,000

 Land Acquisition Line Item Projects (including 2008 earmark of $1.747M) -3,789

 Alaska Conveyance Program -3,130

 National Scenic Trails -738

Funding Shifts between/among Subactivities 

 

Creation of National Landscape Conservation System Activity; National Monuments & 

National Conservation Areas Subactivities (MLR=$18,825,000; O&C=$486,000) 

[19,311]

Items of Note: 

 Law Enforcement & SW Border: Retain 2008 Increase above 2008 President's Budget [3,937]

 Wild Horse & Burro: Retain 2008 Increase above 2008 President's Budget [4,627]

 Challenge Cost Share: Target Funds to NLCS Units [3,000]

 Multiple subactivities: Shift Funds within Subactivities to High-growth Areas [8,000]

 

Oil and Gas Management: Retain 2008 Increase above 2008 President's Budget for 

Inspection & Enforcement [1,951]

 Oil and Gas Management: Cost Recovery Projections for 2009 [34,000]

 

Oil and Gas Management: Shift Funds from Oil Shale EIS to Oil and Gas Inspection & 

Enforcement [400]

 

 Bureau 2009 Planning Level - New Authority +1,002,161

 

Cancellation of Unobligated Balances (Sale of Water - $46,000; Naval Oil Shale Reserve, Anvil 

Point Clean-up - $24,700,000) -24,746

 Bureau 2009 Planning Level - Net Authority 977,415
Bureau of Land Management 2009 Budget Justifications 

Section I –General Statement Page I - 28 

Increases

Fixed Costs (+$18,041,000) - Requested fixed cost increases include costs such as planned 

pay increases, General Services Administration 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. This additional funding covers 82 percent of anticipated fixed costs for 2009. The 

remaining $3.983 million increase will be absorbed through cost savings. 

Healthy Lands Initiative (+$10,000,000) - The Secretary of the Interior launched the Healthy 

Lands Initiative in the 2008 President’s Budget to accelerate restoration, increase productivity 

and improve the health of public lands in the Western United States. The BLM was able to make 

a down payment of $3.0 million on the Healthy Lands Initiative in 2007. The HLI is an integral 

part of many BLM programs. Each year, from 2007 – 2009, BLM is spending $8.2 million in 

base MLR subactivity program funding on similar landscape restoration treatments in the HLI 

emphasis areas in addition to the HLI funding to supporting HLI projects. The Healthy Lands 

Initiative focuses on landscape-level (rather than a species-by-species) approach to improving 

land health in response to a multitude of pressures, including: increased urban-suburban 

development; increased outdoor recreational activity; rising demands for energy; impacts from 

large-scale wildfires; and the effects of ongoing weed invasions. 

As part of the landscape level approach and key to the Healthy Land Initiative’s successes are 

the partnerships formed to share information and resources and to conduct land restoration 

treatments across all jurisdictions. The BLM has had great success in bringing together 

professionals, including an unprecedented number of partners with a shared interest in 

protecting, restoring, and enhancing our multi-resource ecosystems. In 2007, over $2 million in 

partnership contributions were received in response to the $3.0 million in appropriated funds. 

Building on this base of support in 2008, partners are expected to contribute $3.4 million in 

response to the BLM’s $4.9 million funding. 

In 2009, the landscape restoration component of the Healthy Lands Initiative is expanded to 

seven HLI emphasis areas to include California; and the northwest portion of Colorado will be 

added to the Western Colorado HLI emphasis area. The California HLI emphasis area 

incorporates three smaller initiatives, namely: the San Joaquin Valley Landscape Initiative, the 

California Desert Conservation Area Landscape Initiative, and the Modoc Plateau Sagebrush 

Steppe Restoration Initiative. The remaining HLI emphasis areas remain unchanged from 2008: 

New Mexico (San Juan Basin and Permian Basin), Utah, Southeast Oregon-Southwest IdahoNorthern Nevada, South-central Idaho, and Southwest Wyoming. The 2009 President’s budget 

request proposes a $10.0 million increase over the 2008 enacted funding levels to focus on: 

• Restoring or enhancing sage-grouse habitat; 

• Treatments to mitigate impacts associated with energy development and the expansion 

of communities into the wildland urban interface areas; and 

• Treatments to restore resiliency in vegetative communities after natural events like 

wildfire and the invasion of noxious weeds. 

Southwest Border – Environmental Restoration (+$1,000,000) – The 2009 President’s 

budget request proposes a $1.0 million increase over the 2008 enacted funding level to mitigate 

damage to natural, cultural, and paleontological resources as a result of activities associated 

with illegal immigration and drug smuggling. With this additional funding, the BLM will continue 

to mitigate resource damage in coordination with other Federal, state and local governments. 
Bureau of Land Management 2009 Budget Justifications 

Section I –General Statement Page I - 29 

Specific on-the-ground projects in Arizona, California and New Mexico include mine shaft 

closures; removal of thousands of pounds of litter, abandoned vehicles and bicycles; repair of 

infrastructure; signage; and environmental education. For more hazardous materials and 

resource related information, please see the Hazardous Materials program subactivity section in 

the Management of Lands and Resources appropriation. 

Wild Horse and Burro Management (+$678,000) – The 2009 President’s budget request 

proposes a $678,000 increase over the 2008 enacted funding level for the Wild Horse and Burro 

program. The 2009 funding request also retains a $4.627 million increase provided in the 2008 

enacted budget above the 2008 President’s budget. With the funding provided in 2008 and 

proposed for 2009, the BLM proposes to remove approximately 5,200 and 3,300 animals 

respectively in an effort to bring the number of free-roaming wild horses and burros closer to 

appropriate management levels. The rest of the funding will be used to provide feed and care 

for the over 31,000 animals in short and long-term holding facilities at a cost of approximately 

$25 million (based on 2008 figures). The BLM also relies on other benefiting subactivities, such 

as Range, Wildlife and even Fire to provide support for the Wild Horse and Burro program. This 

request is described further in the Wild Horse and Burro Management subactivity chapter. 

Alaska Legacy Wells-Oil and Gas Management (+$11,200,000) - The BLM is responsible for 

the government-drilled well sites on Alaska’s North Slope, sometimes called the Alaska “Legacy 

Wells.” Some of these wells, and the associated facilities, contain fuel and other contaminants 

which present a risk from erosion to Alaska’s marine and tundra habitat. In order to continue a 

systematic program of remediation of these sites, in 2009 the BLM is requesting an increase of 

$11.2 million to enable remediation of the Atigaru well site, the next highest priority well site 

after the East Teshepuk site. The BLM anticipates completing remediation of the East Teshepuk 

site in 2008 and initiating a contract at the end of the fiscal year for the Atigaru project so that 

deployment to the site can occur expeditiously in 2009. This will enable the project to be fully 

completed in the 2008-2009 winter work season. Work will consist of plugging the well and 

removing the reserve pit contents. Completing the project in one season with only one 

deployment is critical to constraining total project costs. The total estimated cost is $17.1 million, 

of which $300,000 will be paid with base funds from 2008; the remaining $16.8 million in costs 

will be covered in 2009 with the requested program increase of $11.2 million and $5.6 million in 

legacy well base funding. 

Restoration of Oil and Gas Base Appropriations Shifted to Offsetting Collections in 2008 

(+$12,469,000) – This increase represents the remaining shift required to restore base program 

funding in the oil and gas management subactivity based on the assumption that the 2008 APD 

fee offset will expire in 2009.

North Slope Science Initiative (+$376,000) – The BLM requests an increase to continue 

implementing Section 348 of the Energy Policy Act of 2005, which requires BLM participation in 

North Slope Science Initiative (NSSI) research and monitoring projects. This information is 

needed to support resource management decisions such as oil and gas leasing. This will be 

added to base funds of $1.0 million in 2008 and 2009. 
Bureau of Land Management 2009 Budget Justifications 

Section I –General Statement Page I - 30 

Reductions 

The 2009 budget request proposes several reductions as the BLM strives to focus on priority 

emphasis areas, work more cost-effectively, maintain capacity through partnerships, and pursue 

Managing for Excellence initiatives. These reductions are described below: 

Oregon & California Grant Lands - Resource Management Planning (-$1,000,000) – The 

BLM requested additional funding between 2005 and 2008 to complete a lengthy revision of the 

six Western Oregon Resource Management Plans (RMP’s). These revisions were directed by 

the American Forest Resource Council et al. v. Clark Settlement Agreement (Settlement 

Agreement). This revision process is nearing completion with most of the scheduled work to be 

completed by the end of 2008. In 2008, the Proposed Plan/Final Environmental Impact 

Statement will be issued. The six Records of Decision will be signed in 2009. The 2009 

President’s budget request proposes a funding decrease of $1,000,000 due to reduced staffing 

and contract needs following completion of the planning effort. 

Deferred Maintenance (-$9,976,000) – With the proposed funding levels for 2009, the Deferred 

Maintenance program will focus on BLM core work such as facilities condition assessments, 

engineering services, database management, management of environmental and structural 

risks of facilities, and dam and bridge inspections. Funding for riparian projects in the National 

Monuments and National Conservation Areas is being shifted to a new subactivity, and the 2009 

President’s budget request proposes a funding increase in that subactivity. 

Organizational and Administrative Streamlining (-$4,700,000) - Beginning in 2007, the BLM 

implemented a strategic reorganization plan (called Managing for Excellence) to streamline the 

BLM by improving efficiencies and reducing costs in Washington Office Headquarters and 

Centers. By 2009, the BLM anticipates realizing $4.7 million in savings across multiple 

subactivities from the Managing for Excellence organizational and administrative streamlining 

efforts. This reduction is made possible through staffing and cost reductions in the Washington 

Office, centralization of personnel services, and centralization of Information Technology 

Infrastructure. 

The Washington Office will manage its staffing level and will eliminate 25 positions through 

lapse. The Washington Office has designed a target table of organization (see "Other 

Attachments" tab in this document) and has identified certain positions that are dedicated to 

lower priority work. The Washington Office will manage its work force to reach the target table 

of organization by eliminating lower priority work related to but not limited to: positions 

associated with coordinating correspondence review which can be handled through other 

means; or positions associated with completed projects. The Washington Office will be able to 

reduce labor spending by $2.5 million. 

All position classification will be centralized at the National Operations Center during 2009. 

Staffing and benefits administration will also be centralized. This will require the BLM to fully 

fund the contract for electronic Official Personnel Files with the Office of Personnel 

Management in 2008. This centralization will reduce the BLM’s personnel staff and related 

costs in the field organization. This will reduce spending on personnel services by $1.1 million. 

The BLM will also centralize the various IT infrastructure and related work processes at the 

National Operations Center. These IT functions include activities such as network switch 

management, video, radio, and voice circuit management, Microsoft active directory account 

management, and similar activities. This centralization will allow the reduction of IT staff and 
Bureau of Land Management 2009 Budget Justifications 

Section I –General Statement Page I - 31 

related costs in the field organization. This will reduce spending on IT infrastructure and related 

work processes by $1.1 million.

Travel and Relocation Expenses (-$3,085,000) – The BLM will continue to enhance the use of 

available telecommunications technology to reduce its reliance on travel to accomplish its 

mission in 2009. This includes an increased reliance on video-conferencing, cyber-seminars, 

telephone bridges, and electronic travel booking. The BLM will also continue to consolidate 

meetings when possible, monitor conference planning and attendance, use local training sites 

when possible, and fund customer-related travel through cost-reimbursable accounts when 

feasible. The BLM anticipates saving $3.085 million in travel costs in 2009 through these 

mechanisms. 

The travel reduction has been distributed to all programs in the BLM, based on the relative 

proportion of the programs’ individual travel expenditures to the overall bureau travel 

expenditures. Accordingly, the travel reduction may reduce program performance and impact 

the accomplishment of end outcome goals. 

Performance Contracting Savings (-$1,000,000) – In 2007, the Department established a 

goal for each bureau to convert 45 percent of contracting mechanisms to performance-based 

contracts by the end of 2007. The BLM achieved a conversion of 11 percent of all actions and 

anticipates converting the remaining 34 percent by the end of 2008. This conversion will enable 

the BLM to achieve a net cost savings of $1 million in 2009. A proportionate amount of this 

savings has been applied as a program reduction to each program that performs a portion of its 

mission through contract mechanisms, based on the dollar value of the contracting expenditures 

for the program. 

Resource Management Planning (-$3,993,000) –BLM will focus resources on completing ongoing energy related land use plans in Utah, Wyoming and Colorado. The BLM anticipates that 

no new Resource Management Plans (RMP) will be started in 2009. 

Construction Projects (-$1,885,000) – The 2009 President’s budget request proposes to 

decrease funding in the Construction program in order to better focus funding in the priority 

emphasis areas. The Construction program will continue to focus on the highest priority 

projects in the areas of developing facilities, replacing or reconstructing existing roads, trails, 

bridges, recreation and administrative facilities, and buildings with this funding. The funding will 

allow for the continuation of two phased projects funded previously in 2008. 

National Fish and Wildlife Foundation Pass-Through Funds (-$2,855,000) – Congress 

created the National Fish and Wildlife Foundation (NFWF) in 1984 to foster partnerships 

between the private sector and government for the conservation and management of fish and 

wildlife resources. The 2009 President’s budget request proposes to eliminate this passthrough funding provided to the National Fish and Wildlife Foundation. The National Fish and 

Wildlife Foundation is a well-established program that is able to independently generate 

significant amounts of funding. Eliminating this funding will enable the BLM to target funds to 

other priority areas. The BLM will continue to work cooperatively with the National Fish and 

Wildlife Foundation to conserve wildlife resources on the public lands. 

Gas Hydrates (-$425,000) – The BLM proposes this reduction in 2009 in order to focus 

available funding on other priorities with the Oil and Gas program. Cooperative gas hydrate 

studies will continue but at a slower pace than 2008. 
Bureau of Land Management 2009 Budget Justifications 

Section I –General Statement Page I - 32 

Oil Shale EIS (-$1,950,000) – The BLM has been conducting a program to authorize oil shale 

development, as explained in more detail later in the subactivity chapter. The BLM plans to 

complete the most costly portions of the Oil Shale Programmatic Environmental Impact 

Statement in 2008; therefore a $1.95 million reduction is proposed. In 2009, an additional 

$400,000 in base funding for the oil shale program will be redirected to oil and gas inspection 

activities to improve the BLM’s ability to keep up with the pace of industry’s on-the-ground 

operations and better ensure that oil and gas operations are conducted in an environmentally 

sound manner. The $400,000 for additional inspections is in addition to the base funding of 

$1.951 million added by Congress in 2008, which will be retained in 2009 and used for 

inspection and production monitoring. 

Reduction of 2008 Add-ons Not in 2008 President’s Budget Not Otherwise Noted 

(-$6,021,000) – In Fiscal Year 2008, Congress provided additional funding in a number of 

subactivities. The 2009 President’s budget request proposes a reduction of this amount due to 

the need to focus on higher priorities. The BLM will continue to restore and maintain core 

functions in the various programs by focusing on the highest priority projects and achieving 

efficiencies where possible. 

Partial Reduction of 2008 Add-on Not in 2008 President’s Budget for NLCS 

(-$1,922,000) – The 2009 President’s budget request retains $3 million of the $4.9 million 

funding increase provided for the NLCS in 2008 above the 2008 President’s budget. 

Reduction of 2008 Earmarks – Excluding Land Acquisition Line Items (-$3,031,000) – The 

2008 enacted budget includes congressional earmarks which add funding for specific projects in 

several subactivities over the 2008 President’s budget. The BLM will use these funding 

increases as directed by Congress. In light of the current fiscal environment, the 2009 

President’s budget request proposes to reduce the congressional add-ons in those programs to 

focus on high priority programs and projects. 

Elimination of Range Improvement Program (-$10,000,000) – The 2009 President’s Budget 

request proposes to eliminate the Range Improvement program. This elimination will move 

more responsibility for construction and maintenance of public land projects to the public land 

users as well as other Management of Lands and Resources programs. The Administration 

submitted legislation on April 4, 2007 to amend the Federal Land Policy and Management Act to 

direct the 50 percent of grazing fee receipts currently deposited in the Range Improvement fund 

(i.e. the Federal share of such receipts) to be deposited in the General Fund of the Treasury. 

 

Land Acquisition Line Item Projects – Including 2008 Earmark of $1.747 million 

(-$3,789,000) – The 2009 President’s budget request proposes to reduce funding for line-item 

projects by $3,789,000. The BLM will continue to acquire properties from willing sellers with the 

requested overall $2.0 million funding, and continue to make appropriate use of other funding 

sources, such as funds from the Federal Lands Transaction Facilitation Act and Land and Water 

Conservation Fund monies. 

Alaska Conveyance (-$3,130,000) – As a result of the 2009 program change, contract services 

for cadastral survey will be reduced. BLM will be able to patent at the same rate as in 2007. 

The requested funding level will allow the BLM to make significant progress in transferring 

Federal lands in Alaska to Alaska Native Corporations and to the State compared to the 

situation prior to the Acceleration Act. By 2009, the BLM will have substantively completed 

determining land ownership patterns, a major goal of the Alaska Land Transfer Acceleration Act, 

thereby increasing certainty for all stakeholders with final patent following in subsequent years. 
Bureau of Land Management 2009 Budget Justifications 

Section I –General Statement Page I - 33 

National Scenic Trails (-$738,000) – The 2009 budget proposes reducing the Recreation 

Management subactivity by $738,000 to address higher priorities. The BLM will continue to 

maintain core functions by focusing on the highest priority recreation projects and efficiencies 

where available. 

Cancellation of Unobligated Balances: Naval Oil Shale Reserve-Anvil Points Clean-up 

and Sale of Water Accounts ($24,756,000) – The budget proposes to cancel $24.7 million in 

unobligated balances in the Naval Oil Shale Reserve (NOSR) No. 3 account. The 2009 budget 

also proposes to cancel the Sale of Water mandatory account unobligated balance of $46,000.

Funding Shifts Between Subactivities

Creation of National Landscape Conservation System Activity; National Monuments & 

National Conservation Areas Subactivities [$19,311,000] – The 2009 President’s budget 

request proposes to create two new subactivities in the Management of Lands and Resources 

(MLR) and Oregon and California (O&C) Grant Lands accounts, called National Monuments and 

National Conservation Areas, to better track the historic annually recurring costs for personnel 

and operations at each unit. Initial funding for these two new subactivities will be transferred 

from programs within each appropriation which provide annually recurring costs for managing 

National Monuments and National Conservation Areas. The initial MLR funding shift to the MLR 

National Monuments and National Conservation Areas subactivity totals $18,825 million. The 

initial O&C Grant Lands funding shift to the O&C National Monuments and National 

Conservation Areas subactivity totals $486,000. For more information about the new National 

Monuments and National Conservation Areas subactivity, see Section III. 

Items of Note

Law Enforcement and Southwest Border: Retain 2008 Increase above 2008 President’s 

Budget [$3,937,000] – In 2008, Congress provided the Law Enforcement program an additional 

$3.937 million in funding over the 2008 President’s budget as a general program increase and 

for use on the Southwest border. In 2008, the BLM will use $2.800 million for the Safe 

Borderlands Initiative and the remaining $1.137 million for other high priority Law Enforcement 

program projects. The BLM will use the Safe Borderlands Initiative funds in 2008 to improve 

critical communications along the southwest border in Arizona, California and New Mexico. The 

communications capability improvements include: hiring six additional radio dispatchers at the 

Phoenix Dispatch Center to extend current center hours from 16 hours a day to a 24-hour 

operation; fund several new radio repeaters and base stations at remote locations; update the 

dispatch console station; and upgrade, modify and enhance several existing remote radio sites, 

equipment and infrastructure. Enhancing the BLM’s radio communications system will also 

benefit the Department of Homeland Security by providing better communication around 

mountain tops and wilderness locations, and improved coordination with the BLM and other 

agencies. The balance of the 2008 funding increase will be used to support hiring, background 

investigation costs, relocation costs, training, and equipment for three additional special agents 

for border/drug investigations and six additional rangers. More capacity for law enforcement 

oversight of the public lands is needed to provide for visitor safety; to protect natural and cultural 

heritage values; and to better respond to increasing demands in several emphasis areas, 

particularly in areas with growing communities and along the Southwest border. 

The 2009 President’s budget proposes to retain the $3.937 million increase provided in 2008 

above the 2008 President’s budget request. In 2009, the BLM will use $2.341 million of these 
Bureau of Land Management 2009 Budget Justifications 

Section I –General Statement Page I - 34 

funds on the Southwest border in the same specific areas of communications, special 

agents/rangers, and other Southwest border priorities. The remaining $1.596 million will be 

used in the Law Enforcement program to fund other high priority projects. These projects 

include the funding of dispatch service agreements, complying with the new national radio 

program objectives, providing a cache of technical investigative equipment to be used by 

rangers and agents in the field, offering more support for the investigation and eradication of 

drugs from public lands; providing for overtime and travel costs for rangers and agents to 

support areas of high visitation during holidays and special events; and increasing funds for 

general operations to support major investigation into crimes involving Archaeological Resource 

Protection Act, oil & gas, paleontological resources, and wild horses & burros. The following 

table summarizes the proposed allocation of funds for the Safe Borderlands Initiative and Law 

Enforcement program for 2008 and 2009: 

Safe Borderlands Initiative 2008 2009 

Communications (includes 6 dispatchers) 666,000 549,000 

Special Agents/Rangers (includes 3 agents & 6 rangers) 1,862,000 1,170,000 

Other Southwest Border Priorities (includes service 

agreements, drug eradication support & other costs) 272,000 622,000 

Subtotal – Law Enforcement on the S.W. Border 2,800,000 2,341,000 

Hazardous Materials Management Program (Resource Clean-up on S.W. Border) 1,000,000 

Subtotal – Safe Borderlands Initiative 2,800,000 3,341,000 

Law Enforcement Program – Outside Border Area (includes 1 

agent, 1 ranger & other costs) 1,137,000 1,596,000 

Grand Total 3,937,000 4,937,000 

Wild Horse and Burro: Retain 2008 Increase above 2008 President’s Budget [$4,627,000] 

– The 2009 funding request also retains a $4.627 million increase provided in the 2008 enacted 

budget above the 2008 President’s budget. With the funding provided in 2008 and proposed for 

2009, the BLM proposes to remove approximately 5,200 and 3,300 animals respectively in an 

effort to bring the number of free-roaming wild horses and burros closer to appropriate 

management levels. The rest of the funding will be used to provide feed and care for the over 

31,000 animals in short and long-term holding facilities at a cost of approximately $25 million 

(based on 2008 figures). The BLM also relies on other benefiting subactivities, such as Range, 

Wildlife and even Fire to provide support for the Wild Horse and Burro program. This request is 

described further in the Wild Horse and Burro Management subactivity chapter. 

Challenge Cost Share: Target Funds to NLCS Units [$3,000,000] – The 2009 President’s 

budget request proposes to target $3 million in Challenge Cost Share base funds to National 

Landscape Conservation Systems areas to accomplish high priority work with partnership 

matching funds. 

Multiple Subactivities: Shift Funds within Subactivities to High-Growth Areas [8,000,000]

– The 2009 President’s budget request proposes to redirect base funding to high-growth areas 

from those areas experiencing little or no growth. The re-directed funds will be focused on 

OHV, recreation and transportation management, and on protection of critical wildlife and 

cultural resources. These funding shifts will occur within the states, and not between states.
Bureau of Land Management 2009 Budget Justifications 

Section I –General Statement Page I - 35 

Oil and Gas Management: Retain 2008 Increase above 2008 President’s Budget for 

Inspection, Enforcement and Production Verification [$1,951,000] – Congress added 

$1.951 million to base funding in 2008 for inspection, enforcement and production verification. 

The 2009 request retains this 2008 congressional increase. The BLM will use the added 

capacity to perform an additional 865 inspections, and to hire and train additional Production 

Accountability Technicians. The full impact of this additional funding will not be seen for at least 

one year because of the time necessary to fully certify newly-hired inspectors. Of the total 

additional inspection capacity funded with the request, the BLM will perform 400 additional 

inspections in 2009, and perform 865 inspections in 2010. 

Oil and Gas Management: Cost Recovery Projections for 2009 [$34,000,000] – In the 2008 

Omnibus Appropriations Act, Congress imposed a one-time assessment fee of $4,000 for 

applications for permits to drill (APDs) processed by the BLM. As the fee authority was included 

in the BLM’s annual appropriations language, it expires at the end of 2008. The 2008 

appropriations bill assumed the BLM would raise and retain $25.5 million in offsetting collections 

through this authority, allowing Congress to impose a significant reduction in direct 

appropriations for the BLM’s oil and gas management program without reducing the funds 

available for processing APDs and associated use authorizations. The 2009 budget request 

effectively makes permanent the intent of the 2008 Congressional action with respect to 

charging a fee to process APDs. The Administration will re-propose legislation to amend Section 

365 of the Energy Policy Act of 2005 to allow the BLM to undertake a rulemaking to 

permanently institute cost recovery fees on APDs. The 2009 budget assumes an initial APD 

assessment fee of $4,150 that is estimated to generate $34 million in cost recoveries. The funds 

will be deposited in the Service Charges, Deposits and Forfeitures account. 

Oil and Gas Management: Shift Funds from Oil Shale EIS to Oil and Gas Inspection and 

Enforcement [$400,000] – In 2009, $400,000 in base funding for the oil shale program will be 

redirected to oil and gas inspection activities to improve the BLM’s ability to keep up with the 

pace of industry’s on-the-ground operations and better ensure that oil and gas operations are 

conducted in an environmentally sound manner. The redirected $400,000 for inspections is in 

addition to the base funding of $1.951 million added by Congress in 2008, which will be retained 

in 2009 and used for inspection and production monitoring. 

Other Legislative Budget Changes

The following proposals have been or will be directed to the appropriate authorizing committees: 

Accelerated Coal Bonus Bid Payments - The 2009 budget request proposes to accelerate the 

schedule for bonus bid payments on all new coal leases. Full payment of bonus bids would be 

required within the first year of the lease sale. Current law requires the BLM to offer the deferred 

payment option for at least half of leases, allowing coal operators to spread the bonus bid 

payments over five years. 

Amendment to Federal Lands Transaction Facilitation Act – The Federal Land Transaction 

Facilitation Act (FLTFA) sales program generates receipts which provide the BLM greater land 

acquisition funding than the Land and Water Conservation Fund (the BLM’s traditional source of 

land acquisition funding). Unless reauthorized, FLTFA will sunset on July 24, 2010. The 2009 

budget request proposes legislation to extend FLTFA authority beyond 2010 and to amend the 

BLM’s land sale authority under FLTFA. The legislation will both expand the public lands 

available for disposal under FLTFA and change the distribution of the proceeds of those sales. 

Under the Act, the BLM is currently limited to selling lands identified for disposal in land-use 
Bureau of Land Management 2009 Budget Justifications 

Section I –General Statement Page I - 36 

plans that were in effect prior to the enactment of FLTFA, and makes the proceeds available for 

the acquisition of other non-Federal lands within specially-designated areas such as National 

Parks, National Wildlife Refuges, and National Monuments. The 2009 budget request proposes 

to amend FLTFA to: extend FLTFA until January 1, 2018; expand the categories of lands 

eligible for acquisition and sale; authorize deposit of 30 percent of net sale proceeds (after 

deducting four percent for State payments and 20 percent for the BLM’s sale expenses) for land 

acquisition and conservation enhancement projects on Federal land; and direct 70 percent of 

net sale proceeds into the General Fund of the US Treasury. This proposal will minimize the 

amount of Federal spending not subject to regular oversight through the appropriations process 

and will ensure that taxpayers directly benefit from these land sales. More detailed information 

about the BLM’s land sales and acquisition programs are provided in the Collections, 

Permanent Operating Accounts, and the Realty and Ownership Management ActivitySubactivity sections of this document. 

Elimination of the Range Improvement Fund – The 2009 President’s budget request 

proposes to eliminate the Range Improvement Fund. This elimination will move more 

responsibility for construction and maintenance of public land projects to the public land users 

as well as other Management of Lands and Resources programs. The Administration submitted 

legislation on April 4, 2007 to amend the Federal Land Policy and Management Act to direct the 

50 percent of grazing fee receipts currently deposited in the Range Improvement fund (i.e. the 

Federal share of such receipts) to be deposited in the General Fund of the Treasury. 

Geothermal Energy Receipts — The Administration will resubmit legislation to repeal Sections 

224 and 234 of the Energy Policy Act of 2005. Prior to passage of the Energy Policy Act, 

geothermal lease payments were directed 50 percent to States, 40 percent to the Reclamation 

Fund, and 10 percent to the General Fund. The Energy Policy Act changed this beginning in 

2006 to direct 50 percent to States, 25 percent to counties, and 25 percent to a new BLM 

Geothermal Steam Act Implementation Fund. The repeal of Sections 224 and 234 will reverse 

these changes and restore the disposition of geothermal revenue to the historical formula of 50 

percent to the States and 50 percent to the Treasury.

Authorization of Oil and Gas Leasing in Arctic National Wildlife Refuge (ANWR) –

Consistent with past budget requests, the 2009 budget request again proposes that Congress 

enact legislation authorizing limited exploration and development of oil and gas resources within 

the Section 1002 planning area of ANWR, using the strictest environmental standards. The 

Budget Request assumes legislation would be enacted in time to allow a first lease sale in 2010. 

Repeal APD Fee Prohibition in the Energy Policy Act of 2005 – The 2009 budget request for 

oil and gas management reflects a proposed transition from reliance on mandatory mineral 

leasing receipts authorized by Section 365 of the Energy Policy Act (i.e. the Pilot Office Fund) to 

cost recoveries. The Administration will be proposing legislation to repeal provisions in Section 

365 that prohibit the BLM from implementing cost recovery fees for processing Applications for 

Permit to Drill (drilling permits) and divert mineral leasing receipts from the Treasury to the BLM. 

The BLM currently estimates it will spend approximately $21 million in Section 365 receipts in 

2008. The Administration will re-propose legislation to amend Section 365 of the Energy Policy 

Act of 2005 to allow the BLM to undertake a rulemaking to permanently institute cost recovery 

fees on APDs. The 2009 budget assumes an initial APD assessment fee of $4,150 that is 

estimated to generate $34 million in cost recoveries. The funds will be deposited in the Service 

Charges, Deposits and Forfeitures account. 
Bureau of Land Management 2009 Budget Justifications 

Section I –General Statement Page I - 37 

The proposed increased reliance on cost recoveries is consistent with the findings of previous 

Inspector General Reports and the 2005 PART review of this program, which found that the 

program does not adequately charge identifiable users for costs incurred in their behalf. 

The following proposal is contained in the appropriations language submitted as part of the 

2009 President’s budget request. 

Extension of the Grazing Permit/Lease Renewal Timeline - The BLM is facing several 

challenges in issuing the grazing permit renewals, including an increase in litigation that 

requires more analysis in the associated National Environmental Policy Act documentation, as 

well as a 2007 wildlfire season that temporarily diverted staff. The 2009 President’s Budget 

Request proposes a one year extension, through the end of 2009, of Section 325 Interior 

Appropriation language (P.L. 108-108). This proposal is found in Section 418 of the General 

Provisions. The provision in P.L. 108-108 provided BLM the ability to renew grazing permit and 

leases before completion of environmental analyses, for the years 2004-2008. 

Congressional Directives

The Bureau of Land Management is in the process of responding to requests for 

information from the House and Senate Appropriations Committees. Many of these 

requests are discussed in these justifications. A summary of some of the requests 

follows.

Energy and Minerals — House Report 110-187 accompanying the 2008 Omnibus 

Appropriations Act directs the BLM to evaluate procedures for funding energy and 

minerals activities; directs the BLM to carefully evaluate its charged-as-worked 

procedures; and report back to the Committee by March 20, 2008 on steps taken to 

assure the public that oil and gas and other mineral activities are not supported at the 

expense of other Bureau conservation programs. The BLM’s National Energy Policy 

Office is preparing this report. 

Realty and Ownership Management — House Report 110-187 accompanying the 

2008 Omnibus Appropriations Act, directs the BLM to provide advance notice to the 

Congress in the event that the Department plans to approve any RS2477 claims, and 

provide quarterly reports to the Committee on the Bureau’s activities concerning various 

claims under the RS2477 statute. 

Realty and Ownership Management – Land Sales — House Report 110-187 

accompanying the 2008 Omnibus Appropriations Act requests annual summaries of 

sales, expenditures, and fund balances in the budget justification from the entire 

Bureau’s land sales authorizations. This report will be submitted to Congress under 

separate cover. 

Resource Protection and Maintenance —House Report 110-187 accompanying the 

2008 Omnibus Appropriations Act directs BLM to provide a report summarizing the 

extent to which existing and future plans include evaluations of the impacts of global 

climate change. The BLM is currently preparing this report.
Bureau of Land Management 2009 Budget Justifications 

Section I –General Statement Page I - 38 

National Landscape Conservation System — Senate Report No. 110-91, and the 

Explanatory Statement accompanying the 2008 Omnibus Appropriations Act direct the 

Bureau to present line item program elements for National Monuments, National 

Conservation Areas, and National Scenic and Historic Trails in future budget 

justifications, and to present annual expenditure and outcome reports, presenting 

expenditures by unit and subactivity, by December 31, of the subsequent fiscal year. 

 The BLM has developed a separate subactivity to fund the National Monuments and 

National Conservation Areas. Funding tables showing allocations for the National 

Monuments and National Conservation Areas and other NLCS units are provided in the 

Emphasis Area tab.
Bureau of Land Management 2009 Budget Justifications 

Section I –General Statement Page I - 39 

PRESIDENT’S MANAGEMENT AGENDA

The BLM is committed to continuing active implementation of the President's Management 

Agenda in 2009 for improving management and performance of the Federal Government, and 

for practicing the Secretary's vision of citizen-centered management excellence. 

Budget and Performance Integration

The Government Performance and Results Act (GPRA) requires all organizations in the Federal 

government to fully integrate planning or strategic goals with performance objectives in the 

development of their budgets. Performance Measures developed in the Strategic Plan structure 

give agencies a tool with which to measure the outcomes of their efforts and evaluate the 

results. The BLM has made progress in implementing Budget and Performance Integration by 

completing the following actions. 

• The BLM implemented Activity Based Costing in 2001 and has been using the Activity 

Based Costing Information to evaluate and improve annual performance since 2002. 

The BLM’s cost and performance data available in its Cost Management System is used 

as a principle means to evaluate the costs of the BLM’s workloads as well as trends in 

performance and the efficiencies achieved. In 2008, a full review of prior year (2005-

2007) financial and performance information was completed using the Management 

Information System, and the cost management capabilities of Activity Based Costing 

(ABC). Results of the review were used to provide the final allocations for the 2008 

Annual Work Plan, provide allocations for the 2009 Planning Target Allocation, and to 

develop the 2009 President’s Budget request. 

• The BLM participated in the review and updating of the Department of the Interior 2007-

2012 Strategic Plan and updated the BLM 2007-2012 Operating Plan. These plans 

contain a limited number of long-term and annual goals, and include all of the approved 

program assessment (PART) recommended performance measures. 

• Performance appraisal plans for managers are tied directly to the Strategic Plan and 

Bureau Operating Plan goals and measures and the related performance targets are 

cascaded throughout the organization to individual employee appraisal plans. 

• The BLM participates in quarterly reviews with the Department of Interior. The full cost 

of achieving performance goals and the marginal cost of the progress is reported during 

each quarterly review. 

BLM’s Implementation of the Program Assessment Rating Tool

The Program Assessment Rating Tool (PART) is a systematic method of assessing the 

performance of program activities across the Federal government that is designed to identify 

areas for improving program performance and to increase the link between performance to 

budget allocation decisions. 

Two BLM programs, Mining Law Administration, and the Southern Nevada Public Lands 

Management Act (SNPLMA) did not have sufficient performance measures developed to 
Bureau of Land Management 2009 Budget Justifications 

Section I –General Statement Page I - 40 

evaluate their effectiveness during their original assessment. Those programs have been 

developing performance measures and working with the Administration on other follow-up 

actions in preparation for re-assessment. Information on all of the completed PARTs may be 

found on the Office of Management and Budget website located at www.omb.gov/part. 

Each program that has been assessed is required to develop at least one efficiency measure. 

The BLM is working on developing approved efficiency measures for all assessments. The 

BLM continues to use PART follow-up actions to improve program effectiveness and PART 

efficiency measures to demonstrate the relative cost-effectiveness of its programs in achieving 

goals. By presenting its performance targets and accomplishments in terms of annual outputs 

or outcomes, in the context of public demand, and by showing consistent improvement in unit 

cost and timeliness, the BLM can show that it is leveraging its investments in cost management 

and other systems to deliver better value to taxpayers. For example: 

• The Realty and Lands Program uses a Cadastral Survey efficiency measure, Percent of 

cadastral surveys completed within 18 months of being funded, for measuring the BLM’s 

ability to meet the needs of cadastral survey customers by completing surveys in a 

timely manner. For example, the completion of a cadastral survey may allow land to be 

conveyed or a grazing authorization to be approved in a more timely manner.

• In response to a PART recommendation, the BLM is working on a multi-year monitoring 

strategy to integrate and enhance the Bureau's on-going program-specific monitoring 

activities. In 2007, BLM will continue pilot projects to test areas of the strategy. 

Implementation strategies related to land health at the local, regional, and national scale 

will be completed in 2007. 

Government Performance and Results Act (GPRA) Data Validation and Verification

The Government Performance and Results Act requires all agencies to describe the means by 

which performance will be validated and verified in annual performance plans. The BLM uses 

the Department of Interior’s Data Validation and Verification checklist as a guide to ensure the 

overall reliability of the performance data that is collected and submitted. The checklist 

incorporates a number of sections which include: 

• Validation of Performance Measures: In 2007, all of the performance measures the BLM 

uses were reviewed during the DOI Strategic Plan review process. The definitions for 

the performance measures were updated and the measurement processes clarified. 

Performance targets for each goal were evaluated and out-year strategies adjusted to 

reflect the current priorities and management decisions. The BLM uses a strategic 

matrix to map the relationship of individual performance to the goals. The strategic 

matrix and the workload and performance measure definitions are available to all 

employees on the BLM Budget and Cost Management websites. 

• Data Entry and Transfer: The Performance Management Data System is used by the 

BLM to collect performance information. A data entry manual is available online and 

standard data entry policy is established for all levels of the organization. Performance 

reporting requirements and improvement procedures are issued annually. In 2007 policy 

was issued using Instruction Memorandum No. 2007-129. 

• Data Security and Integrity: The BLM provides the same high level of security for 

performance data that it does for financial data. Firewalls/password protection, user 

rolls and access levels etc., are standard practices for reporting performance and 

financial data in the BLM. The BLM systems run a backup every night. The disaster 

recovery plan covers all financial systems including the Management Information 

System which houses the performance data.
Bureau of Land Management 2009 Budget Justifications 

Section I –General Statement Page I - 41 

• Data Quality and Limitations: Laws, BLM manuals, and program policy define the 

performance standards used consistently across the BLM. These standards are 

available in every office. Performance measure definitions also include the unit of 

measure, and/or measurement process. All offices are required to maintain 

documentation to support reported performance. Program case files and final reports 

are available in each office. Individual program data bases are also used to collect more 

detailed information. Quarterly reviews and program workshops are conducted to 

reinforce standard methods of data collection and verify consistency. 

• Oversight and Certification: Performance reporting is cascaded to every level of the 

organization and is included in employee evaluations. 

Section II of this document, Goal Performance Table, presents a consolidated view of the BLM’s 

performance and funding (cost) information. The Goal Performance Table provides a 

comprehensive listing of all GPRA Strategic Plan and all PART performance measures, in 

addition to BLM performance measures. 

Strategic Management of Human Capital

The BLM’s Workforce Plan covers Fiscal Years 2008 through 2013 and addresses the 

requirements necessary to replenish skills and knowledge, improve work efficiencies, employee 

development, and succession planning. The BLM’s workforce planning process integrates 

budget with performance to define the workforce allocation model. The BLM has an overall 

retirement eligibility rate of 35 percent over the next 5 years, however this rate is substantially 

higher in some key positions. The new Bureau Workforce Plan identifies five action areas to 

ensure BLM has the right person in the right place at the right time. BLM will focus efforts in 

recruitment where the BLM has initiated major recruitment programs to target entry level and 

mid-level employees to assist in the transition from an older, retirement-eligible workforce. The 

other four areas are succession management retention strategies, workforce management and 

organizational improvement and refinement. These programs have helped the BLM to develop 

tactics to improve the strategic management of human capital. 

Competitive Sourcing

In accordance with the Federal Activities Inventory Reform Act (FAIR) of 1998, the BLM is 

assessing the quality and costs of the BLM’s in-house performance capability compared to 

private sector performance capability. In addition, competitive sourcing also assists the BLM in 

evaluating performance and re-engineering activities for efficiency to ensure that customers, 

stakeholders, and citizens are provided services at the best possible value. Since FY 2002, the 

BLM has conducted one Standard study, 47 Express Reviews and five Streamlined studies. 

FY 2007– 

• The BLM analyzed the Administrative Support function of the Washington Office, 

National Interagency Fire Center, Alaska State Office and the Idaho State Office 

to determine if any savings or work improvement possibilities are feasible. 

• Annual savings of $2 million resulting from IT Helpdesk and IT security is largely 

achieved by doing work in-house, rather than outsourcing. 

FY 2008–

• The BLM will analyze the inventory and monitoring functions throughout the 

Bureau. This feasibility analysis should be complete by the end of FY 2008. 
Bureau of Land Management 2009 Budget Justifications 

Section I –General Statement Page I - 42 

FY 2009–

• The BLM will continue to assess the quality and costs of the BLM’s in-house 

performance capacity as compared to private sector performance capacity, as 

appropriate. 

Improved Financial Performance

The Improved Financial Performance scorecard requires that agencies meet nine standards of 

success to receive a “Green” status rating. Seven of these standards are compliance standards 

and two are results standards. The seven compliance standards focus on maintaining strong 

financial operations and compliance with laws, regulations, and standards. The BLM continues 

to make progress in a number of areas, including using financial information to inform decisionmaking and drive results as well as implementing a plan for continuously expanding and 

improving the usefulness of financial information. The BLM’s MIS and Cost Management 

Systems provide all employees with up-to-date financial information to compare planned and 

budgetary resources with actual expenditures; and provide accurate information on the full and 

incremental cost of outputs, performance goals, and performance measures. The BLM’s 

success in this area is evidenced by 13 consecutive years of unqualified audit opinions on its 

financial statements. 

Expanding E-Government

The E-Government efforts will be concentrated in implementing government-wide projects, 

including the Geospatial One-Stop (GOS), which provides a spatial data “card catalog” of 

metadata for easier, more reliable public access to the Federal government’s spatial 

information. The GOS should save the public hundreds of millions of dollars annually by 

eliminating redundant data collection and increasing opportunities for cost-sharing partnerships. 

The BLM has posted the metadata and provided map services for Cadastral and Land and 

Minerals programs, and Federal surface management agency boundaries. The BLM has also 

provided metadata records from BLM clearinghouses to allow the public to find BLM spatial 

resource information more easily. The BLM will continue to post information to GOS via the 

LR2000 and NILS land and resource record automation projects (Legacy Rehost 2000 and 

National Integrated and Land System), as well as expanded partnerships to enhance and 

improve the quality of data that is provided to the public. The BLM will also continue to fine-tune 

the BLM’s web presence and other means of electronic communications, such as targeted emails, video and audio, to more efficiently and effectively deliver the BLM’s message and 

information to the public. 

The BLM invests funds in IT Support for Resources and Mineral Land Use Planning (ePlanning), which is a system based on various commercial off-the-shelf products that are 

integrated to provide a suite of sophisticated, yet easy-to-use tools that include the ability to 

perform several tasks listed below. 

The e-Planning system can: 

• Write, edit, share, peer-to-peer review and approve multi-authored project text; 

• Publish documents in multiple formats such as web, CD-ROM, paper or PDF; 

• Accept public comments directly into a database to cut down on spam; 

• Encourage more substantive comments that are specific and tied to the text; 

• View maps related to the data; 
Bureau of Land Management 2009 Budget Justifications 

Section I –General Statement Page I - 43 

• Process public comments; 

• Establish and follow predefined workflows; 

• Create dynamic and interactive links between textual information and the geospatial data 

supporting and describing the text; 

• Utilize decision support tools; 

• Take advantage of a centralized library of multiple document templates and other items; 

• Identify and reuse content; and 

• Manage records to comply with the National Archive and Records Administration’s 

requirements. 

These tasks as well as the content re-use should aid the BLM with reducing the amount of time, 

and therefore the costs, required to produce a Resource Management Plan. The BLM 

anticipates that e-Planning will also provide better collaboration with cooperating agencies and 

the public by making land use and NEPA documentation available 24 hours a day, seven days a 

week. Capital Asset Justification for the BLM’s major IT investments can be viewed at 

http://www.doi.gov/ocio/cp/index.html. 

Asset Management

As part of Executive Order 13327 – Federal Real Property Asset Management of February 6, 

2004, the BLM has developed an Asset Management Plan (AMP) to promote the efficient and 

economical use of Federal real property resources in accordance with their value as national 

assets. The objectives of the AMP are to assist in managing the BLM's portfolio of constructed 

assets; to reduce non-mission dependent assets; and to improve the condition of mission critical 

and mission dependent assets. The expected result is an inventory of constructed assets at the 

right size, in good condition, and which can be managed at an appropriate cost to meet BLM 

mission needs. The AMP addresses the need to have an accurate inventory of BLM 

constructed assets and articulates the BLM strategy and plan of action for improving the 

management and conditions of these assets. The plan utilizes two key indices that assess 

those assets which have the highest priority to the BLM mission and those that can possibly be 

disposed of, and the physical condition of these assets. The two indices are the Asset Priority 

Index (API), which assists the manager in assessing the priority, or level of importance of 

constructed assets; and the Facility Condition Index (FCI), which is a ratio of needed repairs on 

an asset divided by the total value of the asset. These indicators will assist BLM in optimizing 

its Annual and Deferred Maintenance programs by disposing of unnecessary assets and 

redirecting funds to those assets that are critical to the mission of BLM. Please see the table 

below for the quantity of disposed fleet and heavy vehicle assets and the funds retained to 

purchase new more efficient assets. 

In addition to developing an Asset Management Plan, BLM maintains and updates Site-Specific 

Asset Business Plans (ABP) in compliance with the Department’s guidance. The ABP covers 

all aspects of the BLM’s real property owned and leased assets inventory. The ABP also 

provides important evidence that managers are managing Interior assets efficiently and 

effectively at each site. The BLM will continue to update and maintain a current and accurate 

inventory in the Office of Management and Budget-sponsored Federal Real Property Profile 

(FRPP) electronic database on bureau real property. Progress towards meeting the goals of the 

DOI’s Asset Management Program will be measured in accordance with metrics in the DOI’s 

Strategic Plan. 
Bureau of Land Management 2009 Budget Justifications 

Section I –General Statement Page I - 44 

FY 2005-2007 BLM Disposed Assets: 

 Fleet & Heavy Equipment 

2005 2006 2007 Total 

Number 337 349 472 1158 

Value* $2,906,000 $3,392,000 $4,852,000 $11,150,000 

Research and Development

The DOI is using the Administration’s Research and Development (R&D) investment criteria to 

assess the value of the BLM’s R&D program. These guidelines are intended to ensure that any 

information disseminated by the BLM will be of high quality, accurate, and useable. The 

guidelines also provide the mechanism for the public to challenge the quality of the information 

used by the BLM and to receive a response to those challenges. More information about BLM’s 

R&D program is located in the cross-cutting section, as well as under a separate tab labeled 

Research and Development. 

Energy Management at Interior Facilities

As mandated in the Presidential directives of September 26, 2005, all Federal agencies shall 

institute Fuel Conservation Initiatives to conserve energy. Based upon this mandate the BLM 

has provided direction to all State and Field Offices. The direction lists specific long-term and 

short-term actions to conserve electricity, fuel oil, natural gas and fuel for vehicles and 

equipment. The BLM will also achieve energy savings through use of energy-efficient light 

bulbs. 

Fleet Transportation

The BLM currently manages a fleet of 5,244 vehicles at a cost of $40.6 million. Again in 2008, 

the BLM will require detailed fleet plans from each of its BLM State Offices. An ongoing 

initiative focuses on economic-based strategies, including: implementation of life-cycle 

replacement schedules; disposal of underutilized vehicles and vehicles that have surpassed 

their lifecycle; use of fleet performance measures; use of energy-saving practices and expanded 

use of alternate-fueled vehicles, such as a three-miles-per gallon improvement in fuel efficiency; 

and expanded focus on increased accountability for fuel costs by all offices. 

Environmental Management

The BLM issued the Environmental Management System policy in May 2006 and is currently 

working to implement a pilot in the Washington Office and in the Wyoming State Office. The 

results of the pilots will be analyzed and the BLM will move forward in implementing this System 

at all appropriate BLM organizational levels. In addition, the BLM continues to reduce 

environmental impacts of its activities through chemical reduction, environmentally preferable 

purchasing, sustainability, energy conservation, use of alternative energy sources, and 

electronic stewardship. A few of the many BLM goals and accomplishments are identified 

below. The BLM is: 

• Developing an integrated “Greening” strategy for coordinating the efforts of States, 

Centers, and the Washington Office in order to efficiently achieve the BLM’s 

environmental goals and objectives; 
Bureau of Land Management 2009 Budget Justifications 

Section I –General Statement Page I - 45 

• Reducing specific chemicals and solid waste in accordance with the pollution prevention 

and recycling provisions of the Resource Conservation and Recovery Act (RCRA), 

pertinent regulations, and Departmental directives; 

• Implementing sustainable building design principles that encompass site planning, 

building design, materials selection, and life cycle management of new structures to 

insure environmentally sustainable operations; 

• Identifying and installing energy conservation measures at all appropriate BLM facilities 

under the Energy Savings Performance Contract; 

• Using the Compliance Assessment - Safety, Health, and the Environment program as 

the primary means to conduct environmental audits, identify findings, analyze root 

causes, and monitor corrective actions in order to ensure that BLM programs and 

facilities are operating in a safe and environmentally compliant manner. 

• Achieving energy savings through use of energy-efficient light bulbs.
Bureau of Land Management 2009 Budget Justifications 

Section I –General Statement Page I - 46 

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Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-47 

EMPHASIS AREAS

The BLM’s Budget Strategy Team develops recommendations that guide the budget and 

operational priorities for the Bureau. This team advises the BLM Director and consists of 

members from all levels of the organization, including two State Directors, a Field Manager, a 

District Manager, a State Office Budget Officer, the Bureau Budget Officer, Assistant Directors 

in the Washington Office, and the Deputy Director for Operations. In spring 2007, the Budget 

Strategy Team identified the six priority emphasis areas for the next three to five years as 

follows: 1) Land Health, 2) NLCS, 3) Border Issues, 4) Energy Security, 5) Community Growth 

and 6) Non-Energy Commodity Use. The 2009-2012 emphasis areas lay out priority work that 

will allow BLM to meet the National priorities and aforementioned challenges. 

The 2009-2012 emphasis areas reflect changes since the original emphasis areas were 

developed in 2003, including revisions and development of two new emphasis areas. In 

developing the emphasis areas, the Team considered the dramatic social and ecological 

changes taking place across the West affecting the BLM’s on-the-ground work, risks and 

opportunities, identified how BLM programs can collaborate to meet the goals, identified both 

internal and possible external funding sources, and for some areas, identified criteria for 

allocating funds to priority work by state or region. The Team considered the Administration’s 

and the Secretary of the Interior’s priorities for the management of public lands, the DOI 2007-

2012 Strategic Plan, as well as the on-the-ground needs and issues identified by the BLM State 

Directors. 

Based on the 2009-2012 emphasis areas, the BLM developed initiatives and programs to be 

implemented in 2009. The emphasis areas, and many of the initiatives and programs are 

supported with funding from several budget activities and subactivities, consistent with the 

philosophy that the BLM can more effectively address land management challenges from an 

interdisciplinary perspective. This section provides a more detailed description of the major 

initiatives and programs promulgated from the 2009-2012 emphasis areas. 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-48 

Land Health 

The BLM will take a holistic, landscape-level approach to managing the public lands. This 

includes identifying key areas important for sustaining America’s wildlife resources and 

implementing a program to ensure species continue to remain healthy and resilient in light of 

continuing increased pressures on public lands. Recent drought cycles, catastrophic fires, and 

new invasions of harmful non-native species have stressed land health and taxed managers’ 

ability to ensure ecological integrity while accommodating increased demands for public land 

uses across the landscape. A new focus will be placed on giving land managers the tools they 

need to accomplish land health goals across multiple planning units, engaging partners who can 

join with the BLM in actively achieving a common landscape vision, and managing multiple 

public land uses in a way that preserves the health of the land for future generations. Private 

landowners and public land users will have increased opportunities to assist land managers in 

meeting these goals. 

Presidential Initiatives such as the Healthy Forests Initiative, National Fire Plan, Healthy Lands 

Initiative and the Northwest Forest Plan combined with existing landscape-level programs such 

as the Wyoming Landscape Conservation Initiative, the Great Basin Restoration Initiative, and 

others modeled after them, will be the primary vehicles that will drive public lands toward a new, 

sustainable level of health and productivity to meet the needs of future generations. 

The BLM will focus on land resource rehabilitation, protection, and management for multiple 

objectives including: biological diversity, preservation, and sustainable development of the 

resources. Land conservation restoration efforts are targeted towards priority watersheds to 

achieve integrated resource objectives. The BLM’s Healthy Lands Initiative is one of the many 

initiatives and programs addressing land health. 

HEALTHY LANDS INITIATIVE 

The Secretary of the Interior launched the Healthy Lands Initiative (HLI) in 2007 to accelerate 

restoration, increase productivity, and improve the health of public lands in the Western United 

States. In his announcement April 10, 2007, Interior Secretary Kempthorne said, “We 

developed the Healthy Lands Initiative to get out in front of, as well as respond to, a multitude of 

pressures on the public lands – pressures that come in the form of increased urban-suburban 

development; increased outdoor recreational activity; rising demands for energy; impacts from 

large-scale wildfires; and the effects of an ongoing weed invasion.” 

The Long Term Goal of the HLI is to preserve the diversity and productivity of public and 

private lands across the landscape. Through partnerships, BLM plans to implement land 

restoration activities that will help preclude the need to list species under the Endangered 

Species Act (ESA). One species of particular concern is the sage-grouse, whose habitat spans 

11 Western States. Many of the HLI projects will restore or improve habitat for sage-grouse and 

a number of other sagebrush-dependent species. BLM will continue to allow for managed 

development, including energy and other public land uses. 

BLM will accomplish the goal of HLI through interagency coordination (BLM, USGS, FWS and 

other appropriate federal and State agencies) to: 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-49 

• Engage cooperators and affected landowners to expand and accelerate habitat 

restoration, increase habitat connectivity, and improve habitat resilience so that wideranging species can flourish. 

• Complete regional assessments across large landscapes and jurisdictions. 

• Amend or update Land Use Plans where necessary. 

• Identify management priorities at a regional scale. 

• Strategically implement vegetation enhancement treatments at the landscape level to 

include Federal and non-Federal lands, investing time, money and effort in the areas 

that stand to reap the greatest environmental benefit. (Where appropriate, emphasis will 

be on units of the National Landscape Conservation System, National Wildlife Refuge 

System, state and local wildlife management areas, areas of connectivity and other high 

habitat value lands.) 

• Strategically focus BLM base appropriations toward the HLI emphasis areas within each 

state. 

• Help recover listed species under the Endangered Species Act and help preclude the 

need to list additional species by restoring the habitat needed by candidate, special 

status, or other species of management concern while providing for public land uses. 

• Identify species of management concern and the threats associated with them. 

• Increase opportunities to leverage cooperative solutions and funding across ownerships 

and jurisdictions by working with partners and local communities to improve vegetation 

communities. 

• Complement strategically designed habitat reclamation and mitigation projects required 

of commercial operators on public lands. 

• Help control exotic invasive plants and establish native plant communities where 

possible. 

Appropriated funds will be leveraged through partnership contributions to increase land 

restoration treatments across multiple jurisdictions. HLI has already had great success in 

bringing together partners with a shared interest in protecting, restoring, and enhancing our 

multi-resource ecosystems. In 2007, $2.0 million in partnership contributions were received in 

response to the $3.0 million in new HLI funding that BLM received. Building on this base of 

support in 2008, partners are expected to contribute $3.4 million to augment BLM HLI funding of 

$4.9 million. Increases in BLM HLI funding generally lead to proportionate increases in partner 

contributions. 

HLI is an approach to land management that increases the pace of and more effectively 

implements land health treatments by focusing on priority HLI emphasis areas at a landscape 

level with the support of multiple partners. The six HLI emphasis areas selected in 2007 - 2008 

are located in Utah, New Mexico, Southwest Wyoming, Southeast Oregon-Southwest IdahoNorthern Nevada, South-central Idaho, and western Colorado. 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-50 

These HLI emphasis areas were initially 

selected due to an urgent need to 

maintain, improve, and restore wildlife 

habitat for species of concern to help 

preclude the need to list those species by 

taking a landscape-level approach. 

Concern about habitat was spurred in part 

due to the tremendous increase in oil and 

gas development occurring within many of 

the HLI emphasis areas. 

Continued implementation of HLI will: 

• Concentrate restoration efforts in 

strategic areas that will provide the 

maximum benefit to species of 

concern. 

• Leverage new and continuing 

partnership funding and 

demonstrate a variety of models of success. 

2007 – 2008 HLI Emphasis Areas 

• Establish or enhance existing partnerships so that multiple jurisdictions are included in 

the restoration/reclamation efforts. 

• Reduce BLM’s overall unit cost for treatments through economies of scale achieved 

through the utilization of one contract for all partners. 

Critical Factors 

The management of natural resources is always subject to climatic conditions and changes. 

The Western States have experienced extreme drought conditions for several years. In 

addition, the frequency of wildfires and the expansion of invasive weeds directly affect the timing 

and type of land health treatments. During times of frequent wildfires, planned land health 

treatments may be foregone to ensure that emergency stabilization of public lands can take 

place. For example in 2007, Utah experienced wildfires in locations planned for land health 

treatments. Litigation also may delay or cancel planned land health treatments. 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-51 

RESTORE NEW MEXICO: Pecos District, A Healthy Lands Initiative Success Story

Conservation - Protection of Large Scale, Multi-Resource Ecosystems: The Pecos District staff has 

identified priority landscapes and watersheds as having significant invasive shrub encroachment into the 

desert grassland. Eliminating targeted invasive species results in flourishing native grasses and forbs, 

restored biodiversity, enhanced wildlife habitat, increased water flow and water quality due to increased 

soil infiltration, and decreased erosion. 

Connectivity - Reduced Habitat Fragmentation: Working closely with private, state, and other federal 

partners, wildlife habitat fragmentation was reduced through the treatment of 40,000 acres of BLM, 9,043 

acres of private and State land, and 12,013 acres of other federal lands. Treatments were conducted in 

habitat for the Federally listed Aplomando Falcon and in habitat for the Lesser Prairie Chicken, a 

Candidate species. 

Partnerships: New Mexico BLM is engaging partners and inviting the public to participate in the 

restoration of the habitat on public and private lands. Healthy Lands Initiative partners in New Mexico 

consist of nine key organizations and groups, and many individuals who have each contributed in their 

own significant and unique way: 

• New Mexico Association of Conservation Districts 

• Natural Resources Conservation Service 

• Carlsbad Soil and Water Conservation District 

• New Mexico State Land Office 

• New Mexico Department of Game and Fish 

• Southeastern New Mexico Ranching Community 

• Energy and Power Industry Partners 

• Bureau of Land Management: Pecos District, New Mexico 

• County Agencies

Mesquite invades and degrades 

sites. 

After mesquite was sprayed and 

killed, native plants flourish. 

Transparency – Better Public and Stakeholder Involvement at all Stages: Partners were involved early, 

through the processes of environmental planning, conducting landscape assessments, and monitoring. 

The NEPA process allows for grassland restoration projects proposed by BLM staff in consultation with 

the ranchers and other affected users to be reviewed by the community of interested parties. Upon 

completion of review, the parties worked together to identify areas where brush infestation is more 

prevalent and can benefit the most from proposed treatments. 

Application – Across BLM Lands and Other Jurisdictions as Appropriate: 61,056 acres within the priority 

landscapes in southwestern New Mexico were treated for the invasive species mesquite. Significant 

progress has come from partners working together, focusing on a landscape scale. 

Key restoration accomplishments include: 

• Reversing the expansion of invasive and exotic plant species. 

• Reversing habitat fragmentation. 

• Restoring native habitat for wildlife and endangered species. 

• Improving water quality and quantity.
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-52 

Coordination with other Federal Agencies 

The work of the USGS and the FWS are critical to the success of HLI. In 2009, USGS is 

proposing a funding level of $5.0 million to conduct an ecological assessment to build on the 

baseline of scientific information related to wildlife habitat and development activities in the 

Wyoming HLI emphasis area; identify strategic, integrated monitoring protocols; organize a 

regional geospatial database to store collected information and make it available to all partners; 

and organize and conduct workshops in HLI emphasis areas to identify needs and appropriate 

science to meet HLI goals. 

FWS is proposing a funding level of $2.0 million in support of the Wyoming HLI emphasis area 

to provide timely planning and consultation expertise to BLM to ensure that energy development 

impacts to wildlife and habitat are effectively mitigated and to help preclude the need for listing 

of species; undertake species conservation activities on federal and non-federal lands; increase 

assistance to private landowners to improve habitat and protect species on private lands; and 

conduct fish habitat restoration projects on federal and non-federal lands. 

An excellent example of coordination with other agencies is occurring in the Wyoming HLI 

emphasis area, the Wyoming Conservation Landscape Initiative (WLCI). The USGS, FWS, 

Wyoming Game and Fish Department, and Wyoming Department of Agriculture each have an 

employee stationed at the BLM coordinating office for WLCI in Rock Springs. These employees 

are actively involved in project solicitation, project development, establishing project selection 

criteria, and project selection. Additionally, the USGS is the lead agency for the science 

strategy and will be hosting a workshop in March of 2008 to present the comprehensive 

assessment for the WLCI area, which has identified priority project areas, priority species for 

conservation action in these areas, and how projects will benefit the species of concern. 

Information from this workshop and the existing science plan will be used to identify and plan 

future projects to ensure integration of science information and on-the-ground implementation 

actions. 

Coordination with other BLM Programs 

The HLI is an integral part of many BLM programs. Each year, from 2007 – 2009, BLM is 

spending $8.2 million in base MLR subactivity program funding on similar landscape restoration 

treatments in the HLI emphasis areas in addition to the HLI funding to supporting HLI projects. 

A number of programs are working closely together to develop 2009 proposed work within the 

HLI emphasis areas. These programs are listed below. Performance measures and targets are 

reported under these programs. 

• National Landscape Conservation System (NLCS)– 

• Implementation of Integrated Weed Management Projects 

• Implementation of Restoration Projects 

• Fuels Management 

• Invasive and Noxious Weed Program 

• Wildlife and Fisheries Programs 

• Threatened and Endangered Species Program 

• Rangeland Management Program 

• Healthy Forests Initiative 

• Soil, Water, and Air Management 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-53 

HLI directly supports the BLM’s Land Health emphasis area by funding projects that improve 

habitat, watershed health, and restore landscapes. HLI supports the National Landscape 

Conservation System (NLCS) emphasis area by implementing projects across administrative 

boundaries to treat watersheds holistically. Some HLI projects are within NLCS units. HLI also 

supports the BLM’s Non-Energy Commodity Use emphasis area because treatments within 

rangeland, forests, and woodlands may produce by-products, such as thinning pinyon-juniper 

woodlands. 

Means and Strategies - The strategy for the HLI consists of three components: 

(1) HLI funding to pay for strategic, collaborative conservation and restoration activities across 

large landscapes, matched by partner contributions. 

The BLM will leverage appropriated funding with matching funds provided by other Federal 

agencies, state, local and tribal governments; philanthropic organizations; advocacy groups; 

and energy industry partners. 

(2) HLI policy tools to facilitate federal agency achievement of landscape level restoration 

goals. An entire suite of policy tools is being developed by the BLM to support HLI, including: 

• Clarification of the BLM Mitigation Policy, including off-site mitigation. 

• Clarification of the BLM use of appropriated funds for work on non-Federal lands policy. 

• Use of native plants and seeds. 

• Clarification of planning policies. 

(3) HLI assessment and planning to provide critical information on land health required for 

implementation, monitoring, and adaptive management. 

• The BLM will continue its collaborative work with the USGS, FWS, and other partners to 

refine and institutionalize the process for conducting regional assessments of ecological 

condition, trends, land stressors, and for monitoring change. 

• The BLM will identify priority regions for conducting regional assessments, and identify 

priority areas for conservation and restoration across multiple jurisdictions. 

• Complete any required planning, environmental assessment, and Threatened & 

Endangered species or cultural clearances for proposed conservation and restoration 

activities in identified priority areas. 

Criteria Used to Select Project Proposals 

Priority will be given to those HLI project proposals that: 

• Focus on regionally significant resource values. 

• Address threats to relatively intact areas or areas functioning at risk including habitat 

fragmentation, as opposed to restoring significantly deteriorated areas. 

• Contain a well-thought through three to five year program of work, including a strategy 

for sequencing projects and for tracking and reporting on accomplishments. 

• Build on existing cross-program and cross-jurisdictional partnerships. 

• Include innovative approaches to sharing resources and skills. 

• Demonstrate management capacity and commitment. 

Funding – In 2007 BLM used $3.0 million to establish a new subactivity for HLI to track fund 

distribution, performance, and accomplishments. In 2008 and beyond, the HLI subactivity is 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-54 

dropped, and funds will be distributed and tracked in existing BLM MLR subactivities as directed 

by Congress. 

BLM leverages appropriated base program funding with matching funding provided by other 

Federal agencies, State, local and tribal governments; philanthropic organizations; advocacy 

groups; and energy industry partners. 

In 2009, the landscape restoration component of the HLI is expanded to seven geographic 

locations and a $10.0 million increase is requested for a total of $14.9 million in HLI funding in 

addition to the $8.2 million in funding used for HLI restoration activities from other base 

subactivity funding. California (Modoc Plateau, San Joaquin Valley, and California Desert 

areas) will be added as an HLI emphasis area to the six 2008 HLI emphasis areas, and the 

northwest portion of Colorado will be added to the Colorado HLI emphasis area. 

Strategic Plan – The Initiative supports three of the Department’s Strategic Plan mission areas: 

• Resource Protection: by improving the health of watersheds and landscapes which are 

DOI-managed or influenced in a manner consistent with obligations regarding the 

allocation and use of water. 

• Resource Use: by managing or influencing resource use to enhance public benefit, 

promote responsible use, and ensure optimal value. 

• Serving Communities: through increasing economic self-sufficiency of local areas. 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-55 

HLI FUNDING 

SUBACTIVITY 2007 ACTUAL 2008 ENACTED 2009 PB 

HLI $3,000,000 N/A N/A

SOIL, WATER, AIR N/A 0 $3,000,000

RANGE N/A $2,461,000 $2,961,000

FORESTRY N/A 0 $150,000

RIPARIAN N/A $492,000 1,992,000

WILDLIFE N/A $1,477,000 $5,977,000

FISHERIES N/A $492,000 $292,000

THREATENED &

ENDANGERED 

SPECIES N/A 0 $550,000

TOTAL – NEW HLI 

FUNDING $3,000,000 $4,922,000 $14,922,000

BASE FUNDING FROM 

VARIOUS MLR

SUBACTIVITIES est.$8,200,000 est.$8,200,000 est.$8,200,000

TOTAL BLM HLI

FUNDING $11,200,000 $12,922,000 $22,922,000

PARTNER 

CONTRIBUTIONS $2,000,000 est.$3,400,000 est.$10,000,000

FUND DISTRIBUTION 

BY EMPHASIS AREA

2007 ACTUAL 2008 ENACTED 2009 PB 

CALIFORNIA N/A N/A $1,422,000

COLORADO LANDSCAPE 

CONSERVATION INITIATIVE $325,000 $394,000 $2,000,000

SOUTHERN IDAHO/SNAKE 

RIVER PLAIN $380,000 $373,000

$1,500,000

RESTORE NEW MEXICO $1,000,000 $1,398,000 $3,500,000

UTAH WATERSHED 

RESTORATION INITIATIVE $439,000 $738,000 $2,000,000

SW WYOMING LANDSCAPE 

CONSERVATION INITIATIVE $402,000 $1,231,000 $2,000,000

OR-ID-NV COOPERATIVE 

SHRUB-STEPPE 

RESTORATION INITIATIVE $454,000 $600,000 $2,500,000

TOTAL – NEW HLI 

FUNDING $3,000,000 $4,922,000 $14,922,000
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-56 

HLI Accomplishments and Plans for the 

Future 

2007

In 2007, HLI funding of $3.0 million served as 

a catalyst to integrate work internally across 

programs and externally across ownerships 

to accomplish more land health treatments 

than any one program or entity could 

accomplish alone. Working together, 

programs and partners planned and executed 

landscape level treatments in priority areas 

within critical watersheds. The $3.0 million 

HLI funding in 2007 directly paid for 

treatments on 72,000 acres of BLM land. 

The treatments included: improving wildlife 

habitat and vegetative conditions on 48,136 

acres of shrub/grass/woodland; reducing fuels and improving the composition of herbaceous 

vegetation on 18,377 acres outside the wildland urban interface (WUI) and 4,986 acres within 

the WUI; and improving 580 acres of wetlands. In addition, partnership contributions and 

cooperation resulted in treatments on non-BLM lands within the same critical watersheds as the 

treated BLM lands, further enhancing and improving priority wildlife habitat, and reducing habitat 

fragmentation. Multiple, large scale contracts for land treatments act as incentives to 

businesses to decrease per acre prices and bid competitively which further benefits BLM and 

opens the door for more land health treatments. 

Grasses are progressing towards a restored condition 

in an Idaho HLI project. 

As just one example of how the states are creating a snowball effect with the new HLI funding, 

in 2007 BLM New Mexico used a $1.0 million HLI distribution to successfully treat over 52,000 

acres of Federal land and 9,043 acres of private and state lands using aerial herbicide 

applications to spray mesquite brush that is invading native grasslands. BLM conducted the 

mesquite control in a watershed that is habitat for a Federal Candidate Species, the Lesser 

Prairie Chicken. Then, by using the $1.0 million as a catalyst, BLM New Mexico leveraged 

additional funding and resources totaling approximately $5.75 million from base MLR 

subactivities and external partners ($1.3 million from the Natural Resource Conservation 

Service, $146,000 from New Mexico Game and Fish Department, $4.3 million MLR) to complete 

an additional 210,000 acres of landscape treatments. 

Included in the additional 210,000 acres treated are the following: 

• About 30,000 acres were aerially sprayed to improve habitat for the Lesser Prairie 

Chicken and the Sand Dune Lizard, a species of management concern. 

• 500 acres of land that had been impacted by old oil and gas activities was reclaimed, 

resulting in habitat improvement and defragmentation of 50,000 acres of Lesser Prairie 

Chicken habitat. 

• 60,000 acres of creosote, an invasive shrub species, was aerially sprayed to restore 

watershed and rangeland health in the Joranado watershed northeast of Las Cruces.
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-57 

2008

In 2008, BLM received $4.9 million for HLI, as well as about $8.2 million in other base 

subactivities, to implement HLI restoration activities. Continued funding cements the foundation 

that BLM is building with myriad partners. The strength of partnerships – a unique blend of 

industry, government, tribal, academic, conservation groups, and individuals – is in its diversity 

and determination to focus national attention and resources on restoring land health. BLM is 

demonstrating a commitment to improving the health of the land across ownerships on a scale 

that will make a significant difference in achieving the goals of protecting, restoring, and 

enhancing multi-resource ecosystems. 

2008 new HLI funding will accomplish the following activities on BLM lands in six HLI emphasis 

areas: 

• Improve 123,000 acres of shrub/grass/woodlands. 

• Apply invasive species control treatments on 5,000 acres. 

• Enhance 77 miles of streams. 

In addition, other MLR base funding of about $8.2 million and partnership funding will expand 

the size of the area to be improved. 

For the most part, 2007 and 2008 HLI treatments fall into the general categories of rangeland 

and vegetation improvements, riparian and watershed improvements, wildlife habitat 

improvement plans, and invasive weed treatments. 

Stage Road Sagebrush Project: planting 

sagebrush seedlings with a water wheel 

planter. Idaho Falls District. 

Rotomowing a fuels break in the Big Desert project 

area in Southeastern Idaho. 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-58 

Big Desert - An HLI Success Story 

Restoring Sage-Grouse Habitat in Southeastern Idaho 

The Big Desert Sage-grouse Planning Area in Southeastern Idaho is within the Southern Idaho 

Snake River Plain HLI area and includes nearly 850,000 acres of land that was a relatively intact 

stronghold for sage-grouse, a species of management concern, and other sagebrush dependent 

species. That changed from1990-2003 when 63 percent of the Big Desert Sage-grouse Planning 

Area burned at least once and several large blocks of rangeland burned twice. Additional wildfires 

have occurred since 2003. 

Healthy Lands Initiative funds were used starting in 2007 to accelerate the restoration of burned 

areas where cheatgrass encroachment was precluding natural recovery of sagebrush-steppe 

vegetation. The Crystal Sage-Grouse Restoration HLI project treated 9,200 acres of degraded 

sagebrush steppe, using heavy livestock grazing followed by an application of Roundup herbicide 

to greatly reduce cheatgrass infestation. 2008 HLI funds were then used to seed a native species 

seed mix, including sagebrush, on the Crystal Sage-Grouse Restoration project in the fall of 

2007. 

Other 2008 projects approved for HLI funding in the Big Desert include the Stage Road SageGrouse Restoration Project, a 2,000 acre native seeding project, and the Big Desert Rotomowing 

Project that includes strategic reduction of heavy fuels along critical roads in the Big Desert. The 

rotomower is a large mower that attaches to a rubber-tired tractor. Rotomowing of fuel breaks will 

lessen the probability of future fires on nearly 20,000 acres, including the restoration projects that 

have recently been completed. 

BLM partners in all of these projects included Craters of the Moon National Park, BLM livestock 

permittees, and Idaho Department of Fish and Game. 

These HLI projects are located strategically within the Big Desert and complement the other 

Fuels and Emergency Stabilization and Rehabilitation (ES&R) projects that have been 

implemented since 1990 when the large wildfires started. The Mule Butte ES&R/Fuels 

restoration project (6,000 acres) completed in 1999-2001 is adjacent to the Crystal Sage-Grouse 

Restoration project. The 2007 Homestead ES&R project (1,300 acres) and the combined No.2 

well, Round Butte, Stage Road, and Eastside Sheep fire rehabilitation and fuels treatments 

projects total 14,000 acres and are strategically located within the Big Desert. 

The combined HLI, ES&R, and Fuels treatment projects within the Big Desert will greatly lessen 

the potential loss of remaining unburned sagebrush habitat and assist in the long-term recovery 

of the seeded areas. This matrix of projects encompasses a significant portion of the Big Desert 

and is designed to reduce the incidence and scale of wildfires and improve the condition and 

coverage of sage-grouse and native sagebrush habitat. 

2009

The 2009 budget request for the Healthy Lands Initiative (HLI) is $14,922,000, a net program 

change of +$10,000,000 from the 2008 enacted. This funding level would enable BLM to 

launch aggressive landscape-scale habitat enhancement projects and potentially to secure 

additional funding from non-governmental partners, which are critical to BLM efforts and 

efficiencies of scale. This funding is required to continue to move ecosystems in decline to 

renewed vigor and abundance, at a level significant enough to make a difference on expansive 

landscapes. 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-59 

The BLM will focus HLI appropriations on priorities established by the Director. 2009 priorities 

include treatments designed to: 

• Increase the functioning or the restoration of sage-grouse habitat. 

• Mitigate impacts associated with development of energy resources and the 

expansion of communities into wildland urban interface areas. 

• Restore resiliency to vegetative communities after natural events such as wildfire 

and the invasion of noxious weeds. 

In 2009, the BLM will continue the 

institutionalization of the landscape level 

land health treatments that characterize 

HLI, a process begun in 2008. In part, this 

will be accomplished through the 

implementation of recently completed Land 

Use Plans, the amendment of plans where 

necessary, and the maintenance of plans 

within the normal Land Use Planning cycle. 

Map of the Seven HLI Emphasis Areas in 

2009 with Northwest Colorado & California

Additionally, the BLM will continue focusing 

base appropriations on land health 

treatments within the HLI context. 

Landscapes determined to be priority areas 

for restoration or rehabilitation will require 

the focus of many BLM programs. At least 

$8.2 million of appropriated base funds will 

be directed toward land health improvement 

goals within the HLI emphasis areas in 

2009. 

Work Proposed for 2009 with $14.9 Million – 

• 275,261 acres of shrub/grass vegetation treatments would be applied. 

• 28,385 acres of forest/woodland would be restored 

• 50,153 acres of weed treatments would be applied.

• 2,790 acres of wetlands would be treated 

• 48 miles of streams would be treated 

• 19 shrub/grass/forest projects would be constructed 

• 45 shrub, grass, forest projects would be maintained 

• 48 lake, stream, riparian projects would be constructed 

• 44 lake, stream, riparian projects would be maintained 

• 40 Species Recovery/Conservation actions would be implemented that would include 

habitat improvements for desert tortoise, Peninsular Range Bighorn Sheep, desert 

pupfish, Armargosa vole, and sage-grouse. 

• 30,200 forest/woodland treatments would be evaluated 

• 72,065 weed treatments would be evaluated 

• 122,100 shrub/grass treatments would be monitored 

BLM’s preliminary estimate is that partner contributions will be approximately $10.0 million in 

2009. This is a preliminary estimate as State legislatures and non-profit groups have not 

allocated funds yet for 2009. 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-60 

An HLI Aspen restoration treatment in Wyoming. 

A description of each 2009 HLI emphasis area follows: 

Southwest Wyoming Landscape Conservation Initiative ($2,000,000/+3 FTE) 

In 2006 the BLM, U.S. Geological Survey (USGS), U.S. Fish and Wildlife Service (FWS), U.S. 

Forest Service, and the Wyoming Fish and Game Department began developing a new initiative 

to protect wildlife habitat in Southwest Wyoming called the Wyoming Landscape Conservation 

Initiative (WLCI). Increased energy development on private and public lands was driving the 

need for restoration and habitat 

enhancement projects. The WLCI is helping 

to sustain and improve Wyoming’s habitat 

conditions and species distributions and 

viability on a broad scale. This complements 

existing habitat reclamation and mitigation 

efforts required of energy development 

companies. 

WLCI actions cross many agency 

jurisdictions. USGS and FWS are crucial 

partners. These agencies are developing 

adaptive management approaches to ensure 

the long-term viability of wildlife habitat. 

They also assist in planning and consultation 

to prevent the need to list species as energy resources are developed. The FWS will increase 

assistance to private landowners to improve habitat and protect species on private lands. The 

USGS will provide science support to the BLM by conducting inventories of species and habitat, 

monitoring land resources and species, and synthesizing habitat and energy information. The 

Wyoming Game and Fish Department has identified priority habitats for treatment and 

conservation efforts, providing staff support for project identification and coordination, as well as 

building partner support and providing direction for management of non-agency contributed 

funds. They lead a science and technology advisory committee of agency specialists that 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-61 

provide oversight to the science plan preparation and its periodic updates. The Wyoming 

Department of Agriculture has been working with the agriculture community to acquire data and 

information as well as provide project input. The U.S. Forest Service has identified key habitat 

areas for assessment and treatment. Together, these agencies participate in strategies and 

actions to maintain and improve area landscapes.

WLCI’s long-term goals are to: 

• Implement the habitat enhancements in support of Wyoming’s Comprehensive Wildlife 

Conservation Strategy, Wyoming’s Sage Grouse Conservation Plan, BLM’s Resource 

Management Plans, Forest Plans, and the WLCI science plan, on a landscape scale. 

• Complete a comprehensive assessment of resources and activities in the WLCI area to 

help identify focus areas for future action. 

• Implement monitoring protocols to determine the effectiveness of on-the-ground actions 

and in support of adaptive management. 

• Continue to develop a collaborative approach to management on a landscape scale, 

embracing all land ownerships and parties. 

• Support implementation of existing wildlife and vegetation improvement projects, initially 

focusing on riparian/aquatic, sagebrush, mountain shrub and aspen habitats. 

• Develop an outreach strategy to inform all parties of WLCI progress and engage partners 

in activities. 

In 2009, WLCI will complete stream and wetland improvement projects; conduct invasive 

species, hazardous fuels, and vegetation treatments; and implement special status species 

recovery actions on BLM, other agency, private and state lands. These actions will facilitate 

providing for healthy lands on a landscape scale. BLM funding will support the development 

and expansion of the treatments and conservation actions that are currently being accomplished 

and will aid in the development and expansion of treatment alternatives that are in the planning 

process. BLM other subactivity funding will support the WLCI coordinator position, NEPA, 

cultural and budget assistance, field positions for expertise in project planning and design, in 

addition to on the ground implementation. 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-62 

Sagebrush Emphasis Areas in Wyoming 

Performance with HLI funds alone – additional performance from other subactivities not shown in this Table. 

Public acres within emphasis area managed by the BLM – 8,016,565. 

2007 2008 2009 

Healthy Lands Initiative Funding – Planned and Requested $402,000 $1,250,000 $2,000,000 

JA – Acres of Shrub, Grass, Woodland Treated 0 9,900 2,200

JB – Number of Shrub, Grass, Forest Projects Constructed 2 0 1 

JC – Number of Shrub, Grass, Forest Projects Maintained 0 1 0 

JD – Acres of Weeds Treated 795 700 3,100 

JF – Number of Wetlands Treated 20 10 10 

JG – Miles of Stream, Riparian Treated 0 49 4 

JH – Number of Riparian Projects Constructed 3 6 6 

JI – Number of Lake, Stream, Riparian Projects Maintained 0 0 10 

JM – Acres of Fuels Treated with Prescribed Fire (non-WUI) 1,010 0 0 

JN – Acres of Woodland Restored 500 500 5,000 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-63 

Restore New Mexico ($3,500,000/+2 FTE) 

Much of the public land in New Mexico needs some restoration activity to help return these 

lands to a healthier natural state. Creosote, mesquite and juniper trees are dominating 

landscapes that used to be grasslands and salt cedar has replaced native riparian vegetation 

along streams and rivers. These disturbed areas cannot support the numbers of fish and wildlife 

the state used to have. 

Begun in 2006 with base funding, “Restore 

New Mexico” is a large-scale, crossjurisdictional restoration program developed 

to address this problem. The primary focus of 

the program is on restoring rangeland and 

watershed health through the treatment of 

invasive and exotic brush species, including 

mesquite, juniper, creosote, and salt cedar. 

A second focus involves working with the oil 

and gas industry to reclaim lands impacted 

by historic oil and gas development. 

The HLI restoration activities improve habitat for the Lesser Prairie Chicken, a candidate 

species under the Endangered Species Act, and 

may help preclude the need to list the species as 

threatened or endangered. These activities help 

native wildlife such as such as antelope, turkey, 

bighorn sheep, native cutthroat trout, and river 

otters return to areas where they used to occur. 

Permian Basin 

New Mexico 

Supporters of this project include the U.S. Fish and 

Wildlife Service, the Natural Resources 

Conservation Service, the New Mexico Department 

of Fish and Game, the New Mexico Association of 

Conservation Districts, Soil and Water 

Conservation Districts, the New Mexico State Land 

Office, The Navajo Nation, the Bureau of Indian 

Affairs, local ranchers, the oil and gas industry, researchers and conservation organizations. 

Wildlife-Energy Interface Emphasis Areas in New Mexico

Performance with HLI funds alone – additional performance from other subactivities not shown in this Table. 

Public acres within emphasis area managed by the BLM – 5,100,000. 

2007 2008 2009 

Healthy Lands Initiative Funding – Planned and Requested $1,000,000 $1,420,000 $3,500,000 

JA – Acres of Shrub, Grass, Woodland Treatment applied 40,000 48,730 132,320 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-64 

Utah Watershed Restoration Initiative ($2,000,000/+3 FTE) 

The Utah Watershed Restoration Initiative began in 2004 to maintain and enhance watersheds 

statewide. The Initiative partners, the Utah Partners for Conservation and Development 

(UPCD), consist of seven Federal agencies, eight State agencies, private landowners, Utah 

State University Extension Service, and private organizations including Trout Unlimited. The 

Restoration Initiative targets decadent sagebrush and encroaching pinyon-juniper woodlands in 

"focus areas" that have been selected for their wildlife value. Special emphasis is being placed 

on crucial sage-grouse and mule deer 

habitats. 

In 2007, UPCD treated 154,000 acres, 

including approximately 66,000 acres of BLM 

land. Utah BLM treated 4,900 acres using 

new HLI funds. The State of Utah Legislature 

has provided over $4.0 million for watershed 

restoration since 2005. Statewide 

collaboration has resulted in over 500,000 

acres of public lands treated since 2003. The 

long term goal is to improve the health and 

functionality of Utah’s watersheds. 

Vegetation restoration methods included the 

removal of encroaching juniper through hand-cutting or mechanical treatments such as bull hog 

or brush saws; Dixie harrow treatments; green stripping to reduce fire hazard; and various other 

methods depending on the physical and biological characteristics of each individual site and the 

recommendations of local restoration experts. Reseeding is accomplished using seed mixtures 

developed for each site. 

Utah HLI funding is an investment in a solid foundation built for success. All the elements 

necessary for successful implementation of landscape restoration are in place, including the 

organization, process, internal and external support, long term State and private organization 

funding, and proven science and treatment methods. Utah HLI funding will likely be matched at 

a ratio greater than 1:1. 

Results of the restoration treatments include: increased water quality and quantity; decreased 

silt deposition in streams and reservoirs; a return to healthy rangeland conditions with a mix of 

desired species; protection of at-risk natural sites; and improved habitat to support mule deer, 

sage-grouse, and other wildlife populations, as well as wild horses. These, coupled with the 

reduction of forage competition between livestock and wildlife, are just some of the benefits of 

the treatments. Another major benefit is reduction of the risk of species (These include 

Gunnison’s and greater sage-grouse and pygmy rabbit—which are dependent on sagebrush 

habitat—as well as a host of endemic plants that occupy the sage-steppe ecosystem.) from 

becoming listed under the Endangered Species Act. 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-65 

Sagebrush Emphasis Areas in Utah

Performance with HLI funds alone – additional performance from other subactivities not shown in this Table. 

Public acres within emphasis area managed by the BLM –22,000,000, which includes the entire state of Utah. 

2007 2008 2009 

Healthy Lands Initiative Funding – Planned and Requested $439,000 $750,000 $2,000,000 

JA – Acres of Shrub, Grass, Woodland Treated 0 12,196 30,000 

JB – Number of Shrub, Grass, Forest Projects Constructed 0 0 18 

JC – Number of Shrub, Grass, Forest Projects Maintained 0 7 15 

JD – Acres of Weeds Treated 0 200 30,000 

JE – Acres of Forests Woodland Restored through Sales 0 0 20,000 

JF – Number of Wetlands Treated 0 0 1,400 

JG – Miles of Stream, Riparian Treated 0 6 12 

JH – Number of Riparian Projects Constructed 0 0 12 

JI – Number of Lake, Stream, Riparian Projects Maintained 0 0 2 

JN – Acres of Woodland Restored 0 0 3,000 

JP – Number Recovery/Conservation Actions Implemented 0 0 3 

JQ – Acres of Fuels Treated Mechanically (non-WUI) 3,167 0 0 

JT – Acres of Fuels Treated Mechanically (WUI) 1,886 0 0 

Wildlife-Energy Interface Emphasis Areas in Utah

2007 2008 2009 

JA – Acres of Shrub, Grass, Woodland Treated 0 4,065 10,000 

JC – Number of Shrub, Grass, Forest Projects Maintained 3 10 

JG – Miles of Stream, Riparian Treated 0 4 12 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-66 

SE Oregon, SW Idaho, and N. Nevada Cooperative 

 Shrub-Steppe Restoration Partnership ($2,500,000/+2 FTE)

The SE Oregon, SW Idaho, and N. Nevada Cooperative Shrub-Steppe Restoration Partnership 

emphasis area includes the three-state contiguous areas containing occupied sage-grouse 

habitat identified in BLM's National Sage-Grouse Habitat Conservation Strategy. The 

Partnership will accelerate implementation of the 

three states’ sage-grouse conservation plans. 

Sagebrush shrub-steppe habitat is vital to ensure 

viable populations of sage-grouse to preclude the 

need to list this and other sagebrush obligate 

species. 

The Shrub-Steppe Restoration Partnership Area 

provides a stronghold for sagebrush-dependent 

wildlife species. This three-state area 

encompasses 53.5 million acres, roughly 50 

percent of the remaining sagebrush-steppe habitat 

in the Great Basin. The diversity and integrity of 

the plant communities in this area support crucial 

habitat for large populations of sage-grouse, mule 

deer, pronghorn antelope, and numerous land 

birds such as the Sage Sparrow and Brewers’ 

Sparrow. At the same time, this area is important 

to the livelihood of local communities. These 

lands provide significant economic benefits to 

local communities from livestock grazing to 

hunting, mineral extraction, and recreational uses. 

The Partnership area experienced a severe 

wildfire season in 2007, partially due to increased fuels buildup from invasive species such as 

cheatgrass and vast shrub areas that provide a continuous fuel source. A long-term effort will 

be required to restore ecosystem function. This requires an integrated program to restore and 

maintain ecosystem function through management actions such as fuel reduction, 

reestablishing native vegetative species, and treating invasive annual grasses, noxious weeds, 

and reducing coniferous encroachment in important habitats. 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-67 

2009 Cooperative Shrub-Steppe Restoration Partnership Activities 

• Partner with local sage-grouse working groups, Federal agencies, and the scientific community 

to accelerate implementation of habitat restoration projects identified in State and local sagegrouse conservation plans. 

• Engage tribes, conservation organizations, and other State and Federal agencies to 

strategically select and implement land treatments to maintain and restore the upland and riparian 

components of these shrub lands. 

• Build upon existing programs and initiatives, such as the BLM’s Great Basin Restoration 

Initiative, to implement a landscape-restoration strategy. 

• Leverage funds to build on current successes to maximize the positive benefits of restoration at 

the largest scale.

Project work includes Federal, State and private lands, and is coordinated with established 

State Game and Fish agency Implementation Teams and Working Groups. Work will also be 

coordinated with local private conservation organizations such as the Intermountain West Joint 

Venture (Implementation Plan for Bird Conservation in Eastern Oregon). By working with state 

agencies, conservation organizations, and private landowners at a regional scale, BLM can 

better leverage funds and other resources to achieve results across the landscape. 

Sagebrush Emphasis Areas in Oregon-Idaho-Nevada 

Performance with HLI funds alone – additional performance from other subactivities not shown in this Table. 

Public acres within emphasis area managed by the BLM – 83,323,816. 

2007 2008 2009 

Healthy Lands Initiative Funding – Planned and Requested $454,000 $600,000 $2,500,000 

JA – Acres of Shrub, Grass, Woodland Treated 1,000 7,722 10,081

JC – Number of Shrub, Grass, Forest Projects Maintained 0 0 20 

JD – Acres of Weeds Treated 527 0 10,000 

JE – Acres of Forests Woodland Restored through Sales 0 0 35 

JH – Number of Riparian Projects Constructed 0 2 2 

JI - Number of Lake, Stream, Riparian Projects Maintained 0 0 7 

JW – Acres of Fuel Treated with Prescribed Fire (WUI) 2,100 0 0 

JZ – Native Plant Material Collection 0 3 0 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-68 

Southern Idaho / Snake River Plain Emphasis Area ($1,500,000/+1 FTE)

The Southern Idaho-Snake River Plain Healthy Lands Initiative is a coordinated, landscapelevel effort to maintain, improve, and restore the sagebrush-steppe rangelands of southern 

Idaho. 

This initiative will accelerate implementation of 

the Idaho State Sage-grouse Conservation 

Plan and will expand ongoing partnerships 

among Idaho citizens, private landowners, and 

local, state, and Federal governments. 

Southern Idaho contains millions of acres of 

sagebrush-steppe rangelands that are vital 

habitat for sage-grouse and other wildlife and 

plant species. These species include pygmy 

rabbit, mule deer, pronghorn antelope, blacktailed jackrabbit and numerous sagebrush dependent non-game species. Their future is directly 

connected to the long-term integrity and health of Idaho’s sagebrush-steppe. 

BLM will expand partnerships to: 

• Increase the amount of land treatments that can be completed in each geographic area. 

• Facilitate best-management practices for all land uses. 

• Conduct efficient science-based monitoring. 

• Maintain and update habitat management plans based on new information and 

technologies. 

In 2009, Southern Idaho/Snake River Plain HLI will emphasize the protection and maintenance 

of habitats; conduct inventory for out year projects; restore important habitats to improve 

connectivity; maintain and expand partnerships; implement projects that enable management to 

make adjustments to livestock grazing systems to achieve Standards of Rangeland Health; 

reduce juniper encroachment into sagebrush habitats; and expand upon activities already 

ongoing within the HLI landscapes. 

Sagebrush Emphasis Areas in Southern Idaho- Snake River Plain 

Performance with HLI funds alone – additional performance from other subactivities not shown in this Table. 

Public acres within emphasis area managed by the BLM – 6,261,002 

2007 2008 2009 

Healthy Lands Initiative Funding – Planned and Requested $380,000 $580,000 $1,500,000 

JA - Acres of Shrub, Grass, Woodland Treated 3,500 36,275 63,360 

JD – Acres of Weed Treated 60 3,875 1,250 

JG – Miles of Stream, Riparian Treated 0 0 1 

JH – Number of Riparian Projects Constructed 0 0 1 

JI - Number of Lake, Stream, Riparian Projects Maintained 0 0 25 

JM – Acres of Fuels Treated with Prescribed Fire (non-WUI) 2,000 0 0 

JQ – Acres of Fuels Treated Mechanically (non-WUI) 3,000 0 0 

JR – Acres of Fuels Treated by Other Means (non-WUI) 9,200 0 0 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-69 

Colorado Landscape Conservation Initiative ($2,000,000/+1 FTE) 

The Colorado Landscape Conservation Initiative provides an opportunity for BLM to address 

land stewardship and conservation priorities on an important landscape, consistent with the 

Bureau’s multiple use mission. The BLM, Colorado Division of Wildlife, and other Federal, State 

and private partners have been working collaboratively to restore, enhance, and protect habitats 

through conservation planning efforts and partnerships. Increased development and land uses 

related to energy, mining, recreation and population growth have placed more demands on 

natural resources and accelerated the need to invest additional dollars to sustain and improve 

habitat conditions. 

This effort would complement habitat reclamation and mitigation efforts required of energy 

development companies when developing federal minerals. Several comprehensive 

conservation planning documents are available to help achieve management objectives, 

priorities, and desired outcomes. 

 

Southwest Colorado has been a HLI emphasis area 

since 2007. Management efforts focus on providing 

and improving quality habitat for diverse wildlife 

populations, including seven of the eight remaining 

populations of Gunnison sage-grouse in the world, 

as well as desert bighorn sheep, lynx, Rio Grande 

cutthroat trout, Kachina daisy and numerous special 

status species. Partners are working collaboratively 

to restore, enhance and protect key habitats through 

conservation planning efforts, project 

implementation and partnerships. The Southwest 

Colorado landscape encompasses 20.5 million 

acres of mixed ownership, including roughly 4 million acres managed by the BLM. This area is 

the first priority under the HLI for Colorado. 

Northwest Colorado is added to the Southwest Colorado HLI emphasis area in 2009. Northwest 

Colorado also provides quality habitat for diverse wildlife species and maintains the largest 

populations of greater sage-grouse and big game in the state. Several areas within this 

landscape overlap high quality oil and gas resources, as well as significant oil shale reserves. 

Proposed development across large areas of the landscape threatens to displace and/or 

otherwise impact existing wildlife and their habitats. 

Management within this landscape will focus on 

maintaining wildlife resources within the energy 

interface, and enhancing areas that could serve as 

refuges for animals that are displaced. The 

Northwest Colorado landscape includes 8.3 million 

acres, and roughly 3.5 million acres of BLM 

managed lands. Management in this landscape 

under Healthy Lands Initiative is the second priority 

within Colorado. 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-70 

Colorado’s Planned Activities and Opportunities 

• Prioritize and implement appropriate habitat treatment projects to enhance existing resources or 

restore former habitat conditions. 

• Implement effective weed management efforts across the area. 

• Expand the native-seed program through the Uncompahgre Plateau Project to facilitate the development 

and use of native seed in reclamation efforts across the landscape. 

• Pool resources to investigate and/or pursue conservation easements or opportunities to protect key 

habitats across the landscape. 

• Work with partners to ensure that project implementation and habitat management is planned and 

occurs across ownership boundaries to maximize effectiveness across the landscape. 

• Expand knowledge of resource conditions on the landscape and identify habitat objectives for the future. 

• Monitor the effectiveness of treatments within area and adapt management accordingly.

Sagebrush Emphasis Areas in Colorado 

Performance with HLI funds alone – additional performance from other subactivities not shown in this Table. 

Public acres within emphasis area managed by the BLM – 7,787,365 

2007 2008 2009 

Healthy Lands Initiative Funding – Planned and Requested $325,000 $400,000 $2,000,000 

JA - Acres of Shrub, Grass, Woodland Treated 931 2,060 2,760 

JD - Acres of Weeds Treated 28 0 1,380 

JF – Acres of Lake/Wetlands Treated 560 560 1,380 

JG – Miles of Stream, Riparian Treated 5 12 14 

JH – Number of Riparian Projects Constructed 11 5 19 

JN - Acres of Forest and Woodlands Restored 0 0 350 

JP – Number Recovery/Conservation Actions Implemented 0 0 13 

Wildlife-Energy Interface Emphasis Areas in Colorado

2007 2008 2009 

JA – Acres of Shrub, Grass, Woodland Treated 465 1,000 1,380 

JG – Miles of Stream, Riparian Treated 0 6 7 

JH – Number of Riparian Projects Constructed 3 5 8 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-71 

California Healthy Lands Initiative ($1,422,000/+1 FTE) 

In 2009, California is a new HLI emphasis area. The California Healthy Lands Initiative is 

currently comprised of three smaller initiatives: 

(1) San Joaquin Valley Landscape Initiative, 

(2) Desert Conservation Area Landscape Initiative, and 

(3) Modoc Plateau Sagebrush Steppe Restoration Initiative. 

1) San Joaquin Valley Landscape Initiative – 

The southern San Joaquin Valley in California 

has experienced extensive land conversion to 

farming, urban, industrial and energy 

production land uses. Kern County, at the 

southern end of the valley, ranks as the sixth 

largest county in terms of oil production, fourth 

largest in agricultural production, and one of 

the top population growth counties in the 

United States. As nearly 90 percent of the 

lands of the Valley have been developed or 

converted to other uses, there are now myriad 

animals and plants listed as threatened or 

endangered under the federal and California 

Endangered Species Acts. The California State 

Office of the BLM is working with the U.S. Fish 

and Wildlife Service, California Department of 

Fish and Game (CDFG), California Energy 

Commission (CEC), California Department of 

Oil, Gas and Geothermal Resources 

(CDOGGR), and Kern County under a 

Memorandum of Understanding to develop a 

comprehensive multi-agency, public-private program to protect and conserve species of 

concern. 

The MOU partners agreed to develop a permitting program that standardizes and integrates 

federal, state, and local regulatory mechanisms for habitat conservation, habitat compensation, 

mitigation measures, and cumulative effects. The Habitat Conservation Plan (HCP) includes 

safety nets that conserve 90 percent of preserve lands as habitat, maintains habitat connections 

that will be at least one mile of width, limits additional disturbance to 25 percent of Valley Sink 

Scrub habitat, and requires specific compensation actions for each listed species until 

conservation goals are achieved. 

The HCP has developed an “Oil Strategy” that describes the regulatory mechanisms and 

conservation objectives to continue oil and gas activities within endangered species habitats. 

The foundation of this strategy is to acquire 3,000 acres of listed species habitats up front in the 

permitting process to offset 1,000 wells drilled by the industry in established oil fields and listed 

species habitats over the next several decades. Funding the implementation of the HCP and 

existing restoration programs are the most efficient means to implement a landscape 

conservation program among federal, state, and local agencies and the private sector. The plan 

provides a roadmap for conservation of remaining habitats that will contribute to recovery of the 

San Joaquin Valley listed species while streamlining federal and state ESA permitting for oil and 

gas activities. 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-72 

2) Desert Conservation Area Landscape Initiative – 

The California Desert Conservation Area (CDCA) Landscape Initiative would focus on (1) 

mitigating and restoring wildlife habitats, and (2) mitigating and preserving cultural resource 

sites, traditional use areas, and sacred areas in the CDCA that are affected by the siting and 

development of solar, geothermal, and wind energy facilities. The BLM manages about 10 

million of the 25 million acres within this congressionally designated area. The CDCA contains 

habitat for 25 listed threatened and endangered species, including the desert tortoise, 

Peninsular Ranges bighorn sheep, desert pupfish, Amargosa vole, and Coachella Valley fringetoed lizard. 

The BLM proposes to increase the rate of habitat restoration in the desert wildlife management 

areas by closing routes at intersections and obliterating closed routes to the line of sight and by 

directed acquisition in identified habitat linkages essential to the recovery of listed CDCA 

species. Because USGS and USFWS are active partners in the Desert Managers Group, a 

landscape level conservation approach coordinated through this group will facilitate the 

processing of rights-of-way for solar, geothermal, and wind energy facilities in the CDCA. 

3) Modoc Plateau Sagebrush Steppe Restoration Initiative – 

The most significant factor affecting land health in northeast California and northwest Nevada is 

the encroachment of western juniper into the sagebrush steppe ecosystem. As western juniper 

moves into the sagebrush steppe and the tree canopy begins to close, native grasses and 

shrubs are lost from the ecosystem. This loss of vegetative diversity directly impacts wildlife 

resulting in dwindling numbers of key species such as sage-grouse, mule deer and pronghorn. 

Based on these concerns, the BLM entered into a Memorandum of Understanding (MOU) to 

develop a multi-jurisdictional strategy and environmental impact statement (EIS) to guide 

restoration of the sagebrush steppe ecosystem. Signatories include the Alturas BLM Field 

Office (representing the Alturas, Surprise and Eagle Lake Field Offices), the Modoc National 

Forest (representing the Modoc, Klamath, Shasta Trinity and Lassen National Forests), and 

Modoc County (representing the private lands within Modoc, Lassen and Siskiyou Counties). 

Cooperating agencies include: California Department of Fish and Game, California State Office 

of Historic Preservation, Pit River Tribe, Klamath Tribes, Alturas Rancheria, and U.S. Fish and 

Wildlife Service. 

The EIS is being written to address the environmental impacts and establish standards and 

guidelines for the sagebrush steppe restoration. The Final Strategy and EIS will be released in 

March 2008. Records of Decision will be signed following resolution of protests. Records of 

Decision are to be signed in late 2007 or early 2008. The planning effort has shown that, within 

the 6.6 million acre planning area, western juniper currently occupies 3 million acres. This 

constitutes a fifteen-fold increase over the 200,000 acres occupied by western juniper in 1870. 

The primary treatment methods proposed include prescribed fire/fire use and mechanical 

removal. Within the planning area, approximately 400,000 acres of juniper encroachment have 

been identified with the goal of treating 10,000 acres of BLM land per year. These projects will 

be coordinated with adjacent Forest Service and private land projects to achieve an economy of 

scale. 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-73 

Sagebrush Emphasis Areas in California

Performance with HLI funds alone – additional performance from other subactivities not shown in this Table. 

Public acres within emphasis area managed by the BLM – 13,433,943 

California added to the HLI in 2009 so no data for 2007 or 2008. 

2007 2008 2009 

Healthy Lands Initiative Funding – Planned and Requested N/A N/A $1,422,000 

JA – Acres of Shrub, Grass, Woodland Treated N/A N/A 3,474 

JP - Number of Recovery/Conservation Actions Implemented N/A N/A 3 

Wildlife Energy Interface Emphasis Areas in California

2007 2008 2009 

JA – Acres of Shrub, Grass, Woodland Treatment applied N/A N/A 19,686 

JD – Acres of Weeds Treated N/A N/A 4,423 

JP - Number of Recovery/Conservation Actions Implemented N/A N/A 21 
au of Land Management 2009 

Section I - Emphasis Areas 

CA

2009 2007 2008 2009 2007 2008 2009 2007 2008 2009 2007 2008 2009 2007 2008 2009 2007 2008 

AC-Shrub, Grass, Woodland Treated 23,160 1,396 3,060 4,140 3,500 36,275 63,360 1,000 7,722 10,081 40,000 48,730 132,320 16,261 40,000 9,900 

AC-Weeds Treated 4,423 28 1,380 60 3,875 1,250 527 10,000 200 30,000 795 700 

AC-Forest/Woodland Restored 350 35 23,000 830 500 

AC-Wetlands Treated 560 560 1,380 1,400 20 10 AC-Fuels Trted Px Fire (non-WUI) 2,000 1,010 AC-Fuels Trted Mech(non-WUI) 3,000 3,167 

AC-Fuels Trted Other(non-WUI) 9,200 

AC-Fuels Trted Mech(WUI) 1,886 AC-Fuels Trted Px Fire (WUI) 2,100 1,000 

Total acres 27,583 1,984 3,620 #REF! 17,760 40,150 64,610 3,627 7,722 20,116 40,000 48,730 132,320 5,053 16,461 94,400 3,655 11,110 

Miles of Stream, Riparian Treated 5 18 21 1 10 22 49 

Total miles 5 18 21 1 10 22 49 

#-Shrub/Grass/Forest Projects Const 18 2 

# of Shrub/Grass/Forest Projects Mtd 20 10 25 2 1 #-Riparian Projects Constructed 14 10 27 1 2 2 12 3 6 

#-Lake, Stream, Riparian Projects Mtd 22 25 7 2 

#-Recovery/Conserv Actions Impl 24 13 3 

#-Native Plant Material Collection 3 

Total projects 24 36 10 40 26 5 29 10 60 7 7 

Project Work by Healthy Lands Emphasis Area by Year

CO ID ID/NV/OR NM UT WY 

Units of Performance

Bure
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-75 

National Landscape Conservation System 

The National Landscape Conservation System (NLCS) is comprised of specific geographic 

areas managed by the BLM. These areas, or units, are public lands tied to special 

management prescriptions as defined by Acts of Congress or Presidential proclamations. The 

NLCS units are managed to enhance the conservation values for which they were designated. 

Individual NLCS units are under the jurisdiction of local BLM offices and may cross 

administrative boundaries. NLCS units, while geographically distinct, are not organizationally 

distinct. Some National Monuments and National Conservation Areas may have a dedicated 

manager, but most NLCS employees are shared with the hosting field office. 

The BLM’s NLCS offers some of the most remarkable, diverse, and expansive landscapes 

found on public lands in the American West. To be a component of the NLCS, the Congress or 

President must have directed that the area be set aside for conservation, protection, and 

restoration. The NLCS focuses on the opportunities and management needs of these national 

treasures. The landscapes often preserve parts of the Nation’s diverse national heritage. 

Managing these areas is part of the Bureau’s multiple-use mission, which is supported by the 

NLCS mission. The NLCS mission is to conserve, protect, and restore these nationally 

significant landscapes and their exceptional cultural, ecological, and scientific values for the 

benefit of current and future generations. 

The NLCS consists of more than 26 million acres. These lands include National Monuments, 

National Conservation Areas, Wilderness, Wilderness Study Areas, Wild and Scenic Rivers, 

National Scenic and Historic Trails, and some other congressionally designated public lands. 

Created in 2000, the NLCS provides economic benefits to neighboring communities through 

opportunities for solitude, adventure and recreation such as hunting, fishing, wildlife viewing, 

hiking, climbing, mountain biking and paddling as well as opportunities for public education and 

scientific research including archaeology, paleontology, biology and ecology. 

Congressional direction and Presidential proclamations for these areas specify a range of 

conservation goals and values. The primary values are nature, recreation, natural landscapes, 

fish and wildlife habitat, cultural and paleontological resources, education, science, and other 

attributes specific to each designation. All of these designations respect valid existing rights; 

including many water rights, mining claims, mineral leases, and rights-of-way. 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-76 

The NLCS offers some of the West’s most spectacular Landscapes. 

 Gulkana Wild and Scenic River, Alaska Wolverine Bench of Escalante Canyon, Utah

McInnis Canyon National Conservation Area, 

Colorado 

Kasha-Katuwe Tent Rocks National Monument, 

New Mexico 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-77 

National Monuments – The BLM administers 15 National Monuments in eight Western states, 

the first of which was created in 1996. This conservation designation is an integral part of the 

agency’s multiple-use mandate. Congress granted the President authority to designate National 

Monuments in the Antiquities Act of 1906, which specifies that the law’s purpose is to protect 

“objects of historic or scientific interest.” In addition to National Monuments created by the 

President, Congress has also established National Monuments to protect natural or historic 

features. More than 100 National Monuments, currently managed by the National Park Service, 

Forest Service, Fish and Wildlife Service, and BLM, have been created by either Congress or 

the President since 1906. 

National Conservation Areas and Other Conservation Designations – The BLM administers 12 

National Conservation Areas (NCA) and five similar areas, which have been designated by 

Congress to conserve, protect, enhance, and manage public land areas for the benefit and 

enjoyment of present and future generations. NCAs feature exceptional natural, recreational, 

cultural, wildlife, aquatic, archeological, paleontological, historical, educational or scientific 

resources. 

Wilderness Areas – The BLM is responsible for 190 Wilderness Areas with over 7.7 million 

acres in 10 Western States. Wilderness areas are those special places where the earth and its 

community of life are essentially undisturbed. They retain a primeval character, without 

permanent improvements and generally appear to have been affected primarily by the forces of 

nature. 

In 1964, Congress established the National Wilderness Preservation System and designated 

the first Wilderness Areas in passing the Wilderness Act. The uniquely American idea of 

wilderness has become an increasingly significant tool to ensure long-term protection of natural 

landscapes. Wilderness protects the habitat of numerous wildlife species and serves as a 

biodiversity bank for many species of plants and animals. Wilderness is also a source of clean 

water. It has long been used for science and education as well as for higher education 

purposes, providing sites for field trips, recreation, study areas for student research, and serving 

as a source of instructional examples. 

Wilderness Study Areas – The BLM is responsible for 591 Wilderness Study Areas with about 

13.7 million acres located in the Western States and Alaska. The Federal Land Policy and 

Management Act of 1976 directed the Bureau to inventory and study its roadless areas for 

wilderness characteristics. To be designated as a Wilderness Study Area, an area had to: be a 

manageable size, generally appear to have been affected primarily by the forces of nature, and 

provide outstanding opportunities for solitude or primitive and unconfined types of recreation. In 

addition, Wilderness Study Areas often have special qualities such as ecological, geological, 

educational, historical, scientific and scenic values. Since 1980, Congress has reviewed and 

designated some of these areas as wilderness and released others for non-wilderness uses. 

Until Congress makes a final determination on a Wilderness Study Area, the BLM manages the 

area to preserve its suitability for designation as wilderness. 

National Wild and Scenic Rivers – The BLM is responsible for portions of 38 Wild and Scenic 

Rivers in five states for a combined total of over 2,050 miles. Wild and Scenic Rivers are 

designated under the authority of the Wild and Scenic Rivers Act of 1968 to protect outstanding 

scenic, recreational, geologic, fish, wildlife, historic, cultural, or other values and to preserve the 

river in its free-flowing condition. The three classes of protected rivers are Wild, Scenic, and 

Recreational, which refer to the level of development rather than the types or levels of use. 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-78 

Until the Bureau makes a determination on a river’s eligibility or suitability, or Congress or the 

Secretary makes a determination to designate it as suitable or a study area, the BLM manages 

these areas to preserve them for potential designation as Wild and Scenic Rivers. 

National Scenic and Historic Trails – The BLM protects and manages land along three National 

Scenic Trails and 10 National Historic Trails – more National Historic Trails than within any 

other Federal agency; this includes a total of 5,966 miles of trails in the NLCS. National 

Historic Trails are extended trails that closely follow a historic trail or nationally significant travel 

route. Designation identifies and protects historic routes, historic remnants, and artifacts for 

public use and enjoyment. The BLM is responsible for over 4,500 miles of 10 National Historic 

Trails. 

Long Term Vision - The long-term vision of the NCLS is to conserve and protect the lands and 

waters of the System so that present and future generations of Americans may enjoy them. The 

mission of the NLCS is to conserve, protect and restore for present and future generations the 

nationally significant landscapes that have been recognized for their outstanding archaeological, 

geological, cultural, ecological, wilderness, recreation and scientific values. 

Critical Factors – The NLCS supports and is supported by the Bureau as a whole. The ability 

of the NLCS to produce on-the-ground results depends on the other programs which contribute 

funding, personnel, and other resources to NLCS units. 

• The NLCS depends on and coordinates with other BLM programs, including Recreation 

Management, Cultural, Wildlife, Resource Protection and Law Enforcement, Information and 

Communication, Transportation and Facilities Maintenance, and Challenge Cost Share. 

• Volunteers accomplish many essential tasks at NLCS units and visitor centers, contributing 

thousands of hours of labor annually. 

• Strong, healthy partnerships are vital to managing the NLCS effectively and leveraging 

resources to manage the lands in the System. 

Means and Strategies – The NLCS is focused on providing or supporting four priorities: 1) 

conservation, protection, and restoration; 2) communities and partnerships; 3) science; and 4) 

recreation, education, and visitor services. These four priority areas are central to everything the 

NLCS does and constitute the foundation for a new conservation vision for the 21st Century 

based upon the Bureau’s unique multiple use mission. Partnerships, public outreach, 

education, and research provide the means through which much work is accomplished in the 

NLCS. To this end, the NLCS has begun proactively to integrate the needs of the NLCS into 

land use planning and plan implementation strategies. This integration of planning and 

implementation provides opportunities for collaboration with our partners, fosters communication 

and public engagement in plan implementation, and enables the NLCS to better develop and 

communicate budget needs. 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-79 

Funding Sources – BLM funds the NLCS units through a variety of sources using a multipronged approach. 

In 2009, two new subactivities are proposed for National Monuments and National Conservation 

Areas to improve budgeting, tracking, and management for this NLCS component – one 

subactivity in the Management of Lands and Resources Appropriation (see Section III for the 

new MLR National Monuments and National Conservation Areas subactivity), and the other in 

the Oregon and California Grant Lands Appropriation (see Section VI for the new O&C National 

Monuments and National Conservation Areas subactivity). These subactivities will provide base 

funding for these units. Base funding is defined as the annually recurring costs for personnel 

and operations at each unit. Other funding from existing subactivity programs will continue to 

supplement the base funding in the new subactivities. 

The existing Wilderness Management subactivity provides funding for Wilderness Areas and 

Wilderness Study Areas. 

The two remaining NLCS components, Wild and Scenic Rivers and National Scenic and Historic 

Trails will continue to be funded through existing program subactivities. 

NLCS Component Funding Source(s) 

Two new National Monument and National Conservation Area 

National subactivities provide base funding. 

Monuments/National 

Conservation Areas A composite of the BLM’s existing subactivities provide additional, 

annual funding for specific projects and short term programs. These 

funds fluctuate from year to year and supplement the base funding. 

Wilderness/Wilderness 

Study Areas Existing Wilderness Management subactivity 

National Scenic and 

Historic Trails A composite of the BLM’s existing subactivities 

Wild and Scenic Rivers A composite of the BLM’s existing subactivities 

Development of the new subactivities for parts of the NLCS budget in 2009 will create additional 

efficiencies and maximize benefits to these landscapes. The creation of subactivities for 

National Monuments and National Conservation Areas will allow managers to better plan for 

their units and ensure more accurate tracking of the NLCS budget and BLM’s achievements. 

Cost-saving partnerships will benefit from a more accountable budget that allows willing donors 

to clearly identify application of donated labor and funds. 

More detailed information about the NLCS budget is provided in the tables at the end of this 

section and in the Wilderness Management and National Monuments and National 

Conservation Areas subactivity narratives. 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-80 

2009 Program – In 2008, Congress appropriated an additional 

$4.9 million over the BLM budget request for NLCS. In 2009, 

BLM is retaining $3.0 million of this unrequested increase to 

contribute to base funding of the National Monuments and 

National Conservation Areas subactivities. 

Leveraging Dollars with 

Challenge Cost Share (CCS) 

Funds 

The NLCS is working to leverage 

resources and expand capability 

to address high priority projects 

within the NLCS units through 

the CCS program. These 

projects will be a part of the 

Managing Resources and Uses 

sub-emphasis area. 

Historically, approximately $1.0 million in Challenge Cost 

Share (CCS) projects are implemented in NLCS units each 

year. In 2009, a total of $3.0 million in CCS funds will be 

targeted to NLCS units to accomplish high priority work with 

partnership matching funds. Since CCS is a competitive 

process, achievement of the $3.0 million target is dependent 

on the amount of CCS project submissions that fall within 

NLCS units and meet project ranking criteria. 

Strategic Plan – The NLCS supports the Bureau’s resource 

protection and recreation mission areas through projects and 

programs that improve, restore, and maintain the health of 

watersheds and landscapes, sustain biological communities, 

and protect cultural and natural heritage resources. 

The NLCS supports the recreation mission by providing 

recreational opportunities on NLCS lands that offer visitors a 

unique experience of visiting and enjoying unparalleled 

aesthetic landscapes. 

For many visitors, these are places to hunt, fish, boat, hike, 

sightsee, play, recreate, or simply become immersed in 

nature. These are lands where people can explore, seek 

adventure, discover and appreciate for themselves a “sense of place” of our vast natural and 

cultural heritage. 

The 2009 CCS program is 

targeting $3.0 million to fund 

NLCS projects. These projects 

will target Implementation of 

Restoration Projects - $1.0 

million; Implementation of the 

NSHT Work Plan & Strategy - 

$500,000; Wilderness, WSA, and 

Wild & Scenic River 

Management - $750,000; and 

Implementation of Integrated 

Weed Management Projects - 

$750,000. By working in 

collaborative partnerships, BLM 

can leverage its funding at an 

average of nearly five to one.

The NLCS will continue to focus work in the priority program areas of: conservation, protection, 

and restoration; communities and partnerships; science; and recreation, education, and visitor 

services. 

Within these priorities are some cross-cutting themes for the NLCS: 

• Implement Resource Managements Plans (RMPs). 

• Implement the National Scenic and Historic Trails Strategy and Work Plan. 

• Implement Wild and Scenic river plans and determine management priorities for eligible and 

suitable rivers. 

• Conduct critical inventory and monitoring programs. 

• Manage resources and uses. 

• Support community programs. 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-81 

Conservation, Protection, and Restoration 

National Wild and Scenic Rivers - The 40th anniversary of the Wild and Scenic Rivers Act is 

being celebrated in 2008. NLCS activities for Wild and Scenic Rivers will include monitoring the 

innovative permit system on the Deschutes Wild and Scenic River in Oregon, and completing 

flow studies on the Rio Grande Wild and Scenic River in New Mexico. The NLCS will also 

emphasize improved management of eligible and suitable rivers to protect them for potential 

designation as Wild and Scenic Rivers. 

National Scenic and Historic Trails - The 

NLCS is developing guidance to complete 

inventory, documentation of resources, 

and mapping of the 13 National Scenic 

and Historic Trails. 

Additionally for National Trails, the NLCS 

will: initiate policy development for the 

National Trails program; participate in the 

Partnerships “A Decade for the National 

Trails” project and the Preservation 

Strategy; administer, sign and interpret 

the Old Spanish and Camino Real 

National Historic Trails; initiate the 

Iditarod Centennial Legacy Project; and 

complete high-priority inventory, 

protection, restoration, and monitoring 

projects. The NLCS will also emphasize 

improving administrative oversight, 

enhancing visitor services and recreation management, protecting and developing trails 

resources, and advancing trail-related partnerships. 

NLCS units are premier locations for scenic vistas and 

outdoor recreation, such as this captivating hike in the 

King Range National Conservation Area. 

Implement RMPs - The NLCS and BLM’s Planning Division have initiated a process to 

implement activities described in recent Resource Management Plans. The process links 

desired outcomes to tasks, accomplishments, funding, and performance. The NCLS will assist 

state and field offices in developing implementation strategies and business plans. 

Conduct critical inventory and monitoring programs - The NLCS will initiate a science grant 

program in 2009 to support projects that address specific BLM inventory and monitoring needs. 

The grants will be used to build scientific knowledge of natural, cultural, and social resources, 

increase the effectiveness of resource management, foster community programs, and 

encourage public interest and ownership in the conservation of America’s landscapes. These 

grants will fund approximately 20 research investigations to assemble baseline inventory and 

monitoring information for priority areas. Grants will range in size from $5,000 to $30,000. 

Implement Restoration Projects - The NLCS areas are home to a variety of ecosystems, from 

cactus deserts and redwood groves to coastal zones and arctic tundra. Many host rare plant 

and animal communities. The System offers outstanding possibilities for wildlife conservation 

and gives the BLM an opportunity to actively and collaboratively manage species such as sage 

grouse to prevent the need to list them under the Endangered Species Act. The NLCS also 

contains some of the best fishing and hunting experiences in America’s sagebrush country. 

With the completion of a variety of habitat improvement projects within the NLCS, hunters and 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-82 

fisherman can continue to enjoy their sports and experience the world-class landscapes offered 

by the NLCS. 

Implement Integrated Weed Management Projects — In Fiscal Year 2009, the NLCS will initiate 

and continue numerous projects to reduce or eliminate invasive and noxious weeds. Invasive 

weeds pose a grave threat to the health of public lands, species diversity, visitor experience, 

and water quality. 

Communities and Partnerships 

Since the NLCS was established in 2000, the system has developed and participated in more 

than 125 successful, collaborative relationships with communities, state, tribal, nonprofits, and 

supportive citizens. These partnerships perform critical planning activities and project work, and 

leverage federal resources. Partnerships supporting the NLCS system vary in scope, number of 

parties involved, resources leveraged, and their mission; each one is unique. 

The NLCS assists partners in increasing the effectiveness of board governance, improving longrange and sustainable fundraising skills of their board members, and obtaining training in 

conflict management and collaboration. The NLCS continues to develop and improve existing 

training programs to help our partners develop sustainable funding streams which, in turn, make 

these partnerships more stable and effective. The NLCS has begun developing geotourism 

projects to promote sustainable tourism and help preserve local culture, local economies, and 

local resources. 

• Geotourism - The NLCS will increase the capacity of local communities by developing a 

geotourism approach to public lands. Geotourism is tourism that sustains or enhances the 

geographical character of a place: its environment, culture, aesthetics, heritage and well 

being of its residents. All the elements of geographic character create a visitor experience 

that is richer than the sum of its parts, appealing to visitors with diverse interests. Many 

NLCS lands are important to local and regional communities for economic, cultural, or 

historic reasons. Geotourism strives to enhance local communities’ and regions’ 

environmental, social, cultural and economic quality of life, while producing economic and 

social incentives for local stewardship, conservation, protection and restoration. Sustainable 

practices emphasize the need to frame tourism with long-term conservation and protection 

of cultural and natural assets. 

• Take it Outside Initiative - With 26 million acres of protected public lands, the NLCS offers 

countless opportunities for youth in urban and rural centers to benefit from outdoor 

programs in these special places. Youth programs in the NLCS reach several hundred 

thousand students across the country. The NLCS will support the Recreation Management 

program in this initiative. 

• BLM’s Working Landscapes - Interpretation and environmental education improve our 

visitors’ experience by providing information about the cultural, ecological, and scientific 

values of NLCS units. The BLM supports local communities by providing education and 

interpretive opportunities. The NLCS offers countless opportunities for active public 

enjoyment and education for people of all ages in showcasing the working landscape 

conservation model for the 21st Century. 

• Community Programs Training Program - Community Programs involves many skill sets, 

including collaboration, negotiation, fundraising, and working with non-profit support 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-83 

organizations. The Community Programs Training Program has two sections: better use of 

existing training across Federal land management agencies, and development of new 

training. The program will design new training modules where gaps are identified. 

• National Community Programs Assistance Agreements - The BLM has Cooperative 

Assistance agreements with a variety of partners to provide needed skills and technical 

assistance to the NLCS. These long-term national partnerships have a West-wide focus 

and scope. They work to engage the NLCS in community program strategies and activities 

that enhance local economies, resources and cultures. 

• Friends Groups - The NLCS relies on community-based partners to help achieve missionrelated work and foster citizen engagement. A goal is the establishment of a nonprofit 

support group for every National Monument and National Conservation Area by 2010. The 

NLCS manages a grant program that provides funding for technical assistance to 

partnerships needing financial support to build their organizational capacity. Support 

activities include developing new partnerships, developing and implementing a strategic 

plan and sustainable funding strategies, board development and governance, seeking 

Federal tax-exempt status, initiating volunteer and membership programs, and creating 

partnership websites. 

Science 

The NLCS provides extraordinary opportunities to use public lands not only to advance science 

in general, but to use science to advance and improve land management. 

Science Conference - The NLCS is working to communicate the results of scientific studies 

conducted in NLCS units and integrate this knowledge into management decisions. Funding 

will support syntheses of scientific topics of interest. In 2009, the NLCS will support a science 

conference and publish the proceedings to gather and disseminate the results of current 

scientific studies. 

Research projects are currently being undertaken in a wide range of disciplines on NLCS lands. 

In Gunnison Gorge NCA, researchers are testing the feasibility of using close-range 

photogrammetry to collect 3-dimensional data which will be used to monitor changes in surface 

soil elevations due to erosion. In the Carrizo Plain National Monument, a new population of the 

threatened Kern primrose sphinx moth has been discovered, providing an opportunity to study 

the ecology of the moth and the unique relationship it has with its host plant. Cultural research 

is also being conducted in many places, including a project in Canyons of the Ancients National 

Monument that seeks to clarify the relationships between climate, culture, and behavior—factors 

that resulted in village formation and depopulation in one of the most famous archaeological 

areas in the world: the Mesa Verde region. 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-84 

Recreation, Education, and Visitor Services 

Manage Resources and Uses - Recreation and leisure activities are a major part of the lifestyle 

of millions of Americans and international visitors. They are also a major supporting component 

of the quality of life and economic vitality for many communities in the West. Virtually all 

western states count recreation and tourism as one of their top three industries, and some of the 

largest components of recreation and tourism involve adventure and heritage activities. The 

NLCS is playing an increasingly important role in supporting the diversity and health of local 

economies by maintaining undeveloped open spaces, promoting livability by preserving air and 

water quality, and offering unparalleled opportunities for outdoor recreation. 

The suite of visitor services provided by the NLCS includes environmental education and 

interpretation, operating visitor centers, providing law enforcement and park rangers, 

maintaining a variety of facilities, and mitigating physical safety hazards such as abandoned 

mine shafts and tunnels. The increased attention and visitation to NLCS units brings with it a 

growing demand for visitor services. 

Comprehensive Travel and Transportation Management - Public access, OHV, and 

transportation management are priorities for the BLM. Dramatic increases in unmanaged 

recreation use have resulted in increased impacts to resources in and around NLCS units 

including: damage to cultural sites, increased erosion, vegetative damage, increased spread of 

weeds and invasive plants, and impacts to wildlife habitat. Travel Management Plans designate 

routes and address maintenance, signing, trails, monitoring protocols, and rehabilitation. The 

NLCS will complete at least 5 travel management plans in 5 states in 2009. 

Increase Law Enforcement Presence in NLCS Units - Law enforcement positions in NLCS units 

have been stretched by increasing demands. In many areas, law enforcement is a key factor in 

ensuring visitor safety and protecting fragile geologic, archeological, paleontological, and 

biological treasures. Threats include vandalism of natural features, archeological sites, and 

facilities, theft of priceless archeological and paleontological resources, and increasing violence 

in borderland NLCS units. In 2008, several law enforcement officer and non-law enforcement 

park ranger positions were added to NLCS units and are helping to mitigate and improve visitor 

safety and resource protection. 

Remove Physical Safety Hazards - Older facilities, structures, dumping, and unnatural hazards 

on public land can be a particular danger to the public. While many of these hazards pre-date 

designation, the public has an expectation that the Bureau will mitigate, fix, or remove them. 

The NLCS will continue to remediate these physical safety hazards. 

Maintenance and Operations of Recreation Facilities - Increased attention and visitation to 

NLCS units creates a growing need to operate and maintain facilities and to address critical 

visitor health, safety and resource management issues. By ensuring accessibility and quality of 

facilities and services, NLCS units can continue to play a vital role in supporting the diversity 

and health of regional and local economies. 

The BLM supports a number of education and visitor centers along with other, more rustic 

facilities to enhance the visitor experience in the natural setting. The NLCS aims to keep facility 

construction to a minimum while providing the maximum natural experience. The NLCS 

supports facilities and infrastructure constructed from long-lasting, environmentally appropriate 

materials that enhance the natural aesthetics of the surrounding environment. 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-85 

The NLCS performance overview table is displayed on the next page and indicates the 

improvements made in reaching resource objectives, and also shows recently added measures 

for meeting heritage resource objectives.
Bureau of Land Management 2009 

NATIONAL LANDSCAPE CONSERVATION SYSTEM MANAGEMENT PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 Plan 

Percent of miles of National Historic Trails, Wild and Scenic Rivers, and other linear Special Management Areas under DOI management meeting their heritage resource objectives under the authorizing legislation. (SP) 

67% 

5078/ 

7545 

65% 

4837/ 

7438 

66% 

5311/ 

8031 

56% 

4138/ 

7447 

66% 

5274/ 8031 

66% 

5274/ 8031 

67% 

5341/ 8031 

Total Actual/Projected Cost ($000) $2,976 $3,278 $3,036 $0 $2,650 $3,835 $3,297 Actual/Projected Cost per Mile (in dollars) $586 $678 $572 $0 $503 $727 $617 Comments: * Support Measure - No cost will be shown. This is a new measure in 2007. Historical data has bee

context. 

Percent of acres of Wilderness Areas and other Special Management Areas under DOI management meeting their heritage resource objectives under the authorizing legislation. (SP) 

new 

measure 

new 

measure 

new 

measure 

Establish 

Baseline 

78% 

39,657,668/ 

50,721,819 

73% 

37,310,748/ 

51,201,821 

73% 

37,310,748/ 

51,201,821 

Total Actual/Projected Cost ($000) 0 0 0 0 $8,750 $13,630 $12,911 Actual/Projected Cost per Acre (in dollars) $0.00 $0.00 $0.00 $0.00 $0.22 $0.37 $0.35 Comments: A correction to the acres of Wild Horses and Burros Herd Management Areas changes the denomina

Section I - Emphasis Areas 
Bureau of Land Management 2009 

2009 

Fixed Costs 

& 

2007 2007 2008 2008 

Related 

Changes 

Program 

Changes 

Subactivity/Funding Source 

President’s 

Budget Operating 

Plan 

President’s 

Budget 

(recast) Enacted(1) (+/ -) (+/ -) 

R

MLR and O&C Funding in various subactivities for National Monuments and National Conservation Areas. 25,848 29,299 22,576 22,576(2) 0 -22,576 National Monument and National Conservation Area Management – New MLR Subactivity proposed in 2009 ($18.825 million transferred existing funds from other MLR subactivities plus $3.0 million of the $4.9 million unrequested NLCS increase provided in 2008). N/A N/A N/A N/A 0 +21,825 National Monument and National Conservation Area Management – New O&C Subactivity proposed in 2009 (transferred existing funds from other O&C subactivities). N/A N/A N/A N/A 0 +486 Funding for the NLCS from Challenge Cost Share(CCS) funding. 991 991 1,024 1,122 0 (3)+1,877 Unrequested Funding Increase for the NLCS (various subactivities) 

(1) ovides an additional $4.92 million ested in the NLCS (o ich .984 is for ilderness suba and .098 is r CCS) 

National Scenic and Historic Trails and the California Trail Interpretive Center. 

 The FY 2008 Enacted Budget pr unrequ crease to f wh the W ctivity fo 

(2) Additional one time funds are allocated to each NLCS unit after the BLM receives its final appropriations, which will increase the funding amount for each unit. The amount fiscal year. Therefore, NLCS funding in the enacted budget will be greater than the amount in the President’s Budget request. CCS funding is a yearly competitive process. (3) In 2009, $3.0 in CCS funding is dedicated to NLCS proposals, an increase of 1.877 from 2008 enacted. (4) Additional one time funds are allocated to each National Monument and National Conservation Area after the BLM receives its final appropriations, which will increase the fbase funding identified for each National Monument and National Conservation Area in this budget table is an initial estimate. The BLM is conducting a thorough analysis of bawill inform this process. This includes specifying the 2008 and 2009 base amounts by NLCS units that will be funded through the new subactivity and the remaining amounts th

supporting activities. The base funding amounts shown in the budget for 2008 and 2009 are currently derived from 2007 actuals, but BLM will provide more accurate estimates 

N/A N/A N/A +3,838(1) 0 -3,936 

Wilderness Management (current MLR subactivity) 16,215 16,182 16,641 17,366 +265 -1,086 MLR Funding in various subactivities for Wild and Rivers and National Scenic and Historic Trails 8,855 8,290 8,536 10,012(1) (2) 0 -1,469 NLCS Washington Office Funding 1,559 1,432 1,405 1,405(2) +33 0 TOTAL NLCS FUNDING 53,468 56,194 50,182 56,418(1) +298 -3,780 

Section I - Emphasis Areas 
Bureau of Land Management 2009 

NOTE: National Scenic and Historic Trail and Wild and Scenic Rivers Funding Varies Between States From Year-to-Year BSection I - Emphasis Areas 
 2009 

Section I - Emphasis Areas 

(Dollars in $000s) 

National Monuments/ National Conservation Areas 

Wilderness 

National Scenic and Historic Trails 

Wild and Scenic Rivers 

BLM NLCS Washington Office 

Funding Not YeAllocated to a Specific NLCS Component 

2007 Enacted 29,299 16,182 3,247 5,043 1,432 N/A 2008 Enacted 24,608 17,433 5,857 5,992 1,405 N/A 2008 Enacted -Unrequested NLCS Increase & Recreation Mgt. Earmark 

1,624 (1) 834(1) 1,476(4) 942(1) 905(1) 615(1) N/A 

2009 PB 22,311(2) 16,545 3,456 5,087 1,438 

3,000 

(Challenge Co

Share - CCS 

Target) 

Change from 2008 Enacted to 2009 PB 

-2,297 (3) -888 -2,401 905 +33 +3,000 CCS 

(1) Distribution of unrequested 2008 NLCS increase of $4.92 million. ($932,000 in NSHT includes $98,000 in unrequested increase in C(2) This amount represents the base funding provided by the two new subactivities for National Monuments and National Conservation 

the Management of Lands and Resources (MLR) and the Oregon and California Grant Lands (O&C) accounts. The new MLR suba

$18,225,000 and the new O&C subactivity will provide $486,000 for a total of $19,311,000. The BLM proposes to add to this base $

million unrequested NLCS increase provided by Congress in 2008, bringing the funding total for National Monuments and National C$22,311,000. 

(3) This amount reflects the net change in funding resulting from: the $3.0 million increase for National Monuments and National Conse

reduction of $3.74 million from 2008 because of clarifying the definition of base funding to only include costs recurring on an annual increase in base funding for the Headwaters Forest Reserve; and the removal of funding for the Piedras Blancas Lightstation from th($125,000) because its inclusion in the NLCS is still pending. Flexible funds, in addition to the base funding provided by the new sube provided to National Monuments and National Conservation Areas on an annual basis from the BLM’s existing subactivities. BLM analysis of base funding for the NLCS units that will inform this process. This includes specifying the 2008 and 2009 base amounts funded through the new subactivity and the remaining amounts that will be funded through supporting activities. The base funding abudget for 2008 and 2009 are currently derived from 2007 actuals, but BLM will provide more accurate estimates once they are av

(4) Recreation Management earmark for National Scenic and Historic Trails and California National Historic Trail Center. 

Bureau of Land Management 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-90 

Border Issues 

SAFE BORDERLANDS INITIATIVE

The Bureau of Land Management (BLM) is 

responsible for the administration of 258 million 

acres of surface acres of public land primarily in 

the 12 Western States, including Alaska. Over 

8.8 million acres of these lands in Arizona (3.7 

million acres), California (3.3 million acres), and 

New Mexico (1.8 million acres) are severely 

impacted by drug smuggling and illegal 

immigration along the border between Mexico 

and the United States. Borderlands are defined 

as those lands extending approximately 100 

miles north of the international border 

separating the U.S. and Mexico. These lands 

provide significant recreation opportunities and 

contain natural, historical, and cultural 

resources. 

Litter at archaeological site in Arizona 

The BLM supports the Department of the Interior’s (DOI) Safe Borderlands Initiative, which 

includes the following four focus areas: 

1. Enhance safety for visitors, employees, and residents; 

2. Mitigate environmental damage; 

3. Improve interoperable communications and; 

4. Enhance interagency coordination. 

The BLM is responsible for ensuring public health and safety on these lands and the protection 

of the area’s significant natural and cultural resources through the focused deployment of 

personnel, communication networks, restoration of ecosystems, and integrated partnerships 

along the Southwest border. While BLM is responsible for the stewardship of BLM public lands 

near the border, it is the Department of Homeland Security that is primarily responsible for 

security along our international border. 

The BLM programs involved in this initiative include the Law Enforcement program, which is 

responsible for 1) the protection of public land, resources and BLM facilities, and 2) maintaining 

safe environments for public land users and employees; and the Hazardous Materials 

Management program, which is responsible for the protection of public health and the 

environment. 

Long-term Vision – Long range goals for BLM’s portion of the Safe Borderlands Initiative are: 

• Developing more internal and external partnerships to jointly provide effective solutions 

to environmental issues on BLM public lands;

• Providing better public assistance and responding to illegal activities that compromise 

public safety or damage public lands; 

• Eradicating marijuana and other drugs on BLM public lands;

• Preventing the destruction and theft of cultural artifacts on BLM-managed lands; 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-91 

• Establishing more innovative methods to prevent as well as reduce illegal dumping on 

public lands;

• Supporting wildland fire crews in prescriptive burns and suppression in the southwest 

borderlands and investigating wildlife fires; 

• Implementing a safety net for employees, including fire and law enforcement, and 

visitors through adequate communications and law enforcement personnel and; 

• Implementing a strategic assessment, monitoring and recovery steps from smuggling 

impacts for public and neighboring lands and their natural and cultural resources. 

Critical Factors – The location of public lands near the Southwest border are remote and 

isolated areas adjacent or in close proximity to the Mexican border and have become major 

arteries for smuggling humans and controlled substances into the United States. These 

activities have created a hazardous environment for the public, BLM employees and 

contractors, and are causing the destruction of natural and cultural resources. 

The borderlands are being subjected to: 

• Hundreds of thousands of illegal aliens crossing public lands; 

• Sophisticated, violent drug smuggling operations; 

• Serious dangers to employees, visitors and residents and; 

• Significant resource damage. 

Edge of Ironwood Forest National Monument in Tucson, AZ 

46 cubic yards of trash collected by Student Conservation Associates and volunteers 

Human & Drug Smuggling – Federal lands in the proximity of the Mexican border are remote 

and isolated areas. Hundreds have died trying to cross the border because of harsh desert 

conditions. As a result, the BLM and other land management agencies have increased their 

law enforcement presence on public lands near the border. 

Crimes – Criminal activities on the borderlands have made it difficult for the operation of 

monitoring and protecting the land. Some areas of BLM land have been closed to the public 

due to the likelihood of illegal activities, trash and other impacts. Unauthorized use will continue 

to cause the loss of resources on public lands and require significant sums of money to 

rehabilitate and restore public lands and resources to their natural state. For more crime related 

information, please see the Law Enforcement program subactivity section in the Management of 

Lands and Resources appropriation. 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-92 

Resource Damage – The BLM has completed 

assistance agreements with a wide variety of 

groups, agencies, counties and cities to 

continue mitigation on public and neighboring 

lands. The BLM has also utilized contracted 

services and cooperative agreements with 

several youth corps groups to participate in the 

many restoration projects. As illegal 

immigrants travel, they leave hundreds of 

footpaths across the desert. These trails and 

illegal roads made by smugglers are destroying 

cactus and other sensitive vegetation 

impacting the ecologic health of many of the 

national monuments and conservation areas 

BLM manages. This also causes a disruption 

of wildlife and their habitats and the destruction 

of cultural and historic resources. The BLM is continuing to work closely with other Federal 

agencies to help restore the lands to their natural state. For more hazardous materials and 

resource related information, please see the Hazardous Materials program subactivity section in 

the Management of Lands and Resources appropriation. 

Seizure of marijuana on BLM-managed lands. 

Means & Strategies – The BLM has partnered with several Federal agencies, as well as state 

and tribal governments to provide law enforcement on public lands near the border and to 

mitigate and restore damage done to public lands. Additionally, the BLM has utilized contracts 

and volunteer/cooperative agreements to participate in projects to remove litter, create 

barricades and install signs. 

Partnerships with BLM 

• Department of Homeland Security – Customs and Border Protection & Bureau of 

Immigration and Customs Enforcement 

• Department of the Interior – National Park Service & Fish and Wildlife Service 

• Department of Agriculture – Natural Resources Conservation Service & Forest Service 

• Department of Health and Human Services – Indian Health Services 

• Department of Defense – Marine Corps & U.S. Air Force 

• States of Arizona, California & New Mexico and counties 

• Tribal – Cocopah Tribe, Pascua Yaqui Tribe & Tohono O’odham Nation 

• Youth Corps – Student Conservation Association, Youth Corps of Southern Arizona and 

Community Learning Adventure Service Projects, Northwest Youth Corps, & Coconino 

Rural Environmental Corps 

Improvements in Communications – Communication needs along the Southwest border have 

increased drastically with the escalation of undocumented immigrant travel, illegal activity, and 

the potential for terrorist activity. The safety of visitors, employees and the protection of natural 

resources is in jeopardy. All of these concerns place the law enforcement employees in unsafe, 

vulnerable, and even life threatening situations in the performance of their duties. As discussed 

in the 2008 and 2009 funding sections below, the BLM will improve communication capabilities. 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-93 

Additional funding provided through BLM’s 2007 Enacted budget was used to improve 

communications as shown below: 

State Amount Use of Funds 

Arizona $1,000,000 

Adding repeater and base stations sites to reduce traffic on the 

current radio network. Improvements to the dispatch center in 

Phoenix. New mobile vehicular repeaters to improve coverage. 

California $336,000 

Software integrations for dispatching. Installation of a backup 

generator. New digital mobile radios. New digital repeaters. New 

radio towers and testing of equipment, contract labor, antennas, 

connectors and transmitter line. 

New 

Mexico $164,000 New base station site, 3 new repeaters, 1 shelter, 3 antennas, 13 

portable radios and 3 mobile radios. 

Southwest Strategic Budget Plan – The Southwest Strategic Budget Plan is a three-state BLM 

approach for dealing with the impacts of the Southwest border immigration and smuggling which 

supports the four focus areas outlined in the Department of the Interior’s Safe Borderlands 

Initiative. Much of the plan references the National Memorandum of Agreement (MOA) signed 

in 2006 between the Departments of the Interior, Agriculture and Homeland Security. The MOA 

has not received specific funding but instead is funded by improved coordination and 

prioritization of base funding. The plan received funding in 2007 to initiate communication 

improvements. Specific on-the-ground projects to address significant resource damages have 

been identified for Arizona, New Mexico, and California. 

Southern Arizona Project – The Southern Arizona Project mitigates the impacts caused by 

immigration and smuggling on public and neighboring lands. These funds were added by 

Congress in 2003 and were subsequently retained as base funding. Using these funds, BLM 

and its partners (federal, state, tribal and local) have been able to mitigate some of the more 

significant impacts from illegal immigration and smuggling. Many roads and trails have been 

removed and restored to their natural state. The funding for the Southern Arizona Project has 

also assisted in the protection of sensitive and native habitats and cultural sites. 

Borderland Management Task Forces – The Borderland Management Task Forces (BMTF)

focuses on specific issues and problem-solving to aid border security, human safety and health, 

and resource protection, often providing recommendations for agencies to implement. The task 

forces concentrate on providing a positive, intergovernmental working relationship and fostering 

support among agencies charged with border responsibilities. There are currently four active 

BMTFs, with a fifth one under development including: Tucson, AZ; Yuma, AZ; San Diego, CA; 

Las Cruces, NM; and El Centro, CA in formation. 

Accomplishments with the Southern Arizona Project 

• 20,794 bags of trash removed plus 79,733 pounds weighed in at landfill sites 

• More than 477,540 pounds of trash are known to have been removed in 5 years

• 3,647 bicycles removed from Tohono O’Odham Nation and from Sonoran Desert National Monument 

• 477 abandoned cars removed from all southern Arizona lands; 430 from the Lower Sonoran Field Office 

• Over 100 illegal trails and roads restored 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-94 

Each task force has focused its discussions on issues affecting the Southwest border including: 

• Tucson BMTF: telecommunication issues, especially with the Border Patrol changing 

their system; employee safety; resolving issues with the National Guard presence; and 

Secure Borders Initiative and other tactical infrastructure issues. 

• Yuma BMTF: communications, checkpoints, river patrols, hunting season issues, issues 

with the boundary location, and vegetation management in the Colorado River border 

area. 

• Las Cruces BMTF: MOU for maintenance of existing roads; the Hatchet Peak repeater; 

and gate and road access. 

• San Diego BMTF: emergency work in Spring Canyon and Tecate Peak; maintenance of 

existing roads and access to roads; and BLM permits for construction. 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-95 

Funding – Below is a table and discussion of 2008 and 2009 funding for the Safe Borderlands 

Initiative and Law Enforcement in general: 

Safe Borderlands Initiative 2008 2009 

Communications (includes 6 dispatchers) 666,000 549,000 

Special Agents/Rangers (includes 3 agents & 6 rangers) 1,862,000 1,170,000 

Other Southwest Border Priorities (includes service 

agreements, drug eradication support & other costs) 272,000 622,000 

Subtotal – Law Enforcement on the S.W. Border 2,800,000 2,341,000 

Hazardous Materials Management Program (Resource Clean-up on S.W. Border) 1,000,000 

Subtotal – Safe Borderlands Initiative 2,800,000 3,341,000 

Law Enforcement Program – Outside Border Area (includes 1 

agent, 1 ranger & other costs) 1,137,000 1,596,000 

Grand Total 3,937,000 4,937,000 

In 2008, Congress provided an additional $3,937,000 over the 2008 President’s Budget level 

($2,571,000 over the 2007 enacted level), to the BLM’s Law Enforcement program as a general 

program increase and for use on the Southwest border. The BLM will use $2,800,000 of the 

$3,937,000 million in 2008 for the Safe Borderlands Initiative. The remaining $1,137,000 will be 

used in 2008 in the Law Enforcement program to fund other high priority projects, outside the 

Southwest border area. Please see the see the Law Enforcement program subactivity section 

in the Management of Lands and Resources appropriation for more information on the funding 

to be used outside the border area. 

The following describes the $2,800,000 that will be used in the border areas in 2008: 

• Communications: $666,000 will support six dispatchers and the labor, licensing, 

equipment, training and the general operating costs associated with the dispatchers 

for the Phoenix Interagency Dispatch Center, to give the center the capability to 

provide services 24/7. This also includes updating the dispatch console system to 

meet the needs of today and beyond, adding several new radio repeaters and base 

stations at remote locations (to provide better radio coverage), and upgrading, 

modifying and enhancing several existing remote radio sites, equipment and 

infrastructure. 

• Agents/Rangers: $1,862,000 will support the hiring, background investigation costs, 

relocation costs, training and equipment of three new special agents and six new 

rangers on the Southwest border to provide the manpower needed to maintain for 

public safety. The three special agents will be deployed to Arizona, California and 

New Mexico. Of the six new rangers, four will be deployed to Arizona, California and 

New Mexico and the remaining two will be deployed to NLCS units in Arizona and 

New Mexico. Increased law enforcement presence in the border area will protect 

public lands, resources and facilities; maintain safe environments for public land 

users; and by providing on-the-ground presence, serving as a deterrent to illegal 

smuggling activities. 

• Other Southwest Border Priorities: $272,000 will support on the border investigations 

and eradication of drugs from public lands; dispatch service agreements used on the 

border and other costs for operations near the border areas. 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-96 

The 2009 BLM budget retains the additional $3,937,000 over the 2008 President’s Budget level 

in 2008 for the Law Enforcement program. The BLM will use $2,341,000 of these funds on the 

Southwest border in 2009 in the same areas of communications, special agents & rangers and 

other Southwest border priorities as described in the 2008 discussion. The remaining 

$1,596,000 will be used in the Law Enforcement program to fund other high priority projects 

outside the Southwest border areas. Please see the see the Law Enforcement program 

subactivity section in the Management of Lands and Resources appropriation for more 

information on this funding to be used outside the border area. 

The following describes the $2,341,000 that will be used in the border areas in 2009: 

• Communications: $549,000 is retained to support the operational costs of 

maintaining the Phoenix Dispatch Center as well as funding the labor and supplies 

associated with hiring the six new dispatchers in 2008. 

• Agents/Rangers: $1,170,000 to continue to support the cost of labor, training and 

general operations costs associated with the hiring of the three special agents and 

six rangers in 2008 on the Southwest border. 

• Other Southwest Border Priorities: $622,000 to support dispatch service agreements; 

providing a cache of technical investigative equipment to be used by rangers and 

agents in the field; offering more support for the investigation and eradication of 

drugs from public lands; and providing for overtime and travel costs for rangers and 

agents to support areas of high visitation during holidays and special events. 

Funding will also support the overtime and equipment costs for field operations. 

In addition, the 2009 President’s Budget requests 

an additional $1.0 million over the 2008 enacted 

level to use on the Southwest border for resource 

mitigation and protection in the Hazardous Materials 

Management program. Illegal immigrants and 

smugglers have caused significant damage to 

natural and cultural resources. With this additional 

funding in 2009, the BLM will be able to continue 

mitigating the resource damage through 

coordination with other federal, state and local 

governments through the Hazardous Material 

Management program. Specific on-the-ground 

projects in Arizona, California and New Mexico will 

include mine shaft closures, removal of thousands 

of pounds of litter, removal of abandoned vehicles and bicycles, repair of infrastructure, signage 

and environmental education. 

Abandoned vehicle in Arizona 

Sonoran Desert National Monument

The funding increase of $1.0 million will be used in the Hazardous Materials Management 

program as follows: 

• Arizona ($625,000) – to remove trash, hazmat, and abandoned vehicles, repair 50 illegal 

routes, restore approximately 8 acres and improve signage for visitors. 

• California ($200,000) – to conduct wilderness restoration and close abandoned mines 

used by illegal aliens to hide. 

• New Mexico ($175,000) – to close abandoned mines used by illegal aliens to hide. 

 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-97 

Energy Security (Renewable Energy Included)

As world-wide energy demand continues to grow, BLM-managed resources will continue to play 

a critical role in meeting the nation’s energy needs. About 30 percent of domestic energy is 

produced from DOI-managed resources, both onshore and offshore. The BLM also provides 

access to transmission corridors used to deliver energy from the production site to communities 

across the country. 

Today, the BLM places a high priority on environmentally responsible development of traditional 

(oil, gas, and coal), renewable (wind, solar, geothermal, and biomass) and unconventional (oil 

shale and tar sands) energy resources. Priority must also be placed on strategic planning 

across jurisdictions to meet future needs 20 to 30 years from now. The BLM and the 

Department of Interior will work with the Department of Energy, states, Indian Tribes, and 

industry to assess energy consumption predictions, understand emerging technologies, and 

incorporate new energy resource data in order to be prepared to provide appropriate access to 

the nation’s diverse energy resources well into the future. 

The BLM’s policies will encourage the use of new technologies to enhance energy development 

and minimize environmental impacts with a goal of ensuring a stable long-term energy portfolio 

for the Nation. The subsequent paragraphs provide additional information on the BLM’s energy 

resources. 

Coal - Federal coal provides approximately 42 percent of the nation’s coal production. Since 

2000, approximately 3.5 billion tons of Federal coals have been produced with a gross value of 

$31.8 billion. Royalty and lease payments totaled $3.4 billion. At the end of 2007, BLM 

administered 298 Federal coal leases covering 467,000 acres of Federal mineral ownership. 

Coal is used to generate approximately 50 percent of the nation’s electricity. The electric power 

sector (electric utilities and independent power producers) accounts for about 92 percent of all 

coal consumed in the U.S. and are the driving force for the nation’s coal consumption. Coal is 

used in the nation’s industrial sector to generate power, while in the manufacturing sectors it is 

used to produce foods, primary metals, chemicals, papers, beverages, and fabricated metals. 

Coal is also used directly to heat residential structures and commercial facilities. 

Oil and Gas - Oil and gas resources generate the highest revenues of any uses of the public 

lands. On BLM managed lands, oil and gas development generated $2.8 billion through 

royalties, rents, and bonuses in 2007. In 2007, the onshore public lands generated 14 percent of 

the Nation’s domestically produced natural gas, and 5 percent of domestic oil. 

In 2007, the BLM administered over 49,000 oil and gas leases, of which over 21,500 oil and gas 

leases are producing. These leases cover over 45 million acres in 33 states. Of this, about 11.6 

million acres are in producing status with an estimated 420,000 acres of surface disturbance, 

which will ultimately be reclaimed upon completion of operations. 

Renewable Energy - The BLM’s Renewable Energy program provides access to geothermal, 

wind, solar, hydropower and biomass resources on BLM managed public lands. 

Geothermal Energy - The BLM presently manages 480 geothermal leases, with 58 leases in 

producing status. BLM’s geothermal leases generated over 260 megawatt-hours of electrical 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-98 

power during 2007 and provide alternative heat sources for direct-use commercial endeavors. 

These Geothermal leases generate over $12 million in federal royalties each year. Competitive 

lease sales in 2007 netted over $28 million in bonus bids for geothermal lease parcels in Idaho, 

Utah, Nevada, and California. 

The BLM and U.S. Forest 

Service have initiated a 

Programmatic Geothermal 

Leasing Environmental Impact 

Statement (PGEIS) to amend 

land use planning documents 

to consider and evaluate for 

geothermal leasing. The 

PGEIS has an anticipated 

completion date in December 

2008. The completion of this 

document is anticipated to 

result in a significant demand 

for new leases for geothermal 

resources. 

Wind and Solar Renewable 

Energy – The BLM’s land and 

Realty Management program 

authorizes the use of public 

land for traditional oil and gas 

pipeline rights-of-ways, electric 

transmission line rights-ofways, and communication 

sites. BLM also authorizes 

rights-of-ways for the use of 

public lands for wind and solar 

energy production sites. Due 

to recently enacted laws in some states, which require energy companies to provide a portion of 

produced products from renewable energy sources, the BLM anticipates an increase interest in 

the use of public lands for renewable energy development. 

The current total installed generation capacity of wind energy projects on public land in 

California and Wyoming is approximately 300 megawatts (MW). Another 1,300 MW of wind 

energy projects in several western States is proposed or recently approved by the BLM. 

There are currently no commercial scale solar energy facilities on BLM public lands. However, 

there are some 70 pending applications for solar energy projects on public lands in Arizona, 

California and Nevada. These applications involve a variety of solar technologies and are being 

processed under a BLM Solar Policy issued in April 2007. In 2008, the BLM will continue 

conducting studies necessary to evaluate and process the increasing number of applications for 

rights-of-way for the siting of wind and solar energy projects and applications for rights-of-way 

for electric transmission lines from these projects. 

The geothermal industry is focusing on Nevada for new 

development opportunities in leasing as well as 

expanding the development of areas already in 

production. In Nevada, geothermal facilities on BLM’s 

leases generated over 170 megawatts (MW) of electrical 

power and provided alternative heat sources for directuse commercial endeavors. The geothermal lease sales 

held in 2007, offered 43 tracts and brought in total bids 

exceeding $11.3 million. 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-99 

A Programmatic Environmental Impact Statement (EIS) relating to the authorization of wind 

energy projects was completed in 2005. This EIS provides an analysis of the development of 

wind energy projects in the West. The EIS identified the potential development of over 3,200 

MW of wind energy on public lands in the western States. Offices are able to utilize this EIS as 

an aid in analyzing impacts for specific applications for the use of public lands for wind energy 

use. In conjunction with the publication of this EIS, applicable BLM land use plans were 

amended to allow for the use of applicable lands for wind energy development. In 2006 the 

BLM followed by issuing a wind energy policy to provide guidance on best management 

practices (BMPs) and measures to mitigate potential impacts on birds, wildlife habitat and other 

resource values. The BLM will also continue to participate with the Department of Energy’s 

Renewable Energy Laboratory on wind, as well as solar energy studies. 

Hydropower Energy - The Federal Power Act of 1920 authorizes the Federal Energy 

Regulatory Commission (FERC) to permit the use of Federal lands by private entities to develop 

hydro-power facilities. These existing facilities, many of which were licensed in the 1940s and 

1950s, are located on public lands withdrawn by FERC. As license terms are nearing the end 

for a large number of these facilities, the BLM, through participation in FERC’s re-licensing 

process, is providing input into the license review and approval process, and identifying 

applicable terms and conditions necessary to protect or enhance specific resource values. 

Hydro-power license and re-license projects are located primarily in California, Washington, 

Oregon and Idaho. 

Biomass (Forest Management) - The BLM manages 69 million acres of forests and woodlands 

under the Public Domain Forest Management and Oregon and California Grant Lands 

programs. The goals of these programs are to maintain and restore the health of the BLM’s 

forests and woodlands, and to provide forest products for economic opportunities. 

In 2009, the BLM will spend $100,000 of the Public Domain Forest Management funding for 

biomass project work to contribute to biomass energy supply. Biomass is the process of 

recycling agricultural waste products into a source of fuel. The BLM’s Biomass Program 

continues to focus on biomass utilization — both on-the-ground projects and assistance to 

community groups to attract/develop industry infrastructure. 

Wind and Solar Energy Success in Nevada 

BLM Nevada has authorized 34 sites for wind monitoring and testing over approximately 

195,000 acres. Additional applications have been received for wind (three development 

and 30 for monitoring and testing) over approximately 223,000 acres. Solar power 

generation has 18 applications submitted for 174,000 acres. This level of development will 

require review and processing of rights-of-way application for new power plants and 

transmission lines, plus the review and approval of new drilling permit applications. This 

new development will also greatly increase BLM’s inspection and enforcement, production 

verification, and compliance workloads. The new regulations implementing the Energy Act 

of 2005 will also greatly increase BLM’s Lands and Minerals adjudication workload. 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-100 

BLM Renewable Energy 

Appropriations History and 2009 Budget Request 

Program/Issue 2004 2005 2006 2007 2008 2009 

($000) Enacted Enacted Enacted Enacted Enacted Request 

Geothermal Program 

within Oil and Gas 

Management 

Program 

1,250 1,233 1,214 1,214 1,200 1,200

Geothermal Steam 

Act* Implementation 

Fund Revenue 

(Energy Policy Act) 

0 0 3,523 4,360 6,183** 0

Renewable ROW 

primarily wind & solar 

energy 

400 644 635 635 635 635

Hydropower relicensing 300 296 291 291 291 291

Contribute to biomass 

energy supply.*** 

0 235 290 757 100 100

Total Renewable 

Energy 

1,950 2,408 5,953 6,335 11,526 2,240

* The 2009 Interior budget proposes to rescind Section 234 of the Energy Policy Act of 2005 to return the Federal 

share of geothermal revenues to the Treasury. Section 234 redirected these revenues to the BLM’s Geothermal 

Steam Act Implementation Fund. 

**Geothermal receipts deposited in BLM’s Geothermal Fund vary by year, so BLM’s spending plan may differ from 

actual and estimated receipts. Receipts shown in the Summary Requirements Table and the activity table in the 

Permanent Operating Fund appropriation actually totaled $4.4 million in 2007 and are estimated at $9.3 million for 

2008. 

*** Project work only. Does not include BLM labor involved in facilitating the use of biomass energy within the BLM, 

the public, and industry. Wood cutting permits are issued for heating of homes and are not part of this program. 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-101 

 

Community Growth on Public Lands 

The West Is Growing

Many of the fastest growing metropolitan areas in the nation are located in the west. Over 

4,100 communities with a combined population of over 57 million people are located within just 

a half hour’s drive – just 25 miles – of BLM-managed public lands and waters. BLM lands and 

related waters are quickly becoming western America’s backyard. 

This community growth is generating dramatic increases in demand for the use of the public 

lands. Examples of the BLM’s role in responding to this higher demand include: 

• Responding to demands for land for community expansion and for roads, pipelines, and 

utility distribution lines. 

• Resolving legal uncertainties concerning property rights, especially in spilt estate and 

checkerboard situations. 

• Effectively working with federal and state agencies, regional entities, local governments 

and private developers on multiple planning efforts with overlapping jurisdictions and 

little coordination. 

• Reducing conflicts among and between users of the public lands and between 

recreational users, other public land users, and adjacent landowners. 

• Providing sand, gravel and building stones for highways and other construction projects. 

• Protecting archaeological sites and other heritage resources. 

• Conserving native plant and animal communities in landscapes increasingly fragmented 

by human activities. 

• Responding to illegal and indiscriminate activities such as theft, unauthorized access 

and occupancy, vandalism, trash and hazardous materials. 

The BLM addresses these activities using appropriated funds, and in some cases, recovers 

costs from applicants. BLM also engages public land users and other partners to contribute to 

this work and has been highly successful in this effort. The recreation and visitor services 

program, for example, is particularly successful at attracting volunteers, accounting for almost 

half of the 1,350,000 volunteer hours contributed to BLM in 2007. Additionally, the program 

engages corporate and local support from surrounding communities to collaboratively plan for 

and manage recreation resources. 

In order to allocate resources most efficiently to areas of greater need, in 2009 the BLM will 

redirect approximately $8.0 million from field offices experiencing little or no population growth 

to field offices in or adjacent to expanding communities. The programs in which these funding 

shifts will occur include recreation, law enforcement, hazardous material management, realty 

and mineral materials. 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-102 

Population Growth in the West

Level of 

Growth Rate States Growth Rate 

Average National Population Growth Rate 7.2% 

California, Washington, New Mexico, 

Fast Oregon and Washington 7.9% - 9.7% 

Faster Colorado, Idaho, and Utah 13% - 18.5% 

Fastest Arizona and Nevada 23.5% or more 

Source: Percent Change in Population for States (April 1, 2000 to July 1, 2007), 

 Population Division, U.S. Census Bureau, December 27, 2007.

Specific examples of this population growth include: 

• Arizona: Population projections for the Phoenix metro area indicate that growth will occur 

at 2.5 times the national rate for the next 40 years, ultimately reaching 7.5 million. The 

Kingman Resource Area in the northeastern part of the State is expected to experience a 

population increase from a mere 150,000 residents to nearly one-half million by 2050 as 

Las Vegas suburbs are built south of the Colorado River. Growth in the St.George, Utah, 

and Mesquite, Nevada, areas which directly affects large portions of the Arizona Strip, 

report projections similar to Kingman. The southern area of Arizona is experiencing 

similar growth. The population of Tucson and surrounding Pima County is now over one 

million, almost twice the population in 1990. Other areas are also experiencing population 

increases, including Yuma, Safford, and Lake Havasu. 

• Idaho: Boise is by far the largest city in Idaho. The surrounding cities of Meridian, Napa, 

Eagle, Caldwell, Star, and Middleton are sprouting bedroom communities that comprise 

the greater “Treasure Valley” representing Ada and Canyon Counties. These counties 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-103 

have experienced more than 30% growth over the past 10 years. Idaho is in the top four 

states for growth in the United States and Boise and the Treasure Valley are in the top 

five cities for growth in the nation. By 2020, the Treasure Valley population is projected to 

exceed 1 million, up from 532,000 in 2006. 

• Nevada: While the entire State of Nevada has experienced high growth, the Carson 

City/Reno and the Las Vegas areas have seen very significant increases. The population 

of Clark County, which includes Las Vegas, grew from 797,000 in 1990 to almost 2 million 

in 2007. The population of Washoe County, which includes Reno, grew from 254,000 in 

1990 to 396,000 in 2007. In addition, the Coyote Springs area, a planned development of 

100,000 located 100 miles north of Las Vegas is slated for development within the next 

several years. This area is bordered by public lands managed by the BLM and the U.S. 

Fish and Wildlife Service. 

• Oregon: Community growth over the last 10 years in Central Oregon has been dramatic, 

with Deschutes County experiencing a 29.3% increase in population from 2000-2005 

alone. The BLM manages 400,000 acres in Deschutes and neighboring Crook County 

with additional regional lands in Jefferson, Jackson and Lake Counties. In addition to new 

residents moving to the area, there are 7 major resorts, with 3 more resorts being 

proposed through conditional use permits. These resorts have, or will probably produce, 

an average of 2,000 single family units located adjacent to, or between, large BLM land 

parcels. 

Individuals living in one of the 4,136 communities with a 

combined population of 57+ million people who are located 

within just one-half hour drive (just 25 miles) of BLM managed 

public lands and plan to spend an afternoon recreating on public 

lands, will probably not be alone. 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-104 

Addressing Population Growth

To address the challenges associated with high population growth, the BLM is focusing its 

efforts in several programs such as Planning, Recreation, Law Enforcement, Hazardous 

Material Management, Realty, and Mineral Materials. The following is a description of the types 

of work which need to be accomplished in these various programs and some specific projects 

described in the Bureau’s Budget Planning System to be accomplished in 2009 if funded. 

• Working with adjacent jurisdictions including communities, counties, states, and other 

affected interests to plan for the growth. 

o In Arizona, the BLM is realigning its priorities and actions to mirror the State, 

regional, and local efforts in high growth areas. The Governor has created a 

Growth Cabinet to develop a framework to manage growth with a particular 

emphasis on transportation needs. At the regional level, Association of 

Governments organizations are initiating transportation and other regional 

framework planning and universities and non-profit organizations are convening 

groups to discuss growth issues. At the county and municipal level, agencies, as 

well as private developers, are engaged in land use planning, recreation 

planning, air and water management planning, and many other planning efforts. 

BLM will participate in or contribute to these efforts and consider the results in 

future management planning efforts. 

• Implementing comprehensive travel and transportation management to reduce user 

conflicts, address public health and safety issues, and protect natural and cultural 

heritage resources. 

o In Saint George, Utah, more than 35,000 acres of public lands lie within 

incorporated city limits and are critical to maintaining the balance between urban 

growth and natural resource protection. The lands contain exceptionally large 

numbers of cultural and historic sites, support numerous populations of 

endangered species, and include critical riverine resources along the Virgin River 

and its main tributaries. Unmanaged recreation along the river corridors has 

resulted in significant degradation to riparian zones and impacts to water quality 

in drinking water source protection zones. To address these problems, the BLM 

is designating OHV routes, preparing travel maps and other visitor information, 

and installing signs. 

o In Montana, the BLM completed travel management designations in the recently 

approved Dillon Resource Management Plan and will begin implementation in 

2009. 

o In Idaho, the BLM plans to produce a road network map for the Four Rivers Field 

Office and continue implementation level planning for the Pocatello Special 

Recreation Management Area and selected travel management areas. All of 

these travel management related projects are in identified community growth 

areas. 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-105 

• Working with community residents, recreation-tourism businesses, local government, 

state agencies, and other land managers to provide a mixture of dispersed and 

structured recreation opportunities in areas experiencing community growth. 

o In Alaska, recreation projects in the Fairbanks community growth area will 

provide: a recreation resource inventory and assessment, a Cooperative AllAmerican Highway Plan in with the Alaska Department of Transportation, 

expanded visitor services, recreation facility maintenance for trails and visitor 

sites, increased monitoring of recreation permits, and increased user education. 

o In Montana, the BLM will use available funds to supplement existing partner 

contributions, grants, and recreation fees to accomplish needed improvements to 

recreation services in the 132 mile Madison River corridor adjacent to Gallatin 

County, one of the counties in Montana which is experiencing rapid growth. This 

river corridor receives 200,000 visitors annually particularly during the summer 

and fall months. Funds will be used for increased monitoring and enforcement, 

interagency planning efforts, and to address the additional workload created by 

permitting demands. 

o In the Central Oregon community growth area, a major recreation project 

involves implementing the Cline Buttes Recreation Area Plan, including proposed 

actions for travel management, recreation management, and vegetation 

management for the 50 square-mile Cline Buttes Recreation Area. The majority 

of the funds requested in 2009 -will serve as a match for grant and partnership 

efforts to develop trailheads, road and trail systems, and access controls, to 

decommission unneeded roads and trails, and to rehabilitate areas. All of the 

implementation actions of this project will directly benefit communities. The 

project currently has a high degree of support and involvement from adjacent 

destination resorts, local landowners, recreation groups, and local communities. 

The OHV industry estimates there are four 

to five times more off-road vehicles 

operating in the West now than a decade 

ago. By 2010, there will be an estimated 60 

million domestic OHV enthusiasts. This 

would represent a 12-fold increase since 

1972.

BLM has reported 6,482 illegal dumpsites 

since 2000.
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-106 

• Cleaning-up trash dumps and other contaminated sites, reducing noxious weeds, and 

remediating abandoned mine lands and other threatening situations for visitors and 

adjacent landowners. 

o In Colorado, the BLM is taking steps to increase detection, monitoring, and 

response capability to address physical, environmental, and human health 

hazards on public lands adjacent to growing communities. As part of this effort, 

the Colorado BLM is working with local governments to develop anti-dumping 

campaigns including signage, clean-up, public awareness and enforcement. 

o In Nevada, the Carson City/Reno, Las Vegas, and Coyote Springs areas are 

significantly affected by illegal activities that threaten environmental quality and 

public safety. These illegal activities include trash dumping, target shooting, 

minors drinking alcohol, illegal drug use, fireworks, campfires, and OHV use. 

Funds will be used to establish urban interface ranger positions in several 

counties including Washoe and Clark. 

 

• Providing land to meet the needs of 

expanding populations through land sales 

and exchanges; issuing Recreation and 

Public Purposes Act permits for schools, 

law enforcement facilities, parks and other 

public facilities; and issuing grants of 

rights-of-ways for roads, water pipelines 

and utility distribution lines. 

While statutorily prohibited from recovering 

the costs of processing some rights-of-way 

and other realty actions, where possible 

the BLM is pursuing cost-recovery to help 

respond to the growing demand for realtyrelated actions associated with community expansion in the American West. 

The BLM has recovered 607 hazardous 

material clean-up sites since 2000. 

o In Colorado, for example, the BLM is working with local governments on 

infrastructure needs for expanding communities and is implementing an 

accelerated land sales program to dispose of difficult to manage BLM tracks 

within 25 miles of community growth areas. 

o With the growing need for renewable resources to help meet infrastructure 

needs, the BLM in California is on the cutting edge of the solar/wind power boom. 

Use of cost recovery will help in funding the processing of all new applications. 

Field offices will need to cooperate with local communities, state agencies and 

major utility companies to assure multiple use and resource protection on public 

lands. 

o In Oregon, BLM has received a number of applications for the use of public 

lands, all related to needs of expanding communities. Specific planned realty 

actions in the Central Oregon growth area include leases and patents for Barnes 

Butte Park (Prineville), Juniper Community Golf Club and Redmond Caves 

(Redmond), Redmond Airport expansion, La Pine Library, Alfalfa Transfer Station 

(Deschutes County), Prairie City Landfill, and sewage facilities (Redmond and La 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-107 

Pine). Rights-of-Way actions include Highway 97 re-route, and fire access and 

emergency routes for subdivisions in Crook and Deschutes counties. Land 

tenure adjustments would include transfer of land to the Oregon Division of State 

Lands (in-lieu selections totaling 2500 acres, some of which require a land use 

plan amendment), disposal of high market value, but difficult to manage tracts, 

and acquisition of desirable tracts not covered under FLTFA. 

• Providing access to sand, rock, gravel and other mineral materials to meet growing 

infrastructure needs. From 1995 through 2004, demand for mineral material sales and 

permits averaged 22.2 million cubic yards annually. From 2003 through 2007, demand 

for sales and permits increased to an average of 41.6 million cubic yards annually. The 

work loads associated with effective management of sand and gravel commodities 

include processing new and renewal of existing contracts, inspection and verification of 

production and payments, trespass detection, and periodic royalty appraisals to ensure 

fair market value is obtained. 

The BLM is increasing the use of cost recovery to process requests for sales of these 

materials, which is enabling the BLM to focus appropriated funds on processing permits, 

conducting inspections and increasing trespass enforcement in areas of greater activity. 

In some instances, as the BLM has increased its emphasis on trespass, both new and 

long-standing trespasses have been discovered in isolated areas, particularly on splitestate ownership where federal minerals are reserved. 

o The BLM in California sold more than one million cubic yards of sand and gravel 

in 2007 to meet infrastructure needs while holding contracts that total over $30 

million. The California Department of Transportation has plans to spend $107 

billon on transportation projects in the next decade. 

Shifting Existing Funding:

To help fund higher priority needs, the BLM is shifting funds from field offices experiencing little 

or no impacts from community growth to field offices experiencing a significant amount of 

workload associated with growing communities. The following process is being used to 

accomplish this shift in funds: 

• The BLM identified population centers and growth areas in the American West using Census 

data on population density and growth rates. 

• The BLM then computed the geographic scope of public lands within 10, 25, 50 and 100 

miles of these growth areas. As portrayed on the following map, the results were 9 million 

acres within a 10 mile area surrounding growth areas, 34 million acres from 10-25 miles, 58 

million acres from 25-50 miles, and 57 million acres from 50-100 miles. Ninety percent of 

BLM lands (excluding Alaska) are within 100 miles of population growth centers. 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-108 

This map was developed using Census data to show Population Growth Areas (PGA’s). BLM 

lands are color-coded according to proximity to these PGA’s. Field Office boundaries are 

delineated to determine the administrative areas experiencing the most impacts from community 

growth. 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-109 

• The BLM then identified the Field Offices with a significant amount of public lands within 0-25 

miles and within 25-50 miles of the population growth centers. This information was used to 

develop the following list of representative Field Offices affected by growing communities. 

State 

High Growth 

Field Offices State 

High Growth 

Field Offices 

Alaska Anchorage Idaho Bruneau 

Fairbanks 

Arizona Arizona Strip Coeur D’Alene 

Hassayampa Four Rivers 

Kingman Owyhee 

Lake Havasu Pocatello 

Lower Sonoran Shoshone 

 

 

 Tucson Upper Snake 

California Bakersfield Montana Butte 

Barstow Dillon 

El Centro Nevada Carson City 

Folsom Las Vegas 

Hollister New Mexico Farmington 

Palm Springs Las Cruces 

Redding Rio Puerco 

 

Ridgecrest Taos 

 

 

 Ukiah Oregon Deschutes 

Colorado Columbine Malheur 

Glenwood Springs Utah Moab 

Grand Junction Saint George 

Kremmling Salt Lake 

Little Snake Wyoming Casper 

Royal Gorge 

Uncompahgre 

White River 

• After identifying the areas impacted by growing communities, the BLM then identified the 

workloads associated with demands from growing communities and calculated the recent 

expenditures for these workloads in both high-growth and non-high growth BLM field offices. 

This involved analyzing expenditures for 42 separate work activities in the BLM’s recreation, 

law enforcement, hazardous materials management, realty, and mineral materials programs. 

Based on this analysis, the BLM can reasonably assume $8.0 million in funding can be shifted 

to address critical workloads in identified community growth areas. This represents 

approximately 10 percent of the recent expenditures for these workloads in non-growth areas. 

The funding shifts will be made by moving funds from low-growth field offices to high-growth 

field offices within each State. The exact funding shifts to occur will be determined when the 

2009 Preliminary Target Allocation is developed. The BLM will continue to have a management 

presence in the non-growth areas. However, some of the lower-priority recreation, law 

enforcement, hazardous materials management, realty, and mineral materials work in these 

areas will have to be foregone or deferred due to the shift in funds. 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-110 

Non-Energy Commodity Use 

The BLM will focus on providing the non-energy commodities demanded by the public, including 

forage, forest products, sand and gravel. The BLM’s mission focuses on sustainability and 

multiple-use. The 2009 emphasis area of non-energy commodity use advances the BLM’s goal 

of managing or influencing multiple resource use to enhance public benefit, promote responsible 

use, and ensure optimal value and use of resources demanded by and provided to the public. 

During the period 2009-2012, the BLM will continue to focus on providing non-energy 

commodities to local governments, small businesses, permittees and other users of public 

lands, by providing timely grazing permit renewals; making forest woodland products available 

for commercial production; and making available non-energy minerals such as sand and gravel 

for growing communities. 

In 2009, the BLM will also focus on non-energy commodity use by working to eliminate the 

grazing permit renewal backlog and continue to issue grazing permit renewals on 258 million 

acres of public lands, develop grazing plans and the associated treatment projects to help 

implement grazing decisions, and focus on monitoring and evaluating to determine progress in 

meeting land use plan objectives. Another goal of this emphasis area is working toward 

meeting the commitment to offer timber for sale, as agreed to in the Northwest Forest Plan 

Settlement Agreement. The demand for sand and gravel and other mineral resources in support 

of growing communities is also affecting the economies of working landscapes. The BLM will 

continue to focus its efforts to sustain these working landscapes, provide resources for growing 

communities throughout the West, and maintain healthy landscapes. 

Many programs contribute to the BLM’s goals of non-energy commodity use. Some of those 

programs include: 

Rangeland Management - The Rangeland Management program provides vegetation 

management that supports the Department’s strategic goals for sustaining biological 

communities and improving the health of landscapes and watersheds through management of 

187 million acres of lands within the 12 western states, including Alaska. Proper vegetation 

management on these lands provides for a variety of products and values, including wildlife 

habitat, forage for livestock, recreational opportunities, open space, scenic beauty, and 

watersheds. The goal of the program is to maintain land health while supporting multiple uses. 

This is accomplished through permit terms and conditions, range improvements, monitoring, 

and working with a variety of external partners. Rangeland conservation and restoration efforts 

are targeted towards priority watersheds to achieve integrated resource objectives. The 

program also supports livestock administration. This is guided by the Grazing Regulations, 

Fundamentals of Rangeland Health, and Standards and Guidelines for Grazing Administration. 

Primary authorities for the BLM to carry out its program include the Taylor Grazing Act of 1934, 

as amended, the Federal Land Policy and Management Act of 1976, and the Public Rangelands 

Improvement Act of 1978. 

Public Domain Forest Management - BLM manages 67 million acres of public domain forests 

and woodlands, of which 20 percent are forests capable of producing traditional forests products 

such as timber. A recently completed inventory increased the acreage by 14 million over 

previous years. Changes in inventory protocols and methodology by the USDA Forest Service 

Forest Inventory and Analysis Program resulted in this increase. The long-term goals of the 

Public Domain Forest Management program are to maintain and restore the health of BLM’s 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-111 

forests and woodlands, to provide forest products for economic opportunities and to increase 

biomass utilization for beneficial purposes, including energy production. 

 Other Minerals Management – This BLM subactivity is composed of two programs – Nonenergy Solid Leasable Minerals and Mineral Materials. Federal lands are the source of 

important mineral resources for the Nation, including potassium, phosphorus, sodium, potash, 

lead, zinc, and sand, gravel, and stone. These minerals are vital components of basic industry 

and life in the United States. Non-energy minerals are used for fertilizers, feed additives, road 

de-icers, tires, batteries, rust inhibitors, glass and papermaking, oil well drilling, water treatment, 

soaps, detergents, baked goods, medicines, and the chemical industry. Aggregates are 

essential for construction of roads, foundations and buildings. The BLM processes leases and 

permits for non-energy solid leasable minerals, such as phosphate and potash, and processes 

sales and permits for mineral materials such as common clay, stone, sand and gravel. The goal 

of the Other Minerals Management subactivity is to provide the infrastructure and minerals 

needed to support the national economy. Demand is increasing worldwide for some products, 

such as fertilizers generated from non-energy minerals, which are used in producing food and 

alternative energy sources like biofuels, and gilsonite, which is used in drilling fluids for energy 

exploration. 

Sand and Gravel - Nevada 

For more information on these and other Oregon and California Land Grant programs that 

support the emphasis area of non-energy commodity use, please see Sections III and VI. 
Bureau of Land Management 2009 Budget Justifications 

Section I - Emphasis Areas Page I-112 

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Bureau of Land Management 2009 Budget Justifications 

CROSS-CUTTING PROGRAMS

The 2009 initiatives and programs incorporate several funding activities and subactivities, 

consistent with the philosophy that the BLM can more effectively address land management 

challenges from an interdisciplinary perspective. This section provides a more detailed 

description of those initiatives and programs which cross-cut multiple programs. 

Alternative Dispute Resolution/ 

Conflict Prevention Program

The Bureau of Land Management (BLM or Bureau) has an active and well-established 

Alternative Dispute Resolution/Conflict Prevention (ADR) Program involving the following areas: 

natural resources, workplace interaction (Equal Employment Opportunity/Civil Rights and 

employee relations), and contracting and procurement. . 

BLM’s Policy Mandates for the ADR Program: In supporting the BLM’s key Government 

Performance and Results Act goals, the Bureau’s policy mandates for the Program are to: 

o Implement the Administrative Dispute Resolution Act and the related statutes, 

regulations, and policies; 

o Contribute to improving the management of resources and lands through increased 

emphasis on collaborative stakeholder engagement (conflict prevention) and ADR 

processes; 

o Serve communities, the public, and employees through ADR policy initiatives including 

the Ombudsman and conflict coaching responsibilities of the ADR Program; and 

o Emphasize conflict prevention in all program areas. 

Long-term Vision: The BLM will ensure optimal appropriate early communication and 

involvement with the public, employees, and contractors by enhancing use of ADR-based 

collaborative stakeholder engagement, conflict management, and conflict resolution processes 

and strategies. Enhanced Bureau use will strengthen the BLM’s management of natural 

resources and lands, interpersonal relationships in the workplace, and relationships with 

contractors in the procurement process. 

Mission: The primary mission of the BLM’s ADR Program is to: 1) increase prevention, 

mitigation, and resolution of internal and external conflicts and disputes; 2) enhance 

opportunities for external stakeholders to work collaboratively with the BLM and participate in 

agency decision-making; 3) foster an increasingly collaborative workplace environment with the 

support of ADR processes; and 4) reduce the volume and frequency of litigation, appeals, 

protests, complaints, and grievances through ADR-based processes. 

Sources of Funding: Funding for ADR and Conflict Prevention in the Bureau will continue to 

come from the resources programs that benefit most from ADR-based collaborative stakeholder 

engagement and established ADR processes such as mediation, negotiation, stakeholder 

working groups, joint fact-finding, and facilitation. 

Section I – Cross-Cutting Programs Page I-113 

 
Bureau of Land Management 2009 Budget Justifications 

Program Goals: The ADR Program’s goals are to contribute to: 1) enhancing working 

relationships between the BLM and local communities, other Federal agencies, State and Tribal 

governments, and other stakeholders on natural resources issues; 2) strengthening BLM’s 

ADR-based public involvement activities in all areas; 3) increasing opportunities for resolution of 

internal and external conflicts and disputes; 4) improving ADR services to employees through 

the CORE PLUS ADR system; and 5) continuing to provide ADR opportunities for conflict 

prevention, mitigation, and resolution in contracting and procurement actions. 

 

While the BLM has a history of collaborating with local communities through informal gatherings 

and formal public meetings, the ADR Program has introduced national natural resources 

policies for implementation strategies that use both upstream (conflict prevention) and 

downstream (conflict management) ADR. Through the many ADR cases in which the Bureau is 

taking the initiative with appellants, stakeholders, employees, and others, through negotiations, 

mediations, joint fact-findings, working groups, and other ADR processes, on-the-ground 

successes are demonstrating the essential value of BLM’s emphasis on pro-active ADR-based 

communication and involvement. The table below shows the current number of cases that that 

have been settled, partially settled or that are on-going ADR cases. 

Section I – Cross-Cutting Programs Page I-114 

 
Bureau of Land Management 2009 Budget Justifications 

Fire Management Program 

Beginning in 2009, the BLM’s Wildland Fire Management appropriation will be reassigned to the 

Office of the Secretary to facilitate better coordination among the Interior agencies (BLM, NPS, 

FWS, BIA). For the purposes of this cross-cutting section, the interface of the Wildland Fire 

Management program to other BLM programs will be discussed; however, the specifics of the 

Wildland Fire Management appropriation will be addressed in the Wildland Fire Management 

Budget Justifications prepared by the Department’s Office of Wildland Fire Coordination 

(OWFC). 

The Wildland Fire Management program is a good example of the interdisciplinary nature of the 

BLM’s mission. Fire plays a critical role in the management of public lands, affecting all 

resource programs. The hazardous fuels reduction treatments conducted on public lands do 

more than just reduce the risk of fire; they have benefits that achieve a wide array of land 

management goals. Fuels treatments are designed by interdisciplinary teams to promote 

healthier forests and rangelands, to achieve desired future plant communities by removing 

invasive species, to help public lands withstand periods of drought, and disease and insect 

invasions. Another benefit of hazardous fuels reduction is the ability to utilize woody biomass 

harvested to fuel electrical power plants and to provide a source of materials for secondary 

wood manufacturers. 

The fire management program already incorporates multiple disciplines, which is demonstrated 

in the Burned Area Rehabilitation planning efforts. Moreover, fire can be a useful tool in 

promoting healthy rangelands and managing weed invasions. This trend must continue if the 

BLM hopes to be successful in rehabilitating landscapes after fire and in preventing catastrophic 

fires to promote healthy ecosystems and community safety. 

The 2009 Wildland Fire Management program provides support for priority Department 

initiatives and program such as the Healthy Lands Initiative, the Wild Horse and Burro program, 

National Landscape Conservation System, the Safe Borderlands Initiative, Energy Security, 

Community Growth, and Non-Energy Commodity Use. This program also works in collaboration 

with managers and the interdisciplinary team of resource management specialists in the field 

offices to integrate the Hazardous Fuels Reduction program objectives with priority 

Department–wide initiatives and BLM programs. 

Section I – Cross-Cutting Programs Page I-115 

 
Bureau of Land Management 2009 Budget Justifications 

Financial Business Management System 

The Financial Business Management System (FBMS) entered Deployment 4 (D4) in late 

Calendar Year 2007, with preparation for the implementation of the modules covering Core 

Financials, Acquisition, Property, Financial Assistance, and the Business Warehouse. The 

BLM will begin blueprinting workings in September with deployment scheduled for November 

2008. 

Many changes to current operational processes will be impacted by the deployment of FBMS. 

Staff roles and responsibilities will change within the Washington office, State and Field offices, 

and in the newly created National Operations Center (NOC). The integrated relationship 

between these functions will drive process changes. 

The implementation of an integrated system will be a primary focus for BLM’s deployment. The 

new system will help to streamline and integrate the procurement process and the property 

process with the financial process. This integration will provide support for a full range of 

business activities. A module to address the Collections and Billings system will be built to 

interface with parts of FBMS that have already been deployed in other bureaus, including the 

Core Financials module. 

Recent Activities and Future Activities: Between mid-September and December 2007, the 

FBMS project team hosted business blueprinting workshops with representatives from the 

deploying bureaus including BLM. The blueprinting or design phase is a critical part of the 

deployment process and key to ensuring that the system is built and refined to support end-user 

needs. This important project phase allowed developers to determine how system functionality 

can be best leveraged to meet end-user requirements. 

The next phase, realization, began December 2007. While blueprinting provided a high-level 

idea of what the system will look like, there are still more detailed items that need to be clarified 

with end-users as the system is being developed and configured. Configuration is a term that 

describes the process of selecting the options in FBMS that will refine how transactions cater to 

business requirements. 

Configuration workshops that occur during realization will help developers to further understand 

D4 business requirements and decide how they can be addressed through FBMS system 

specifications. 

A “go-live” date is planned for November 3, 2008, with the current training plan scheduled for a 

time frame just prior to that date. 

Section I – Cross-Cutting Programs Page I-116 

 
Bureau of Land Management 2009 Budget Justifications 

Managing for Excellence Initiative 

The Managing for Excellence initiative continues to make a series of strategic changes to the 

BLM’s operations and organizational structure that will result in a more effective organization. 

This initiative ensures that the BLM will continue to protect the health of the land while providing 

goods and services to the Nation for today and tomorrow. The core values of the BLM will 

remain the same; however, the BLM’s business practices must respond to the external changes 

that shape the public’s needs and expectations. 

Managing for Excellence is designed as a multi-faceted initiative that recognizes the key 

requirements of management. This initiative will achieve its goal by engaging the following 

tasks: 

• Evaluating the organization 

• Planning for its future 

• Providing the unifying vision that will lead the organization to success 

• Improving workforce planning in light of the large number of upcoming retirements 

• Establishing clear roles between headquarters and field organizations to improve 

efficiency 

• Streamlining for greater efficiency in organizational processes 

The Managing for Excellence Initiative is currently active in the plan to restructure the BLM from 

a two-tier state organization to a three-tier organization. This change will establish district 

offices that will have direct oversight over several field offices or NLCS areas. The new 

organization will create additional positions that will provide developmental assignments for the 

next generation of BLM leaders. The BLM State offices have been directed to achieve the 

reorganization within their existing cost targets. This goal is achievable because a number of 

BLM’s state organizations have already moved to this new structure. 

In the Department’s strategic plan, it is anticipated that in the next five years there will be 

tremendous change in the workforce. With some 20 percent of the Department’s employees 

eligible to retire by 2008, the Department faces a potentially significant loss of knowledge and 

expertise. Retirements in such critical areas as law enforcement and fire management, as well 

as in mid- and senior-level management ranks, pose particular challenges. In an effort to 

proactively address these challenges that will also face the bureaus, the BLM has implemented 

the Management for Excellence Initiative. 

At the beginning of 2008, the BLM established the National Operations Center (NOC) in Denver 

to consolidate and streamline existing business functions, and provide increased support to the 

field. When fully operational, the NOC will be comprised of pre-existing centers within the BLM. 

The NOC centers include: 

• National Information Resources Management Center (NIRMC) 

• National Human Resource Management Center (NHRMC) 

• National Business Center (NBC) 

• National Science and Technology Center (ST) 

• Lands and Resources Project Office (PO) 

Section I – Cross-Cutting Programs Page I-117 

 
Bureau of Land Management 2009 Budget Justifications 

Section I – Cross-Cutting Programs Page I-118 

 

The National Information Resources Management Center (NIRMC) will also centralize the 

various Information Technology (IT) infrastructure and related work processes at the NOC in 

2008. These IT functions include activities such as network switch management, video, radio, 

and voice circuit management, Microsoft active directory account management, and similar 

activities. This centralization will allow the reduction of IT staff and related costs in the field 

organization. This will reduce spending on IT infrastructure and related work processes by $1.1 

million in 2009. 

The National Human Resource Management Center (NHRMC) will be centralized at the NOC 

during 2009, which will also include the centralization of staffing and benefits administration. 

These changes will require that the BLM fully fund the contract for electronic Official Personnel 

Files with the Office of Personnel Management in 2008. Centralization will reduce the BLM’s 

personnel staff and related costs in the field organization. Centralization will also reduce 

spending on personnel services by $1.1 million in 2009. 

In 2008 and 2009, the BLM will continue to combine functions from the four centers (mentioned 

above) and centralize some functions currently performed by State offices and Field offices. 

Also in 2009, the Washington Office will manage its staffing level, and through lapse 

workmonths, will eliminate 25 positions. The Washington Office has designed a target table of 

organization and has identified certain positions that are dedicated to lower priority work. The 

Washington Office will manage its work force to reach the target table of organization, 

eliminating this lower priority work. The Washington Office will be able to reduce labor spending 

by $2.5 million in 2009. This is identified throughout the programs under the Organizational & 

Administrative Streamlining line. 

Through the changes implemented in 2008 and 2009, BLM will generate a total savings of $4.7 

million. The BLM currently plans to have this initiative fully implemented by the end of 2009. 

The current BLM Table of Organization can be found behind the ‘Other Attachment’ tab in this 

book. The Table of Organization reflecting the Managing for Excellence Initiative changes 

follows behind the current BLM Table of Organization. 
 2009 

Section I – Cross-Cutting Programs 

Managing for Excellence Re-Organization

CHANGES to HEADQUARTERS 

ORGANIZATION

CHANGES with WO DIRECTORATES 

and OFFICES

CHANGES to STATE 

Establish a Single National Operations Center (NOC): Shift the reporting relationship and accountability for national Centers from their respective Assistant Director to a single 

National Operations Center (NOC) Director, including:

 National Science and Technology Center,  Lands and Resources Project Office,  National Information Resources 

Management Center, 

 National Human Resources Management  Center, and  National Business Center. The NOC would be responsible for servicing the entire BLM for assigned centralized services. Completed on October 1, 2007.Centralize additional ‘back room’ HR and IT functions within the NOC: Centralized functions could include: HR: personnel action processing, staffing 

and position classification, employee development, time and attendance/payroll, drug testing/medical examinations, and benefits administration. 

 IT: telecommunications, GIS architecture 

(data storage, hardware and software), national level IT application development and operation, system administration, and user support. 

Work is underway with scheduled completion by October, 1, 2009 

Consolidate Environmental and Heritage Education Activities in the National Landscape Conservation System Office:  Consolidate partnerships, volunteers, 

environmental education, and heritage education in the National Landscape Conservation System (NLCS) Office. 

This proposal links key environmental and conservation message development with NLCS management. Consolidate Engineering and Asset Management Functions in Business and Fiscal Resources Directorate (WO-800):  Realign engineering/asset management 

functions from AD-300 to AD-800. 

 Realign the CASHE function from AD-300 

to AD-800 and the operational aspects of CASHE to the Property/Asset Management Division in the NOC. 

 Realign remaining WO-360 functions 

(AML and Hazmat) to the Renewable Resources and Planning Directorate. 

Place the GIS Policy and Oversight Lead in the Renewable Resources and Planning Directorate (WO-200)  Placement of GIS policy and oversight 

lead in WO-200 is complete 

 Focus GIS leadership on standards, 

overall policy, and efficiency. Assign the operational lead (including applications development such as e-GIS) to the NOC. 

Move to a 3-tier organizconsisting of State Offiand Field Offices within 

 Develop standard roles 

District, and Field Offic

 Eastern States Office w

exception and will remaorganization. 

Maintain key HR advisor f Maintain key HR adviso

States, including emploorganizational design amanagement, workforccase management, outstrategies, and retireme

Centralize IT functions at  Create virtual State IT 

Office IT staff reporting 

Zone Acquisition Services Functional Areas ReportinDirector:  Acquisition services ov

conducted from the NOOregon, would report to specialize in natural rescontracting. 

 Acquisition staff in Den

business and IT related unlimited procurement unit to handle workload State Office authority foAcquisition and retain f

Bureau of Land Management 
Bureau of Land Management 2009 Budget Justifications 

Native Plant Materials Development Program 

The Bureau of Land Management is the largest seed buyer in the Western Hemisphere. 

Historically, native seed were not available in sufficient quantity or diversity to meet the Bureau’s 

fire rehabilitation needs, short-term reclamation needs or long-term restoration needs; therefore, 

it was necessary to buy non-native seed. As directed by Congress in 2001, the BLM is leading 

an interagency effort to develop a long-term program to supply and manage native plant 

materials for use in restoration and rehabilitation efforts on federal lands. The Native Plant 

Material Development program is funded in the Department’s Wildland Fire Management 

accounts which include funding for the Wildland Fire and management programs of the BLM, 

NPS, FWS and BIA. In 2007, BLM purchased more than 7.4 million pounds of seed, including 3 

million pounds of non-native seed because there was not sufficient reasonably priced native 

seed on the market. The Department Native Plant Materials Development Program is working 

to improve the availability and diversity of native plant seed, which is vital for the health and 

sustainability of the public lands. 

The Native Plant Materials Development program consists of Seeds of Success, the U.S. seed 

collection effort which is part of the international program led by Royal Botanic Gardens Kew. 

Native plant development is being conducted on a regional basis in the Great Basin Native Plant 

Selection and Increase Program, the Oregon/Washington Native Plant Increase Program, the 

California Native Plant Program, the Uncompahgre Plateau and Colorado Plateau Programs, 

the newly developing Mojave Native Plant Program and other smaller native plant materials 

development projects throughout the BLM states. The Department of Interior developed the 

Healthy Lands Initiative to manage natural resources with flexible landscape-level approaches 

for multiple-use. A stable native seed market will be necessary for BLM to carry out Healthy 

Lands Initiative projects, which all focus on sustaining healthy native plant communities. 

The mission of the Native Plant Materials Development program is to produce and develop 

appropriate native plant materials in sufficient quantities that can be used by the Department’s 

Land and Fire management bureaus to achieve the Departments mission of sustaining health, 

diversity and productivity of public land while stimulating the private sector. Over the past 12 

years, the seed buying record has been unpredictable and the seed industry is unable to meet 

our native seed needs because they do not know what our needs will be. Integrating the fire 

rehabilitation need for native seed with the restoration need create a reasonably steady annual 

native seed need. This annual need will meet the fire rehabilitation need in a large fire year or 

meet Department’s long-term restoration needs in a small fire year. 

The Native Plant Materials Development program Strategy requires the assistance of a broad 

array of partners working towards the common goal of developing the most appropriate native 

plant materials for restoration of native plant communities. Federal partners such as the USDA 

Agricultural Research Service, Forest Service Intermountain Research Station, and the 10 

western Natural Resource Conservation Service Plant Material Centers, and non-Federal 

partners such as Nature Serve, the Center for Plant Conservation and the Chicago Botanic 

Garden are just a few of the many partners working with the Bureau to develop the quantity and 

quality of native plant materials we need to sustain public lands. 

Section I – Cross-Cutting Programs Page I-120 

 
Bureau of Land Management 2009 Budget Justifications 

The Departments Native Plant Materials Development program and its Seeds of Success (SOS) 

partners (37 collecting teams across the US - about 300 people) contributed the following in 

2007: 

• SOS partners made about 600 wildland native seed collections, which will be tested, 

evaluated and stored for use in the development and production of native seed. 

• SOS program has made a total of 5,000 native seed collections in its 6 years of 

operation. 

• An additional 75 people were trained in the SOS protocol nationwide. 

• 300 collections of native seed were transferred from the USDA Forest Service Bend 

Seed Extractory to the National Plant Germplasm System (ARS) in Pullman, 

Washington. 

• 1,600 SOS collections are now available in the National Plant Germplasm System for 

research and restoration purposes. 

• The Bureau funded the building of 2 greenhouses on tribal lands in the Shoshone 

Bannock and the Shoshone Paiute Tribes in Idaho. We assisted in training the 

Shoshone tribes on native plant materials development. In addition, we developed 

contracts to buy back native plant materials from the Shoshone tribes. 

• BLM purchased more than 350,000 pounds of native plant materials developed through 

this program. 

• The program is working with more than 100 seed growers to increase native seed. 

• BLM leveraged outside funding from Royal Botanic Gardens Kew, Chicago Botanic 

Garden, Center for Plant Conservation, Great Basin Native Plant Selection and Increase 

Project partners, and through the Plant Conservation Alliance’s Grant Program with the 

National Fish and Wildlife Foundation. 

Section I – Cross-Cutting Programs Page I-121 

 
Bureau of Land Management 2009 Budget Justifications 

National Land Mobile Radio 

The Land Mobile Radio program (LMR) provides private two-way radio voice services to 

wildland fire, law enforcement, and resources staff. The radio systems are also used jointly with 

other Federal, State, and local agencies in support of these operations. Managing a radio 

system that provides sustained reliable service is crucial for all field-going employees. 

The LMR program is working to join the radio networks into an architecture that is engineered to 

be implemented and coordinated at the national level in cooperation with our partners. In recent 

years, an aging system, decentralized funding, and the transition to narrowband on federal 

frequencies, have combined to create a radio system that has in some cases been completely 

unreliable. To address these shortfalls, the LMR program will undertake a number of steps: 

• Develop a radio site checklist to measure facilities compliance compared to the Motorola 

R-56 Site standard and other related governance. 

• Conduct baseline site condition assessments of existing facilities and initiate corrective 

measures. 

• Complete the narrowband transition by converging radio technologies and trends, to 

provide improved end user support including, training and trouble ticket tracking. 

• Improve relationships with other governmental organizations and cooperators by better 

defining sharing/working agreements. 

Program Guidelines and Priority Activities: 

` Safety – Improvement of radio facilities safety for the public and employees by 

replacing existing installations which are failing due to their age, systemic 

maintenance neglect, and a variety of non-regulatory compliance impacts. 

` Conversion - Convert all required radio systems equipment to the National 

Telecommunications and Information Administration (NTIA) narrowband mandate. 

` Support - Provide robust end user support for land mobile radio systems and 

maintain adequate technical support and repair capabilities. 

` Interoperate - Increase interoperability between telecommunications networks and 

interoperability between the Bureau of Land Management (BLM) and other federal, 

state, tribal and local law enforcement, public safety and emergency management 

services and cooperators. 

` Life Cycle Replacement - Procurement procedures and replacement cycles will be 

established centrally to provide consistency and efficiency throughout BLM. 

` LMR Policy Standardization - Policy and standards will be developed nationally 

and condensed into a single document by the NRCD. 

The BLM Radio program also supports some components at the Washington Office Level and 

Field Level. BLM’s radio program strives to have a simple, easy to operate radio system that 

provides the coverage required for all field operations and, provide stable annual funding and 

responsive technical/user support to the field. 

Washington Office - The Washington Office (WO) will provide National leadership to the BLM 

National Land Mobile Radio program. Policies, safety handbooks, training programs and other 

guidance development associated with standardization, control, operation, testing, and repair of 

communications will be prepared and executed by the WO level. These national policies and 

Section I – Cross-Cutting Programs Page I-122 

 
Bureau of Land Management 2009 Budget Justifications 

guidelines will be in accordance to OSHA and other federal laws and standards. The WO will 

also manage cooperative agreements and memorandums with cooperators and partners to 

provide support to radio contracts (GSA, DOI, etc) and to evaluate P-25 radio equipment 

requirements. A plan will be developed for a long term national overarching radio system. 

This level will also manage Bureau-wide radio equipment tracking systems, life cycle 

replacement planning, and equipment replacement budget procedures. The responsibility for 

radio telecommunication systems security and strong security encryption will be administered by 

the WO. The WO will also perform all reviews, investigations, reports related to radio 

equipment safety. Radio frequency authorizations (RFAs) will be processed at this level, as well 

as the five-year radio frequency reviews. The Bureau’s CASHE Audit program will be utilized to 

ensure communication site inspections and facility assessments are in coordination with the 

National Operation Center (NOC). 

State/Field Radio Program – The State and Field level will serve as the system operation for 

BLM’s Radio program. This level will manage the workflow for the radio communications 

system, develop assignments and projects to the state telecommunications specialists/teams, 

and ensure deadlines and time frames are completed. This level will also ensure the 

mobile/portable radio interagency infrastructure and networks provide target 98% BLM coverage 

throughout state in support of law enforcement, wildland fire, operations and personnel safety. 

The States and Fields will provide relevant radio procedure guidance and training to employees, 

assuring contracted personnel to maintain the radio communications system have the desired 

technical training and standards. 

Land Mobile Radio Program Funding 

The BLM radio program has been funded from a number of subactivities historically and funding 

varies greatly between the states. National program funding supports bureau- wide initiatives, 

program management, fixed program costs, departmental working capital fund billings; help 

desk support, frequency fees, and the communication facility baseline site condition 

assessment. State program funding supports field radio operations and maintenance, system 

management, new equipment and life cycle replacement costs, training, and a host of other 

local needs. The program is to stabilize funding through the through the budget process. 

Implementation of the DOI Radio Strategic Plan will require an increase in available funding in 

the coming years to provide 110 volt power and T-1 telecommunication trunk lines to all BLM 

mountaintop repeater locations. 

Section I – Cross-Cutting Programs Page I-123 

 
Bureau of Land Management 2009 Budget Justifications 

Use of Research and Development Criteria 

The Bureau of Land Management (BLM) is committed to collecting and maintaining quality data 

and has published its Information Quality Guidelines. These guidelines are intended to ensure 

that any information disseminated by the BLM will be of high quality, accurate, and useable. 

The guidelines also provide the mechanism for the public to challenge the quality of the 

information used by the BLM and to receive a response to those challenges. 

Information Quality Guidelines can be found at: 

http://www.blm.gov/nhp/efoia/data_quality/guidelines.pdf

The Research and Development (R&D) criteria are used to rigorously justify new programs and 

to reevaluate existing programs for modification, redirection, or termination, in keeping the 

national priorities and needs. The BLM annually gathers information from its field units, which 

provides a perspective on BLM's science needs and how science is used by the BLM in 

accomplishing its mission of managing the Nation's lands and resources. The BLM has 

numerous scientific interests related to its responsibilities of protecting the resources on the 

Nation’s public lands. The BLM is a founding partner in the network of Cooperative Ecosystem 

Studies Units (CESU) that has been established in 17 regions of the Nation by leading 

universities with a number of Federal agencies. The BLM is increasingly making use of these 

CESU partnerships to meet its science needs and involve U.S. universities and colleges to a 

greater extent in providing sound science for managing the public lands and resources. 

Investigators participating in the CESU network are highly qualified and experienced; their 

products are of the highest quality in scientific research. 

The investment criteria evaluate the relevance, quality, and performance for all R&D programs. 

Funding expenditures are distinguished between research and development efforts. These 

include funds the BLM provides to various research performers, including academic institutions, 

other Federal agencies, NGOs, state agencies, and others. 

With increased emphasis on quality and accuracy by the Administration, the BLM understands 

the importance that the data submitted by each of the field units be complete and accurate. 

Section I – Cross-Cutting Programs Page I-124 

 
Bureau of Land Management 2009 Budget Justifications 

Service First

Service First is a partnership authority for the Bureau of Land Management (BLM), the Forest 

Service, the National Park Service (NPS), and the U.S. Fish and Wildlife Service (FWS). (P.L. 

106-291 as amended in 109-54, Title IV, Section 428). The administration is requesting an 

extension of authority through 2011. The BLM continues to strengthen its partnership with the 

USFS, NPS, and FWS to attain the three Service First goals of improving natural and cultural 

resource stewardship, providing better customer service, and increasing operational efficiency. 

2007 Accomplishments

During 2007, the BLM and the Forest Service hired a joint, permanent full-time coordinator to 

promote interagency Service First efforts. This position is the first position to focus fully on 

Service First issues. In addition, the four participating agencies have convened a Service First 

Steering Committee to have coordinated representation and discussion of Service First issues 

across all agencies. 

The BLM has used Service First authority to enter into numerous agreements with other Federal 

agencies to share office space, or “co-locate”. Co-locating several agencies in one facility allow 

agencies to share office costs such as rent/lease, utilities, and general office supplies. In 

addition, co-locating staff fosters greater communication and coordination on land management 

and resource issues. 

2008 

In 2008, Service First objectives include making significant 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. Access to other agencies’ data and 

systems will provide more seamless customer service and improve operational efficiency for 

shared employees and co-located offices. 

Agencies will continue to explore and implement co-location opportunities where feasible and 

appropriate. Co-location is a major step toward greater interagency communication and 

integration of natural resource management across the landscape. 

Another goal in 2008 is to increase coordination across resource programs such as hazardous 

fuels reduction, minerals and energy policy, visitor services, and recreation management 

including OHV and trail management in support of providing quality natural resource 

management. 

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. The agencies are building an interagency website to foster this 

interaction and information exchange and provide contacts and information in the form of a 

toolbox for employees’ use. 

2009 Service First Goals

The 2009 goals are built from the successes in 2008. The BLM will continue to work toward a 

seamless technology system by developing joint access to the more complex databases 

including GIS, invasive weeds, and other natural resource data. In addition, the Agency will 

continue to explore establishing joint land management targets with the other agencies where 

appropriate. 

Section I – Cross-Cutting Programs Page I-125 

 
Bureau of Land Management 2009 Budget Justifications 

“Take it Outside” Families and Children in Nature 

The BLM is working to introduce children to nature by using our public lands resources to 

promote and support outdoor activities and experiences to create the next generation of 

stewards, while improving the overall health of our Nation’s families, children and communities. 

Few things are as important as the well being of our nation’s children and the well being and 

future of our public lands as having our children engaged in nature and appreciative of the outof-doors. Healthy, active children tend to become healthy, active adults. Children who 

experience the wonderful world of nature and our surrounding natural and cultural heritage 

resources will become the next generation of citizen stewards. 

Recent studies identify a trend in our country toward a loss of connectivity between people, 

especially children, and experiences in nature. This loss has seen an accompanying increase 

in both physical and mental heath-related issues due to inactivity, and disconnect with the 

natural environment. According to the Centers for Disease Control, the obesity problem alone 

costs the country $117 billion dollars a year in medical expenses but can be reduced or 

eliminated through physical activity. 

The BLM provides a unique opportunity to reconnect children and families as we begin the 21st

Century. The BLM manages lands located throughout the contiguous United States and Alaska 

that are backyards to many rapidly growing, urbanizing communities like Denver, Colorado, 

Phoenix, Arizona and Las Vegas, Nevada. Subdivisions adjoin lands that provide a great 

opportunity for outdoor activities and recreation. These lands are the new playgrounds for 

growing populations. Children and families discover and explore the great outdoors, often just 

minutes from their front door or school yard. 

Recreation, including tourism, is a significant economic driver and has been identified as one of 

the top three industries within all western BLM states. Outdoor recreation, nature, adventure, 

and heritage tourism are the fastest growing segments of the travel and tourism industry. The 

BLM lands offer all of these opportunities. 

The BLM has a wide array of successful programs that already engage children and families in 

the outdoors. Several of BLM’s programs, including Recreation Resource Management, 

Wildland Fire Management, Wildlife Management, Cultural Resource Management, Wild 

Horses and Burros, Public Domain Forest Management, Rangeland Resources, Wilderness, 

and National Landscape Conservation System, fund activities or programs that include children 

and families. The BLM does not have a dedicated funding line item for environmental education 

or the children in nature activities. Rather, BLM funds these activities from existing budget line 

items listed above. 

The BLM is building on our successful foundation, and expanding existing programs under the 

overarching initiative “TAKE IT OUTSIDE.” The initiative, which started in 2008, focuses on 

helping families and children reconnect with nature. Opportunities for educational experiences 

and activities abound through the discovery and exploration of public land adventures. The 

BLM is implementing a comprehensive strategy to engage children in nature by focusing on the 

three primary ways children experience the out-of doors – through their schools, youth groups 

and families. 

Section I – Cross-Cutting Programs Page I-126 

 
Bureau of Land Management 2009 Budget Justifications 

The BLM uses existing Environmental and Heritage Education programs to increase 

opportunities to get children physically active and connected with nature. The BLM enhances 

education and learning for students and their families through environmental education activities 

targeting school age children, working through teachers, schools, and other non-profit 

educational organizations. Nearby public lands provide living laboratories for educational 

activities and experiences that include healthy physical and mental activities. 

The BLM provides outdoor activities and stewardship education programs to engage youth 

organizations, families, and their communities in volunteer and public service opportunities on 

public lands. The BLM is also partnering with the Forest Service and its “More Kids in the 

Woods” program to offer more opportunities for children and better leverage dollars. The BLM 

and partners are implementing special awareness-building events, which introduce the 

American people to outdoor opportunities focused on stewardship. This creates connections 

between families and public lands, enabling them to develop a sense of wonder about nature 

and the outdoors, and a sense of respect for cultural sites and the people who created them. 

Service learning and youth group activities offer 

additional opportunities to connect children with 

nature. Through these activities children and 

youths adopt a sense of ownership, respect, 

and stewardship of their public lands that they 

will carry with them throughout their lives. 

The BLM provides increased opportunities 

through cooperatively developed and delivered 

programs, activities, and promotional efforts 

that help children and families to realize positive 

physical and mental benefits from outdoor 

activities. By leveraging partnerships with 

corporate entities, outdoor organizations, 

recreation service providers, and other agencies, the BLM co-sponsors and facilitates delivery 

of direct outdoor recreational and cultural heritage experiences that promote positive health 

benefits. Opportunities for families to visit, play, and learn on the public lands are almost 

limitless and by using these strategies the BLM helps families access and realize beneficial 

experiences. 

BLM paleontology exhibit at the Boy Scout National 

Jamboree. 

Section I – Cross-Cutting Programs Page I-127 

 
Bureau of Land Management 2009 Budget Justifications 

Volunteer Program 

Each year, the BLM Volunteer program enlists the services of 15,000-20,000 citizen 

stakeholders, who invest their effort and time assisting with public lands. An estimated 1.4 

million plus hours were donated in 2007 alone, equal to the work of almost 750 full- time 

employees. The BLM Volunteer Program enables 

the agency to engage citizens, maintain links with 

local communities, and take part in continuing dialog 

with the public about emerging trends, demands, 

issues, and concerns. 

Many BLM lands are located near fast-growing, highpopulation areas of the West and Southwest, where 

residents are spending more and more time on the 

public lands. For example, the number of 

recreational visitors to BLM public lands currently 

exceeds 58 million annually. It is estimated that 

4,136 western communities are now located within 

25 miles of BLM public lands, representing a 

combined population of 23 million potential additional 

customers. 

In

2

The BLM’s Recreation, Cultural Resources, Wildlife 

Management, Wild Horses and Burros, and other resou

on the assistance of volunteers to enhance BLM’s ability to meet resource use and conservation 

goals. The value of volunteer labor contributions is calculated annually by the Independent 

Sector, a non-partisan coalition of charitable organizations. Using this data for the hourly value 

of volunteer work, Table 1 below displays the return from BLM volunteer efforts. The Volunteer 

Program has historically returned a labor value of $16-27 per dollar expended. 

 the Kanab, Utah, area, National Public Lands Day 

007 volunteers used shovels, rakes, pulaskis, and 

rock bars to construct a mile of new foot/equestrian 

trail, part of a local loop trail system. Thousands of 

volunteers lent a hand at more than 100 BLM sites 

nationwide.

rce management programs rely heavily 

Section I – Cross-Cutting Programs Page I-128 

 
Bureau of Land Management 2009 Budget Justifications 

Table 1. Display of the Volunteer Program Contribution Value. 

BLM Volunteer Data 

Fiscal Year 2007 to 2009

Fiscal Year 2007 Fiscal Year 2008 Fiscal Year 2009 

Projected1 Projected2 Projected2

Hours 1,350,000 1,377,000 1,404,000 

Individuals ~18,0003 18,360 18,720 

Value $25.9 million4 $27.2 million4 $28.4 million4

1

 FY 2007 data collection and compilation in process as of November 2007 

2

 program participation is expected to grow by 2% per year, with an average of 75 hours contributed by each volunteer 3

 estimated figure: data not collected for FY2007 

4

2007 volunteer-hour dollar value will be released by www.IndependentSector.org in Spring 2008; projections are 

based on an average increase in dollar value of 2.57% per year over the past six years; 2006 value = $18.77/hr; 

projected 2007 value = $18.77 x 1.0257 = $19.25/hr; projected 2008 value = $19.25 x 1.0257 = $19.74/hr; projected 

2009 value = $19.74 x 1.0257 = $20.25/hr 

Section I – Cross-Cutting Programs Page I-129 

 
Bureau of Land Management 2009 Budget Justifications 

National Land Imaging Program Initiative 

The BLM relies on Landsat satellite imagery for moderate (5-100 meter) resolution requirements 

to support program activities, such as the Fire Incident Response and Reporting (i.e., mapping 

fire perimeters, burn severity), and vegetation and habitat mapping. The U.S. Geological 

Survey is doing the actual project work for most of the BLM’s moderate resolution applications. 

A recent review of the BLM's spending on space-based data showed that Landsat is by far the 

sensor of choice for moderate resolution imaging applications. This is mainly due to the 

availability of natural resource analysis programs, such as the Multi-Resolution Land 

Characteristics (MRLC), which meet Bureau needs and for which BLM has provided financial 

support. No other source of imagery is as practical or cost-effective in providing the moderateresolution land imagery needs of the BLM. 

The BLM is working with the U.S. Geological Survey, who is leading the Department’s efforts to 

contribute toward the establishment a National Land Imaging Program. The BLM is contributing 

to the establishment of program goals and objectives; user needs assessments, and 

applications development to help ensure that the program is responsive to the BLM’s natural 

resource management requirements. 

Section I – Cross-Cutting Programs Page I-130 

 
Bureau of Land Management 2009 

Section I – Goal Performance 

BLM 2009 Goal Performance Table 2004 - 2012

Key to Measure Types 

Target Codes: SP = Strategic Plan Measure 

PART = PART Measure Bur = Bureau Specific Measure 

*Support Measure = No cost will be shown for measures waccomplish the measure produces results in more than one already captured in the other measure. 

C = Cumulative Measure A = Annual Measure TBD = Future targets have not been deter

Type Codes: UNK = Prior year data unavailable NA = Long term targets are inappropriate to determine at t

time 

Type 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 Preside

Budg

Mission Area 1.0 - Resource Protection 

 Protect the Nation's natural, cultural, and heritage resources 

1.1 GOAL 1 - Improve Health of Watersheds, Landscapes, and Marine Resources that are DOI Managed or Influence

with Obligations Regarding the Allocation and Use of Water 

1.1.01 

Percent of DOI stream/shoreline miles that have achieved desired conditions where condition is known and as specified in management plans. (SP/PART) 

C 

91% 

126,821/ 

140,096 

90% 

128,329/ 

143,209 

90% 

128,829/ 

143,290 

90% 

129,329/ 

143,290 

90% 

128,310/ 

143,290 

90% 

128,810/ 

143,290 

90% 

129,31

143,2

Total Actual/Projected Cost ($000) $15,104 $16,781 $14,918 0 $13,757 $17,879 $17,3Actual/Projected Cost per Mile (in dollars) $119 $131 $116 $0 $107 $139 $134 Comments: The denominator change in 2005 is based on BLM perfecting the inventory process which resulted in a more precise inventory of stream/s

desired condition is achieving proper functioning condition (PFC) and functioning at risk with an upward trend. 

1.1.02 

Percent of DOI acres that have achieved desired conditions where condition is known and as specified in management plans. (SP/PART) 

C 

45% 

115,991,274/ 

258M 

48% 

123,949,644/ 

258M 

48% 

123,952,644/ 

258M 

51% 

131,756,644/ 

258M 

52% 

135,410,846/ 

258M 

56% 

143,414,846/ 

258M 

59% 

151,418

258M 

Total Actual/Projected Cost ($000) $44,914 $41,193 $46,987 $0 $56,330 $57,253 $64,3
Bureau of Land Management 2009 

Section I – Goal Performance 

Type 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 Preside

Budg

Actual/Projected Cost per Acre 

(in dollars) $0.39 $0.33 $0.38 $0 $0.42 $0.40 $0.4

Comments: Two performance measures (wetlands and uplands) were combined to make one measure which counts total acres. As a result of the 20

Forest Lands are now included and the denominator has been stabilized to show more consistent trend data. The new formula is shown beginning in 2

being conducted through 2012 will add approximately 8 million acres each year to desired condition. This measure includes an increase for the Health

2007 which will result in 72,079 acres treated, $922,964 in 2008 which will result in 55,114 acres treated, and $7,048,935 in 2009, which will result in 2treated do not all reach desired condition in the first year. Treated acres here are shown as achieving desired condition 25% in the first year and 25% 

Minimum desired condition for wetlands is achieving proper functioning condition (PFC) and functioning at risk with an upward trend. Desired condition 

Health Standards developed by the BLM State offices and approved by the Secretary in accordance with Title 43 CFR 4180.2. 

1.1.05 

Percent of surface waters acres managed by DOI that meet State EPA Approved Water Quality Standards. (SP) 

C Establish Baseline 87% 282,167/ 324,628 87% 282,966/ 324,628 87% 283,616/ 324,628 87% 283,616/ 324,628 87% 283,616/ 324,628 87% 283,61

324,6

 Comments: Support Measure - No cost will be shown. The BLM uses State EPA reports to provide results for this measure. 

1.1.06 

Percent of surface waters (stream miles) managed by DOI that meet State (EPA Approved) Water Quality Standards. (SP) 

C 

89% 

128,765/ 

144,138 

91% 

123,667/ 

136,327 

91% 

123,988/ 

136,327 

91% 

124,188/ 

136,327 

91% 

124,188/ 

136,327 

91% 

124,188/ 

136,327 

91% 

124,18

136,3

Comments: *Support Measure - No cost will be shown. The denominator change in 2005 is based on BLM perfecting the inventory process which res

stream/shoreline miles. The BLM uses State EPA reports to provide results for this measure. 

Intermediate Outcome: Restore watersheds and landscapes 1.1.07 

Number of acres of inventory, assessment, and monitoring of upland and wetlands (Bur) 

A 74,474,220 90,036,856 47,437,263 39,717,222 43,658,752 44,263,051 44,263,

Total Actual/Projected Cost ($000) $66,880 $82,242 $74,099 $0 $77,750 $83,710 $81,7Actual/Projected Cost per Acre 

(in dollars) $0.90 $0.91 $1.56 $0 $1.78 $1.89 $1.8

Comments: Acres of inventory, assessment, and monitoring are based on actual projects and will vary between years. The 2004 and 2005 actuals inc

in Alaska for the North Slope Science Initiative, and the Bering Glacier Challenge Cost Share Partnership. 

1.1.09 Number of acres of vegetative treatments evaluated. (Bur) A 757,804 506,307 512,840 470,558 561,668 597,139 821,5
Bureau of Land Management 2009 

Section I – Goal Performance 

Type 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 Preside

Budg

Total Actual/Projected Cost ($000) $12,464 $11,818 $13,745 $0 $14,895 $15,732 $16,6Actual/Projected Cost per Acre Evaluated (in dollars) $16 $23 $27 $0 $27 $26 $20 Comment: Acres of vegetative treatments evaluated is based on actual project acres and will vary between years. This measure includes an increase 

$936,281 in 2009, which will result in 224,365 acres of vegetative treatments evaluated. 

1.1.10 

Number of projects constructed or maintained or activity plans developed to achieve desired conditions on uplands, wetlands, and riparian areas. (Bur) 

A 10,110 9,538 7,251 7,192 9,077 9,103 9,22

Total Actual/Projected Cost ($000) $60,103 $50,170 $53,654 $0 $56,489 $57,000 $58,0Actual/Projected Cost per Project or Plan (in dollars) $5,945 $5,260 $7,400 $0 $6,223 $6,262 $6,29

Comment: This measure includes increases for the Healthy Lands Initiative of $73,758 in 2007, which will result in 6 stream/riparian projects; $511,48

lake/wetland projects, 11 shrub/grass projects, and 3 native plant materials projects, and $1,099,344 in 2009, which will result in 19 additional shrub/gr

shrub/grass projects maintained, 36 additional stream/riparian projects constructed, and 44 stream/riparian projects maintained. Results for this meas

planned and will vary between years. 

1.1.11 

Number of DOI riparian

(stream/shoreline) miles restored to the condition specified in management plans. (SP/PART) 

A 801 1,020 770 500 601 601 601 

 Comment: * Support Measure - No cost will be shown. Results for this measure are based on actual projects planned and will vary between years. 

1.1.12 

Number of DOI upland acres 

restored to the condition specified in management plans. (SP/PART) 

A 661,701 584,013 807,271 535,000 868,577 840,000 840,0

Comment: * Support Measure - No cost will be shown. Data gathered in 2007 supports higher performance than originally planned. The 2009 targe

new data. 

1.1.19 

Number of DOI wetland acres 

restored to the condition specified in management plans. (Bur/PART) 

A 8,721 14,299 8,366 11,000 11,290 9,800 9,80
Bureau of Land Management 2009 

Section I – Goal Performance 

Type 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 Preside

Budg

 Comment: * Support Measure - No cost will be shown. Results for this measure are based on actual projects planned and will vary between years. 

1.1.13 

Percent of sites (acres) reclaimed or mitigated from the effects of degradation from past mining. (Bur) 

C UNK UNK UNK 8% 300/ 3831 15% 564/ 3,831 23% 864/ 3831 30% 1164/ 3

Total Actual/Projected Cost ($000) 0 0 0 0 $15,383 $16,326 $16,3Actual/Projected Cost per Acre 

(in dollars) $0 $0 $0 $0 $58,270 $54,419 $54,5

Comment: In 2007, 3,831 acres of Abondoned Mine Lands were identified as in progress of remediation. The results shown in this table have been ch

track the progress of this phase of remediation. Prior year data was not cumulative and is no longer shown. The annual results for prior years includeand 2006-1,117 acres remediated. A large number of multi year projects were completed in 2005 and 2006. The Abandoned Mine Land program had in 2007 which results in reduced targets beginning in 2007. 

1.1.17 

Percent of known contaminated sites remediated on DOI managed land. (SP) 

C 1.5% 5/ 330 11% 28/ 265 9% 33/ 358 5.5% 15/ 272 6% 16/ 272 11% 30/272 17% 45/27

Total Actual/Projected Cost ($000) $20,124 $26,404 $24,694 $0 $18,139 $18,218 $18,9Actual/Projected Cost per Site (in dollars) $4,024,881 $942,995 $748,315 $0 $1,133,713 $1,301,254 $1,262,

Comment: Multi-year projects funded in prior years were completed in 2005 and 2006. Beginning in 2007, the denominator for this measure has been 

cumulative. 

1.1.18 

Number of actions taken to assure sufficient water supply to meet management objectives. (Bur) 

A 11,067 36,181 27,695 22,856 27,990 21,634 23,26

Total Actual/Projected Cost ($000) $16,169 $17,145 $14,373 $0 $13,069 $12,184 $12,2Actual/Projected Cost per Action Taken (in dollars) $1,461 $474 $519 $0 $467 $564 $527 

Comment: Measure is new in 2007. Historical data is provided for previous years. Results are actual projects planned and will very between years. 

actions counted in this measure will result in lower targets beginning in 2008. This measure includes an increase for the Healthy Lands Initiative of $78

1,634 actions to meet management objectives. 
Bureau of Land Management 2009 

Section I – Goal Performance 

Type 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 Preside

Budg

1.2 GOAL 2 - Sustain Biological Communities on DOI Managed and Influenced Lands and Waters in a Manner consi

Regarding the Allocation and Use of Water. 

1.2.01 

Percent of baseline acres infested with invasive plant 

species that are controlled. (SP) 

A Establish Baseline 0.9% 317,959/ 35,763,000 1.0% 310,332/ 35,763,000 0.9% 318,000/ 35,000,000 1.0% 338,585 35,000 000 1.0% 338,585 35,000 000 1.0% 338,5

35,000 

Total Actual/Projected Cost ($000) $0 $2,903 $3,495 $0 $3,575 $3,925 $3,83Actual/Projected Cost per Acre 

(in dollars) $0 $9 $11 $0 $11 $12 $11 

 Intermediate Outcome - Provide habitat for Biological Communities to Flourish 1.2.02 

Percent of populations of species of management concern that are managed to desired condition. (SP) 

C new 

measure 

new 

measure 

new 

measure 

Establish 

Baseline 

39% 

177/ 453 

49% 

255/ 519 

50% 

257/ 5

 Comment: *Support Measure - No cost will be shown. As a result of the 2006 Resource Management PART recommendations BLM has redirected 

performance directly related to ESA listed species beginning in 2008. Additional species of management concern was identified at the beginning of 20

519. 

1.2.03 

Number of conservation actions implemented from recovery plans for ESA-listed species. (Bur/PART) 

A New Measure New Measure New Measure 1,150 1,254 1,375 1,65

Total Actual/Projected Cost ($000) 0 0 0 0 $43,896 $44,373 $44,7Actual/Projected Cost per Conservation Action (in dollars) $0 $0 $0 $0 $35,005 $32,271 $27,1

Comment: As a result of the 2006 Resource Management PART recommendations BLM has redirected base funding internally to improve performanc

species beginning in 2008. This measure includes an increase for the Healthy Lands Initiative of $376,101 in 2009, which will result in 40 additional sp

actions. 

1.2.04 Number of (stream/shoreline) 

miles of habitat restored or enhanced that directly support ESA listed and Bureau sensitive species conservation or recovery. (SP/PART) 

A 124 164 159 150 214 191 216 
Bureau of Land Management 2009 

Section I – Goal Performance 

Type 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 Preside

Budg

Total Actual/Projected Cost ($000) $6,231 $7,211 $7,661 $0 $4,600 5,116 5,57Actual/Projected Cost per Mile 

(in dollars) $50,251 $43,972 $48,184 $0 $21,195 $26,785 $25,8

Comment: This measure has been modified as a result of program assessment in 2006. Historical data has been added to provide context. Miles of 

projects planned which will vary between years. This measure does not include the increases for the Healthy Lands Initiative of $516,318 in 2008, whi

enhanced for species conservation or recovery, and $461,439 in 2009, which will result in 48 miles restored or enhanced for species conservation or re

1.2.05 Number of acres of habitat 

restored or enhanced that directly support ESA listed and Bureau sensitive species conservation or recovery. (SP/PART) 

A 161,618 187,691 118,047 107,000 217,608 196,000 221,7

Comment: * Support Measure - No cost will be shown. This measure has been modified as a result of program assessment in 2006. Historical data 

restored is based on actual projects planned and will vary between years. 

1.3 Goal 3 - Protect Cultural and Natural Heritage Resources. 

1.3.01 

Percent of archaeological sites on DOI inventory in good condition (SP) 

C 

81% 

35,744/ 

43,892 

82% 

38,656/ 

47,302 

82% 

41,860/ 

50,865 

82% 

44,743/ 

54,565 

83% 

44,911/ 

54,273 

83% 

47,537/ 

57,273 

82% 

49,66

60,56

 Comment: * Support Measure - No cost will be shown. Archaeological sites are added to BLM inventory each year which changes the numerator and 

1.3.02 

Percent of historic structures on DOI inventory in good condition (SP) 

C new 

measure 

new 

measure 

new 

measure 

60% 

77/ 128 

48% 

158/ 326 

49% 

176/ 362 

49% 

181/ 3

Total Actual/Projected Cost ($000) 0 0 0 0 $2,906 $3,649 $3,17Actual/Projected Cost per historic structure (in dollars) $0 $0 $0 $0 $18,394 $20,733 $17,5

 Comment: * Support Measure - No cost will be shown. Additional historic structures are added to the inventory at the beginning of each year changin
Bureau of Land Management 2009 

Section I – Goal Performance 

Type 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 Preside

Budg

1.3.03 

Percent of miles of National Historic Trails, Wild and Scenic Rivers, and other linear Special Management Areas under DOI management meeting their heritage resource objectives under the authorizing legislation. (SP) 

C 67% 5078/ 7545 65% 4837/ 7438 66% 5311/ 8031 56% 4138/ 7447 66% 5274/ 8031 66% 5274/ 8031 67% 5341/ 8

Total Actual/Projected Cost ($000) $2,976 $3,278 $3,036 $0 $2,650 $3,835 $3,29

Actual/Projected Cost per Mile 

(in dollars) $586 $678 $572 $0 $503 $727 $617 

 Comment: * Support Measure - No cost will be shown. This is a new measure in 2007. Historical data has been added to provide context. 

1.3.04 

Percent of collections in DOI inventory in good condition. (i.e., maintained according to DOI museum property management collection standards). (SP) 

C 100% 3 / 3 100% 3 / 3 100% 3 / 3 100% 3 / 3 100% 3 / 3 100% 3 / 3 100% 3 / 3 

 Comment: * Support Measure - No cost will be shown. 

1.3.05 

Percent of paleontological localities in DOI inventory in good condition. (SP) 

C 

90% 

1,724/ 

1,915 

90% 

1,724/ 

1,915 

98% 

14,980/

15,351 

98% 

16,660/ 

17,000 

97% 

18,652/ 

19,134 

98% 

21,500/ 

22,000 

98% 

23,58

24,00

Comment: * Support Measure - No cost will be shown. Increase in 2006 actuals is the result of acquisition of additional data from non-Federal repos

adjusted to reflect continued acquisition of data. 

1.3.06 

Percent of acres of Wilderness Areas and other Special Management Areas under DOI management meeting their heritage resource objectives under the authorizing legislation. (SP) 

C new 

measure 

new 

measure 

new 

measure 

Establish 

Baseline 

78% 

39,657,668/ 

50,721,819 

73% 

37,310,748/ 

51,201,821 

73% 

37,310,

51,201,

Total Actual/Projected Cost ($000) $0 $0 $0 $0 $8,750 $13,630 $12,9
Bureau of Land Management 2009 

Section I – Goal Performance 

Type 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 Preside

Budg

Actual/Projected Cost per Acre 

(in dollars) $0.00 $0.00 $0.00 $0.00 $0.22 $0.37 $0.3

Comment: This measure includes all of the acres of Wilderness units, Wilderness Study units, Herd Management Areas, and areal units of the Nationa

A correction to the acres of Wild Horses and Burros Herd Management Areas changes the denominator in 2008. 

Intermediate Outcome: Improve the condition of cultural and natural heritage resources. 1.3.07 

Heritage Resources: Number of heritage resources conserved for public benefit (Bur) 

A 4,722 4,983 4,947 5,000 5,664 4,500 4,50

Total Actual/Projected Cost ($000) $11,716 $8,659 $7,366 $0 $7,402 $8,743 $7,61Actual/Projected Cost per Heritage Resource (in dollars) $2,461 $1,738 $1,489 $0 $1,307 $1,943 $1,69

Comment: * Support Measure - No cost will be shown. Results for this measure are based on actual projects planned and will vary between years. 

1.3.08 

Heritage Resources: Number of acres of heritage resources inventory conducted (Bur) 

A 68,601 62,511 57,989 50,000 52,735 57,561 60,00

Total Actual/Projected Cost ($000) $3,814 $3,420 $3,389 $0 $3,292 $3,312 $2,84Actual/Projected Cost per Acre 

(in dollars) $56 $55 $58 $0 $62 $58 $47 

 Comment: Inventory for heritage resources is based on actual project acres which will vary between years. 

1.3.09 

Heritage Resources: Number of outreach and coordination efforts conducted for heritage resources (Bureau Measure) 

A new 

measure 

new 

measure 

new 

measure 

Establish 

Baseline 1,222 1,087 1,00

Total Actual/Projected Cost ($000) 0 0 0 0 $2,828 $1,968 $1,72Actual/Projected Cost per Outreach (in dollars) $0.00 $0.00 $0.00 $0.00 $2,314 $1,811 $1,72

Comment: Number of outreach and coordination efforts for heritage resources is based on actual projects planned and will vary between years. 
Bureau of Land Management 2009 

Section I – Goal Performance 

Type 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 Preside

Budg

1.3.10 

Heritage Resources: Number of heritage collections conserved for the future. (Bureau Measure) 

A new 

measure 

new 

measure 

new 

measure 

Establish 

Baseline 116 109 104 

Total Actual/Projected Cost ($000) 0 0 0 0 $826 $898 $757 Actual/Projected Cost per collection (in dollars) $0.00 $0.00 $0.00 $0.00 $7,123 $8,239 $7,28

Comment: 

1.3.15 

Wild Horse and Burro Management Areas: Cumulative percent of number of Herd Management Areas achieving appropriate management levels. (Bur) 

C 51% 103/ 201 57% 116/ 201 72% 145/ 201 73% 145/ 199 66% 131/ 199 48% 96/ 199 58% 115/ 1

Total Actual/Projected Cost ($000) $43,883 $47,830 $44,543 $0 $47,797 $44,135 $44,8Actual/Projected Cost per Herd Management Area (in dollars) $426,052 $412,327 $307,195 $0 $364,861 $459,736 $389,6

Comment: In 2005, Congress approved a permanent reprogramming of approximately $10.5M. The new funding along with newly enacted sale autho

allowed the program to bring the population down from over 47,000 animals in 2004 to approximately 31,000 in 2006. Land exchanges completed in 2Area number from 201 to 199. Priority gathers in 2006, 2007, and 2008 are based on fire and draught issues and not on reaching AML in Herd Managfocus on reaching AML for a 10% increase of Herd Management Areas reaching AML. 

 Mission Area 2.0 - Resource Use: 

Improve resource management to assure responsible use and sustain a dynamic economy 

2.1 Goal 1 - Manage or influence resource use to enhance public benefit, promote responsible use, and ensure optim

Fossil fuels (oil, gas, coal 

2.1.01 

Percent of fluid mineral leases with approved applications for permits to drill. [SP] 

C 

48% 

21,889/ 

45,836 

52% 

23,511/ 

45,479 

47% 

22,859/ 

48,423 

47% 

23,393/ 

49,731 

44% 

21,612/ 

49,152 

44% 

21,762/ 

49,731 

44% 

22,17

50,36

Total Actual/Projected Cost ($000) $12,259 13,289 15,250 0 16,666 15,410 18,37
Bureau of Land Management 2009 

Section I – Goal Performance 

Type 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 Preside

Budg

Actual/Projected Cost lease 

( in dollars) $560 $565 $667 $0 $737 $708 $829 

Comment: * Support Measure - No cost will be shown. This is a new measure in 2007. Historical data has been added to provide context. The nume

leases begin production. The lease is counted one time regardless of how many APD's are approved for the lease. 

2.1.02 

Number of onshore federal acres under lease for coal development. [SP] 

C 456,578 453,442 466,652 464,500 466,943 467,234 464,4

Total Actual/Projected Cost ($000) $3,089 $3,290 $3,607 $0 $3,977 $4,139 $4,18Actual/Projected Cost per acre ( in dollars) $7 $7 $8 $0 $9 $9 $9 

Comment: This is a new measure in 2007. Historical data has been added to provide context. Major leasing efforts occurred in 2004 and 2005 but rel

significant change is projected for the coal leasing program through 2012. A process is being developed in Wyoming to approve multiple leases at the 

be implemented in 2012. 

2.1.03 

Average acreage disturbed per permitted energy exploration or development activity. (SP) 

A 2.3 acres 8,824/ 3,770 2.3 acres 10,882/ 4,682 2.3 acres 13,442/ 5,798 2.1 acres 2.1 acres 10,059/ 4,685 2.1 acres 10,059/ 4,685 2.1 ac

10,05

4,68

Comment: * Support Measure - No cost will be shown. 

2.1.04 

The average full cost of processing applications for (fluid energy) Permit to Drill Applications (APDs). (Bur/PART) 

A $3,355 $3,494 $3,712 $4,085 

$5,091 

$45,631,397/

8964 

$4,626 

$42,817,697/ 

9,255 

$4,61

43,872,

9,50

Comment: * Support Measure - No cost will be shown. 

2.1.20 

Fluid Minerals: Number of acres reclaimed to appropriate final land condition. (SP ) 

C new 

measure 

new 

measure 

new 

measure 

Establish 

Baseline 

25% 

2,473/ 10,059 

25% 

2,473/ 

10,059 

25% 

2,567

10,23

Comment: * Support Measure - No cost will be shown. 
Bureau of Land Management 2009 

Section I – Goal Performance 

Type 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 Preside

Budg

Renewables (geothermal, wind, solar) 

2.1.05 

Number of megawatts of installed capacity authorized on public land for renewable energy development. (SP) 

C new 

measure 

new 

measure 

new 

measure 

Establish 

Baseline 458 595 700 

Comment: * Support Measure - No cost will be shown. This is a new measure. Data is being gathered and actuals will be counted in 2007. 

2.1.06 

Percent of wind farms incorporating best management practices for protecting raptors, and other birds and bats. [SP] 

C new 

measure 

new 

measure 

28% 

35/ 125 

38% 

55/ 145 

59% 

93/ 158 

63% 

113/ 178 

72% 

143/ 1

Comment: * Support Measure - No cost will be shown. All wind energy development rights-of-way grants on public land, approved after 11/2005, wil

practices for protecting raptors and other birds and bats. Approximately 20 new wind energy rights-of-way grants are approved each year. In addition

10 existing wind energy rights-of-way grants are scheduled for renewal each year and will need to incorporate best management practices in order to b

Intermediate Outcome - Effectively Manage and Provide for Efficient Access and Development 2.1.07 

Percent of fluid minerals permit and lease applications processed. (APDs). (SP/PART) 

A 

105% 

7,351/ 

6,979 

63% 

7,317/ 

11,662 

62% 

8,776/ 

14,131 

95% 

10,555/ 

11,067 

107% 

8,964/ 

8,370 

64% 

9,255/ 

14,381 

67% 

9,500

14,22

Total Actual/Projected Cost ($000) $27,596 $36,015 $41,771 $0 $64,394 $35,387 $43,9Actual/Projected Cost per APD 

( in dollars) $3,754 $4,922 $4,760 $0 $7,184 $3,824 $4,62

Comment: The final analyses for 2005 and 2006 showed that industry demand did not increase as much as anticipated. The 2005 numbers showed 93

showed 85%, or 8.854 out of 10,492. In 2007 the number of APDs submitted by industry went down. In 2009 the number of APD's is expected to stay Denominators shown in 2007 Plan, and 2008 Plan, did not include pending APDs. Including pending APDs, the correct percentage for 2007 would be 

also shows that the average cost for an APD has increased to over $4,600. The average cost per APD is expected to start to decline due to efficiencie

offices. 

2.1.08 

Percent of coal lease applications processed. (SP/PART) 

A 13% 5/ 38 31% 12/ 39 20% 9/ 44 26% 10/ 39 14% 5/ 35 25% 9/ 36 25% 9/ 36 

Comment: * Support Measure - No cost will be shown. The percentage of coal lease applications processed remains relativiely low because of the m

process is being developed in Wyoming to approve multiple leases at the same time. This new process will be implemented in 2012. 
Bureau of Land Management 2009 

Section I – Goal Performance 

Type 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 Preside

Budg

2.1.09 

Develop a commercial oil shale leasing program by FY 2008. [SP] 

C new 

measure 

new 

measure 

new 

measure 

Establish 

Baseline 

35% 

35/ 100 

80% 

80/ 100 

100% 

100/ 1

Comment: * Support Measure - No cost will be shown. The Energy Policy Act of 2005 (P.L. 108-58) mandated that the BLM have a "commercial oil 

2008. There are five steps to completeing this process and each step is assigned a percentage. The draft EIS for 35% was completed in 2007. The fcompleted in 2008. Previous work on the draft regulations counts as 30%, and the final regulations will make up the last 20% which will be completed 

2.1.10 

Percent of pending cases of right-of-way permits and grant applications in backlog status. (SP/PART) 

C 

28% 

1007/ 

3627 

30% 

1117/ 

3690 

31% 

1350/ 

4300 

30% 

1,100/ 

3,666 

47% 

1492/ 3,153 

47% 

1492/ 3,153 

42% 

1324

3153 

Comment: * Support Measure - No cost will be shown. Trend shows how industry demand for energy related ROW continues to increase the backlog

2.1.11 

Average cost to process a minor category right-of-way permit or grant application (major types of rights-of-way reported separately). (Bur/PART) 

A new 

measure 

new 

measure 

new 

measure $700 $700 $700 $700 

Comment: * Support Measure - No cost will be shown. 

2.1.12 

Average length of time required to process a minor category right-of-way permit or grant application. (Bur/PART) 

A new 

measure 

new 

measure 

new 

measure 60 days 60 days 60 days 60 da

Comment: * Support Measure - No cost will be shown. 

2.1.13 Percent of oil and gas leases issued (Bur) C new measure new measure new measure 90% 3,996/ 4440 90% 3610/ 4023 90% 3610/ 4023 90% 3,687/ 4

Comment: * Support Measure - No cost will be shown. 

2.1.14 Percent of geophysical permits processed. (Bur) C new measure new measure new measure 95% 76/ 80 96% 54/ 56 96% 54/ 56 95% 63/ 6

Total Actual/Projected Cost ($000) $0 $0 $0 $0 $509 $469 $583 
Bureau of Land Management 2009 

Section I – Goal Performance 

Type 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 Preside

Budg

Actual/Projected Cost per permit ( in dollars) $0 $0 $0 $0 $9 $9 $9 Comment: 

2.1.15 

Percent of oil and gas Reservoir Management Agreements processed. (Bur) 

C new 

measure 

new 

measure 

new 

measure 

90% 

1960/ 2180 

91% 

1907/ 2087 

91% 

1907/ 2087 

90% 

1913/ 2

Total Actual/Projected Cost ($000) $0 $0 $0 $0 $4,460 $4,194 $5,20Actual/Projected Cost per agreement ( in dollars) $0 $0 $0 $0 $2,339 $2,199 $2,72

Comment: 

2.1.16 Percent of oil and gas Drainage cases completed. (Bur) C new measure new measure new measure 86% 877/ 1,020 89% 872/ 976 89% 868/ 1,007 87% 868/ 1,

Total Actual/Projected Cost ($000) $0 $0 $0 $0 $1,389 $1,499 $1,86Actual/Projected Cost per case (in dollars) $0 $0 $0 $0 $1,593 $1,727 $2,15

Comment: 

2.1.22 

Number of pending coal lease applications (LBAs) that are in backlog or inventory status. (Bur/PART) 

F 45 LBAs 35 LBAs 33 LBAs 33 LBAs 30 LBAs 35 LBAs 35 LB

Comment: * Support Measure - No cost will be shown. Industry demand is anticipated to increase backlog by 2008. 

2.1.23 

Number of pending cases of permits that are in backlog status for fluid energy minerals (APDs) (Bur/PART) 

A 2,214 2,461 2,310 2,310 1,932 1,872 1,77

Comment: * Support Measure - No cost will be shown. BLM continues to process an increased number of APD's each year to keep pace with industr

If industry demand remains relatively steady, BLM anticipates being able to reduce the backlog -12% by 2012. 
Bureau of Land Management 2009 

Section I – Goal Performance 

Type 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 Preside

Budg

2.1.24 

Improve customer satisfaction rating with energy resources permitting process. (Bur/PART) 

C 48% 48/ 100 No Survey Measured Biannually 52% 52/ 100 No Survey Measured Biannually No Survey Measured Biannually 54% 54/ 100 54% 54/ 10

 Comment: * Support Measure - No cost will be shown. This measure is biannual. Beginning in 2008, results will be shown for 2 years to provide tren

Intermediate Outcome - Enhance Responsible Use Management Practices 2.1.17 

Percent of required fluid mineral inspections and enforcement reviews completed. (SP/PART) 

A 

108% 

18,950/ 

17,546 

97% 

17,884/ 

18,437 

84.4% 

19,405/ 

22,979 

69% 

20,343/ 

29,353 

81% 

23,798/ 

29,353 

88% 

23,640/ 

26,873 

86% 

24,45

28,48

Total Actual/Projected Cost ($000) $24,192 $26,190 $34,491 $0 $32,195 $28,032 $34,5Actual/Projected Cost per inspection (in dollars) $1,277 $1,464 $1,777 $0 $1,374 $1,186 $1,41

Comment: The number of required inspections is subject to changes in economic conditions, business decisions of operators and other factors that de

and the continuing operation of existing wells and associated facilities. In 2008, the percentage increases to 88% but the actual inspections completed certify new inspectors, and BLM has experienced a higher rate of turnover in new inspectors than planned. The recruitment and training of replacemen

gradual increase to the number of inspections completed is anticipated to begin again in 2009. 

2.1.18 

Percent of fluid minerals safety violations (incidents of noncompliance) corrected by operators with first notice. (SP/PART) 

C 

96% 

8,358/ 

8,706 

96.5% 

8,358/ 

8,706 

95.6% 

2,633/ 

2,754 

96.5% 

8,401/ 

8,706 

96% 

3,693/ 

3,843 

96% 

3,698/ 

3,848 

97% 

3,658

3,78

Comment: * Support Measure - No cost will be shown. 

2.1.19 

Percent of required coal inspection and enforcement reviews completed. (SP/PART) 

F 

99% 

3,524/ 

3,560 

111% 

2,305/ 

2,074 

109% 

2,253/ 

2,074 

95% 

2423/ 

2552 

103% 

2,636/ 

2,552 

103% 

2,636/ 

2,552 

103% 

2,636

2,55

Total Actual/Projected Cost ($000) $3,189 $1,976 $2,084 $0 $2,110 $2,303 $2,32Actual/Projected Cost per inspection ( in dollars) $905 $857 $925 $0 $801 $874 $884 Comment: 
Bureau of Land Management 2009 

Section I – Goal Performance 

Type 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 Preside

Budg

2.1.21 

Number of coal pre and post leasing actions approved for energy minerals. (Bureau Measure) 

A 362 384 356 360 348 335 360 

Total Actual/Projected Cost ($000) $2,331 $2,086 $1,859,051 $0 $2,392 $2,404 $2,43Actual/Projected Cost per action ( in dollars) $6,439 $5,431 $5,222 $0 $6,874 $7,176 $6,75

Comment: 

2.2 GOAL 2 - Water - BLM has no measures 2.3 GOAL 3 - Land-Related Resources 

Manage or Influence Resource Use to Enhance Public Benefit, Responsible Development, and Econo

Forage 

2.3.01 

Percent of grazing permits and leases processed as planned consistent with applicable resource management plans. [SP] 

C 

108% 

2512/ 

2329 

117% 

2,730/ 

2,342 

103% 

2,565/ 

2,479 

100% 

2,600/ 

2,600 

79% 

2058/ 2,600 

85% 

2210/ 2,600 

90% 

3,245

3,60

Total Actual/Projected Cost ($000) $19,513 $18,908 $21,027 $0 $23,792 $26,476 $25,6Actual/Projected Cost per permit or lease (in dollars) $7,768 $6,926 $8,198 $0 $11,560 $11,980 $7,90

Comment: The grazing strategy or planned number considers all permits due for renewal and a portion of the existing backlog to be completed by each 

A customer service standard is being implemented in 2007 to reduce the permits in backlog status. 

2.3.02 

Cost per grazing permit/lease for processing and issuing grazing permits/leases. [SP] 

A $4,227 $4,088 $4,956 $5,000 $5,178 $5,178 $5,17

Comment: * Support Measure - No cost will be shown. Increases in 2006 of protests and appeals, and increases in labor costs, have caused an incre

permits and leases which will continue in 2007 and 2008. 
Bureau of Land Management 2009 

Section I – Goal Performance 

Type 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 Preside

Budg

Forest Products 

2.3.03 

Percent of allowable sale quantity timber offered for sale consistent with applicable resource management plans. (O&C) [SP] 

C 69% 140 / 203 98% 198 / 203 80% 162/ 203 82% 166/ 203 68%139/ 203 85% 172/ 203 85% 172/ 2

Total Actual/Projected Cost ($000) $23,876 $22,709 $28,180 $0 $31,910 $33,518 $33,5Actual/Projected Cost per MMBF ( in dollars) $170,546 $114,693 $173,949 $0 $229,567 $194,873 $194,8

Comment: The 2005 volume of 98% was incorrectly calculated based on the total ASQ plus the LSR planned. It should have been based on the ASQ 

percent would be 80% (163/203). In 2007, increased litigation and the loss of several citical biological opinions required the BLM to remove approximawhich when offered serves as the basis for this performance measure. 

2.3.04 

Volume of wood products offered consistent with applicable management plans (Public Domain & O&C/MMBF) [SP] 

C 188.5 257 243 276 255 286 313 

Total Actual/Projected Cost ($000) $1,170 $1,264 $1,423 $0 $1,438 $1,870 $1,74Actual/Projected Cost per MMBF ( in dollars) $6,207 $4,918 $5,856 $0 $5,639 $6,538 $5,57

Comment: Focus in 2006 for Public Domain was shifted to the more time consuming process of increasing the volume of biomass. As a result of the s

increased 71% over 2005. In 2007, increased litigation and the loss of several citical biological opinions required the BLM to remove approximately 25

when offered is the basis for this performance measure. 

2.3.06 

Administrative cost per thousand board feet (MBF) of timber offered for sale [SP] 

A $176 $105 $135 $190 $190 $190 $180 

Comment: * Support Measure - No cost will be shown. Several court orders in 2005 and 2006 resulted in the need for additional species survey work 

thousand board feet of timber offered for sale. The cost should begin to decrease again in 2009. 

2.3.07 

Volume of wood products offered (tons of biomass for energy) consistent with applicable management plans. (Bur) 

A 30,000 71,000 122,000 60,000 100,752 60,000 60,00
Bureau of Land Management 2009 

Section I – Goal Performance 

Type 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 Preside

Budg

Total Actual/Projected Cost ($000) $0 $0 $0 $0 $109 $45 $43 Actual/Projected Cost per ton 

(in dollars) $0 $0 $0 $0 $1.08 $0.74 $0.7

Comment: The 2005 and 2006 Actual numbers represent a period of rapid escalation when new markets, and new contracting methods for biomass w

their partners. As markets adjust to the new availability of biomass and costs stabilize, a lower, more stable annual target is predicted. This new targe

measure was a support measure in prior years and no cost is shown for 2004-2006. Cost will be shown beginning in 2007. 

Non-Energy Minerals 

2.3.08 

Number of onshore federal acres under lease or contract for nonenergy mineral exploration and development (leaseable and saleable minerals). [SP] 

C new 

measure 

new 

measure 

new 

measure 883,826 520,291 520,291 525,0

Total Actual/Projected Cost ($000) $0 $0 $0 $0 $4,818 $5,509 $5,53Actual/Projected Cost per acre 

( in dollars) $0 $0 $0 $0 $9 $11 $11 

Comment: This is a new measure. Data was not collected in 2004-2006 in a way that would allow us to retrieve historical data for this measure. 

2.3.09 

Number of acres reclaimed to appropriate land condition and water quality standards. [SP] 

A 1,786 12,131 4,151 4,000 3,750 3,750 3,75

Total Actual/Projected Cost ($000) $8,963 $9,100 $9,445 $0 $9,373 $11,882 $11,8Actual/Projected Cost per acre 

(in dollars) $5,018 $750 $2,275 $0 $2,499 $3,168 $3,17

Comment: In 2006, demand for mineral materials was high and therefore not as many mined sites were closed and reclaimed. Out-year targets have 

demand. 

2.3.10 

Percent of pending cases of permits and lease applications that are processed for nonenergy minerals. (Bur/PART) F new measure new measure 101.7% 713/ 701 90% 77% 707/ 922 77% 707/ 922 77% 707/ 9
Bureau of Land Management 2009 

Section I – Goal Performance 

Type 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 Preside

Budg

Comment: * Support Measure - No cost will be shown. The program reported that 101.7% of the new cases received were completed in 2006, thus e

pending cases. Although the program was able to increase the number of applications processed in 2006, industry activity is predicted to increase the 

2007 and 2008. 

2.3.11 

Cumulative percent of original helium debt repaid at end of fiscal year. (Bur) 

C 

17% 

$234M/ 

$1,373M 

22% 

$299M/ 

$1,373M 

33% 

$459M/ 

$1,373M 

40% 

$544M 

$1,373M 

44% 

$609M/ 

$1,373M 

46% 

$626M 

$1,373M 

56% 

$769M

$1,373

Comment: 

2.3.24 

Improve customer satisfaction rating with the non-energy mineral permitting process. (Bur/PART) 

C 80% 80% 92% 92% 

No Survey 

Measured 

Biannually 

92% 92% 

Comment: * Support Measure - No cost will be shown. This measure is biannual. Beginning in 2008, results will be shown for 2 years to provide tren

2.3.25 Percent of Reclamation Bond Adequacy (Bur/PART) C new measure new measure new measure 85% 95% 958,808,534/ 1,010,130,079 95% 96% 

Comment: * Support Measure - No cost will be shown. The Bond adequacy reporting system was implemented mid 2006. 

Intermediate Outcome - Forage 2.3.12 

Average time (average reduction, number of days) for processing and issuance of grazing permits and leases (lower number is good). [SP] 

F 215 207 204 204 116 116 116 

Comment: * Support Measure - No cost will be shown. BLM has reduced the processing time for grazing permits and leases from 215 days to 204 d

beginning in 2003. 

2.3.13 Percent of range improvements completed as planned. [SP] A new measure new measure new measure 95% 95/ 100 104% 489/ 469 95% 446/ 469 95% 446/ 4

Comment: * Support Measure - No cost will be shown. This is a new measure. Historical data is not available. The target percentage of 95%, or 95/

could be established. 

Intermediate Outcome - Forest Products 2.3.14 

Percent of forestry improvements (acres) completed as planned. [SP] 

A 

102% 

32,980/ 

32,335 

104% 

28,376/ 

27,376 

112% 

32,510/ 

28,919 

100% 

26,700/ 

26,700 

112% 

29,846/ 

26,700 

100% 

27,564/ 

27,564 

100% 

26,80

26,80
Bureau of Land Management 2009 

Section I – Goal Performance 

Type 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 Preside

Budg

Total Actual/Projected Cost ($000) $12,123 $12,701 $13,173 $0 $13,224 $14,340 $14,3Actual/Projected Cost per acre (in dollars) $375 $441 $405 $0 $443 $520 $536 

Comment: This is a new measure in 2007. Historical data has been added to provide context. 

Intermediate Outcome - Non-Energy Minerals 2.3.15 

Average time for processing plans of operation for locatable minerals. (SP/PART) 

C 18 mo 18 mo 17 mo 17 mo 14 mo 14 mo 14 m

Total Actual/Projected Cost ($000) $6,996 $7,186 $7,906 $0 $7,352 $9,740 $9,74Actual/Projected Cost per plan (in dollars) $388,677 $399,204 $465,073 $0 $525,125 $695,735 $695,7

Comment: Although plans of operation are completed in less time, the continuous start of new plans does not allow the funding level to decrease. Min

$2,000,000 million increase in 2008. 

2.3.27 

Percent of Mining Law incidents of Non-compliance corrected with first notice. (Bur/PART) 

A 22% 8/ 37 9% 3/ 34 17% 13/ 76 16% 12/ 75 9% 3/ 32 16% 12/ 75 17% 13/ 7

Comment: * Support Measure - No cost will be shown. 

2.3.26 

Percent of Notices and Plans of Operations Inspected (Bur/PART) 

A 40% 1358/ 3383 31% 1187/ 3813 27% 1185/ 4403 47% 1196/ 2554 41% 1,158/ 2,841 41% 1,158/ 2,842 47% 1196/ 2

Comment: * Support Measure - No cost will be shown. In 2007, the denominator changes because a significant number of expired Notices were elim

2.3.16 

Percent of non-compliance and trespass actions that are resolved for non-energy minerals. (Bur/PART) 

A 8% 25% 41% 46/112 26% 46% 39/ 85 46% 39/ 85 46% 39/ 8

Comment: * Support Measure - No cost will be shown. 
Bureau of Land Management 2009 

Section I – Goal Performance 

Type 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 Preside

Budg

2.3.17 

Average 3 year rolling costs of Mineral Materials disposals, inspections and trespass protection divided by the cubic yards disposed. (Bur/PART) 

A $228 $247 $188 $228 $119 $221 $228 

Comment: * Support Measure - No cost will be shown. This measure is being reported for the first time in 2007. Historical data has been added to p

single year will tend to lower the overall cost even when using the 3 year average. 2006 included very large disposals. Outyear targets reflect a more 

2.3.18 

Percent of time the Crude Helium Enrichment Unit (CHEU) was operating during the fiscal year. (Bur) 

A 79% 268/ 340 99% 335/ 340 95% 322/ 340 100% 340/ 340 97% 330/ 340 100% 340/ 340 100% 340/ 3

Total Actual/Projected Cost ($000) $85,286 $90,346 $205,380 $0 $183,422 $182,270 $181,6

Actual/Projected Cost per day 

(in dollars) $318,233 $269,689 $637,827 $0 $555,826 $536,087 $534,3

Comment: This measure was revised in 2007 to remove the standard maintenance days from the denominator. There are only 340 possible operating 

scheduled maintenance. Prior year data is provided using the new denominator. In 2007, unanticipated equipment failure reduced the number of days 

2.3.20 

Number of mining claim adjudication and fee collection actions (Bur) 

A 536,840 645,342 833,420 565,722 907,463 800,000 800,0

Total Actual/Projected Cost ($000) $6,349 $5,902 $6,264 $0 $6,253 $8,424 $8,42Actual/Projected Cost per action 

(in dollars) $12 $9 $8 $0 $7 $11 $11 

Comment: The 2006 and 2007 results show an unusually high increase in demand which is not anticipated to continue in the out years. 

2.3.21 

Number of non-energy pre and post lease actions processed (Bur) 

A new 

measure 

new 

measure 

new 

measure 

343 207 207 265 

Total Actual/Projected Cost ($000) $0 $0 $0 $0 $1,314 $1,578 $1,58Actual/Projected Cost per action 

(in dollars) $0 $0 $0 $0 $6,349 $7,621 $5,97
Bureau of Land Management 2009 

Section I – Goal Performance 

Type 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 Preside

Budg

Comment: The 2006 results show an unusually high increase in demand which is not anticipated to continue in the out years. 

2.3.22 

Number of validity and mineral patent examinations completed (Bur) 

A 33 21 14 27 14 14 14 

Total Actual/Projected Cost ($000) $4,069 $4,560 $4,127 $0 $4,260 $5,675 $5,67Actual/Projected Cost per examination (in dollars) $123,299 $217,118 $294,791 $0 $304,268 $405,327 $405,3

Comment: 

2.3.23 Number of mining notices processed (Bur) A 482 488 543 543 827 524 545 

Total Actual/Projected Cost ($000) $2,563 $2,514 $2,466 $0 $2,560 $3,286 $3,28Actual/Projected Cost per notice 

(in dollars) $5,317 $5,151 $4,541 $0 $3,096 $6,271 $6,02

Comment: 

Mission Area 3.0 - Recreation 

Improve recreation opportunities for America 

3.1 Outcome Goal –Improve the Quality and Diversity of Recreation Experiences and Visitor Enjoyment on DOI Lands 

3.1.01 

Percent of visitors satisfied with the quality of their experience (SP/PART) 

C 94% 91% 97% 94% 93% 93/ 100 93% 93/ 100 94% 94/10

Total Actual/Projected Cost ($000) $23,942 $21,060 $18,984 $0 $16,227 $24,152 $21,9Actual/Projected Cost per Percent of Visitors Satisfied (in dollars) 

 $254,702 $231,426 $195,715 $0 $174,480 $259,700 $233,5

Comment: Customer surveys have a variance of +/- 6%. BLM hosted over 57 million visitors in 2007. 1% equals 570,000 visitors 
Bureau of Land Management 2009 

Section I – Goal Performance 

Type 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 Preside

Budg

Intermediate Outcome - Provide Recreation Opportunities 3.1.02 

Percent of physical facilities in Special Recreation Management Areas (SMRA) in good or fair condition. (Bur/PART) 

C 87% 90% 92% 92% 94% 365/388 94% 365/388 94% 366/ 3

Comment: * Support Measure - No cost will be shown. 

3.1.03 Percent of recreation units with current management plan (SP) C new measure new measure new measure Establish Baseline 55% 199/ 362 56% 201/ 362 56% 203/ 3

Total Actual/Projected Cost ($000) $0 $0 $0 $0 $1,757 $2,373 $2,07Actual/Projected Cost per Unit (in dollars) $0 $0 $0 $0 $8,829 $11,808 $10,2

Comment: Reflects the number of administratively designated Special Recreation Management Areas (SRMAs) with current management plans in pla

significant recreation infrastructure development, high visitor use and more intensive recreation management needs. About 15% of BLM lands have be

3.1.04 

Maintenance: Number of square feet of buildings maintained in adequate condition, determined by FCI<0.15, at recreation sites. (Bur) 

A new 

measure 

new 

measure 

new 

measure 

93% 

706,285/ 

761,903 

90% 

723,280/ 

799,420 

90% 

723,280/ 

799,420 

90% 

723,28

799,4

Total Actual/Projected Cost ($000) $0 $0 $0 $0 $23,466 $28,781 $26,4Actual/Projected Cost per Square Foot (in dollars) $0 $0 $0 $0 $32 $40 $37 

Comment: This measure includes funding from Recreation Management, Maintenance Operations, Annual Maintenance, and Deferred Maintenance 

and California Grant Lands. The performance results are derived from Annual Maintenance and Maintenance Operations, and do not include Deferred represented by the 10% of square feet of buildings that do not meet adequate condition. The 2009 decline in funding for deferred maintenance does no

measure in the short term. Since deferred maintenance is more costly than annual maintenance, the remaining annual maintenance reflects a lower c

3.1.05 

Maintenance: Number of nonbuilding assets maintained in adequate condition, determined by FCI<0.15, at recreation sites. (Bur) 

A new 

measure 

new 

measure 

new 

measure 

88% 

11,883/ 

13,479 

88% 

14,670/ 

16,724 

88% 

14,670/ 

16,724 

88% 

14,67

16,72
Bureau of Land Management 2009 

Section I – Goal Performance 

Type 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 Preside

Budg

Total Actual/Projected Cost ($000) $0 $0 $0 $0 $23,440 $15,541 $13,6Actual/Projected Cost per Asset 

(in dollars) $0 $0 $0 $0 $1,598 $1,059 $928 

Comment: This measure includes funding from Recreation Managment, Maintenance Operations, Annual Maintenance, and Deferred Maintenance ac

California Grant Lands. The performance results are derived from Annual Maintenance and Maintenance Operations, and do not include Deferred Marepresented by the 12% of non-building assets that do not meet adequate condition. The 2009 decline in funding for deferred maintenance does not af

in the short term. Since deferred maintenance is more costly than annual maintenance, the remaining annual maintenance reflects a lower cost. 

3.1.06 

Infrastructure Improvement: Number of square feet of buildings constructed at recreation sites. (Bur) 

A UNK 7,200 5,600 27,000 83,524 37,187 25,00

Total Actual/Projected Cost ($000) $0 $617,242 $143,443 $0 $445,013 $482,847 $481,7Actual/Projected Cost per Square Foot (in dollars) $0 $85,728 $25,615 $0 $5,328 $12,984 $19,2

Comment: Infrastructure improvement results for buildings constructed at recreation sites are based on actual square footage of planned projects wh

2006 actuals show number of buildings rather than square feet. 

3.1.07 

Infrastructure Improvement: Number of non-building assets constructed at recreation sites. (i.e. roads, bridges, etc) (Bur) 

A UNK 8 10 18 30 30 30 

Total Actual/Projected Cost ($000) $0 $1,213 $4,338 $0 $4,869 $2,397 $2,08Actual/Projected Cost per Constructed Asset (in dollars) $0 $151,591 $433,768 $0 $162,282 $79,884 $69,5

Comment: Infrastructure improvement results for non-building assets constructed at recreation sites are based on actual planned projects which will v

Intermediate Outcome - Improve Capacities to Provide Recreation, Where Appropriate 3.1.10 

Percent of priority recreation facilities that meet applicable accessibility standards (SP/PART) 

A 7% 550/ 7700 7% 36/ 499 8% 39/ 512 8% 41/ 512 8% 41 / 512 8% 43/ 512 9% 45/ 51
Bureau of Land Management 2009 

Section I – Goal Performance 

Type 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 Preside

Budg

Comment: * Support Measure - No cost will be shown. The vast majority (over 80%) of BLM recreation sites incorporate accessible elements such as 

centers, and trails and allow reasonable access to persons with disabilities. Virtually all visitor centers meet basic ADA access requirements. Howevercompletely accessible and include virtually all visitor use elements (every campground, toilet, trail, etc) that have been determined to be accessible. 

3.1.14 

Overall condition of trails and campgrounds as determined by the Facilities Condition Index. (SP) 

C new 

measure 

new 

measure 

new 

measure 

Establish 

Baseline 

0.9 

14,670/ 

16,724 

0.9 

14,670/ 

16,724 

0.9 

14,67

16,72

 Comment: * Support Measure - No cost will be shown. 

Intermediate Outcome - Provide Effective Interpretation and Education Programs 

3.1.11 

Percent satisfaction among visitors served by facilitated programs (SP/PART) 

C No Data 82% 91% 91% 81% 81/ 100 81% 81/ 100 82% 82/ 10

Total Actual/Projected Cost ($000) $0 $0 $0 $0 $45,461 $24,355 $21,7Actual/Projected Cost per Percent of Visitors Satisfied (in dollars) 

 $0 $0 $0 $0 $561,251 $300,676 $265,6

Comment: Facilitated programs include all deliverable interpretive products and include a wide range of signs, kiosks, interpretive displays, websites, 

which may reach thousands of individual visitors. 

Intermediate Outcome - Manage and Protect Recreational Resources and Users 3.1.12 

Law Enforcement: Number of serious injuries per 100,000 visitors. (SP) 

A 0.33 177/ 540 0.26 146/ 561 0.26 144/ 553 0 0.27 153/ 573 0.28 159/ 573 0.28 159/ 5

Comment: A five year average will be used to set targets for this measure beginning in 2008. 

3.1.13 

Law Enforcement: Number of fatalities per 100,000 visitors (SP) 

A 0.07 37/ 540 0.06 32/ 561 0.05 27/ 553 0 0.06 37/ 573 0.06 37/ 573 0.06 37/ 57

Comment: * Support Measure - No cost will be shown. 

3.1.15 

Percent of visitors satisfied with services provided by commercial recreational operations. (SP) 

C new 

measure 

new 

measure 

new 

measure 

Establish 

Baseline No report Establish Baseline TBD 
Bureau of Land Management 2009 

Section I – Goal Performance 

Type 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 Preside

Budg

Total Actual/Projected Cost ($000) 0 0 0 0 0 10,618 9,59Actual/Projected Cost per percent of Visitors Satisfied (in dollars) 

 $0 $0 $0 $0 $0 TBD TBD 

Comment: A customer survey is being developed for this measure. The first survey will be done in 2008 and the results will be used to provide target

Intermediate Outcome - Provide For and Receive Fair Value in Recreation 

3.1.16 

Percent of customers satisfied with the value for fee paid (SP) C 85% 85/ 100 85% 85/ 100 86% 86/ 100 90% 90/ 100 86% 86/ 100 86% 86/ 100 87% 87/ 10

Total Actual/Projected Cost ($000) $0 $0 $1,118 $0 $515 $670 $647 Actual/Projected Cost per percent of Satisfied Customers (in dollars) 

 $0 $0 $13 $0 $6 $8 $7 

Comment: 

3.1.17 

Percent of recreation fee program receipts spent on fee collection (SP) 

F first data 2005 15% 15% 15% 3% 439,500/ 14,000,000 3% 439,500/ 14,000,000 3% 439,50

14,000,

 Comment: 

3.1.18 

Cost per visitor at developed recreational fee sites. (Bur/PART) 

C $1.34 $1.23 $1.44 $1.44 $1.14 $1.14 $1.1

Comment: The data used in this measure was refined in 2007. The new formula has been applied to all prior year data. 
Bureau of Land Management 2009 

Section I – Goal Performance 

Type 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 Preside

Budg

Mission Area 4.0 - Serving Communities 

Improve protection of lives, property and assets, advance the use of scientific knowledge, and improve the quality o

serve 

4.1 Outcome Goal - Improve Protection of Lives Resources, and Property 

4.1.35 

Law Enforcement: Percent change in Part I offenses that occur on DOI lands or under DOI jurisdiction (SP) 

C new 

measure 

new 

measure 

new 

measure 

Establish 

Baseline 

-35% 

-127/ 365 

+26% 

62/ 238 

+4% 

10/ 30

Total Actual/Projected Cost ($000) $0 $0 $0 $0 $32,913 $11,482 $11,3Actual/Projected Cost per percent change (in dollars) $0 $0 $0 $0 $259 $185 $1,13

 Comment: * Support Measure - No cost will be shown. 

4.1.36 

Law Enforcement: Percent change in Part II offenses (excluding natural, cultural, and heritage resource crimes) that occur on DOI lands or under DOI jurisdiction. (SP) 

C new 

measure 

new 

measure 

new 

measure 

Establish 

Baseline 

+5% 

148/ 2974 

+1% 

31/ 3122 

-4% 

-126/ 3

 Comment: * Support Measure - No cost will be shown. 

4.1.37 

Law Enforcement: Percent change of natural, cultural and heritage resource crimes that occur on DOI lands or under DOI jurisdiction (SP) 

C new 

measure 

new 

measure 

new 

measure 

Establish 

Baseline 

-7% 

-692/ 10,317 

-5% 

-485/ 9,625 

+12% 

+1,09

9,14

 Comment: * Support Measure - No cost will be shown. 

4.1.04 

Alaska Land Conveyances: Percent of land patented to the State and Alaskan Native Corporations as required by statute. (Bur/PART) 

C 

86% 

130,074,490/ 

150,027,451 

44% 

66,857,025/ 

151,113,591 

45% 

68,396,441/ 

150,113,591 

48% 

72,596,441/ 

150,497,040 

50% 

74,611,810/ 

150,497,040 

53% 

79,111,810/ 

150,497,040 

55% 

82,111,

150,497
Bureau of Land Management 2009 

Section I – Goal Performance 

Type 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 Preside

Budg

Total Actual/Projected Cost ($000) $11,911 $11,157 $13,822 $0 $12,311 $12,162 $11,2Actual/Projected Cost per Acre 

(in dollars) $0.09 $7 $9 $0 $2 $3 $4 

Comment: The 2004 actuals include land patented and interim conveyance. Beginning in 2005, only land patented is included. Interim conveyance i

increase in performance beginning in 2007 is a result of the Alaska Land Transfer Acceleration Act (ALTAA) which provided tools so that the Alaska NaStatehood Act, and the Alaska Native Claims Settlement Act, could be worked in concert in order to facilitate additional transfer of land. 

4.1.05 

Percent of total land within SNPLMA boundary offered for sale or disposal under Recreation and Public Purposes Act. (Bur/PART) 

A new 

measure 

new 

measure 

13% 

4,412/ 

32,836 

acres 

 1% 

300/ 29,639 

acres 

1% 

371/ 26,972 

acres 

1% 

300/ 29,639 

acres 

1.1% 

300/ 29

acre

Comment: * Support Measure - No cost will be shown. Denominator represents remaining SNPLMA acres. 

4.1.06 

Percent of parcels offered by a willing seller for acquisition by BLM that are acquired under SNPLMA (Bur) 

A new 

measure 

new 

measure 

2% 

1,115/ 

58,209 

25% 

14,344/ 

57,094 

4% 

2,146/ 

58,564 

8% 

1,972/ 

24,112 

22% 

4,250

19,06

Comment: * Support Measure - No cost will be shown. 

Intermediate Outcome - Improve Fire Management (Reported in OWFC) Intermediate Outcome - Improve Public Safety and Security and Protect Public Resources from Damage 4.1.12 

Mitigate Hazards: Percent of physical and chemical hazards mitigated in appropriate time to ensure visitor or public safety (SP] 

C Establish Baseline 97% 1,029/ 1,059 90% 861 / 955 70% 410 / 589 93% 436/ 468 90% 715/ 794 91% 1039 / 1

Total Actual/Projected Cost ($000) $0 $4,609 $4,508 $0 $4,778 $4,625 $5,62Actual/Projected Cost per hazard mitigated (in dollars) $0 $4,479 $5,235 $0 $10,960 $6,468 $5,41

Comment: In 2005, BLM Field Offices responded to an increased number of emergencies and time critical removals. This measure includes an increa

Borderlands Initiative which will result in 324 hazards mitigated in 2009. 
Bureau of Land Management 2009 

Section I – Goal Performance 

Type 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 Preside

Budg

4.1.38 

Law Enforcement: Percent of incidents/investigations closed for Part I, Part II and natural, cultural and heritage resource offenses (SP) 

C new 

measure 

new 

measure 

new 

measure 

Establish 

Baseline 

59% 

7596/ 

12,985 

50% 

13,009/ 

26,018 

50% 

19,79

39,59

Total Actual/Projected Cost ($000) $0 $0 $0 $0 $8,453 $12,452 $12,2Actual/Projected Cost per incident closed (in dollars) $0 $0 $0 $0 $1,113 $957 $620 

Comment: * Support Measure - No cost will be shown. 

4.1.14 

Percent of plans completed within four years of start. (Bur/PART) 

C no data 55% 6/ 11 55% 11/ 20 60% 12/ 20 30% 6/ 20 75% 6/ 8 100% 3/ 3 

Comment: * Support Measure - No cost will be shown. The number of new plan starts varies each year. The planning program utilizes a 10 year pla

4.1.15 

Number of Resource Management Plan evaluations completed (Bur) 

A 3 11 2 3 3 7 8 

Total Actual/Projected Cost ($000) $2,142 $1,126 $1,795 $0 $2,335 $1,856 $1,75Actual/Projected Cost per evaluation (in dollars) $714,158 $102,395 $897,501 $0 $778,373 $265,157 $219,9

Comments: Plan evaluations are cyclical. 

4.1.16 

Number of Resource Management Plans/EIS completed (Bur) 

A 10 3 1 2 6 2 4 

Total Actual/Projected Cost ($000) $64,352 $58,750 $63,640 $0 $56,542 $59,252 $56,5Actual/Projected Cost per Plan (in dollars) $6,435,183 $19,583,333 $63,640,084 $0 $9,423,648 $29,625,774 $14,136

Comments: The average Resource Management Plan takes between 4 and 5 years to complete. Work on multiple plans is ongoing each year.

4.1.17 

Number of Resource Management Plans/EIS amendments completed (Bur) 

A 8 7 4 19 7 24 20 
Bureau of Land Management 2009 

Section I – Goal Performance 

Type 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 Preside

Budg

Total Actual/Projected Cost ($000) $8,066 $4,735 $5,990 $0 $5,604 $5,640 $5,63Actual/Projected Cost per Amendment (in dollars) $1,008,289 $676,417 $1,497,489 $0 $800,585 $235,020 $281,8

Comments:

4.1.18 

Maintenance: Number of square feet of buildings maintained in adequate condition, determined by FCI<0.15, at non-recreation sites. (Bur) 

A new 

measure 

new 

measure 

new 

measure 

95% 

2,459,990/ 

2,602,380 

97% 

3,000,073/ 

3,085,585 

97% 

3,000,073/ 

3,085,585 

97% 

3,000,0

3,085,5

Total Actual/Projected Cost ($000) $0 $0 $0 $0 $24,295 $26,064 $22,0Actual/Projected Cost per Square Feet (in dollars) $0 $0 $0 $0 $8 $9 $7 

Comments: This measure includes funding from Maintenance Operations, Annual Maintenance, and Deferred Maintenance accounts which includes O

The performance results are derived from Annual Maintenance and Maintenance Operations, and do not include deferred maintenance which is repres

buildings that do not meet adequate condition. The 2009 decline in funding for deferred maintenance does not affect the performance of the measure i

maintenance is more costly than annual maintenance, the remaining annual maintenance reflects a lower cost. 

4.1.19 

Maintenance: Number of nonbuilding assets maintained in adequate condition, determined by FCI<0.15, at non-recreation sites. (Bur) 

A new 

measure 

new 

measure 

new 

measure 

94% 

11,407/ 

12,131 

95% 

14,174/ 

14,970 

95% 

14,174/ 

14,970 

95% 

14,17

14,97

Total Actual/Projected Cost ($000) $0 $0 $0 $0 $15,857 $10,192 $7,93Actual/Projected Cost per Asset 

(in dollars) $0 $0 $0 $0 $1,119 $719 $560 

Comments: This measure includes funding from Maintenance Operations, Annual Maintenance, and Deferred Maintenance accounts which includes O

The performance results are derived from Annual Maintenance and Maintenance Operations, and do not include deferred maintenance which is repres

assets that do not meet adequate condition. The 2009 decline in funding for deferred maintenance does not affect the performance of the measure in t

maintenance is more costly than annual maintenance, the remaining annual maintenance reflects a lower cost. 
Bureau of Land Management 2009 

Section I – Goal Performance 

Type 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 Preside

Budg

4.1.20 

Maintenance: Number of lane miles of roads maintained in adequate condition. (Bur) 

A new 

measure 

new 

measure 

new 

measure 

Establish 

Baseline 29,500 29,500 29,50

Total Actual/Projected Cost ($000) $0 $0 $0 $0 $28,215 $27,083 $24,8Actual/Projected Cost per Mile (in dollars) $0 $0 $0 $0 $956 $918 $841 

Comments: This measure includes funding from Maintenance Operations, Annual Maintenance, and Deferred Maintenance accounts which includes O

The performance results are derived from Annual Maintenance and Maintenance Operations, and do not include deferred maintenance which would be 

do not meet adequate condition. The 2009 decline in funding for deferred maintenance does not affect the performance of the measure in the short termore costly than annual maintenance, the remaining annual maintenance reflects a lower cost. 

4.1.21 

Infrastructure Improvement: Number of square feet of buildings constructed at nonrecreation sites. (Bur) A UNK 10,000 0 0 plnd 23,471 30,000 5,00

Total Actual/Projected Cost ($000) $0 $20,572 $9,566 $0 $14,041 $11,148 $10,2Actual/Projected Cost per square foot (in dollars) $0 $2,057 $0 $0 $598 $372 $2,04

Comment: Infrastructiure improvement results for buildings constructed at non-recreation sites are based on actual square footage of planned project

Projects are multi year. Results are counted when construction is completely finished. 

4.1.22 

Infrastructure Improvement: Number of non-building assets constructed at non-recreation sites. (i.e. roads, bridges, etc) (Bur) 

A UNK 4 3 30 20 10 5 

Total Actual/Projected Cost ($000) $0 $3,465 $7,493 $0 $5,943 $2,555 $2,15Actual/Projected Cost per Asset (in dollars) $0 $866,146 $2,497,536 $0 $297,173 $255,447 $431,6

Comment: Infrastructure improvement results for non-building assets constructed at non-recreation sites are based on actual planned projects which 
Bureau of Land Management 2009 

Section I – Goal Performance 

Type 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 Preside

Budg

4.1.34 

Facility Compliance: Percentage of BLM organizational units rated in good safety, health, and (CASHE) environmental condition. (BUR) 

F 87% 103 / 118 78% 94 / 120 83% 99/ 120 80% 96/ 120 88% 105/ 120 88% 105/ 120 88% 105/ 1

Comment: * Support Measure - No cost will be shown. 

4.1.39 

Percent of DOI public lands management units where travel management plans or equivalent regulatory or policy documents are completed. (SP) 

C new 

measure 

new 

measure 

new 

measure 

Establish 

Baseline 

39% 

61/ 155 

41% 

63/ 155 

42% 

65/ 15

Comments: * Support Measure - No cost will be shown. Travel management plans and OHV area use designations are completed through BLM's Re

(RMP) process. Over 2/3 or 67% of BLM lands have been designated limited to roads or trails or closed to motorized use. 

4.1.40 

The percentage of public lands where visual resource management data have been recorded in digital format for both inventory and management classes. (Bur) 

C new 

measure 

new 

measure 

new 

measure 

Establish 

Baseline 

15% 

38,700,000/ 

258,000,000 

15% 

38,700,000/ 

258,000,000 

15% 

38,700,

258,000

Comments: * Support Measure - No cost will be shown. 

Intermediate Outcome - Promote Respect for Private Property 4.1.23 

Percent of open complaints received from property owners concerning DOI actions affecting status of their private property, resolved within one year. (SP) 

A new 

measure 

new 

measure 

new 

measure 

Establish 

Baseline 

100% 

0/ 0 

90% 

9/ 10 

90% 

9/ 10 

Comments: * Support Measure - No cost will be shown. In 2007, no open complaints regarding private property were received by the Lands and Rea

4.1.24 

Land Title Records: Number of public land title records posted on the internet to assist title, survey, historical, and genealogical research and retrieval. (Bur) 

C 97,835 121,677 143,148 139,475 139,475 125,000 125,0
Bureau of Land Management 2009 

Section I – Goal Performance 

Type 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 Preside

Budg

Total Actual/Projected Cost per Record ($000) 38,296 41,955 35,359 0 30,700 $24,784 $23,9Actual/Projected Cost per Mile (in dollars) $391 $345 $247 $0 $220 $198 $192 

Comments: Results for this measure reflect the accomplishments funded by BLM's Lands programs. 

4.1.25 

Percent of survey projects of Federal and Indian Trust lands that are funded (Bur/PART) 

A UNK UNK 11% 151/ 1432 8% 113/ 1418 14% 314/ 2176 13% 189/ 1464 12% 175/ 14

Total Actual/Projected Cost ($000) $0 $0 $71,628 $0 $70,262 $57,424 $54,9Actual/Projected Cost per Project (in dollars) $0 $0 $474,360 $0 $223,765 $303,829 $313,9

Comments: Results for this measure are based on actual projects planned and will vary between years. A larger number of small projects or a small

funded in any given year. 

4.1.26 

Survey: Percent of cadastral surveys approved within eighteen months of the funding date. (Bur/PART) 

C new 

measure 

new 

measure 

1st data 

2007 

54% 

332/615 

63% 

389/ 615 

73% 

574/ 790 

73% 

574/ 7

Comments: * Support Measure - No cost will be shown. Results for this measure are based on actual projects planned and will vary between years. 

4.1.27 

Percent of land processed under IC, TA, relinquishments and rejections to the State and Alaskan Native Corporations. (Bur) 

C new 

measure 

new 

measure 

5% 

3,450,882/ 

71,550,000 

14% 

9,900,000/ 

71,550,000 

23% 

16,359,196/ 

71,550,000 

26% 

18,603,000/ 

71,550,000 

54% 

38,093,

71,550,

Comments: * Support Measure - No cost will be shown. 

4.1.28 

Increase the acreage of land disposals and conveyances completed outside Alaska. (Bur/PART) 

F 40,200 121,046 121,788 11,500 84,363 30,000 30,00

Total Actual/Projected Cost ($000) $7,822 $5,640 $5,166 $0 $5,139 $5,297 $5,14
Bureau of Land Management 2009 

Section I – Goal Performance 

Type 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 Preside

Budg

Actual/Projected Cost per Acre (in dollars) $195 $47 $42 $0 $61 $177 $171 Comment: Projects funded in prior years were completed in 2006. New performance measures were added in 2006 for the Southern Nevada Public L

the results of this measure beginning in 2007. Land disposals and conveyances are based on actual project acres which will vary each year. 

4.1.29 

Increase the number and acreage of land acquisitions to improve land tenure distribution. (Bur/PART) 

F $40,712 $90,655 $72,887 $25,000 $46,560 $4,434 $333 

Total Actual/Projected Cost ($000) 225,468 193,078 80,069 0 141,973 109,300 105,1Actual/Projected Cost per Acre (in dollars) $5,538 $2,130 $1,099 $0 $3,049 $24,650 $315,8

Comments: The number of acres planned for land acquisition is based on actual projects planned and will show a wide variance in acres each year. R

Public Lands Management Act (SNPLMA) are included in 2004-2006. SNPLMA developed seperate bureau measures in 2006. 

4.1.30 

Percentage of total acreage of land sales offered by competitive or modified competitive means. (Bur/PART) 

C new 

measure 

new 

measure 

new 

measure 

90% 82% 9,694/ 11,849 82% 9,694/ 11,849 82% 9,694

11,84

Total Actual/Projected Cost ($000) $0 $0 $0 $0 $9,601 $9,570 $9,54Actual/Projected Cost per Acre 

(in dollars) $0 $0 $0 $0 $990 $987 $984 

Comments:

4.1.31 

Percent of SNPLMA parcels offered for sale within 12 months of nomination. (Bur) 

A new 

measure 

new 

measure 

12% 

3,907 

32,836 

.13% 

40/ acres 

100% 

46/ 46 

100% 

312/ 312 

100% 

350/ 3

Comments: * Support Measure - No cost will be shown. 

4.1.32 

Percent of funds expended on acquisitions by BLM from willing sellers within two years of approved SNPLMA funding availability. (Bur) 

A new 

measure 

new 

measure 

19% 

$13,590,000/ 

$69,079,032 

13% 

$3,850,056/ 

$29,263,306 

10% 

3,758,469/ 

38,786,715 

10% 

3,758,469/ 

38,786,715 

17% 

$2,627,

$15,079

Comments: * Support Measure - No cost will be shown. 
Bureau of Land Management 2009 

Section I – Goal Performance 

Type 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 Preside

Budg

4.1.33 

Number of ROW actions completed to provide for use of public lands (Bur) 

A new 

measure 

new 

measure 

new 

measure 2,755 7,140 7,140 7,14

Total Actual/Projected Cost ($000) $0 $0 $0 $0 $35,821 $36,941 $36,6Actual/Projected Cost per ROW 

(in dollars) $0 $0 $0 $0 $5,017 $5,174 $12,5

Comments:
Bureau of Land Management 2009 

2009 Budget at a Glance 

(Dollars in Thousands)

2007 Enacted 

2008 Enacted 

Fixed Cost Changes 

Create Nat'l Monuments & Nat'l Conservation Area subactivity 

Org. & Admin. Streamlining 

Travel & Relocation Expense 

Performance Contracting 

Appropriation: Management of Lands and Resources (MLR) Land Resources  Soil, Water, Air 32,294 34,293 430 -1,252 -107 -105 -64 Restore NLCS funding to 2008 Request level Eliminate 2008 Earmark: CA Abandoned Mine Lands Restore Program funding to 2008 Request level Allocate Healthy Lands Initiative funding to appropriate subactivity  Range 68,263 73,036 1,257 -1,906 -255 -231 -50 Restore NLCS funding to 2008 Request level Eliminate 2008 Earmark: ID Dept of Agriculture - Weeds Eliminate Nat'l Fish & Wildlife Foundation Pass-thru funding Allocate Healthy Lands Initiative funding to appropriate subactivity  Forestry 10,458 10,608 156 -1,110 -83 -53 Restore NLCS funding to 2008 Request level Allocate Healthy Lands Initiative funding to appropriate subactivity  Riparian 21,573 22,887 305 -1,004 -63 -58 Restore NLCS funding to 2008 Request level Restore Program funding to 2008 Request level Eliminate Nat'l Fish & Wildlife Foundation Pass-thru funding Allocate Healthy Lands Initiative funding to appropriate subactivity  Cultural Resources 16,614 16,120 277 -1,924 -51 -67 Restore NLCS funding to 2008 Request level Restore Program funding to 2008 Request level  Wild Horses and Burros 36,354 36,201 267 -75 -110 Increase funding to keep population at acceptable levels. Total, Land Resources 185,556 193,145 2,692 -7,196 -634 -624 -114 

Section I – Budget at a Glance 
Bureau of Land Management 2009 

2007 Enacted 

2008 Enacted 

Create Nat'l Monuments Fixed Org. & Travel & 

Cost Changes 

& Nat'l Performance Conservation Area subactivity 

Admin. Streamlining 

Relocation Expense Contracting 

Wildlife and Fisheries  Wildlife 28,369 30,724 403 -1,344 -97 -134 Restore NLCS funding to 2008 Request level Restore Program funding to 2008 Request level Eliminate Nat'l Fish & Wildlife Foundation Pass-thru funding (inc. 2008 NFWF Add-on) Allocate Healthy Lands Initiative funding to appropriate subactivity  Fisheries 12,411 13,596 175 -306 -67 -46 Restore NLCS funding to 2008 Request level Restore Program funding to 2008 Request level Eliminate Nat'l Fish & Wildlife Foundation Pass-thru funding (inc. 2008 NFWF Add-on) Allocate Healthy Lands Initiative funding to appropriate subactivity Total, Wildlife and Fisheries 40,780 44,320 578 -1,650 -164 -180 +0 Threatened and Endangered Species 21,407 22,302 310 -1,477 -72 -71 Restore NLCS funding to 2008 Request level Restore Program funding to 2008 Request level Eliminate Nat'l Fish & Wildlife Foundation Pass-thru funding Allocate Healthy Lands Initiative funding to appropriate subactivity Recreation Management  Wilderness 16,182 17,366 265 -50 -52 Restore NLCS funding to 2008 Request level  Recreation Resources 47,515 50,543 868 -5,528 -275 -190 -36 Restore NLCS funding to 2008 Request level Eliminate 2008 Earmark: CA Trail Center (NV) Restore Program funding to 2008 Request level Total, Recreation Mgmt 63,697 67,909 1,133 -5,528 -325 -242 -36 

Section I – Budget at a Glance 
Bureau of Land Management 2009 

2007 Enacted 

2008 Enacted 

Create Nat'l Monuments Fixed Org. & Travel & 

Cost Changes 

& Nat'l Performance Conservation Area subactivity 

Admin. Streamlining 

Relocation Expense Contracting 

Energy and Mineral Resources  Oil and Gas 117,129 90,200 1,604 -39 -715 -375 -207 Increase funding for AK Legacy Wells Reduce Oil Shale EIS Reduce Gas Hydrates Increase funding for North Slope Science Initiative Restore base appropriations shifted to offsetting collections in 2008 Shift Oil Shale funding to Oil/Gas Inspections & Enforcements  Oil & Gas APD Processing Fund 0 25,500 0 +0 +0 +0 +0 Terminate Program as fee authority expires at the end of 2008  Oil & Gas APD Fee Collection 0 -25,500 0 +0 +0 +0 +0 Terminate Offsetting Fees for APD Processing as authority expires at the end of 2008  Coal 9,251 9,372 161 -2 -27 -26  Other Mineral Resources 10,157 10,301 165 -55 -31 -28 Total, Energy & Min. Resources 136,537 109,873 1,930 -96 -773 -429 -207 Alaska Minerals 1,600 0 0 Realty and Ownership  Alaska Conveyance 35,165 36,346 567 -70 -133 -141 -57 Reduce Base Program  Cadastral Survey 13,757 12,255 241 -33 -93 Eliminate 2008 Earmark: UT GIS Mapping Eliminate 2008 Earmark: WY Soil Survey Restore Program funding to 2008 Request level  Land and Realty 33,716 33,649 608 -358 -370 -144 -36 Restore Program funding to 2008 Request level Total, Realty & Ownership 82,638 82,250 1,416 -428 -536 -378 -93 

Section I – Budget at a Glance 
Bureau of Land Management 2009 

2007 Enacted 

2008 Enacted 

Create Nat'l Monuments Fixed Org. & Travel & 

Cost Changes 

& Nat'l Performance Conservation Area subactivity 

Admin. Streamlining 

Relocation Expense Contracting 

Communications Site Mgmt. 2,000 2,000 0 Comm. Site Mgmt. Offset -2,000 -2,000 0 Resource Prot. and Maint.  Resource Planning 49,153 47,486 646 -182 -215 -129 Restore NLCS funding to 2008 Request level Restore Program funding to 2008 Request level Reduce Base Program  Res. Prot. and Law Enforce. 20,062 22,633 337 -448 -43 -63 Restore NLCS funding to 2008 Request level  Hazard Mgmt & Res. Restoration 15,939 15,859 207 -123 -36 -83 Increase funding for Southwest Border restoration/remediation activities. Total, Res. Prot. & Law Enforce. 85,154 85,978 1,190 -571 -261 -361 -129 Transportation and Facilities  Operations 6,242 6,392 65 -436 -25 -13 Restore NLCS funding to 2008 Request level  Annual Maintenance 30,969 31,913 479 -1,260 -277 -88 -36 Restore NLCS funding to 2008 Request level Restore Program funding to 2008 Request level  Deferred Maintenance 33,157 36,485 0 -79 -100 Reduce Deferred Maintenance Projects  Infrastructure Improvement 0 0 Total, Trans. & Facilities 70,368 74,790 544 -1,696 -302 -180 -136 Land and Res. Info. Systems 17,084 16,447 134 -22 -55 -57 Mining Law Administration 32,696 34,696 0 Mining Law Admin. Offset -32,696 -34,696 0 

Section I – Budget at a Glance 
Bureau of Land Management 2009 

2007 Enacted 

2008 Enacted 

Create Nat'l Monuments Fixed Org. & Travel & 

Cost Changes 

& Nat'l Performance Conservation Area subactivity 

Admin. Streamlining 

Relocation Expense Contracting 

Challenge Cost Share 9,357 9,309 0 -12 Restore NLCS funding to 2008 Request level Grasshoppers & Mormon Crickets 0 0 Workforce and Organizational Support  Info. Systems Operations 18,731 15,047 157 -70 -149 -22 -64  Administrative Support 53,107 50,007 981 -113 -996 -282 -50  Bureauwide Fixed Costs 77,895 82,554 5,518 Total, Workforce & Organizational Support 149,733 147,608 6,656 -183 -1,145 -304 -114 Healthy Lands Initiative 3,000 0 0 Nat'l Landscape Conservation System  Nat'l Monuments & Nat'l Conservation Areas 0 0 +18,825 Adjustment to Base Program Total MLR Appropriation 866,911 853,931 16,583 0 -4,234 -2,836 -886 Appropriation: Oregon and California Grant Lands (O&C) Construction and Acquisition  Construction 0 0 0  Acquisition 302 311 3 -1 Total, Const. & Acquisition 302 311 3 0 -1 0 0 Facilities Maintenance  Operations 2,044 2,079 24 -33 -7 -6 

Section I – Budget at a Glance 
Bureau of Land Management 2009 

2007 Enacted 

2008 Enacted 

Create Nat'l Monuments Fixed Org. & Travel & 

Cost Changes 

& Nat'l Performance Conservation Area subactivity 

Admin. Streamlining 

Relocation Expense Contracting 

 Annual Maintenance 7,679 7,798 110 -25 -23 -24  Deferred Maintenance 1,059 1,042 0 -2 Total, Facilities Maintenance 10,782 10,919 134 -58 -30 -32 0 Resources Management  Forest Management 27,264 30,681 452 -40 -147 -67  Reforestation & Forest Development 24,522 23,619 265 -35 -53 -28 -64  Other Resources 37,402 37,190 490 -353 -112 -79 -50  Resource Planning 6,564 3,650 84 -12 -22 Reduce funding - completion of plans Total, Resources Management 95,752 95,140 1,291 -428 -324 -196 -114 Information and Resource Data Systems  Info. and Res. Data Systems 2,155 2,152 1 -1 Nat'l Landscape Conservation System  Nat'l Monuments & Nat'l Conservation Areas 0 0 0 +486 Total O&C Appropriation 108,991 108,522 1,429 0 -355 -229 -114 Appropriation: Land Acquisition Acquisition 6,065 5,789 Offsetting Fees Eliminate 2008 Earmarks: Land Acquisitions Reduce Planned Land Acquisitions Land Equalization Payments 0 0 Acquisition Management 1,569 1,673 29 -111 -6 Restore Program funding to 2008 Request level Emergencies and Hardships 1,000 1,477 

Section I – Budget at a Glance 
Bureau of Land Management 2009 

2007 Enacted 

2008 Enacted 

Create Nat'l Monuments Fixed Org. & Travel & 

Cost Changes 

& Nat'l Performance Conservation Area subactivity 

Admin. Streamlining 

Relocation Expense Contracting 

Restore Program funding to 2008 Request level Total, Land Acquisition 8,634 8,939 29 +0 -111 -6 +0 Appropriation: Construction Construction 11,751 6,375 0 -14 Reduce Planned Construction Projects Total, Construction 11,751 6,375 0 0 0 -14 0 Appropriation: Range Improvements Range Imp., Public Lands 7,873 7,873 0 Eliminate Program Range Imp., LU Lands 1,527 1,527 0 Eliminate Program General Admin. Expense 600 600 0 Eliminate Program Total, Range Improvements 10,000 10,000 0 0 0 0 0 APPROPRIATION: Service Charges, Deposits & Forfeitures Service Charges, Deposits & Forfeitures 26,388 28,490 0 Increase cost recoveries related to O&G Decrease cost recoveries related to Rights of Way Service Charges, Dep. & Forfeitures Offset -26,388 -28,490 0 Offset increase to cost recoveries related to O&G Offset decrease to cost recoveries related to Rights of Way Total 0 0 +0 APPROPRIATION: Miscellaneous Trust Funds (Current) Misc. Trust Funds (Current) 23,211 20,130 0 Total 23,211 20,130 0 0 0 0 0 

Section I – Budget at a Glance 
Bureau of Land Management 2009 

2007 Enacted 

2008 Enacted 

Create Nat'l Monuments Fixed Org. & Travel & 

Cost Changes 

& Nat'l Performance Conservation Area subactivity 

Admin. Streamlining 

Relocation Expense Contracting 

TOT. of All Approps - New Auth. 1,029,498 1,007,897 +18,041 +0 -4,700 -3,085 -1,000 minus Cancellation of Permanent Operating Balances Total of Current Appropriations - Net Authority Explanatory Note: The 2008 appropriation bill included a total unrequested increase of $4,922 for the National Landscape Conservation System spread among numerous subbudget request retains $3,000 of the increase, but moves it to a new NLCS budget activity. While this represents a net decrease of $1,922, in order to conform to the new buin the subactivity level highlights of budget changes to show that all $4,922 of the 2008 NLCS funding increases are being eliminated, and that a different $3,000 increase is b

Section I – Budget at a Glance 
Bureau of Land Management 2009 

2004 

Actual

2005 

Actual

2006 

Actual

2007 

Actual

2008 

Plan

2009 

Plan 2010 Estimate 20

Performance at Proposed Budget Level 10,110 9,538 7,251 9,077 9,103 9,227 9,227 

Baseline Performance 10,110 9,538 7,251 9,071 9,077 9,103 9,103 

Performance Change 0 0 0 +6 +26 +124 +124 

Total actual/projected cost ($000) $60,103 $50,170 $53,654 $56,489 $57,000 $58,099 $58,099 Actual/projected cost per acre of vegetation treated (whole dollars)

$5,945 $5,260 $7,400 $6,223 $6,262 $6,297 $6,297 

2004 2005 2006 2007 2008 2009 2010 

9,077 9,103 9,227 9,227 9,071 9,077 9,103 9,103 

Bureau of Land Management - Performance for Key Increases

Projects Constructed or MaintainedComment: This measure includes increases for the Healthy Lands Initiative of $73,758 in 2007, which will result in 6 stream/riparian projects; $511,486 in 20

lake/wetland projects, 11 shrub/grass projects, and 3 native plant materials projects, and $1,099,344 in 2009, which will result in 19 additional shrub/grass proshrub/grass projects maintained, 36 additional stream/riparian projects constructed, and 44 stream/riparian projects maintained. Results for this measure are planned and will vary between years.Note: Performance Measures were realigned in 2007 with the DOI Strategic Plan Update. Prior year data is not shown in the graph. Comparing performance show realignment of program elements and not actual performance changes. 

Projects Constructed or Maintained

9,0009,0509,1009,1509,2009,2509,300

2007 2008 2009 2010 2011 2012

Baseline PPerformanLevel

Section I –Other Attachments 
Bureau of Land Management 2009 

2004 

Actual

2005 

Actual

2006 

Actual

2007 

Actual

2008 

Plan

2009 

Plan 2010 Estimate 2011 Esti

Performance at Proposed Budget Level

45% 

115,991,274/ 

258M

48% 

123,949,644/ 

258M

48% 

123,952,644/ 

258M

52% 

135,410,846/ 

258M

56% 

143,414,846/ 

258M

59% 

151,418,846/ 

258M

62% 

159,422,846/ 

258M

65% 

167,426,

258M

Baseline Performance 115,991,274 123,949,644 123,952,644 135,392,826 143,365,027 150,190,723 159,194,723 167,127Performance Change 0 0 0 +18,020 +49,819 +138,972 +228,123 +299,2Total actual/projected cost ($000) 44,914 41,193 46,987 56,330 $57,253 $64,302 $64,302 $64,30Actual/projected cost per acre of vegetation treated (whole dollars)

$0.39 $0.33 $0.38 $0.42 $0.40 $0.43 $0.41 $0.39 

2004 2005 2006 2007 2008 2009 2010 2011 

135,410,846 143,414,846 151,418,846 159,422,846 167,426135,392,826 143,360,997 151,286,624 159,212,251 166,932

Note: Performance Measures were realigned in 2007 with the DOI Strategic Plan Update. Prior year data is not shown in the graph. Comparing performance data in show realignment of program elements and not actual performance changes. 

Bureau of Land Management - Performance for Key Increases

Acres that have achieved desired conditions.Comments: Two performance measures (wetlands and uplands) were combined to make one measure which counts total acres. As a result of the 2006 program asLands are now included and the denominator has been stabilized to show more consistent trend data. The new formula is shown beginning in 2004. Land Health Asconducted through 2012 will add approximately 8 million acres each year to desired condition. This measure includes an increase for the Healthy Lands Initiative of which will result in 72,079 acres treated, $922,964 in 2008 which will result in 55,114 acres treated, and $7,048,935 in 2009, which will result in 229,417 acres treateall reach desired condition in the first year. Treated acres here are shown as achieving desired condition 25% in the first year and 25% each of the next three years. condition for wetlands is achieving proper functioning condition (PFC) and functioning at risk with an upward trend. Desired condition for uplands is achieving Land Hdeveloped by the BLM State offices and approved by the Secretary in accordance with Title 43 CFR 4180.2. 

Acres Achieving Desired Condition

100,000,000120,000,000140,000,000160,000,000180,000,000200,000,000

2007 2008 2009 2010 2011 2012

Baseline PePerformancBudget Lev

Section I –Other Attachments 
Bureau of Land Management 2009 

2004 

Actual

2005 

Actual

2006 

Actual

2007 

Actual

2008 

Plan

2009 

Plan

2010 

Estimate

Performance at Proposed Budget Level 757,804 506,307 512,840 561,668 597,139 821,504 821,504 Baseline Performance 757,804 506,307 512,840 561,668 597,139 597,139 597,139 Performance Change 0 0 0 0 0 +224,365 +224,365 

Total actual/projected cost ($000) 12,464 11,818 13,745 14,895 $15,732 $16,668 $16,668 Actual/projected cost Project Constructed (whole dollars) $16 $23 $27 $27 $26 $20 $20 

2004 2005 2006 2007 2008 2009 2010 

561,668 597,139 821,504 821,504 561,668 597,139 597,139 597,139 

Bureau of Land Management - Performance for Key Increases

Vegetative Treatment EvaluatedComment: Acres of vegetative treatments evaluated is based on actual project acres and will vary between years. This measure includes an increase for the 

$936,281 in 2009, which will result in 224,365 acres of vegetative treatments evaluated. 

Note: Performance Measures were realigned in 2007 with the DOI Strategic Plan Update. Prior year data is not shown in the graph. Comparing performance show realignment of program elements and not actual performance changes. 

 Vegetative Treatments Evaluated

500,000600,000700,000800,000900,000

2007 2008 2009 2010 2011 2012

BaselinPerformBudget 

Section I –Other Attachments 
Bureau of Land Management 2009 

2004 

Actual

2005 

Actual

2006 

Actual

2007 

Actual

2008 

Plan

2009 

Plan 2010 Estimate 20

Performance at Proposed Budget Level 124 164 159 214 291 339 339 

Baseline Performance 124 164 159 209 214 291 291 

Performance Change +0 +0 +0 +5 +77 +48 +48 Total actual/projected cost ($000) 6,231 7,211 7,661 4,600 5,116 5,578 5,578 Actual/Projected Cost per Mile (in dollars) $50,251 $43,972 $48,184 $21,195 $17,581 $16,395 $16,395 

2007 2008 2009 2010 2011 2012

214 291 339 339 339 339209 214 291 291 291 291

Miles of Habitat Restored 

Note: Performance Measures were realigned in 2007 with the DOI Strategic Plan Update. Prior year data is not shown in the graph. Comparing performance show realignment of program elements and not actual performance changes. Comment: This measure has been modified as a result of program assessment in 2006. Historical data has been added to provide context. Miles of habitat projects planned which will vary between years. This table includes the increases for the Healthy Lands Initiative of $516,318 in 2008, which will result in 77 m

species conservation or recovery, and $461,439 in 2009, which will result in 48 miles restored or enhanced for species conservation or recovery. 

Bureau of Land Management - Performance for Key Increases

Habitat Miles Restored

0

50

100150200250300350400

2007 2008 2009 2010 2011 2012

Baseline PerformaBudget L

Section I –Other Attachments 
Bureau of Land Management 2009 

2004 

Actual

2005 

Actual

2006 

Actual

2007 

Actual

2008 

Plan

2009 

Plan 2010 Estimate 20

Performance at Proposed Budget Level New Measure New Measure New Measure 1,254 1,375 1,650 1,900 

Baseline Performance 0 0 0 1,254 1,375 1,610 1,860 Performance Change 0 0 0 0 +0 +40 +40 

Total actual/projected cost ($000) 0 0 0 43,896 $44,373 $44,749 44,635 Actual/Projected Cost per Conservation Action (in dollars) $0 $0 $0 $35,005 $32,271 $27,121 $23,492 

2007 2008 2009 2010 2011 2012

1,254 1,375 1,650 1,900 2,100 2,300

1,254 1,375 1,610 1,860 2,060 2,260

107,000 128,400 128,400 128,400 128,400 128,400

Conservation actions implemented from recovery plans for ESA-listed speciesNote: Performance Measures were realigned in 2007 with the DOI Strategic Plan Update. Prior year data is not shown in the graph. Comparing performance show realignment of program elements and not actual performance changes. 

Bureau of Land Management - Performance for Key Increases

Comment: As a result of the 2006 Resource Management PART recommendations BLM has redirected base funding internally to improve performance direcspecies beginning in 2008. This measure includes an increase for the Healthy Lands Initiative of $376,101 in 2009, which will result in 40 additional species ractions. 

Conservation Actions Implemented

1,0001,3001,6001,9002,2002,500

2007 2008 2009 2010 2011 2012

BasPerBud

Section I –Other Attachments 
Bureau of Land Management 2009 

2004 

Actual

2005 

Actual

2006 

Actual

2007 

Plan

2008 

Plan

2009 

Plan 2010 Estimate 20

Performance at Proposed Budget Level 1,029 861 410 410 734 734 

Baseline Performance 1,029 861 410 410 410 410 

Performance Change 0 0 0 0 +324 +324 

Total actual/projected cost ($000) 6,294,129 6,065,240 5,934,583 5,775,152 6,775,152 6,775,152 Actual/projected cost per acre (whole dollars) $6,116.74 $7,044.41 $14,474.59 $14,085.74 $9,230.45 $9,230.45 

2007 2008 2009 2010 

 1,029 861 410 410 410 410 

 1,029 861 410 410 734 734 

Bureau of Land Management - Performance for Key Increases

Physical and chemical hazards mitigated to ensure visitor or public safety.Comment: In 2006, BLM Field Offices responded to an increased number of emergencies and time critical removals. This measure includes an increase of $Borderlands Initiative which will result in an additional 324 hazards mitigated in 2009.Note: Performance Measures were realigned in 2007 with the DOI Strategic Plan Update. Prior year data is not shown in the graph. Comparing performance show realignment of program elements and not actual performance changes. 

Hazards Mitigated

0

100200300400500600700800

2007 2008 2009 2010 2011 2012

BaselinPerformBudget 

Section I –Other Attachments 
Bureau of Land Management 2009 

APPROPRIATION END OUTCOME GOALS

PEO.1 - Improve health of 

watersheds, landscapes, and 

marine resources

PEO.2 - Sustain biological 

communities

PEO.3 - Protect cultural and natural 

heritage resources

UEO.1a - ENERGY - FOSSIL 

FUELS - Manage or influence 

resource use to enhance public 

benefit, promote responsible use, 

and ensure optimal value

UEO.3a - LAND & WATER 

RESOURCES - FORAGE - 

Manage or influence resource use 

to enhance public benefit, promote 

responsible use, and ensure 

optimal value

UEO.3b - LAND & WATER 

RESOURCES - FOREST 

PRODUCTS - Manage or influence 

resource use to enhance public 

benefit, promote responsible use, 

and ensure optimal value

UEO.3C - LAND & WATER 

RESOURCES - NON-ENERGY - 

Manage or influence resource use 

to enhance public benefit, promote 

responsible use, and ensure 

optimal value

REO1 - Provide for a quality 

Land Resources $63.330 $16.413 $52.323 $0.000 $58.429 $2.652 $0.000 Wildlife and Fisheries Management $42.890 $1.430 $0.000 $0.000 $0.000 $0.000 $0.000 Threatened and Endangered Species Management $18.734 $3.568 $0.000 $0.000 $0.000 $0.000 $0.000 Recreation Management $0.000 $0.000 $17.366 $0.000 $0.000 $0.000 $0.000 Energy and Minerals Management $0.000 $0.000 $0.000 $99.572 $0.000 $0.000 $10.301 

Realty and Ownership Management $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 

Resource Protection $13.480 $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 

Transportation and Facilities Maintenance $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 Grasshoppers & Mormon Crickets $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 

Land and Resource Information Systems $3.125 $0.494 $1.727 $2.467 $1.480 $0.082 $0.247 

Mining Law Administration $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 $34.696 

ML Offset $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 -$34.696 

Challenge Cost Share $6.396 $0.585 $0.559 $0.000 $0.000 $0.000 $0.000 

National Monuments and National Conservation Areas $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 

Workforce and Organizational Support $28.046 $4.428 $15.499 $22.141 $13.285 $0.738 $2.214 Undistributed $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 

Total MLR $176.001 $26.918 $87.474 $124.180 $73.194 $3.472 $12.762 

$0.000 $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 

$0.000 $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 

$0.000 $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 

2008 FUNDING BY STRATEGIC PLAN GOALS

SUMMARY OF 2008 ENACTED BUDGET

(EXCEPT FIRE) (Funding in Millions)

Management of Lands and Resources

Construction

Land Acquisition

STRATEGIC THEMES Resource Protection Resource Use

Central Hazardous Materials Fund

Section I –Other Attachments 
Bureau of Land Management 2009 

Jobs in the Woods $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 

Western OR Construction and Acquisition $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 

Western OR Facilities Maintenance $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 

Western Oregon Resources Management $32.994 $1.496 $0.000 $0.000 $1.004 $48.930 $0.000 

Western OR Information and Data Systems $0.667 $0.021 $0.000 $0.000 $0.022 $0.990 $0.000 

O&C Total $33.661 $1.517 $0.000 $0.000 $1.026 $49.920 $0.000 

Range Improvements $9.000 $1.000 $0.000 $0.000 $0.000 $0.000 $0.000 

Miscellaneous Trust Funds $16.507 $0.007 $0.000 $0.000 $0.000 $0.000 $0.000 

Total $235.169 $29.442 $87.474 $124.180 $74.220 $53.392 $12.762 

2008 Total 

By Mission Goal 

Oregon and California Grant Lands

$352.085 $264.554

Section I –Other Attachments 
Bureau of Land Management 2009 

APPROPRIATION END OUTCOME GOALS

PEO.1 - Improve health of 

watersheds, landscapes, and 

marine resources

PEO.2 - Sustain biological 

communities

PEO.3 - Protect cultural and natural 

heritage resources

UEO.1a - ENERGY - FOSSIL 

FUELS - Manage or influence 

resource use to enhance public 

benefit, promote responsible use, 

and ensure optimal value

UEO.3a - LAND & WATER 

RESOURCES - FORAGE - 

Manage or influence resource use 

to enhance public benefit, promote 

responsible use, and ensure 

optimal value

UEO.3b - LAND & WATER 

RESOURCES - FOREST 

PRODUCTS - Manage or influence 

resource use to enhance public 

benefit, promote responsible use, 

and ensure optimal value

UEO.3C - LAND & WATER 

RESOURCES - NON-ENERGY - 

Manage or influence resource use 

to enhance public benefit, promote 

responsible use, and ensure 

optimal value

REO1 - Provide for a quality 

Land Resources -$1.278 -$0.403 -$1.845 -$1.848 -$0.265

Wildlife and Fisheries Management -$0.498 -$0.063

Threatened and Endangered Species Management -$1.445 -$0.275

Recreation Management -$0.821 

Energy and Minerals Management $22.044 $0.051

Realty and Ownership Management Resource Protection $0.820 

Transportation and Facilities Maintenance Grasshoppers & Mormon Crickets

Land and Resource Information Systems

Mining Law AdministrationML OffsetChallenge Cost Share -$0.073 -$0.009 -$0.007 National Monuments and National Conservation Areas $6.908 $0.938 $2.253 $0.048 $1.785 $0.325 $0.063 

Workforce and Organizational Support $0.933 $0.147 $0.516 $0.737 $0.442 $0.024 $0.074 

Undistributed

Total MLR $5.367 $0.335 $0.096 $22.829 $0.379 $0.084 $0.188 

$0.000 $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 

Land Acquisition $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 

STRATEGIC THEMES Resource Protection Resource Use

Central Hazardous Materials Fund

Construction

2009 FUNDING BY STRATEGIC PLAN GOAL

SUMMARY OF 2009 CHANGES

(EXCEPT FIRE) (Funding in Millions)

Section I –Other Attachments 
Bureau of Land Management 2009 

Jobs in the Woods $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 Western OR

Construction and Acquisition $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 

Western OR Facilities Maintenance $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 Western OR Resources Management -$0.011 $0.003 $0.000 $0.000 -$0.003 $0.210 $0.000 Western OR Information and Data SystemsWestern Oregon Natl Monuments and Nat'l Conservation Areas $0.227 $0.005 $0.010 $0.119 

O&C Total $0.216 $0.008 $0.000 $0.000 $0.007 $0.329 $0.000 

Range Improvements -$9.000 -$1.000 $0.000 $0.000 $0.000 $0.000 $0.000 

Miscellaneous Trust Funds $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 

Minus Sale of Water $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 

Total -$3.417 -$0.657 $0.096 $22.829 $0.386 $0.413 $0.188 

2009 Total Change 

By Mission Goal 

Oregon and California Grant Lands

-$3.978 $23.816

Section I –Other Attachments 
Bureau of Land Management 2009 

APPROPRIATION END OUTCOME GOALS

PEO.1 - Improve health of 

watersheds, landscapes, and 

marine resources

PEO.2 - Sustain biological 

communities

PEO.3 - Protect cultural and natural 

heritage resources

UEO.1a - ENERGY - FOSSIL 

FUELS - Manage or influence 

resource use to enhance public 

benefit, promote responsible use, 

and ensure optimal value

UEO.3a - LAND & WATER 

RESOURCES - FORAGE - 

Manage or influence resource use 

to enhance public benefit, promote 

responsible use, and ensure 

optimal value

UEO.3b - LAND & WATER 

RESOURCES - FOREST 

PRODUCTS - Manage or influence 

resource use to enhance public 

benefit, promote responsible use, 

and ensure optimal value

UEO.3C - LAND & WATER 

RESOURCES - NON-ENERGY - 

Manage or influence resource use 

to enhance public benefit, promote 

responsible use, and ensure 

optimal value

Land Resources $62.052 $16.010 $50.478 $0.000 $56.581 $2.387 $0.000 Wildlife and Fisheries Management $42.392 $1.367 $0.000 $0.000 $0.000 $0.000 $0.000 

Threatened and Endangered Species Management $17.289 $3.293 $0.000 $0.000 $0.000 $0.000 $0.000 

Recreation Management $0.000 $0.000 $16.545 $0.000 $0.000 $0.000 $0.000 Energy and Minerals Management $0.000 $0.000 $0.000 $121.616 $0.000 $0.000 $10.352 

Realty and Ownership Management $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 Resource Protection $14.300 $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 

Transportation and Facilities Maintenance $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 

Grasshoppers & Mormon Crickets $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 

Land and Resource Information Systems $3.125 $0.494 $1.727 $2.467 $1.480 $0.082 $0.247 

Mining Law Administration $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 $34.696 

ML Offset $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 -$34.696 

Challenge Cost Share $6.323 $0.576 $0.552 $0.000 $0.000 $0.000 $0.000 

National Monuments and National Conservation Areas $6.908 $0.938 $2.253 $0.048 $1.785 $0.325 $0.063 Workforce and Organizational Support $28.979 $4.575 $16.015 $22.878 $13.727 $0.762 $2.288 

Undistributed $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 

Total MLR $181.368 $27.253 $87.570 $147.009 $73.573 $3.556 $12.950 

$0.000 $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 

$0.000 $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 

$0.000 $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 

2009 FUNDING BY STRATEGIC PLAN GOAL

SUMMARY OF 2009 BUDGET REQUEST

(EXCEPT FIRE) (Funding in Millions)

STRATEGIC THEMES Resource Protection Resource Use

Management of Lands and Resources

Central Hazardous Materials Fund

Construction

Land Acquisition

Section I –Other Attachments 
 2009 

Section I –Other Attachments 

Jobs in the Woods $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 

Western OR Construction and Acquisition $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 

Western OR Facilities Maintenance $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 

Western Oregon Resources Management $32.983 $1.499 $0.000 $0.000 $1.001 $49.140 $0.000 

Western OR Information and Data Systems $0.667 $0.021 $0.000 $0.000 $0.022 $0.990 $0.000 Western Oregon Natl Monuments and Nat'l Conservation Areas $0.227 $0.005 $0.010 $0.119 

O&C Total $33.877 $1.525 $0.000 $0.000 $1.033 $50.249 $0.000 

Range Improvements $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 

Miscellaneous Trust Funds $16.507 $0.007 $0.000 $0.000 $0.000 $0.000 $0.000 

Minus Sale of Water $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 $0.000 

Total $231.752 $28.785 $87.570 $147.009 $74.606 $53.805 $12.950 

2009 Total 

By Mission Goal $288.370 

Oregon and California Grant Lands

$348.107

Bureau of Land Management 
Bureau of Land Management 2009 Budget Justifications 

Section I –Other Attachments Page I - 185 

SUMMARY OF BUREAU APPROPRIATIONS 

($000) 

 

 2007 2008 2009 

Change 

 Enacted Enacted Budget from 

Appropriations Request 2008 

 CURRENT DISCRETIONARY: 

 Management Of Lands and Resources $ 866,911 853,931 864,827 +10,896 

 P.L. 110-161 (1.56% rescission) $ [13,532] 

 Communication Sites Mgmt ($ are offset) $ [2,000] [2,000] [2,000] [0] 

 Mining Law Admin. (this amount is offset) $ [32,696] [34,696] [34,696] [0] 

 APD Processing Fund (this amount is offset) $ [0] [25,500] [0] -[25,500] 

 Reimbursables ($ are non-add) $ 0 0 0 0 

Current FTE 5,870 5,932 5,820 -112 

MLR Reimbursables FTE 249 249 249 0 

 

 Oregon and California Grant Lands $ 108,991 108,522 108,253 -269 

 P.L. 110-161 (1.56% rescission) $ [1,720] 

 FTE 864 864 859 -5 

 

 Land Acquisition Appropriation $ 8,634 8,939 4,475 -4,464 

 P.L. 110-161 (1.56% rescission) $ [142] 

 Repayment of Fire Transfer $ 3,000 

 FTE 14 14 14 0 

 

 Construction $ 11,751 6,375 4,476 -1,899 

 P.L. 110-161 (1.56% rescission) $ [101] 

 Section 102 Fire Transfers $ -2,585 

 Repayment of Fire Transfer $ 2,000 2,585 

 FTE 27 27 27 0 

 

 Service Charges, Deposits, & Forfeitures $ 26,388 28,490 61,990 +33,500 

 Service Charges, Dep., & Forfeitures Offset $ -26,388 -28,490 -61,990 -33,500 

 FTE 151 155 365 +210 

 

 Subtotal, Current Discretionary $ 996,287 977,767 982,031 4,264 

 

BLM 

FTE 7,175 7,241 7,334 93 

 

 CURRENT MANDATORY: 

 Range Improvements $ 10,000 10,000 0 -10,000 

 FTE 41 41 21 -20 

 

 Miscellaneous Trust Funds $ 23,211 20,130 20,130 0 

 FTE 63 63 63 0 

 

 Subtotal, Current Mandatory $ 33,211 30,130 20,130 -10,000 
Bureau of Land Management 2009 Budget Justifications 

Section I –Other Attachments Page I - 186 

SUMMARY OF BUREAU APPROPRIATIONS 

($000) 

 

 2007 2008 2009 

Change 

 Enacted Enacted Budget from 

Appropriations Request 2008 

 FTE 104 104 84 -20 

 

 Current Appropriations Subtotal $ 1,029,498 1,007,897 1,002,161 -5,736 

 Cancellation of Permanent Operating Account 

Balances -24,746 -24,746 

Total, Net Current Appropriations 1,029,498 1,007,897 977,415 -30,482 

 

BLM 

FTE 7,279 7,345 7,418 73 

 

PERMANENT: 

 Miscellaneous Trust Funds $ 1,846 1,800 1,800 0 

 FTE 13 13 13 0 

 

 Miscellaneous Perm.Payment Appropriations $ 144465 143,846 35,797 -108,049 

 FTE 15 15 0 -15 

 

Large decrease from 08 to 09 primarily due to expiration of authorization of payments for Secure Rural Schools and for Calista Native 

Coperation. 

 

 Permanent Operating Funds $ 219,631 270,001 164,896 -105,105 

 FTE 446 444 369 -75 

 

Large decrease from 08 to 09 primarily due to revision in land sales estimates in the Southern Nevada Public Lands Management Act 

Program. 

 Helium Fund $ 167,000 159,000 164,000 +5,000 

 Offsetting Collections $ -167,000 -159,000 -164,000 -5,000 

 FTE 50 50 50 0 

 

 Working Capital Fund $ 46,000 49,000 50,000 +1,000 

 Offsetting Collections $ -46,000 -49,000 -50,000 -1,000 

 FTE 27 27 27 0 

 

 Permanent Appropriations Subtotal $ 365,942 415,647 202,493 -213,154 

 FTE 551 549 459 -90 

 

ALLOCATION ACCOUNTS**: 

 Central Hazmat (Dept. of Interior) $ 3,322 3,100 3,100 0 

 FTE 9 9 9 0 

 

 

Wildland Fire Management (Dept of Interior) $ 0 0 0 0 

 FTE 2,717 2,660 2,641 -19 

 
Bureau of Land Management 2009 Budget Justifications 

Section I –Other Attachments Page I - 187 

SUMMARY OF BUREAU APPROPRIATIONS 

($000) 

 

 2007 2008 2009 

 Enacted Enacted Budget 

Change 

from 

Appropriations Request 2008 

 Natl. Resource Damage Assess.(Dept. of Interior) $ 370 373 373 0 

 FTE 3 3 3 0 

 

 ERFO, ISTEA (Federal Highways) $ 3,964 4,000 4,000 0 

 FTE 7 7 7 0 

 

 Cadastral, Forest Pest, Wild Horses (U.S. Forest 

Service) $ 2,866 1,121 1,121 0 

 FTE 11 11 11 0 

 

 ** Dollars are estimates only for 2008 & 2009, generally based upon 3 year average. 

 Allocation Accounts Subtotal ($ are non-add to 

Total Approps) $ 10,522 8,594 8,594 0 

 FTE 2,747 2,690 2,671 -19 

 

 TOTAL CURRENT & PERM. APPROPRIATIONS $ 1,395,440 1,423,544 1,179,908 -243,636 

 

 FTE 10,577 10,584 10,548 -36 
Bureau of Land Management 2009 

i

Director 

WO-100 

Jim Caswell 

Renewable Resources 

and Planning 

WO-200 

Assistant Director 

Ed Roberson 

Deputy-Bud Cribley 

− Planning and Science 

Policy-Deb Rawhouser 

− Rangeland ResourcesRob Roudabush − Fish, Wildlife & Plant 

Conservation-Dwight Fielder 

− Cultural, 

Paleontological Resources and Tribal Consultation-Carolyn McClellan 

− Recreation and Visitor 

Services-Bob Ratcliffe 

− Wild Horses and 

Burros-Don Glenn 

− Forests and 

Woodlands-vacant 

Minerals, Realty & 

Resource Protection 

WO-300 

Assistant Director 

Mike Nedd 

Deputy-Bob Anderson 

− Fluid Minerals-Tim 

Spisak 

− Solid Minerals-Mitch 

Leverette (A) 

− Lands, Realty and 

Cadastral Survey-Jeff Holdren 

− Engineering and 

Environmental Services-Nancy Dean 

** Energy Policy Act Implementation TeamRay Brady 

Human Capital 

Management 

WO-700 

 Assistant Director 

Janine Velasco 

Deputy-Linda Behlin 

− Human Capital 

Management and Executive InitiativesLinda Behlin 

− Equal Employment 

Opportunity-Bobbie Moore 

− Special InitiativesSylvia Felder − Safety and Occupation

Health-Sandy Guches 

− Washington Office 

Human Resource Services-Dahlena Johnson 

− Strategic Workforce 

Advisory Services-AnAldrich 

− National Training 

Center-Don Charpio 

Communications 

WO-600 

Assistant Director 

Celia Boddington 

Deputy-Bob Johns 

− Public Affairs-Jeff 

Krauss 

− Legislative Affairs and 

Correspondence-Nancy Smith 

− Regulatory Affairs-Ian 

Senio 

− Intergovernmental 

Affairs-Karen Slater 

− Education and 

Volunteers-Mary Tisdale 

Information Resources 

Management 

WO-500 

Assistant Director 

Ronnie Levine 

Deputy-Scott 

MacPherson 

− Investment 

Management-Theresa Coleman 

− Information Resources 

Management Governance-Jeff Brown (A) 

− Program Management 

Melanie Rhinehart (A) 

− Information 

Technology ServicesSherman Gillespie (A) 

− Information 

Technology SecurityCorey Wells 

Director’s Staff 

o Executive Assistant-Linda Hill o Executive Assistant- Pam Johansen 

o Deputy Director (Operations)-Henri Bisson o Deputy Director (Programs & Policy)- Luke Johnson o Chief of Staff-Janet Lin 

Office of National Landscape 

Conservation System 

Director 

Elena Daly 

Deputy-Dave Hunsaker 

o Conservation Areas and National 

Monuments-Jeff Jarvis (A) 

o Wilderness, Wild and Scenic 

Rivers, and National Trails-Jeff Jarvis 

Office of Law Enforcement 

and Security 

Director 

William Woody 

Deputy-Keith Aller

Bureau of Land Management 

Table of Organization 

11-28-07 

Office of Fire & 

Aviation Policy 

WO-400 

Assistant Director 

Jim Douglas 

Deputy-vacant 

− National Interagency 

Fire Center (NIFC)-Deputy-Tim Murphy 

− Support Services-Gary 

Bowers 

− Fire Operations-John 

Glenn 

− Aviation-Kevin 

Hamilton 

− Fire Planning and 

Fuels ManagementAden Seidlitz 

− External Affairs-Don 

Smurthwaite 

− National Radio 

Program Management (NRPM)-John Fend 

Na

o Di

Da

o Di

Se

o Di

Se

o Di

Su

Section I –Other Attachments 
 2009 

Section I –Other Attachments 

Alaska State Director Tom Lonnie Associate State Director Julia Dougan • Fairbanks DO 

o Arctic FO 

o Eastern Interior FO 

o Central Yukon FO 

• Anchorage FO • Glenallen FO 

Arizona State Director Elaine Zielinski Associate State Director Helen Hankins • Arizona Strip DO 

o Arizona Strip FO 

• Colorado River DO 

o Kingman FO o Yuma FO o Lake Havasu FO 

• Gila DO 

o Safford FO o Tucson FO 

• Phoenix DO 

o Hassayampa FO o Lower Sonoran FO 

California State Director Mike Pool Associate State Director Jim Abbott • Alturas FO • Arcata FO • Bakersfield FO • Bishop FO • California Desert DO 

o Barstow FO o El Centro FO o Needles FO o Palm Springs FO o Ridgecrest FO 

• Eagle Lake FO • Folsom FO • Hollister FO • Redding FO • Surprise FO • Ukiah FO 

Colorado State Director Sally Wisely Associate State Director Dave Hunsaker • Little Snake FO • White River FO • Kremmling FO • Grand Junction FO • Glenwood Springs FO • Uncompahgre FO • Gunnison FO • Royal Gorge FO • La Jara FO • Saguache FO • Del Norte FO • Columbine FO 

Eastern States State Director Juan Palma Associate State Director Barron Bail • Jackson FO • Milwaukee FO 

Idaho State Director Tom Dyer Associate State Director Peter Ditton • Boise DO 

o Bruneau FO o Four Rivers FO o Owyhee FO 

• Coeur d’Alene DO 

o Coeur d’Alene FO o Cottonwood FO 

• Idaho Falls DO 

o Challis FO o Pocatello FO o Salmon FO o Upper Snake FO 

• Twin Falls DO 

o Burley FO o Jarbridge FO o Shoshone FO 

Montana State Director Gene Terland Associate State Director Howard Lemm• Billings FO • Miles City FO • North Dakota FO • South Dakota FO • Dillon FO • Lewistown FO • Butte FO • Malta FO • Missoula FO 

Nevada State Director Ron Wenker Associate State Director Amy Leuders • Elko FO • Winnemucca FO • Carson City FO • Ely FO • Las Vegas FO • Battle Mountain FO 

New Mexico State Director Linda Rundell Associate State Director Jesse Juen • Albuquerque DO 

o Rio Puerco FO o Socorro FO 

• Amarillo FO • Farmington DO 

o Farmington FO o Taos FO 

• Las Cruces DO 

• Oklahoma FO 

• Pecos DO 

• Carlsbad FO 

• Roswell FO 

Utah State Director Selma Sierra Associate State Director Jeff Rawson • Salt Lake FO • Cedar City FO • Kanab FO • St. George FO • Richfield FO • Fillmore FO • Moab FO • Price FO • Monticello FO • Vernal FO 

Wyoming State Director Bob Bennett Associate State Director Don Simpson • Buffalo FO • Casper FO • Cody FO • Kemmerer FO • Lander FO • New Castle FO • Pinedale FO • Rawlins FO • Rock Springs FO • Worland FO 

Bureau of Land Management 
Bureau of Land Management 2009 Budget Justifications 

Section I –Other Attachments Page I - 190 

EMPLOYEE COUNT BY GRADE

(Total Employment) 

 

2007 

Actual 

2008 

Estimate 

2009 

Estimate 

Executive Level V 2 1 1 

 Subtotal 2 1 1 

ES - ** 21 20 20 

 Subtotal 23 21 21 

GS/GM/GG - 15 107 107 107 

GS/GM/GG - 14 332 332 331 

GS/GM/GG - 13 917 918 915 

GS/GM/GG - 12 1,643 1,644 1,638 

GS/GM/GG - 11 2,563 2,566 2,557 

GS/GM/GG - 10 137 137 137 

GS/GM/GG - 9 1,202 1,204 1,200 

GS/GM/GG - 8 292 292 291 

GS/GM/GG - 7 1,250 1,252 1,248 

GS/GM/GG - 6 590 590 588 

GS/GM/GG - 5 760 761 758 

GS/GM/GG - 4 489 489 487 

GS/GM/GG - 3 307 307 306 

GS/GM/GG - 2 146 146 146 

GS/GM/GG - 1 12 12 12 

 Subtotal 10,770 10,778 10,742 

Other Pay Schedule Systems 

(Ungraded) 574 574 572 

Total employment (actual/projected) 

at end of fiscal year 11,344 11,352 11,314 
Bureau of Land Management 2009 Budget Justifications 

Section I –Other Attachments Page I - 191 

SUMMARY OF FTES

2007 ACTUAL USE AND ESTIMATED USE FOR 2008 AND 2009 

Appropriation/Appropriation Group/Line Name 2007 2008 2009

Management of Lands and Resources 

Direct: FTE employment ................................................. 5,870 5,932 5,820

Reimbursable: FTE employment ..................................... 249 249 249

Allocation account, Direct: FTE employment .................. 2 2 2 ,747 ,690 ,671

Construction [Bureau of Land Management] 

Direct: FTE employment ................................................. 27 27 27

Oregon and California Grant Lands 

Direct: FTE employment ................................................. 864 864 859

Wildland Fire Management 

Direct: FTE employment [non-add - shown in MLR 

allocations above] ............................................................... [2,660] [2,603] [2,584]

Reimbursable: FTE employment [non-add - shown in 

MLR allocations above] ....................................................... [57] [57] [57]

Helium Fund 

Reimbursable: FTE employment ..................................... 50 50 50

Working Capital Fund [Bureau of Land Management] 

Reimbursable: FTE employment ..................................... 27 27 27

Service Charges, Deposits, and Forfeitures 

Direct: FTE employment ................................................. 151 155 155

Service Charges, Deposits, and Forfeitures 

Direct: FTE employment ................................................. 0 0 210

Land Acquisition 

Direct: FTE employment ................................................. 14 14 14

Range Improvements 

Direct: FTE employment ................................................. 41 41 41

Range Improvements 

Direct: FTE employment ................................................. 0 0 -20

Miscellaneous Permanent Payment Accounts [BLM] 

Direct: FTE employment ................................................. 15 15 0

Permanent Operating Funds 

Direct: FTE employment ................................................. 446 444 438

Permanent Operating Funds 

Direct: FTE employment ................................................. 0 0 -69

Miscellaneous Trust Funds [BLM] 

Direct: FTE employment ................................................. 76 76 76

Bureau of Land Management........................................... 10,57 10,584 10, 7 548
Bureau of Land Management 2009 Budget Justifications 

Section I –Other Attachments Page I - 192 

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Bureau of Land Management 2009 Budget Justifications

Section II – Collections Page II - 1

Collections 

BLM COLLECTIONS, 2006 - 2009 ($000)

Collection Source 

2006 

Actual 

2007 

Actual 

2008 

Estimated 

2009 

Estimated 

Sale of Public Lands and Materials 883,006 70,674 164,368 114,420

Miscellaneous Filing Fees 91 244 100 100

Mineral Leasing National Grasslands 3,409 3,720 3,000 3,000

Grazing Fees & Land Utilization Project Lands 14,824 12,893 12,930 13,710

Timber Sales & Vegetative Material 32,445 34,681 43,640 46,240

Recreational Use Fees 15,404 14,530 15,000 15,000

Mineral Leasing Naval Oil Shale Reserve 27,674 18,931 115,955 44,596

National Petroleum Reserve Alaska1 8,946 23,865 0 0

Earnings on Investments 69,063 113,619 75,700 74,400

Sale of Helium 168,920 164,503 159,000 164,000

Mining Claim & Holding Fees 54,090 56,702 39,000 42,900

Service Charges, Deposits and Forfeitures2 25,963 26,388 28,490 61,990

Application for Permit to Drill Fees (2008 only)2 0 0 25,500 0

Other Collections 43,176 51,041 47,856 47,976

Total 1,347,011 591,791 730,539 628,332

1

National Petroleum Reserve Alaska payments will be made by MMS starting in 2008. 

2

Application for Permit to Drill Fees, estimated at $34 million, will shift to Service Charges, Deposits and Forfeitures in 

2009. 

2009 COLLECTIONS

In 2009, the BLM will collect an estimated total of $628,332,000 in revenue. Revenue is 

collected by 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, in 2009 BLM’s onshore mineral leasing activities will contribute directly to the 

generation of $6.1 billion in receipts (bonuses, rents, and royalties). Of this amount, 

$5.4 billion is collected by the Minerals Management Service. (These mineral leasing 

receipts are reflected in the MMS budget.) 

Collections from some sources, such as grazing fees, recreation use fees, and helium 

sales, 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. 
Bureau of Land Management 2009 Budget Justifications

Section II – Collections Page II - 2

Sales of Public Land and Materials - 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 source of collections in the Sale of Public Land category includes: 

• Southern Nevada Public Land Management Act Sales Proceeds - The 

Southern Nevada Public Land Management Act, as amended, provides a 

process for 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. Receipts generated by land sales under this statute 

were larger than anticipated in earlier budget estimates. The BLM has 

conducted land sales for nine years under the authority of this statute. 

Collections have declined significantly since 2005 and 2006 when collections 

were $1,163,413,000 and $783,670,000 respectively. The BLM collected only 

$43,185,000 in 2007 because of a soft real estate market. Collections in 2008 

are estimated to increase to $115,068,000 because of the sale of certain highvalue parcels, but are expected to decline to $60,000,000 in 2009. 

• 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. 

Currently, five percent of the proceeds are distributed to the State of Nevada, 10 

percent to the Southern Nevada Water Authority, and 85 percent to the special 

account. 

• Southern Nevada Public Land Management and Lincoln County – Earnings 

on Investments. - The 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 above-mentioned funds. BLM is authorized to invest 

the unspent balance of collections from SNPLMA and Lincoln County Lands Act 

land sale receipts. Earnings on investments were $113,619,000 in 2007 and are 

projected to be $75,700,000 in 2008 and $74,400,000 in 2009. Earnings will 

decline because spending will reduce the balance of the fund available for 

investment and because of projected lower interest rates. 

• Federal Land Transaction Facilitation Act - Proceeds from the sale of land 

under the Federal Land Transaction Facilitation Act, Title II of P.L. 106-248 in 

2007 were $6,689,000. The estimates for 2008 and 2009 are $30,000,000 and 

$35,000,000 respectively. The Administration submitted proposed legislation in 

June 2007 to amend BLM’s land sale authority under FLTFA.. The Permanent 

Operating Funds chapter provides more information on the proposal. 
Bureau of Land Management 2009 Budget Justifications

Section II – Collections Page II - 3

• Lincoln County Land Sales – No revenue was collected in 2007 from the sale 

of land under the Lincoln County Land Sales Act, P.L. 106-298, as amended. 

None is expected in 2008 but in 2009 receipts from smaller sales not close to Las 

Vegas are estimated to be $60,000. 

• Mineral Materials Sales – In 2007, $20,277,000 was collected from the sale of 

mineral materials, including calcium, clay, gemstone, sand and gravel, pumice, 

soil, stone, and other materials. In 2008 and 2009, collections are expected to 

be about $18,000,000.. 

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 - Since 1983, the MMS 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. 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 deposits these receipts directly into 

MMS 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 certain receipts from Land Utilization Project 

lands, such as from mineral leasing. 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. 

From 1978 through 1985, public land grazing fees were based on a formula established 

in PRIA. The statutory authority for this formula expired on December 31, 1985. On 

February 14, 1986, the President issued Executive Order 12548 directing the continued 

use of the PRIA formula to set grazing fees for the public lands. 

The grazing fee is updated annually based on index factors, including private land lease 

rates, beef cattle prices, and the cost of production. The Federal grazing fee for 

Western public rangelands managed by the Bureau of Land Management and the Forest 

Service was at the minimum base rate of $1.35 per animal unit month (AUM) in 2007. 

The fee, which will remain unchanged in 2008, applies to nearly 18,000 grazing permits 

and leases administered by the BLM and more than 8,000 permits administered by the 

Forest Service. 

Grazing regulations authorize a surcharge to grazing fee bills for authorized grazing of 

livestock owned by persons other than the permittee or lessee, except where this use is 

made by livestock owned by children of permittees and lessees. This surcharge is equal 

to 35 percent of the difference between the 1999 grazing fee and the 1998 private land 

lease rate for the State where the pasturing agreement occurs. Anticipated grazing 

receipts reflect estimates of collections based on these fee rates. 
Bureau of Land Management 2009 Budget Justifications

Section II – Collections Page II - 4

In the past and currently, fifty percent of all grazing receipts collected under the Taylor 

Grazing Act, along with 50 percent of all receipts (including mineral receipts) from Land 

Utilization Project Lands transferred to the BLM by Executive Orders 10787 and 10890, 

are appropriated to the Range Improvement appropriation. As provided in the Taylor 

Grazing Act, FLPMA, and PRIA, these funds are available for the construction, 

purchase, and development of range improvements after they are appropriated by 

Congress. Appropriations are made from the receipts collected during the previous 

fiscal year. The 2009 Budget proposes to eliminate the Range Improvements 

appropriation. 

Timber and Vegetative Material Sales - 

• Timber Receipts from the Oregon and California and Coos Bay Wagon Road 

Grant Lands - In 2009, the BLM projects it will collect $42,840,000 in timber receipts 

from O&C and CBWR lands. That is an increase of $11,701,000 from 2007 to 2009. 

The projection is based on historical data, anticipated changes in timber demand, 

and local timber market conditions. The projection is also contingent on the 

resolution of existing litigation. Court injunctions resulting from litigation have 

reduced timber sales. The BLM collected $31,139,000 in western Oregon timber 

receipts in 2007. Receipts are projected to increase by 38 percent from 2007 to 

2009, due to the fact that the BLM intends to offer 268 million board feet for sale in 

2009 from O&C and CBWR grant lands. In 2009, half of O&C and CBWR salvage 

and pipeline timber sales will be deposited to the Forest Ecosystem Health and 

Recovery Fund and Timber Sales Pipeline Restoration Fund. The estimates are 

$2,428,000 to Timber Sale Pipeline Restoration Fund and $4,737,000 to the Forest 

Ecosystem Health and Recovery Fund. The rest will be used to make payments to 

western Oregon counties under the authority of two statutes enacted in 1937 and 

1939, 50 Stat. 874 and 53 Stat. 753. Payments to eighteen O&C counties under the 

1937 statute will be 50 percent of revenues from O&C grant lands. Payment to the 

two CBWR counties, Coos and Douglas counties, are for lost tax revenues and are 

estimated to be twenty-five percent of revenues from CWBR grant lands. 

Of the payments to counties made in 2008, approximately 10 percent of the annual 

payment was derived from receipts from O&C lands. The remainder of the payments 

was derived from the General Fund of the Treasury. The receipt portion comes from 

any revenues, fees, penalties, or miscellaneous receipts, exclusive of deposits to any 

relevant trust fund such as the Timber Sale Pipeline Restoration and Forest 

Ecosystem Health and Recovery Funds, which are discussed below. Any shortfall in 

the amount needed to make the payments is derived from the General Fund of the 

Treasury. For more information on the Secure Rural Schools payments, see the 

Miscellaneous Permanent Payments chapter. 

• Timber Receipts from the Public Domain Forest Lands - In 2009, the BLM 

expects to offer for sale 45 million board feet of timber products from public domain 

lands. In 2009, the BLM estimates collections of $3,300,000 in timber sale receipts 

from public domain lands. Collections from salvage timber sales on public domain 

lands are estimated at $2,200,000 in 2008 and 2009, compared to the $2,190,000 

collected in 2007. Ninety-six percent of salvage timber receipts will be deposited into 
Bureau of Land Management 2009 Budget Justifications

Section II – Collections Page II - 5

the Forest Ecosystem Health and Recovery Fund, with the remaining four percent 

paid to the States in which the sales took place. 

• Stewardship "End Results" Contracting Fund - 

The FY 2003 Omnibus Appropriations Act (P.L. 108-7), Section 323, amended 

Section 347 of the FY 1999 Appropriation Omnibus (P.L. 105-277, OCT. 21, 1998) 

that originally granted the U.S. Forest Service pilot stewardship contracting authority. 

Until September 30, 2013, the Forest Service and the Bureau of Land Management, 

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. 

The Act granted BLM the authority to use stewardship contracting as a tool for forest 

and rangeland restoration. 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 Forest Service 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 2007, the BLM deposited $108,000 to this fund, and 

estimates deposits of $100,000 in 2008 and 2009. 

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 2007, recreation fee collections were $14,550,000. The BLM 

anticipates collecting $15,000,000 in 2008 and 2009 under its recreation fee collection 

authorities. 

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, BLM switched to the authorities and arrangements enacted in the 

FLREA. 

Mineral Leasing Naval Oil Shale Reserve - - The National Defense Authorization Act 

of 1998 set aside in a special fund the mineral leasing revenues from Naval Oil Shale 

Reserves Numbers 1 and 3 to be used for the cleanup of Reserve Number 3. In 2003, 

P.L. 107-345 was enacted which appropriated $1.5 million to determine the best way to 

clean up the Reserve. The law also required that the Secretary of the Interior submit a 

report to Congress describing the preferred method along with an estimate of the cost. 

BLM is re-evaluating clean up costs at this time. 

The balance of the NOSR special fund account as of September, 2007, was 

$75,820,000. Based on current estimates, it is expected there will be $191.7 million in 
Bureau of Land Management 2009 Budget Justifications

Section II – Collections Page II - 6

the fund at the end of 2008 and $236.3 million in the fund by the end of 2009. 

(Collections are expected to be $115,955,000 and $44,596,000 in 2008 and 2009, 

respectively) The large projected increase in 2008 is because of a planned lease sale 

and the estimate for 2009 is based on expected additional development and production 

of oil and natural gas from the site. 

National Petroleum Reserve-Alaska – These are receipts from oil and gas mineral 

leasing in the National Petroleum Reserve-Alaska. In 2007, the BLM distributed 50 

percent of the collections to the State of Alaska and 50 percent to the General Fund of 

the U.S. Treasury. Collections were $23,865,000 and payments to Alaska were 

$12,772,000 in 2007. Payments are made semi-annually and include some receipts 

collected in the prior year, so payments are not usually 50% of collections. In 2008 and 

beyond, the Minerals Management Service will collect and distribute these receipts; 

therefore, they are not included in the BLM collections for those years. 

Oklahoma Royalties – These are receipts collected from oil and gas receipts from 

lands bordering the South Half of Red River in Oklahoma. Thirty-seven and one-half 

percent are paid to the State of Oklahoma. The rest are transferred to the Office of Trust 

Fund Management for deposit to tribal trust funds. In 2008 and beyond, the Minerals 

Management Service will collect and distribute these receipts; therefore, they are not 

included in the BLM collections for those years. 

Sales of Helium - This category of receipts includes “in-kind” crude helium sales to 

Federal helium suppliers and open market sales. The Helium Privatization Act of 1996 

requires the Department of the Interior to offer for sale, beginning no later than 2005, a 

portion of the Conservation Helium stored underground at the Cliffside Field north of 

Amarillo, Texas. Sales produced $164,503,000 in 2007. Collections from annual sales 

are projected to be $159,000,000 in 2008 and to $164,000,000 in 2009. While authority 

for the Helium Revolving Fund, which pays for the operations of the Helium program, 

expires in 2015, the Secretary’s authority to sell helium does not expire, and collections 

are expected after that date. 

Mining Claim-Related Fees - The Department of the Interior and Related Agencies 

Appropriations Act for 1989 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 BLM for Mining Law Administration program 

operations. 

Additionally, the Omnibus Budget Reconciliation Act of 1993 provided that the annual 

$100 per claim maintenance fee for unpatented mining claims and sites would continue 

through 1998. This authority was made permanent by the 2008 Department of the 

Interior, Environment, and Related Agencies Appropriations Act. The law allows a 
Bureau of Land Management 2009 Budget Justifications

Section II – Collections Page II - 7

 waiver from the fee for those claimants who hold 10 or fewer claims. The Act also 

established a $25 per claim location fee for new claims, to be paid at the time of 

recordation. On September 1, 2004, the maintenance fee was increased to $125 per 

claim and the location fee to $30 per claim, in accordance with the July 1, 2004 

Department rulemaking pursuant to the statutory requirement that they be adjusted to 

reflect changes in the Consumer Price Index [30 U.S.C. Chapter 2, section 28(f) (g)]. 

Collections in 2007 were $54,657,000 and are estimated to be $39,000,000 in 2008 and 

$42,900 000 in 2009. Collections in 2007 were high because of a large number of 

uranium claims staked, and collections are expected to return to a more normal level in 

2008 and 2009. 

Application for Permit to Drill Fees (2008 only) – The 2008 Interior, Environment, and 

Related Agencies Appropriations Act authorized the BLM to collect $25,500,000 in fees 

to be collected when an application for a permit to drill for oil and natural gas is 

submitted. The fee is $4,000 per application. Collections are to be credited to the 

Management of Lands and Resources appropriation. For more information please refer 

to the discussion in the Oil and Gas Management Program. 

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 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 2007 were $26,388,000 and are estimated to be 

$28,490,000 in 2008 and $61,990,000 in 2009. The higher estimate in 2009 is due to 

projected collections of oil and gas cost recovery fees of $34,000,000. 

The 2009 Budget includes a legislative proposal to repeal provision in the Energy Policy 

Act of 2005 prohibiting BLM from implementing new fees for oil and gas permit 

processing. Additional information is included in the Service Charges, Deposits and 

Forfeitures appropriation section. 

Other Collections – Other receipts collected by the BLM are from land rentals for 

authorized commercial, industrial, and residential purposes; annual rentals from rightsof-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 chapters. 

Amounts Not Included in Collections – Payments to western Oregon counties under 

the Secure Rural Schools and Community Self-Determination Act of 2000, are made 

partially from receipts produced in those counties in the preceding year. Most of the 

amounts paid, however, are derived from an appropriation from the General Fund. Of 

the total of $117,105,000 paid to the western Oregon counties for 2006 in 2007, 

$104,594,000 was appropriated from the General Fund. The Secure Rural Schools Act 

expired in 2006. Public Law 110-28, May 25, 2007 provided for one additional year of 
Bureau of Land Management 2009 Budget Justifications

Section II – Collections Page II - 8

payments. Payments were made for 2007 in 2008 using a modified method to calculate 

the payments. Total payments were $116,865,000, of which $110,213,000 was derived 

from the General Fund. Under current law, in 2009, payments will be made under 

statutes enacted in 1937 and 1939. 

No payment to the Calista Native Corporation under Public Law 101–165, 103 STAT. 

1151, was made in 2007; the law established a one-year gap in that year. The final 

payment of $4,400,980 was made in October 2007, and the payment was derived from 

the General Fund. 
Bureau of Land Management 2009 Budget Justifications 

Appropriation: Management of Lands and Resources 

APPROPRIATION LANGUAGE SHEET

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)), [$867,463,000] $864,827,000, to remain available until expended, of 

which $9,199,000 shall be derived from the Land and Water Conservation Fund;[of 

which not to exceed $91,629,000 is available for oil and gas management;] and of which 

$1,500,000 is for high priority projects, to be carried out by the Youth Conservation 

Corps[; and of which $2,900,000 shall be available in fiscal year 2008 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, [$25,500,000 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 $4,000 per new application for permit to drill that the Bureau shall collect upon 

submission of each new application, and in addition,] $34,696,000 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 annual mining claim fees so as to 

result in a final appropriation estimated at not more than [$867,463,000] $864,827,000, 

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. 

(Department of the Interior, Environment, and Related Agencies Appropriations Act, 

2008.) 

Please note the following: 

• The budget eliminates pass-through funding for the National Fish and Wildlife 

Foundation (-$1,922,000). 

• In 2008, Congress imposed, through annual appropriations language, a fee on 

applications for permits to drill submitted to BLM. The 2009 BLM budget proposes to 

make this fee permanent by imposing a fee through a cost recovery rulemaking. The 

Administration will repropose legislation to amend Section 365 of the Energy Policy 

Act to repeal its prohibition on implementing cost recoveries on APDs. 

Section III- Management of Lands and Resources Page III -1
Bureau of Land Management 2009 Budget Justifications 

AUTHORIZATIONS

General Authorizing Legislation - The following authorize the general activities of the Bureau 

of Land Management or govern the manner in which BLM’s 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 Directorate, 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-of-way 

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 

annual assessment work. 

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 Directs Federal agencies to ensure that their actions do not 

Section III- Management of Lands and Resources Page III -2
Bureau of Land Management 2009 Budget Justifications 

Act of 1973, as amended 

(16 U.S.C. 1531 et seq.) 

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. 

P. L. 107-13 Authorizes the Secretary of the Interior and the Secretary of 

Agriculture to use funds appropriated for wildland fire 

management in the 2001 Interior and Related Agencies 

Appropriations Act to reimburse the U.S. Fish and Wildlife Service 

and the National Marine Fisheries Service to facilitate the 

interagency cooperation required under the Endangered Species 

Act of 1973 in connection with wildland fire management. 

Authority extended in the 2002 Interior and Related Agencies 

Appropriations Act. 

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 (44 U.S.C. 

3501-3520) 

Provides national Federal information policy, and requires that 

automatic data processing and telecommunication technologies 

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 Computer Security 

Act of 1987 (40 U.S.C. 759) 

Requires adoption and implementation of security plans for 

sensitive information systems to ensure adequate protections and 

management of Federal data. 

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 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 

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Bureau of Land Management 2009 Budget Justifications 

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.

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)

A bill to authorize 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 

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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. 

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 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.) 

Healthy Forests 

Restoration Act of 2003 

(P.L. 108-148) – 16 U.S.C. 

6501 et seq.

Stewardship "End 

Results" Contracting Fund 

- 2003 Omnibus 

Appropriations Bill (P.L. 

108-7), Section 323, 

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

Authorized the BLM and the U.S. Forest Service to conduct 

hazardous fuel reduction projects on federal land in wildland-urban 

interface areas and on certain other federal lands using expedited 

procedures. 

Provides BLM the ability to utilize stewardship contracting as a tool 

for forest and rangeland restoration. The Bureau of Land 

Management 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 

Forest Service and the Bureau of Land Management and shall be 

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Bureau of Land Management 2009 Budget Justifications 

amended Section 347 of 

the FY 1999 Appropriation 

Omnibus (P.L. 105-277, 

OCT. 21, 1998)

available for expenditure without further appropriation at the project 

site from which the monies are collected or at another project site. 

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, 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 

Preservation Act of 1980 

(16 U.S.C. 410; ii) 

Provides for preservation, protection, research, and 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 

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 

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(25 U.S.C. 3001) 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. 

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

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 Federally-administered component of 

the National Wild and Scenic Rivers System. 

Defense Department FY 

2006 Authorization Bill 

(P.L. 109-63) 

Provides for the designation and management of Cedar Mountain 

Wilderness in Utah. 

Otay Mountain Wilderness 

Act of 1999 

Establishes the Otay Mountain Wilderness Area in California, to 

managed by the Secretary, acting through the Director of the 

Bureau of Land Management. 

Ojito Wilderness Act (P.L. 

109-94) 

Designates New Mexico’s Ojito Wilderness Study Area as 

wilderness, to take certain land into trust for the Pueblo of Zia, and 

for other purposes. 

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 National 

Conservation Area, and to promote conservation, improve public 

land, and provide for high quality development in Clark County, 

Nevada, and for other purposes. 

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P.L. 107-361 Authorizes the Secretary of the Interior to convey certain public 

lands within the Sand Mountain Wilderness Study Area 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 Wilderness Study Areas 

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. 

Tax Relief and Health Care 

Act of 2006 

Designates wilderness in White Pine County, Nevada. 

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 National Conservation Area, one 

National Recreation Area, and one National Scenic Highway. 

Alaska Land Acceleration 

Act of 2003 (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. 

Alaska Native Allotment 

Subdivision Act (P.L. 108-

Allows Native Alaskans to subdivide their restricted allotment lands 

with the approval of the Secretary of the Interior. 

Section III- Management of Lands and Resources Page III -8
Bureau of Land Management 2009 Budget Justifications 

337) 

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.

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. 

Land, Water Conservation Fund

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

Department of the Interior, 

Environment, 

and Related Agencies 

Appropriations Act, 

2008 

In fiscal year 2008 only, establishes a fee of $4,000 per new 

application for permit to drill to be credited to the Management of 

Lands and Resources appropriation for the processing of 

applications for permits to drill and related use authorizations. 

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. 

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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, from the 

Secretary of Agriculture, for certain acquired lands. 

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 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 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. 

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. 

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. 

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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 Direct 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 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 NPS, FWS 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. 

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. 

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T’uf Shur Bien 

Preservation Trust Area 

Act (P.L. 108-7, Division F, 

Title IV) 

Amended 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 head of such other 

agency. 

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. 

P.L. 107-350 Provides for the conveyance of certain public land in Clark County, 

Nevada, for use as a shooting range. 

P.L. 107-371 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. 107-138 Require the valuation of non-tribal interest ownership of subsurface 

rights within the boundaries of the Acoma Indian Reservation, and 

for other 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 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. 

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 Southern Nevada 

Public Lands Act, to be used for acquisition of private in-holdings 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. 

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Bureau of Land Management 2009 Budget Justifications 

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 Public 

Purposes Act of 1926, as 

amended (43 U.S.C. 869) 

Authorizes the Secretary to classify public lands for lease or 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. 

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. 

The Utah School Lands 

Act (P.L. 103-93) 

Authorizes the Secretary to enter into land exchanges for certain 

purposes. 

Recreation Resources Management

Old Spanish Trail 

Recognition Act of 2002 

(P.L. 107-325) 

A bill to amend the National Trails System Act to designate the Old 

Spanish Trail as a National Historic Trail. 

The 1996 Interior and 

Related Agencies 

Appropriations Act (P.L. 

104-134) 

Directs the Secretary of the Interior, acting through the Bureau of 

Land Management, to develop and implement a pilot recreation fee 

demonstration program to determine the feasibility of cost recovery 

for operation and maintenance of recreation areas and sites. 

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 

National Conservation Area 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 national 

conservation area. 

Section III- Management of Lands and Resources Page III -13
Bureau of Land Management 2009 Budget Justifications 

Alaska National Interest 

Lands Conservation Act 

(P.L. 96-487) (16 USC 

460mm) 

Established the Steese National Conservation Area 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 National Conservation Area. 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 National Conservation 

Area, 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 Bureau of Land Management, 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 107-

282 (16 U.S.C. 460ccc) 

Provides for the conservation, protection, and enhancement of 

cultural and natural resources values by the BLM within the Red 

Rock Canyon National Conservation Area. 

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 National Conservation Area 

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 National Conservation Area in 

Arizona and provides for management and development for 

recreation and other multiple-use purposes. 

Black Canyon of the 

Gunnison National Park 

Establishes the Gunnison Gorge National Conservation Area to be 

managed by the Secretary, acting through the Director of the 

Section III- Management of Lands and Resources Page III -14
Bureau of Land Management 2009 Budget Justifications 

and Gunnison Gorge 

National Conservation 

Area Act of 1999 (6 USC 

410fff), as amended (PL 

106-76 & 108-128) 

Bureau of Land Management. PL 108-128 amended the 

boundaries or the National Conservation Area. 

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 

National Monument Act of 

2000 (P.L. 106-351) (16 

U.S.C. 431) 

Establishes the Santa Rosa and San Jacinto Mountains National 

Monument in California, to be managed by the 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 Bureau of Land Management and the National Park Service. 

The Bureau of Land Management 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 

Bureau of Land Management. 

Section III- Management of Lands and Resources Page III -15
Bureau of Land Management 2009 Budget Justifications 

Presidential Proclamation 

7263 of 2000 

Established the Agua Fria National Monument. The Secretary of 

the Interior shall manage the monument through the Bureau of Land 

Management. 

P.L. 107-30 Provides further protections for the watershed of the Little 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. 

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 LWCF. 

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. 

P.L. 107-213 Re-designate certain lands within the Craters of the Moon National 

Monument, and for other purposes. 

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. 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 

Provides that funds shall be available to BLM for mining law 

administration program operations, to be reduced by amounts 

Section III- Management of Lands and Resources Page III -16
Bureau of Land Management 2009 Budget Justifications 

Appropriations Act (P.L. 

103-138) 

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. 

Hazard Management and Resource Restoration

The Resource 

Conservation and 

Recovery Act as amended 

by Federal Facility 

Compliance Act of 1992 

(42 U.S.C. 6901-6992) 

Authorizes EPA 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. 

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 

Section III- Management of Lands and Resources Page III -17
Bureau of Land Management 2009 Budget Justifications 

life and property. 

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. 

Healthy Forests 

Restoration Act (P.L. 108-

148) - 

Authorized the BLM and the U.S. Forest Service to conduct 

hazardous fuel reduction projects on federal land in wildland-urban 

interface areas and on certain other federal lands using expedited 

procedures. 

P.L. 109-127 Revokes a Public Land Order with respect to certain lands 

erroneously included in the Cibola National Wildlife Refuge, 

California. 

Section III- Management of Lands and Resources Page III -18
Bureau of Land Management 2009 Budget Justifications 

Summary of Requirements ($000) 

 Fixed Costs & Program 2009 Inc(+) 

Comparison 2007 2008 Related Changes Changes Budget Dec(-) 

by Activity/ Enacted Enacted (+/ -) (+/ -) Request from 2008 

Subactivity FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount 

 

Management Of 

Lands and 

Resources 

5,870 866,911 5,932 853,931 0 16,583 -112 -5,687 5,820 864,827 -112 +10,896 

 

 Land Resources 1,353 185,556 1,392 193,145 0 2,692 -84 -8,328 1,308 187,509 -84 -5,636 

 Soil, Water & Air 

Mgt 

215 32,294 226 34,293 0 430 -17 -694 209 34,029 -17 -264 

 

 Range Mgt 633 68,263 662 73,036 0 1,257 -20 -3,567 642 70,726 -20 -2,310 

 Forestry Mgt 77 10,458 76 10,608 0 156 -13 -1,219 63 9,545 -13 -1,063 

 Riparian Mgt 171 21,573 178 22,887 0 305 -12 -462 166 22,730 -12 -157 

 Cultural 

Resources Mgt 

123 16,614 119 16,120 0 277 -22 -2,879 97 13,518 -22 -2,602 

 Wild Horse and 

Burro Mgt 

134 36,354 131 36,201 0 267 0 493 131 36,961 0 +760 

 

 Wildlife & 

Fisheries 

288 40,780 310 44,320 0 578 -21 -1,139 289 43,759 -21 -561 

 Wildlife Mgt 198 28,369 212 30,724 0 403 -15 316 197 31,443 -15 +719 

 Fisheries Mgt 90 12,411 98 13,596 0 175 -6 -1,455 92 12,316 -6 -1,280 

 

 Threatened & 

Endangered 

Species 

170 21,407 173 22,302 0 310 -15 -2,030 158 20,582 -15 -1,720 

 

 Recreation 539 63,697 562 67,909 0 1,133 -59 -9,921 503 59,121 -59 -8,788 

 Wilderness Mgt 132 16,182 139 17,366 0 265 0 -1,086 139 16,545 0 -821 

 Recreation 

Resource Mgt 

407 47,515 423 50,543 0 868 -59 -8,835 364 42,576 -59 -7,967 

 

 Energy & 

Minerals 

989 136,537 798 109,873 0 1,930 179 20,165 977 131,968 +179 +22,095 

 Oil and Gas Mgt 833 117,129 644 90,200 0 1,604 180 20,334 824 112,138 +180 +21,938 

 Coal Mgt 74 9,251 73 9,372 0 161 0 -55 73 9,478 0 +106 

Section III- Management of Lands and Resources Page III -19
Bureau of Land Management 2009 Budget Justifications 

Summary of Requirements ($000) 

 Fixed Costs & Program 2009 Inc(+) 

Comparison 2007 2008 Related Changes Changes Budget Dec(-) 

by Activity/ Enacted Enacted (+/ -) (+/ -) Request from 2008 

Subactivity FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount 

 Other Mineral 

Resources Mgt 

82 10,157 81 10,301 0 165 -1 -114 80 10,352 -1 +51 

 

 APD Fees 0 0 222 0 0 0 -222 0 0 0 -222 0 

 O&G APD 

Processing Fund 

0 0 222 25,500 0 0 -222 -25,500 0 0 -222 -25,500 

 Offsetting Fees 0 0 0 -25,500 0 0 0 25,500 0 0 0 +25,500 

 

 Alaska Minerals 13 1,600 0 0 0 0 0 0 0 0 0 0 

 

 Realty and 

Ownership 

664 82,638 656 82,250 0 1,416 -20 -6,360 636 77,306 -20 -4,944 

 Alaska 

Conveyance 

266 35,165 274 36,346 0 567 -9 -3,531 265 33,382 -9 -2,964 

 Cadastral Survey 106 13,757 95 12,255 0 241 -3 -1,435 92 11,061 -3 -1,194 

 Land and Realty 

Mgt 

292 33,716 287 33,649 0 608 -8 -1,394 279 32,863 -8 -786 

 

 Communications 

Sites Mgt 

19 0 19 0 0 0 0 0 19 0 0 0 

 Fee Collection 19 2,000 19 2,000 0 0 0 0 19 2,000 0 0 

 Offsetting Fees 0 -2,000 0 -2,000 0 0 0 0 0 -2,000 0 0 

 

 Resource 

Protection & 

Maintenance 

539 85,154 535 85,978 0 1,190 -28 -4,684 507 82,484 -28 -3,494 

 Resource Mgt 

Planning 

311 49,153 297 47,486 0 646 -34 -4,740 263 43,392 -34 -4,094 

 Resource 

Protection & Law 

Enforcement 

128 20,062 141 22,633 0 337 7 -702 148 22,268 +7 -365 

 Hazardous 

Materials Mgt 

100 15,939 97 15,859 0 207 -1 758 96 16,824 -1 +965 

 

 Transportation & 

Facilities 

Maintenance 

379 70,368 393 74,790 0 544 -33 -13,225 360 62,109 -33 -12,681 

 Operations 49 6,242 49 6,392 0 65 -5 -572 44 5,885 -5 -507 

Section III- Management of Lands and Resources Page III -20
Bureau of Land Management 2009 Budget Justifications 

Summary of Requirements ($000) 

 Fixed Costs & Program 2009 Inc(+) 

Comparison 2007 2008 Related Changes Changes Budget Dec(-) 

by Activity/ Enacted Enacted (+/ -) (+/ -) Request from 2008 

Subactivity FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount 

 Annual 

Maintenance 

240 30,969 244 31,913 0 479 -17 -2,498 227 29,894 -17 -2,019 

 Deferred 

Maintenance 

88 33,157 99 36,485 0 0 -11 -10,155 88 26,330 -11 -10,155 

 Infrastructure 

Improvement* 

2 0 1 0 0 0 0 0 1 0 0 0 

 

 Workforce & 

Organizational 

Support 

546 149,733 494 147,608 0 6,656 -9 -1,746 485 152,518 -9 +4,910 

 Information 

Systems 

Operations 

64 18,731 50 15,047 0 157 -2 -305 48 14,899 -2 -148 

 Administrative 

Support 

482 53,107 444 50,007 0 981 -7 -1,441 437 49,547 -7 -460 

 Bureauwide 

Fixed Costs 

0 77,895 0 82,554 0 5,518 0 0 0 88,072 0 +5,518 

 

 Mining Law 

Administration 

280 0 291 0 0 0 0 0 291 0 0 0 

 Mining Law 

Administration 

280 32,696 291 34,696 0 0 0 0 291 34,696 0 0 

 Offsetting Fees 0 -32,696 0 -34,696 0 0 0 0 0 -34,696 0 0 

 

 Land and 

Resources 

Information 

Systems 

57 17,084 54 16,447 0 134 0 -134 54 16,447 0 0 

 

 Grasshoppers & 

Mormon Crickets 

0 0 1 0 0 0 0 0 1 0 0 0 

 

Healthy Lands 

Initiative 

1 3,000 0 0 0 0 0 0 0 0 0 0 

 

Nat'l Landscape 

Conservation 

System 

0 0 0 0 0 0 200 21,825 200 21,825 +200 +21,825 

 

Nat'l Monuments 

& Nat'l Cons. 

Areas 

0 0 0 0 0 0 200 21,825 200 21,825 +200 +21,825 

 

 Challenge Cost 

Share 

33 9,357 32 9,309 0 0 0 -110 32 9,199 0 -110 

Section III- Management of Lands and Resources Page III -21
Bureau of Land Management 2009 Budget Justifications 

Summary of Requirements ($000) 

 Fixed Costs & Program 2009 Inc(+) 

Comparison 2007 2008 Related Changes Changes Budget Dec(-) 

by Activity/ Enacted Enacted (+/ -) (+/ -) Request from 2008 

Subactivity FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount 

 Challenge Cost 

Share 

33 9,357 32 9,309 0 0 0 -110 32 9,199 0 -110 

 Cooperative 

Conservation 

Initiative 

0 0 0 0 0 0 0 0 0 0 0 0 

 

 Reimbursables ($ 

are non-add) 249 0 249 0 0 0 0 0 249 0 0 0 

The Reimbursable FTE number for 2008 in Reimbursables is 222 less than the President's Budget Appendix, and the regular appropriation total is 222 more. The regular 

appropriation total in 2009 is 222 higher than in the President's Budget Appendix. These differences resulted from reclarification of how the APD Processing Fund will 

work after the President's Budget Appendix had already been published. 

Section III- Management of Lands and Resources Page III -22
Bureau of Land Management 2009 Budget Justifications 

Justification of Fixed Costs and Related Changes 

(dollars in thousands) 

 

2008 

Budget 

2008 

Revised 

2009 

Fixed 

Costs 

Change 

 

Additional Operational Costs from 2008 and 2009 

January Pay Raises 

1. 2008 Pay Raise, 3 Quarters in 2008 Budget +12,801 +12,601 NA

 Amount of pay raise absorbed through cost savings [2,335] NA

 

2. 2008 Pay Raise, 1 Quarter (3.5%) NA NA +3,698

 Amount of pay raise absorbed through cost savings [616]

 

3. 2009 Pay Raise (Assumed 2.9%) NA NA +8,581

 Amount of pay raise absorbed through cost savings [2,145]

 These adjustments are for an additional amount needed to fund estimated pay raises for Federal employees. 

 

Line 1, 2008 Revised column is an update of 2008 Budget estimates based upon an enacted 3.5% payraise and the 1.56% 

across the board reduction. 

 

Line 2 is the amount needed in 2009 to fund the enacted 3.5% January 2008 pay raise from October through December 

2008. 

 

Line 3 is the amount needed in 2009 to fund the estimated 2.9% January 2009 pay raise from January through September 

2009. 

 

2008 

Budget 

2008 

Revised 

2009 

Fixed 

Costs 

Change 

 Other Fixed Cost Changes 

 Two More Pay Days 4,312 4,245 

 Amount absorbed through cost savings [84] 

 This adjustment reflects the increased costs resulting from the fact that there are two more pay days in 2008 than in 2007. 

 One Less Pay Day in 2009 -1,882

 This adjustment reflects the decreased costs resulting from the fact that there is one day less in 2009 than in 2008. 

 Employer Share of Federal Health Benefit Plans 924 910 +668

 Amount absorbed through cost savings [14] [835]

 

This adjustment is for changes in the Federal government's share of the cost of health insurance coverage for Federal 

employees. The increase is estimated at 3.0%, the average increase for the past few years. 

 Worker's Compensation Payments 740 728 +171

 Amount absorbed through cost savings [12] 

 

The adjustment is for actual charges through June 2006, in the costs of compensating injured employees and dependents 

of employees who suffered accidental deaths while on duty. Costs for 2009 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 946 931 -84

 Amount absorbed through cost savings [15] 

 

The adjustment is for estimated 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 1,680 1,646 +4,309

 Amount absorbed through cost savings [26] 

Section III- Management of Lands and Resources Page III -23
Bureau of Land Management 2009 Budget Justifications 

Justification of Fixed Costs and Related Changes 

(dollars in thousands) 

 

2008 

Budget 

2008 

Revised 

2009 

Fixed 

Costs 

Change 

 

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 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. 

 Departmental Working Capital Fund 3,086 3,038 +1,122

 Amount absorbed through cost savings [48] 

 

The 2008 Revised amount reflects absorptions due to changes in billing amounts and the 1.56% across the board 

reduction. The 2009 change reflects expected changes in the charges for Departmental services and other services through 

the Working Capital Fund. These charges are displayed in the Budget Justification for Department Management. 

 Total Fixed Costs Absorbed through cost savings [3,596]

 Total Fixed Costs Funded +16,583

Section III- Management of Lands and Resources Page III -24
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-25

Activity Summary ($000) 

 2009 

 Fixed Costs & Program Change 

 2007 2008 

Related 

Changes Changes Budget 

from 

2008 

Subactivity Enacted Enacted (+/ -) (+/ -) Request (+/-) 

 Soil, Water & Air 

Mgt $ 32,294 34,293 +430 -694 34,029 -264

 FTE 215 226 0 -17 209 -17

 Range Mgt $ 68,263 73,036 +1,257 -3,567 70,726 -2,310

 FTE 633 662 0 -20 642 -20

 Forestry Mgt $ 10,458 10,608 +156 -1,219 9,545 -1,063

 FTE 77 76 0 -13 63 -13

 Riparian Mgt $ 21,573 22,887 +305 -462 22,730 -157

 FTE 171 178 0 -12 166 -12

 Cultural 

Resources Mgt $ 16,614 16,120 +277 -2,879 13,518 -2,602

 FTE 123 119 0 -22 97 -22

 Wild Horse and 

Burro Mgt $ 36,354 36,201 +267 +493 36,961 +760

 FTE 134 131 0 0 131 0

Total Activity $ 185,556 193,145 2,692 -8,328 187,509 -5,636

 FTE 1,353 1,392 0 -84 1,308 -84

 

 

ACTIVITY DESCRIPTION

This activity provides for integrated management of public land renewable and cultural 

resources. 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 

the land is the foundation for 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 actively being managed to restore and/or 

sustain a healthy condition. 

The programs in this activity, in concert with other programs, work together to support BLM’s 

strategic vision and emphasis areas of Healthy Lands, National Landscape and Conservation 

System, and Non-energy Commodity Use 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. 

Activity: Land Resources 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-26

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Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-27

Activity: Land Resources 

Subactivity: Soil, Water, Air 

Activity: Land Resources 

Subactivity: Soil, Water Air Management 

 2009 

 Fixed Costs & Program Change 

 2007 2008 

Related 

Changes Changes Budget 

from 

2008 

 Enacted Enacted (+/ -) (+/ -) Request (+/-) 

Soil, Water Air ($000) 32,294 34,293 +430 -694 34,029 -264

 

FTE 215 226 0 -17 209 -17

Other Major Resources: 

 

Major Program IT Investments: 

 

 

Summary of 2009 Program Changes for Soil, Water, Air Management 

Request Component ($000) FTE

Program Changes: 

• Restoration of NLCS funding to 2008 Request level -197 

• Elimination of 2008 Earmark: CA Abandoned Mine Lands -984 

• Restoration of Program funding to 2008 Request level -985 -3

• Organizational & Administrative Streamlining -107 -1

• Travel & Relocation Expenses -105 

• Performance Contracting savings -64 

• Nat'l Monument & Nat'l Conservation Area funding (new subactivity created) -1,252 -14

• Healthy Lands Initiative funding to benefitting subactivity +3,000 +1

TOTAL, Program Changes -694 -17

JUSTIFICATION OF 2009 PROGRAM CHANGES

The 2009 budget request for the Soil, Water and Air Program is $34,029,000 and 209 FTE, a 

program change of -$694,000 and -17 FTE from the 2008 level offset by a $430,000 increase in 

fixed costs. 

Reduction of Unrequested NLCS Increase (-$197,000) - In 2008, the Congress provided an 

additional $197,000 in the Soil, Water, and Air program, for Soil, Water, and Air projects in the 

National Landscape Conservation System. This budget proposes reducing the Soil, Water, and 

Air subactivity by $197,000. For more information about the new National Monuments and 

National Conservation Areas subactivity, see “2009 Program Performance” below and section 

III. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-28

California Abandoned Mines Earmark (-$984,000) – In 2008 the Soil, Water and Air Program 

received additional funds for remediation of several abandoned mine lands in California. The 

funds have been sufficient to jump-start the targeted projects and will no longer be needed in 

2009. Cancellation of the earmark also allows BLM to fund higher priority projects. 

Reduction of Unrequested 2008 Increase in Base Funding (-$1,182,000) - In 2008, 

Congress provided additional funding in the Soil, Water, and Air program including for NLCS 

activities. The BLM proposes a reduction of this amount to address higher priorities. The BLM 

will continue to maintain core functions in the Soil, Water, and Air program by focusing on 

highest priority watershed projects and improving program efficiencies where possible. 

National Monument and National Conservation Area funds (new subactivity created) 

(-$1,252,000) - The BLM is proposing a new subactivity to fund base operations at National 

Monuments and National Conservation Areas. As a result, $1,252,000 is shifted from the Soil, 

Water, and Air program subactivity in MLR to the new subactivity. The funding shifted from the 

Soil, Water, and Air subactivity is funding currently spent in the National Monuments and 

National Conservation Areas to meet the goals of the Soil, Water, and Air program. The funding 

will continue to be spent on Soil, Water, and Air priorities but will be managed through the 

National Monuments and National Conservation Areas subactivity. Performance in the Soil, 

Water, and Air subactivity will decrease due to the funding shift; however, this performance will 

be shifted to the National Monuments and National Conservation Areas subactivity and is 

shown in the performance goals for that subactivity. For more information about the new 

National Monuments and National Conservation Areas subactivity and specific shifts in 

performance, see “2009 Program Performance” below and section III. 

Healthy Lands Initiative program (+$3,000,000) - The BLM proposes an increase of 

$3,000,000 for the Healthy Lands Initiative funding that is contained in the Soil, Water and Air 

subactivity. In 2008, BLM is eliminating the single subactivity for the Healthy Lands Initiative and 

distributing the funding among seven subactivities. For 2009, BLM proposes a total of 

$3,000,000 in the Soil, Water and Air subactivity, an increase of $3,000,000. The total funding 

request for the Healthy Lands Initiative is $14,922,000. The distribution of funding among 

subactivities, and the work to be performed, is described in the Healthy Lands Initiative chapter 

in the Crosscutting Activities section of the Justifications. Specific work to be performed in the 

Soil, Water and Air Program is also described in “2009 Program Performance” below. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-29

Program Performance Change 

2005 Actual 2006 Actual 2007 

Actual 2008 Plan 

2009 

Base 

Budget 

(2008 

Planned 

+ Fixed 

Costs) 

2009 

President

s Budget 

Program 

Change 

Accruing in 

2009 

Program 

Change 

Accruing 

in Outyears 

A B=A+C C D 

Inventory Water 

Resources 

(number of 

stations 

monitored)

6,459 7,165 9,049 7,500 7,500 7,984 +484 0 

Total 

Actual/Projected 

Cost ($000) 

$5,512 $3,536 $2,747 $2,276 $2,276 $2,423 -146 0 

Actual/Projected 

Cost $853.49 $493.64 $303.59 $303.59 $303.59 $303.59 $303.59 0 

Comments These values reflect the funds added to the program in 2009 for the Healthy Lands. The 5% increase in water resources 

inventory is due to the additional work in the Healthy Land Initiative.

Complete 

watershed 

assessments 

(acres). 

5,027,436 3,223,553 6,292,03

2 

3,000,00

0 

3,000,0

00 2,931,515 -35,000 0 

Total 

Actual/Projected 

Cost ($000) 

$4,574 $4,061 $3,649 $1,740 $1,740 $1,700 $20 0 

Actual/Projected 

Cost Per XX $0.91 $1.26 $0.58 $0.58 $0.58 $0.58 $0.58 0 

Comments 

These values reflect the funds added to the program in 2009 for the Healthy Lands Initiative The decreases in planned 

accomplishments between 2008 and 2009 in watershed assessment, monitoring air resources and climate conditions, and 

monitoring water resources all result from the reduction of funds from 2008 to 2009. The 5% increase in water resources 

inventory is due to the additional work in the Healthy Land Initiative.

Monitor air 

resources/clima

tic conditions 

(number of 

projects). 

344 325 238 200 200 190 -10 0 

Total 

Actual/Projected 

Cost ($000) 

$238 $1,691 $627 $527 $527 $500 -$26 0 

Actual/Projected 

Cost Per XX $4,042.09 $5,203.85 $2,635.02 $2,635.02 $2,635.

02 $2,635.02 $2,635.02 0 

Comments 

These values reflect the funds added to the program in 2009 for the Healthy Lands Initiative. The decreases in planned 

accomplishments between 2008 and 2009 in watershed assessment, monitoring air resources and climate conditions, and 

monitoring water resources result from the decrease of funds from 2008 to 2009. The 5% increase in water resources 

inventory is due to the additional work in the Healthy Land Initiative. 

Monitor water 

resources 

(number). 

9,065 6,948 5,188 5,000 5,000 4,910 -90 4,910 

Total 

Actual/Projected 

Cost ($000) 

$3,968,294 $2,571,176 $3,373,3

92 $3,251,150 $3,251,150 $3,192,629 -$58,520 0 

Actual/Projected 

Cost Per XX $437.76 $370.06 $650.23 $650.23 $650.23 $650.23 $650.23 0 

Comments 

These values reflect the funds added to the program in 2009 for the Healthy Lands Initiative The decreases in planned 

accomplishments between 2008 and 2009 in watershed assessment, monitoring air resources and climate conditions, and 

monitoring water resources result from the decrease in funds from 2008 to 2009. The 5% increase in water resources 

inventory is due to the additional work in the Healthy Land Initiative. 

Note: Projected costs may not equal program change as these are full costs, which may include funds from other sources and (or) use averages. 

Column A: The level of performance and costs expected in 2009 at the 2008 level plus funded fixed costs. Reflects the impact of prior year 

funding changes, management efficiencies, absorption of prior year fixed costs, and trend impacts, but does not reflect the proposed program 

change. 

Column D: Outyear performance beyond 2009 addresses lagging performance — those changes occurring as a result of the program change (not 

total budget) requested in 2009. It does not include the impact of receiving the program change again in a subsequent out-year. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-30

PROGRAM OVERVIEW

The Soil, Water and Air Management Subactivity is a consolidation of five separate programs 

divided into two sections: the Soil, Water, Air, and Salinity Management Programs, and the 

Abandoned Mine Lands (AML) Cleanup Program. The AML program is funded at $8.3 million in 

2009 from the Soil, Water and Air total program funding of $34,029,000. 

Soil, Water and Air 

Program Components — The Soil, Water and Air Program provides oversight to the: 

• Soil survey and interpretation, ecological site determination, soil erosion control, and 

sustaining soil productivity 

• Acquisition of water rights and inventory of water resources to assure availability of 

water to meet BLM management objectives 

• Monitoring and improvement of water quality, and implementation of appropriate best 

management practices 

• Colorado River Basin salinity control activities 

• Air resource management including air quality, visibility, noise, climate, and climate 

change issues. 

Long-Term Vision — Significant components of the long-term vision of the Soil, Water and Air 

Program are: 

• Proper functioning riparian areas and watersheds in which streams meet state water 

quality standards; 

• Air quality non-attainment areas in which emissions of criteria pollutants from BLMpermitted activities are in compliance with the State Implementation Plan; 

Use of Cost and Performance in the 

Soil, Water and Air Program 

The primary use of cost and performance information in the Soil, Water and Air subactivity is planning 

accomplishment targets. When the preliminary target allocations have been sent to the States, each program lead 

reaches agreement with his or her State counterparts on targets for the program element accomplishments. High 

unit costs are identified and analyzed. In nearly all cases in 2007, high unit costs were related to the circumstances 

of the work. For example, high unit costs in Arizona for water rights actions result from the high costs of litigation 

associated with actions in the Gila River and Little Colorado River adjudications. High costs for water resources 

inventory in Alaska results from the need to fly to many remote sites to measure stream discharge or other 

parameters. 

Deviations of unit costs from the national averages are rarely the result of unusually efficient or inefficient work 

processes. The best example of a process problem revealed by unit cost analysis is watershed assessment. The 

Soil, Water and Air Program have encouraged States to perform more thorough analyses and assess whole 

watersheds. In some cases this has occurred. However, the assessment is still applied differently throughout BLM 

as seen in the wide range of unit costs: $23 per acre in Utah and $0.32 per acre in Wyoming. Utah performed a 

complete assessment of one watershed including a hydrologic analysis. Wyoming assessed nearly 1⁄2 million acres 

using only the indicators designed for upland health determinations, part of grazing allotment evaluations. 

The application of unit costs to performance evaluations must be done with a thorough examination of the work 

process being applied. Definitions of program elements cover too wide a range of activities to allow an easy 

comparison of unit costs from one office to another. Although unit costs can establish trends within an office over 

time, assessment of circumstances is still necessary. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-31

• All National Landscape Conservation System landscapes are in proper functioning 

ecological and hydrological condition; 

• All public land use authorizations include terms and conditions and mitigating measures 

that protect soil, water and air resources;

• BLM and its partners manage consistent, functional, and accessible soil, water and air 

data systems, in which information is efficiently shared and used. Land use plans and 

other decisions incorporate appropriate levels of air quality, water quality, climate, 

climate change, and water availability impact analysis. 

Critical Factors — Critical factors affecting Soil, Water and Air Program performance include: 

 

• Climate change and its potential to affect specific long-term vegetation, water quality, 

quantity and distribution, air quality, fire, soil, wildlife, social and economic management 

goals; 

• The pace of litigation affecting state water right adjudications and water rights associated 

with grazing activities in some states 

• Impacts of wildland fire across landscapes and the effectiveness of emergency 

stabilization and restoration on landscape health and changing fire regimes. 

Means and Strategies — The Soil, Water and Air Management Program’s means and 

strategies to achieve performance goals are: 

• Participate in development, implementation and monitoring of best management 

practices that support state water and air quality standards under the Clean Water and 

Clean Air Acts, the Colorado River Salinity Act, and the Endangered Species Act, as 

related to aquatic habitat conditions; 

• Provide soil, water and air technical expertise to all BLM multiple use programs, 

including modeling, interpretation, monitoring and evaluation of environmental effects of 

management actions and decisions. 

• Obtain soil survey and ecological site descriptions for public land, the basic resource 

information needed to manage use and sustain yield; 

• Provide leadership in land health assessments, the primary means of determining the 

effectiveness of past and current management practices; 

Other Funding Sources– The activities of the Soil, Water and Air Program are funded by two 

primary sources other than appropriated funds:

1. Grants. The program has received National Fish and Wildlife Foundation grants, and, more 

commonly, section 319 (h) Watershed Improvement Grants, such as the 2009 grant received by 

the Albuquerque Field Office from the New Mexico Environment Department to continue a bank 

erosion control project on the Rio Puerco River. 

2. Contributions in Kind. Contributions of labor, vehicle use, meeting space, etc are common in 

partnerships such as the Upper San Pedro Partnership in southeast Arizona, and the Rio 

Puerco Partnership in central New Mexico. 

Soil, Water and Air and AML projects and activities also depend on integration of funding with 

other BLM programs. 

Strategic Plan -The Soil, Water and Air Program supports all the resource protection outcomes 

and performance measures in the Department of the Interior (DOI) Strategic Plan. Only two 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-32

performance measure, however, are the specific responsibility of the Soil, Water and Air 

Program: achieving EPA-approved state water quality standards in DOI-managed streams and 

DOI-managed lakes and ponds. The BLM Operations Plan also includes those two performance 

measures. DOI and BLM soil, water and air management objectives are intended to support 

the primary resource management objectives in resource protection and use, recreation, and 

sustaining communities at all levels of the BLM. 

Program goals are grouped into two major outcome categories: 1) Improve land health and 

water and air quality associated with achievement of all performance measures requiring soil, 

water and air work, and 2) maintain or improve the capabilities of the Soil, Water and Air 

Program. 

 1) Achieve Soil, Water and Air-dependent Performance Measures 

• Meet State water quality standards in streams, lakes and ponds on land 

managed by BLM. 

• Assure the availability of a sufficient amount of water to meet BLM management 

objectives. 

• Achieve desired condition of stream/shoreline, uplands and riparian areas. 

• Achieve other performance measures requiring soil, water and air work. 

• Meet the objectives of the Healthy Lands Initiative that require soil, water and air 

work. 

• Monitor air quality where BLM management activities may affect air resources 

and assure control of air quality impacts. 

• Acquire and assess climate data for appropriate resource management 

responses. 

• Complete the soil survey of BLM lands to provide base condition data for 

management activities. 

• Meet Colorado River Basin salt loading reduction and overall salinity control 

objectives of salinity control project work. 

2. Maintain or Improve the Capabilities of the Soil, Water, and Air Program 

• Assure that sufficient skills are available to field offices to achieve work outlined 

in #1 above. 

• Assure availability of software, databases, and data sources needed to achieve 

the work in #1. 

• Assure data needs are met for #1 that rely upon acquisition of data by other 

agencies. 

• Assure that budget resources are distributed to meet the objectives in #1. 

• Assure that policy and guidance is provided to assist States in meeting the work 

objectives in #1. 

Abandoned Mine Lands

Program Components - The AML program’s overall objective is to improve water quality and 

remediate other environmental impacts and physical safety hazards from abandoned hardrock 

mine sites. Historic hardrock mines produced precious metals, base metals, and other important 

mineral commodities (gold, silver, copper, lead, zinc, mercury, etc.). These mines were shut 

down, became inactive, or were abandoned according to the conditions and practices affecting 

mineral economics of the time period. Many abandoned mines are causing environmental 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-33

degradation, primarily through water pollution. Typical kinds of environmental problems 

stemming from AML sites include: 

• Contaminated/acidic surface and ground water; 

• Stockpiled waste rock and mill tailing piles; 

• Contaminated soils and groundwater; and 

• Leaking chemical containers. 

Many affected watersheds are in arid climates in the West, where water is scarce, and the need 

to improve water quality for human and aquatic resource use is critical. 

Long-Term Vision - Recognizing that only a portion of AML sites are posing significant 

environmental impacts or safety hazards, the BLM is seeking to develop a long-range working 

inventory of priority sites that can form the basis of realistic goals and strategies. The BLM State 

Offices have developed multi-year work plans. These plans are developed and shared with the 

BLM’s Federal and State partners to identify priority watersheds and high impact areas where 

field work will be conducted. Initial plans cover years 2007 – 2013. Plans will be reviewed and 

adjustments updated annually, and program performance will be integrated into the planning 

process. 

Critical Factors - Most AML restoration projects are highly complex, and involve considerable 

environmental analysis and engineering study to assess site conditions and develop appropriate 

remedies. Typically, some of the appropriated funds for a given year cover such costs for new 

projects. Remaining funds are applied toward actual on-the-ground remediation activities 

normally carried out by contractors. 

Performance Measures - Program performance can be impacted by unforeseen complexities in 

ground and water conditions, the need for additional engineering studies, and changes in site 

conditions due to excessive precipitation or erosion. Performance can also be impacted by the 

need to spend resources for increased monitoring and maintenance of restored sites. For 

example, even passive water treatment systems require periodic maintenance and adjustments. 

Means and Strategies – The AML program uses various means and strategies to achieve 

performance goals. Key actions to date include: 

• Establishing program objectives and policies; 

• Conducting targeted inventory and field validations; 

• Developing an inventory database and program management system; 

• Applying risk-based criteria and a project peer review to ensure projects are eligible and 

successes attainable; and 

• Establishing partnerships with other government and non-government agencies and 

organizations. 

In order for an environmental hazard/water quality reclamation project to be funded, the project 

must be screened using the BLM AML National Level Evaluation Criteria. State governments 

prioritize their watersheds. Then, land owners and land management agencies that have an 

interest in the watershed coordinate efforts and leverage funds to address the respective AML 

sites. Additionally, there is the potential for cost avoidance or cost recovery by having 

potentially responsible parties (PRP) contribute to the remediation efforts. Physical safety 

hazards are prioritized when a death or injury has occurred or the site is situated on or in 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-34

immediate proximity to developed recreation sites and areas with high visitor use. Cost 

efficiencies and innovations also help prioritize the project. 

The BLM and the United States Forest Service carried out 

commemorative activities in Silverton, Colorado, to recognize 

10 years of progress in cleaning up abandoned mines on 

Federal lands. The agencies issued a joint progress report 

highlighting their efforts (available at www.blm.gov/aml). 

Officials joined representatives of community groups, local 

and state governments, and other Federal agencies to mark 

the 10th anniversary of pilot projects launched in the Upper 

Animas River watershed in Colorado, the Boulder River 

watershed in Montana, and in Cottonwood Wash, Utah. 

Activities included a review of accomplishments, tours of 

cleanup sites, and a look at technical advances for future 

efforts. Over 100 people participated in the event. 

Over 100 people participated during the two day event, with the first day comprising educational presentations 

followed by a field trip the second day.

Other Funding Resources - The BLM’s response to AML impacts is based on a risk-based, 

watershed approach in partnership with over 100 Federal, state, tribal, and non-government 

organizations. State governments set watershed priorities. The BLM, and other partners, 

collaborate and leverage funds to address respective sites and impacts. 

The BLM’s program does not duplicate the efforts of the coal AML program of the Office of 

Surface Mining. The BLM’s program is not funded by the AML trust fund established by the 

Surface Mining Control and Reclamation Act. 

Strategic Plan- The Soil Water and Air and the AML programs support the Department's 

Strategic Plan goals of improving and maintaining health of watersheds and landscapes, 

sustaining biological communities, planning actions to use energy and non-energy minerals, 

forage resources, forest and woodland products, and improving information management. In 

March 2006, the Cooperative Conservation Based Strategic Plan for the AML Program was 

published. The BLM AML state programs have been working on projects. 

2009 PROGRAM PERFORMANCE 

2007 Accomplishments -

Soil, Water and Air 

• Over one million acres of soil survey were completed. This work is part of the National 

Cooperative Soil Survey. Most of the acres surveyed were in Wyoming, Utah, Oregon, 

and California. 

• In 2007, the Soil, Water, and Air program participated in completing the National 

Hydrographic Dataset in all states except Alaska and Nevada. Those two states will be 

completed in FY 2008. The National Hydrographic Dataset is a series of State maps of 

all water channels. This data set is already being used to locate and store data for water 

quality of impaired streams on public land. It has potential as an efficient spatial 

database for riparian condition data, and a variety of other data associated with stream 

channels and watersheds. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-35

• Over 9,000 water rights actions were completed in accordance with state law, to assure 

the availability of water for permittees, lessees, and other users of public land. Most 

actions were in Idaho due to accelerating work in the Snake River Basin Adjudication 

• Air quality and climate data was collected at 238 sites on public land serving a wide 

variety of purposes and programs, including key planning data for range and fuels 

management, and monitoring of measures intended to mitigate the impacts of energy 

development. 

• The Air Resource Management Program manual, containing policy, program structure, 

and guidance was completed 

Abandoned Mine Lands

• Alaska adhered to its business plan and accomplished its short-term vision for the 

program. They are now in a transitional phase, assessing the future development of the 

program. For example, National Land Conservation System areas have been impacted 

by mining activities and recreational activities. Additionally, the accelerated conveyance 

program involving Native Corporations led to increased environmental liability 

considerations moving AML related issues to the forefront, and new sites have been 

identified. 

• Arizona implemented the zone-management concept to facilitate a higher level of 

accountability statewide. Colorado supported cleanup at the watershed level, watershed 

groups, and partnering. Idaho developed an in-house mine closure team out of the 

Idaho Falls District Office and is expanding the use of this team to other parts of the 

state, resulting in cost efficiency. Montana continued to make AMLs a priority workload 

and management supported reclamation by back filling some essential positions. 

• Nevada sought partnerships with industry, state agencies, other feds, etc., and applied 

creative solutions, such as doing line items in-house to bring bids down to the level of 

available funding. Oregon continued to monitor remediated sites (i.e. Formosa), repair 

remediated sites subsequently damaged by unforeseen events (i.e. Cleveland Mine), 

opportunistically identify other sites (i.e. Josephine Mine), and timely submit projects 

through the Budget Planning System process. 

2008 Planned Program Performance 

Soil, Water and Air 

1. By the end of 2008, over 91 percent of streams, rivers, lakes and ponds on BLMmanaged land will be meeting EPA-approved state water quality standards. The 

increment of water quality improvement in 2008 may be small, although water quality 

accomplishments on public land, including an increase area of desired plant community 

and vegetative cover to improve watershed condition, will occur. Several years may 

pass before these improvements are seen as reductions of pollutants in streams. 

• A new long-term performance goal (Bureau Goal 1.1.18) was established in 2007: 

Assure continued availability of a sufficient supply of water on BLM-managed land to 

meet all BLM management objectives. A baseline value of 24,133 actions taken to 

assure that water availability was established in 2007. Approximately the same level of 

accomplishment is expected in 2008 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-36

• Soil survey data and related ecological site identification is baseline information typically 

used in livestock grazing management, mineral development, fire and fuels management 

planning, and many other activities. The number of acres of soil survey has increased 

substantially since 2004.Due to accelerated survey work where demand for land health 

assessments is high (e.g. OR, WY, and UT), approximately 1,000,000 acres are planned 

for survey in 2008. 

• Guidance for air resource planning and modeling applications will be completed in 2008. 

• Colorado River salinity control performance goal is to reduce transport of salt from BLMmanaged lands into the Colorado River system by 1,000 to 5,000 tons of salt annually 

from new salt retention projects. Accomplishments are tracked by the Colorado River 

Basin Salinity Forum, but not directly in BLM performance or workload measures. 

• 2006--- 9,100 tons of salt retained (cumulative) 

• 2007--- 40,600 tons of salt retained (cumulative) 

• 2008--- 43,000 tons of salt retained (cumulative) 

Amounts of salt retained each year are difficult to predict because new projects come on 

line with varying capacities to reduce salinity, and the capacity of projects implemented 

earlier may change over time. Estimates of salt retention are usually cumulative, 

because most projects from prior years continue to function to reduce transport of salts. 

One of the most encouraging indicators of progress in the BLM salinity program is the 

preliminary result of Southwest regional monitoring, which employs a new model, 

SPARROW, developed by USGS with BLM salinity program funding. Evidence of a 

significant decline in total dissolved solid concentration was found in many Colorado 

River tributaries in the region. Although the sources of variance for reduced 

concentrations are not certain, activities like the Utah Sheep Creek and Buckskin 

projects described below that improve ground cover, increase infiltration and reduce 

saline runoff are probable incremental contributors to the cumulative effect. Additional 

results are expected in 2008. 

• The Sheep Creek Restoration Project and the Buckskin Restoration Project are two 

examples of on-the-ground erosion control and watershed improvement 

accomplishments on saline soils in Utah:. The Sheep Creek Project has repaired 

sediment control structures, treated noxious weeds, and seeded with native vegetation 

to stabilize soils and reduce erosion and salt loading. Weeds will continue to be treated 

in the project area and also along nearby travel corridors where weeds are spread. The 

Buckskin Project on the Kaibab Plateau in the Grand Staircase-Escalante National 

Monument is also a weed treatment and re-vegetation project. Juniper thinning is a 

major component of the work. 

Abandoned Mine Lands

Every AML project planned for 2008 focuses on physical safety and/or environmental hazards. 

In 2008, the BLM plans to improve water quality on 2,631 acres by funding approximately 65 

ongoing projects in 12 states. 2008 AML projects scheduled for funding are listed below. Each 

year projects are submitted to the program office and selected by a committee. The projects 

are selected using established criteria and priorities of the program. The following projects were 

selected in 2008: 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-37

2008 AML Projects 

State Project

Alaska Maclaren Glacier Monitoring; Harrison Creek Restoration; Yukon River Inter Tribal 

Watershed Council Agreement Inventory; Hiyu Minesite Passive Reactive Barrier 

System; Interagency Birch Creek Assessment 

Arizona Brunckow Mine Assessment; Moon Mountain Mill Ore Piles and Physical Safety 

Hazards Removal

California Pond Mine Mercury Removal; Poore Mine Mercury Removal; Rathburn-Petry 

Mercury Removal; Oat Hill Extension Mine Mercury Tailings Removal; Poison Lake 

Assessment and PRP Search; Ruth Mine Assessment and PRP Search; Humbug 

Creek Delta Mercury Removal; Clear Creek TMDL Sampling; Longfellow Inventory 

and Assessment; Boston Tunnel Mercury Removal; Riconada Mine Mercury 

Removal; Deer Creek Mercury Removal; Bodie Assessment

Colorado Lark, John and Joe Treatment Construction; Dinero Tunnel Underground 

Hydrological Source Control; Ute-Ulay Mine/Mill Removal; Eveline Acid 

Neutralization and Metals Removal; Kerber Creek Tailings Removal; Tiger Tunnel 

Reclamation; Mogul Dump and Adit Removal; Gladstone Acid Mine Drainage 

Treatment; Bats and Mines Inventory; Animas Operation and Maintenance; Milsap 

Gulch Tailings Stabilization; Dinero Dumps Underground Hydrological Source 

Control; Querida Tailings Stabilization; Eureka Channel Restoration and 

Tailings Removal; North California Mountain Draining Adit Reclamation.

Idaho Bayhorse Mine Restoration; South Fork Couer D'Alene (CDA) Inventory and 

Monitoring; Buckhorn Mill Tailings Rehabilitation; Sonneman Mine Tailings 

Stabilization; Idaho Falls Do Invest Inventory; Twin Peaks Monitoring; CDA Idora 

Mine Shaft and Adit Closures; Salmon River Basin Assessment; CDA Rock Dumps 

Maintenance and Monitoring; CDA Mine Water System Monitoring; IMA Mine 

Monitoring; Grouse Creek Stabilization; Champagne Creek Water Quality 

Treatment; Leadville Mine Monitoring

Montana Zortman Mine Water Management; Reclamation Operations and Maintenance; 

Great Divide Sand Tailings Removal and Placement; Indian Creek Reclamation; 

South Tobacco Roots Weed Management; Hard Cash EE/CA and PRP Search; 

Rochester/Nez Perce Tailings Removal; Spruce Gulch Vegetation and Bat 

Monitoring; Iron Mask EE/CA

Nevada Rip Van Winkle Tailings Clean Up; Ward Environmental and Physical Safety 

Hazards Removal

Oregon Poorman/Balm Creek Waste and Tailings Removal; Formosa Project 

Administration and Monitoring; Umpqua Mercury Removal Assessment: Pueblo 

Group Physical Safety Investigation

Utah La Sal Creek Waste Rock and Radiation Clean Up

Wyoming Copper Mountain Reclamation

In addition to conducting environmental and/or physical safety hazard projects in 2008, the AML 

program participants are involved in maintaining the AML Program Strategic Plan; implementing 

the AML Manual and Handbook; maintaining the AML webpage; developing partnerships with 

states and tribes to mitigate physical safety hazards; and designing web based e-Learning with 

a curriculum founded on the AML Handbook. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-38

2009 Program Performance 

Soil, Water and Air 

2. Improving water quality and meeting State water quality standards will remain an 

important goal of the Soil, Water and Air Program in 2009. The anticipated, 2009 

incremental increases of water quality in miles and acres of water bodies meeting state 

standards will be small due to several factors: 

1) Most of the sources of pollution from BLM-managed land are non-point source 

pollution. Measurable improvement in the water quality in response to 

implementation of best management practices is usually slow. 

2) The state-administered process for correcting water quality problems in a 

watershed is a lengthy one that usually includes partnerships. The BLM always 

plays a major role in these important partnerships, when the watershed contains 

public land. 

3) Improved methods of measuring the total number of miles and acres of water 

bodies on public land may affect the percentages of water bodies meeting state 

water quality standards. 

• The BLM has a new performance goal (Bureau Goal 1.1.18) to assure availability of a 

sufficient supply of water on BLM-managed land to meet all BLM management 

objectives. The Soil, Water and Air program will make progress toward that goal in 2009 

by meeting the annual accomplishment target. The BLM will participate in five state 

stream adjudications to support beneficial water uses on public land. Maintaining water 

in streams for recreation, and fish and wildlife habitat, and supplying water for range 

improvements are among the important uses. Approximately the same level of 

accomplishment achieved in 2008 is expected in 2009. 

• Soil survey and related ecological site descriptions will be completed on approximately 

1,000,000 acres in 2009. Soil survey provides base resource information for a wide 

variety of activities. Understanding and monitoring the condition of public land depends 

on identifying ecological sites, which in turn requires soil survey data. Nearly all 

planning from the land use plan to the project plan requires information on the 

capabilities and limitations of the soil. 

• Colorado River salinity control work will continue in 2009. The annual performance goal 

is to reduce transport of salt from BLM-managed lands into the Colorado River system 

by 1,000 to 5,000 tons of salt. In 2009 an estimated 46,000 tons of salt will be retained 

due to new projects and continued effectiveness of past projects on BLM-managed land. 

• In 2009 the Soil, Water, and Air Program anticipates active engagement in at least five 

of the six priority 2009 BLM emphasis areas. Focusing resources on these themes 

should provide the Soil, Water and Air Management and other subactivities with 

opportunities for increased efficiency. For example, coordinating Statewide and national 

priority work in the Healthy Lands Initiative will allow states to leverage their 

management expertise on key projects. 

3⁄4 Healthy Lands Initiative (HLI) - Soil survey and analysis, though not directly funded 

by Healthy Lands Initiative, will be used in establishing land potential and condition 

thresholds, and will serve in identifying high priority targets for the initiative. Over 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-39

700,000 acres of soil survey in 2009 will be in Healthy Land Initiative emphasis 

areas, providing base data for project work. Water quality improvement can provide 

local and regional measures of success in project areas. 

$3,000,000 for HLI project funding is the requested addition to the Soil, Water and 

Air Program in the 2009. These funds would yield the following additional 

accomplishments: 

• 69,322 acres of shrub and grass vegetation treatments 

• 8 shrub, grass, forest prjects will be constructed 

• 10 shurb, grass, and forest projects will be maintained 

• 21,600 acres of weed treatments 

• 41,000 acres of shrub and grass vegetation treatments monitored 

• 18 lake and stream projects constructed 

• 15 miles of monitoring condition of stream and riparian habitat 

• 1,300 acres of woodland will be restored 

• 30,200 weed treatments will be evaluated 

3⁄4 NLCS-National Monument and National Conservation Areas. 

$1,252,000 in annual funds for management of the NLCS previously contributed by 

the Soil, Water and Air subactivity will be shifted from the Soil, Water and Air 

subactivity to the NLCS-National Monument and National Conservation Areas 

subactivity in 2009. This transfer will result in reductions in accomplishments in 

many types of Soil, Water and Air work and equivalent increases in the NLCSNational Monument and National Conservation Areas subactivity accomplishments. 

The most significant in Soil, Water and Air reductions in 2009 will occur in the 

following work: 

• 1,238 water resource sites inventoried of water resources 

• 500 acres of grass/shrub/PJ vegetation inventoried 

• 33,500 acres of watershed assessment) 

• 5,020 acres of invasive/noxious weeds inventoried 

• 24 miles of streams and riparian area inventoried 

• 9 interdisciplinary plans completed 

• 9 water rights filings and other related actions would be taken 

• 400 acres of shrub/grass vegetation treatments 

• 5 shrub/grass/forest projects constructed 

• 625 acres of weeds treated 

• 20 air and climate sites monitored 

• 86 miles of stream and riparian habitat monitored 

• 120 water resources sites monitored 

• 1,210 acres of shrub and grass vegetation treatments monitored 

3⁄4 Community Growth. Growth of western communities and the management of 

adjacent public land resources are inextricably connected. Demand for water, 

suitability of soils for development, impacts on water quality, fire and vegetation 

management, and air quality are all in play along the wildland-urban interface and 

require contribution of the Soil, Water and Air program. This program will be a 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-40

valuable tool in addressing the impacts of community growth in 2009 and into the 

future. 

3⁄4 Energy and Non-Energy Development Resource development for energy and nonenergy commodities inevitably impacts land, water and air. In planning for wise use 

of resources on public land the Soil, Water and Air program will provide information 

to minimize the impacts. For those that do occur, mitigation of impacts on soil, water 

and air resources through implementation and effectiveness monitoring of best 

management practices will support nearly all resources. 

Abandoned Mine Lands 

Every AML project planned for 2009 will focus on physical safety, and/or environmental 

hazards. In 2009, the BLM plans to improve water quality on 2,931 acres by funding 

approximately 60 ongoing projects in 12 states. These projects are selected annually by a 

committee that uses AML priorities and established criteria to determine the projects for the 

year. Additionally, the AML Program plans to accomplish the following OIG recommendations:

• Improve the quality and quantity of location data of AMLs posing immediate dangers. 

• Deliver web based e-Learning with a curriculum founded on the AML Handbook. 

• Implement the Arizona zone-management model for better accountability in other states. 

• Place appropriate focus on the Saginaw, Kelly/Rand, Caselton, and Virginia City 

properties. 

• Study and propose alternatives to land withdrawal rules and processes that appear to 

allow reclaimed lands to be re-staked. 

• Collaborate with the Mining Law Administration Program to adequately enforce mining 

laws in order to prevent AMLs. 
Bureau of Land Management 2009 Budget J

Section III- Management of Lands and Resources Page III 

SOIL, AIR AND WATER MANAGEMENT PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 President's Budget 

Percent of DOI stream/shoreline miles that have achieved desired conditions where condition is known and as specified in management plans. (SP/PART) 

91% 

126,821/ 

140,096 

90% 

128,329/ 

143,209 

90% 

128,829/ 

143,290 

90% 

129,329/ 

143,290 

90% 

128,310/ 

143,290 

90% 

128,810/ 

143,290 

90% 

129,310/ 

143,290 

Total Actual/Projected Cost ($000) $15,104 $16,781 $14,918 0 $13,757 $17,879 $17,315 Actual/Projected Cost per Mile (in dollars) $119 $131 $116 $0 $107 $139 $134 Comments: 

 The denominator change in 2005 is based on BLM perfecting the inventory process which resulted in a more prestream/shoreline miles. BLM-Minimum desired condition is achieving proper functioning condition (PFC) and func

upward trend. 

Percent of DOI acres that have achieved desired conditions where condition is known and as specified in management plans. (SP/PART) 

45% 

115,991,274/ 

258M 

48% 

123,949,644/ 

258M 

48% 

123,952,644/ 

258M 

51% 

131,756,644/ 

258M 

52% 

135,410,846/ 

258M 

56% 

143,414,846/ 

258M 

59% 

151,418,846/ 

258M 

Total Actual/Projected Cost ($000) $44,914 $41,193 $46,987 $0 $56,330 $57,253 $64,302 Actual/Projected Cost per Acre (in dollars) $0.39 $0.33 $0.38 $0 $0.42 $0.40 $0.43 Comments: 

Two performance measures (wetlands and uplands) were combined to make one measure which counts total acr

2006 program assessment, BLM Forest Lands are now included and the denominator has been stabilized to show 

data. The new formula is shown beginning in 2004. Land Health Assessments being conducted through 2012 w

million acres each year to desired condition. This measure includes an increase for the Healthy Lands Initiative o

which will result in 72,079 acres treated, $922,964 in 2008 which will result in 55,114 acres treated, and $7,048,9result in 229,417 acres treated. Acres treated do not all reach desired condition in the first year. Treated acres h

achieving desired condition 25% in the first year and 25% each of the next three years. BLM-Minimum desired co

achieving proper functioning condition (PFC) and functioning at risk with an upward trend. Desired condition for u

Health Standards developed by the BLM State offices and approved by the Secretary in accordance with Title 43 
Bureau of Land Management 2009 Budget J

Section III- Management of Lands and Resources Page III 

SOIL, AIR AND WATER MANAGEMENT PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 President's Budget 

Percent of surface waters acres managed by DOI that meet State EPA Approved Water Quality Standards. (SP) 

Establish 

Baseline 

87% 

282,167/ 

324,628 

87% 

282,966/ 

324,628 

87% 

283,616/ 

324,628 

87% 

283,616/ 

324,628 

87% 

283,616/ 

324,628 

87% 

283,616/ 

324,628 

Comments: Support Measure - No cost will be shown. The BLM uses State EPA reports to provide results for this measure. Percent of surface waters (stream miles) managed by DOI that meet State (EPA Approved) Water Quality Standards. (SP) 

89% 

128,765/ 

144,138 

91% 

123,667/ 

136,327 

91% 

123,988/ 

136,327 

91% 

124,188/ 

136,327 

91% 

124,188/ 

136,327 

91% 

124,188/ 

136,327 

91% 

124,188/ 

136,327 

Comments: *Support Measure - No cost will be shown. The denominator change in 2005 is based on BLM perfecting the inve

resulted in a more precise inventory of stream/shoreline miles. The BLM uses State EPA reports to provide resu

Number of acres of inventory, assessment, and monitoring of upland and wetlands (Bur) 

74,474,220 90,036,856 47,437,263 39,717,222 43,658,752 44,263,051 44,263,051 

Total Actual/Projected Cost ($000) $66,880 $82,242 $74,099 $0 $77,750 $83,710 $81,735 Actual/Projected Cost per Acre (in dollars) $0.90 $0.91 $1.56 $0 $1.78 $1.89 $1.85 Comments: 

Acres of inventory, assessment, and monitoring are based on actual projects and will vary between years. The 2include large scale wildlife inventories in Alaska for the North Slope Science Initiative, and the Bering Glacier ChaPartnership. 

Number of projects constructed or maintained or activity plans developed to achieve desired conditions on uplands, wetlands, and riparian areas. (Bur) 

10,110 9,538 7,251 7,192 9,077 9,103 9,227 

Total Actual/Projected Cost ($000) $60,103 $50,170 $53,654 $0 $56,489 $57,000 $58,099 
Bureau of Land Management 2009 Budget J

Section III- Management of Lands and Resources Page III 

SOIL, AIR AND WATER MANAGEMENT PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 President's Budget 

Actual/Projected Cost per Project or Plan (in dollars) $5,945 $5,260 $7,400 $0 $6,223 $6,262 $6,297 Comments: 

This measure includes increases for the Healthy Lands Initiative of $73,758 in 2007, which will result in 6 stream/$511,486 in 2008, which will result in 12 lake/wetland projects, 11 shrub/grass projects, and 3 native plant materia$1,099,344 in 2009, which will result in 19 additional shrub/grass projects constructed, 25 shrub/grass projects m

stream/riparian projects constructed, and 44 stream/riparian projects maintained. Results for this measure are ba

planned and will vary between years. 

Number of DOI upland acres 

restored to the condition specified in management plans. (SP/PART) 

661,701 584,013 807,271 535,000 868,577 840,000 840,000 

Comments: * Support Measure - No cost will be shown. Data gathered in 2007 supports higher performance than originally p

target has been adjusted to reflect the new data. 

Percent of sites (acres) reclaimed or mitigated from the effects of degradation from past mining. (Bur) 

UNK UNK UNK 8% 300/ 3831 15% 564/ 3,831 23% 864/ 3831 30% 1164/ 3831 

Total Actual/Projected Cost ($000) 0 0 0 0 $15,383 $16,326 $16,360 Actual/Projected Cost per Acre (in dollars) $0 $0 $0 $0 $58,270 $54,419 $54,533 Comments: 

 In 2007, 3,831 acres of Abandoned Mine Lands were identified as in progress of remediation. The results showchanged to cumulative percent to track the progress of this phase of remediation. Prior year data was not cumulashown. The annual results for prior years included: 2004-336 acres. 2005-934 acres, and 2006-1,117 acres remof multi year projects were completed in 2005 and 2006. The Abandoned Mine Land program had a funding decr

2007 which results in reduced targets beginning in 2007. 

Number of actions taken to assure sufficient water supply to meet management objectives. (Bur) 

11,067 36,181 27,695 22,856 27,990 21,634 23,268 

Total Actual/Projected Cost ($000) $16,169 $17,145 $14,373 $0 $13,069 $12,184 $12,263 
Bureau of Land Management 2009 Budget J

Section III- Management of Lands and Resources Page III 

SOIL, AIR AND WATER MANAGEMENT PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 President's Budget 

Actual/Projected Cost per Action Taken (in dollars) $1,461 $474 $519 $0 $467 $564 $527 Comments: 

Measure is new in 2007. Historical data is provided for previous years. Results are actual projects planned and 

Refinement to the definition of actions counted in this measure will result in lower targets beginning in 2008. This 

increase for the Healthy Lands Initiative of $78,798 in 2009, which will result in 1,634 actions to meet managemen

Inventory Water Resources (number of stations monitored) 7,475 6,459 7,165 7,432 9,049 7,500 7,984 Soil Inventory (acres surveyed) 399,764 629,829 839,996 1,300,000 1,011,238 1,000,000 1,000,000 Complete watershed assessments (acres). 12,657,276 5,027,436 3,223,553 3,000,000 6,292,032 3,000,000 2,931,515 Process water rights actions (number). 9,840 13,561 8,992 8,000 9,896 8,000 7,991 Implement abandoned mine land projects to restore water quality (number). 

60 934 1,117 300 1,534 1,466 1,466 

Monitor air resources/climatic conditions (number of projects). 

284 344 325 300 238 200 190 

Assess climate conditions (number of projects) (New PE in FY 2008) UNK UNK UNK UNK UNK 100 100 Monitor water resources (number). 6,376 9,065 6,948 5,000 5,188 5,000 4,910 The 2009 column reflects a performance shift to the new NLCS National Monuments and National Conservation Areas subactivity which includes: 1,283 

inventoried; 33,485 acres of soil inventories; 9 water rights actions processed; 20 air resource/climatic conditions projects monitored; and 120 water resoperformance increase for the Healthy Lands Initiative which will result in 10 air resource/climactic conditions projects monitored, 1,477 water resources iresources monitored. For more details, please see the performance table at the end of the NLCS subactivity write-up. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III -45

Activity: Lands Resources 

Subactivity: Rangeland Management

Activity: Land Resources 

Subactivity: Range Management 

 2009 

 Fixed Costs & Program Change 

 2007 2008 

Related 

Changes Changes Budget 

from 

2008 

 Enacted Enacted (+/ -) (+/ -) Request (+/-) 

Range ($000) 68,263 73,036 +1,257 -3,567 70,726 -2,310

 

FTE 633 662 0 -20 642 -20

Other Major Resources: 

 

Major Program IT Investments: 

Nat'l Invasive Species Info Mgmt 

System: 010-04-01-02-02-0415-

00 118 59 59 0

RAS: 010-04-01-02-02-0423-00 500 500 -24 476 -24

RTSS: 010-04-01-02-02-0423-00 80 80 10 90 10

 

Summary of 2009 Program Changes for Range Management 

Request Component $0 FTE

Program Changes: 

• Restoration of NLCS funding to 2008 Request level -296 

• Elimination of 2008 Earmark: ID Dept of Agriculture - Weeds -984 

• Organizational & Administrative Streamlining -255 -1

• Travel & Relocation expenses -231 

• Performance Contracting savings -50 

• National Fish & Wildlife Foundation funding -345 

• Nat'l Monument & Nat'l Conservation Area funding (new subactivity created) -1,906 -20

• Healthy Lands Initiative funding to benefitting subactivity +500 +1

TOTAL, Program Changes -3,567 -20

JUSTIFICATION OF 2009 PROGRAM CHANGES

The 2008 budget request for the Rangeland Management program is $ 70,726,000 and 636 

FTE, a net program change of -$3,567,000 and -20 FTE from the 2008 enacted budget. 

Reduction of Unrequested NLCS Increase in 2008 (-$295,000) - In 2008, the Congress 

provided an additional $295,000 in the Rangeland Management program, for range 

management projects in the National Landscape Conservation System. This budget 

proposes reducing the Rangeland Management subactivity by $295,000 to address higher 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III -46

priorities. For more information about the new NLCS-National Monuments and National 

Conservation Areas subactivity, see Section III. 

Idaho Department of Agriculture Weed Management Activities Earmark (-$984,000) –

In 2008, Congress provided $984,000 in pass-through funding for the Idaho State 

Department of Agriculture. The Budget eliminates this earmark in order to fund higher 

priority BLM projects. The Idaho Department of Agriculture’s program promoting cooperative 

weed management activities is a well established organization and is fully capable of 

sustaining itself under State leadership. BLM’s continued commitment to supporting this 

program will continue to be implemented through the local BLM field offices, which provide 

technical support, equipment, chemicals, and limited indirect funding, as well as assistance 

in building good working relationships and partnerships at the local level. BLM will continue 

to fund a biocontrol technician position in support of BLM & IDA weed management efforts. 

National Fish and Wildlife Foundation (-$345,000) – This decrease reflects a reduction of 

pass-through funding that is provided to the National Fish and Wildlife Foundation (NFWF). 

NFWF is a well-established program that is able to independently generate significant 

amounts of funding. Reducing this funding will enable BLM to target funds to other priority 

areas. The BLM will continue to work cooperatively with the NFWF to conserve wildlife 

resources on BLM land where possible. 

National Monuments and National Conservation Areas Subactivity (new subactivity 

created) (-$1,906,000) - The BLM is proposing a new subactivity to fund base operations at 

National Monuments and National Conservation Areas. As a result, $1.9 million is shifted 

from the Rangeland Management subactivity to the new subactivity. The funding shifted 

from the Rangeland Management subactivity is funding currently spent in the National 

Monuments and National Conservation Areas, to meet the goals of the Rangeland 

Management program. The funding will continue to be spent on Rangeland Management 

priorities but will be managed through the NLCS-National Monuments and National 

Conservation Areas subactivity. Performance in the Rangeland Management subactivity will 

decrease due to the funding shift; however, this performance will be shifted to the NLCSNational Monuments and National Conservation Areas subactivity and is shown in the 

performance goals for that subactivity. For more information about the new NLCS-National 

Monuments and National Conservation Areas subactivity, see section III. 

Healthy Lands Initiative program (+$500,000) - The BLM proposes an increase of 

$500,000 for the Healthy Lands Initiative funding that is contained in the Rangeland 

Management subactivity. In 2008, Congress provided $2,461,000 for Healthy Lands 

Initiative funding in this subactivity. BLM eliminated the single subactivity for the Healthy 

Lands Initiative and distributing the funding among seven subactivities. For 2009, BLM 

proposes a total of $2,961,000 in the Rangeland Management subactivity, an increase of 

$500,000. The total funding request for the Healthy Lands Initiative is $14,922,000. The 

distribution of funding between subactivities, and the work to be performed, is described in 

the Healthy Lands Initiative chapter in the Crosscutting Activities section of the 

Justifications. 

Program changes for the HLI program will assist the BLM in achieving performance goals 

by: 

- collection of monitoring and assessment data, 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III -47

- development and implementation of activity plans to address allotment and 

landscape level grazing management, and 

- development and implementation of rangeland improvements to benefit wildlife, 

range, watershed resources on a landscape level. 

Program Performance Change 

2005 Actual 2006 

Actual 

2007 

Actual 2008 Plan 

2009 Base 

Budget 

(2008 

Planned + 

Fixed 

Costs) 

2009 Presidents 

Budget 

Program 

Change 

Accruing in 

2009 

Program 

Change 

Accruing 

in Outyears 

A B=A+C C D 

Percent of grazing 

permits and 

leases processed 

as planned 

consistent with 

applicable 

resource 

management 

plans. [SP] 

117% 

2,730/ 

2,342 

103% 

2,565/ 

2,479 

79% 

2,058/ 

2,600 

85% 2210/ 

2,600 

85% 

2210/ 

2,600 

90% 3,245/ 

3,606 +5% 

100% 

1,355/ 

1,355 

Total 

Actual/Projected 

Cost ($000) 

18,908 21,027 23,792 26,476 26,476 25,654 -822 0 

Actual/Projected 

Cost Per acre 

$6,926 $8,198 $11,560 $11,980 $11,980 $7,906 -4,074 0 

Comments The grazing strategy or planned number considers all permits due for renewal and a portion of the existing backlog to be completed by each 

office during the reporting period. A customer service standard is being implemented in 2007 to reduce the permits in backlog status. 

Issue Grazing 

Allotment 

Permits/Leases 

(number) 

2,691 2,410 2,927 2,780 2,780 3,245 +465 0 

Total 

Actual/Projected 

Cost ($000) 

$8,152 $10,019 $12,655 $12,019 $12,019 $14,030 +$2,010 0 

Actual/Projected 

Cost Per acre $3,029.36 $4,157.37 $4,323.64 $4,323.64 $4,323.64 $4,323.64 $4,323.64 0 

Comments 

Monitor Grazing 

Allotments 

(number) 3,147 2,683 3,037 2,537 2,537 2,497 -40 0 

Total 

Actual/Projected 

Cost ($000) 

$18,698 $15,901 $15,741 $13,149 $13,149 $12,942 -$207,324 0 

Actual/Projected 

Cost Per acre $5,941.54 $5,926.68 $5,183.11 $5,183.11 $5,183.11 $5,183.11 $5,183.11 0 

Comments 

Shrub/Grass 

Vegetation 

Treatments 53,064 75,406 42,424 80,500 80,500 96,760 +16,260 0 

Total 

Actual/Projected 

Cost ($000) 

$1,125.49 $1,024.77 $1,519.20 $2,882.71 $2,882.71 $3,464.98 +$582.27 0 

Actual/Projected 

Cost Per acre $21.21 $13.59 $35.81 $35.81 $35.81 $35.81 $35.81 0 

Comments 

Monitor 

Shrub/Grass 

Vegetation 

Treatments 

152,257 83,682 13,550 9,400 9,400 10,000 +600 0 

Total 

Actual/Projected 

Cost ($000) 

$316.694 $503.765 $49.457 $34.310 $34.310 $36,500 $2,190 0 

Actual/Projected 

Cost Per acre $2.08 $6.02 $3.65 $3.65 $3.65 $3.65 $3.65 0 

Comments 

Inventory for 4,168,702 6,409,245 6,903,116 5,400,000 5,400,000 5,913,911 +513,911 0 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III -48

Program Performance Change 

2005 Actual 2006 

Actual 

2007 

Actual 2008 Plan 

2009 Base 

Budget 

(2008 

Planned + 

Fixed 

Costs) 

2009 Presidents 

Budget 

Program 

Change 

Accruing in 

2009 

Program 

Change 

Accruing 

in Outyears 

A B=A+C C D 

Presence of 

Invasive and/or 

Noxious weeds 

(acres). 

Total 

Actual/Projected 

Cost ($000) 

$1,625.793 $1,730.496 $2,139.965 $1,674.000 $1,674.000 $1,833.312 +$159.312 0 

Actual/Projected 

Cost Per acre $0.39 $0.27 $0.31 $.31 $.31 $.31 $.31 0 

Comments 

Apply Weed 

Treatments 

(acres). 205,256 135,787 231,727 245,000 245,000 265,698 +20,698 0 

Total 

Actual/Projected 

Cost ($000) 

$6,014.000 $4,550.22

2 $5,953.066 $6,294.050 $6,294.050 $6,825.781 +531.731 0 

Actual/Projected 

Cost Per acre $29.30 $33.51 $25.69 $25.69 $25.69 $25.69 $25.69 0 

Comments: 

Evaluate Weed 

Treatment (acres) 229,717 278,351 236,000 227,000 227,000 223,925 -3,075 0 

Total 

Actual/Projected 

Cost ($000) 

$728.202 $2,274.81

1 $1,243.720 $1,196.290 $1,196.29

0 $1,180.084 -$16.206 0 

Actual/Projected 

Cost Per acre $3.17 $2.26 $5.27 $5.27 $5.27 $5.27 $5.27 0 

Comments: 

Evaluate 

Rangeland Health 1,287 1,408 1,586 1,488 1,488 1,484 -4 0 

Total 

Actual/Projected 

Cost ($000) 

$7,646.761 $8,344.76

5 $8,220.412 $7,712.467 $7,712.467 $7,691,735.20 -$20,732.44 0 

Actual/Projected 

Cost Per acre $5,941.54 $5,926.68 $5,183.11 $5,183.11 $5,183.11 $5,183.11 $5,183.11 0 

Comments: 

The 2009 column contains performance increases for the Healthy Lands Initiative as follows: 44,760 shrub/grass treatments, 10,244 acres of 

weed treatments applied, 101,801 acres of weeds inventoried, 868 acres of weed treatments evaluated, 4642 shrub/grass treatments monitored, 

10 rangeland health evaluations, 29 grazing allotments monitored, and 47 grazing allotment/permits/leases issued. 

Note: Projected costs may not equal program change as these are full costs, which may include funds from other sources and (or) use averages. 

Column A: The level of performance and costs expected in 2009 at the 2008 level plus funded fixed costs. Reflects the impact of prior year funding changes, 

management efficiencies, absorption of prior year fixed costs, and trend impacts, but does not reflect the proposed program change. 

Column D: Outyear performance beyond 2009 addresses lagging performance — those changes occurring as a result of the program change (not total budget) requested 

in 2009. It does not include the impact of receiving the program change again in a subsequent out-year. 

PROGRAM OVERVIEW

Program Components – Rangeland is land on which the indigenous vegetation is 

predominantly grasses, grass-like plants, forbs, or shrubs and is managed as a natural 

ecosystem. If plants are introduced, they are managed similarly. Rangelands include 

natural grasslands, shrublands, savannas, oak and pinyon-juniper woodlands, deserts, 

tundra, alpine communities, marshes, wet meadows, and riparian zones. The Rangeland 

Management Program is responsible for: 

• Vegetation management that supports the Department’s strategic goals for sustaining 

biological communities and improving the health of landscapes and watersheds through 

management of 187 million acres of lands within the 12 western states, including Alaska. 

Proper vegetation management on these lands provides for a variety of products and 

values, including wildlife habitat, forage for livestock, recreational opportunities, open 

space, scenic beauty, and watersheds. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III -49

• Maintaining land health while supporting multiple uses. This is accomplished through 

permit terms and conditions, range improvements, monitoring, and working with a variety 

of external partners. Rangeland conservation and restoration efforts are targeted 

towards priority watersheds to achieve integrated resource objectives. 

• Invasive species and noxious weed management. An important facet of the BLM’s 

multiple-use mission is the management of vegetation and the protection of the soil 

resource on public lands. To meet that responsibility, the BLM completed a multi-year 

effort in 2007 to develop a 

programmatic environmental impact 

statement and environmental report 

that contains national guidance for 

using herbicides and other treatment 

methods to manage vegetation on 

BLM-administered public lands in 12 

western states. This effort also 

supports implementation of the 

National Fire Plan and the Healthy 

Forests Restoration Act of 2003 by 

taking more aggressive actions to 

reduce catastrophic wildfire risk on 

public lands. 

• Livestock administration. This is 

guided by the Grazing Regulations, 

Fundamentals of Rangeland Health, 

and Standards and Guidelines for 

Grazing Administration. Primary 

authorities for the BLM to carryout its 

program include the Taylor Grazing Act of 1934, as amended, the Federal Land Policy 

and Management Act of 1976, and the Public Rangelands Improvement Act of 1978. 

The Rangeland Management Program supports: 

• Healthy Lands Initiative 

• Conservation in coordination with NLCS (National Landscape Conservation System). A 

total of 20 FTE and $1,906,000 will be moved to the new NLCS-National Monuments & 

Conservation Areas subactivity in 2009. 

Long Term Vision– The long term vision for the Rangeland Management Program 

includes:

• Complete ecological site descriptions and land health evaluations for local, regional and 

national use; 

Proper livestock grazing management on public 

rangelands continues to be an achievable objective 

within the Healthy Lands Initiative to maintain and 

improve land health. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III -50

• Collecting monitoring and assessment data, evaluating effectiveness, and adapting 

management as needed to improve resource condition and trend; 

• Achieve land use plan vegetative and watershed goals and objectives, and land health 

standards through implementing management actions; 

• Stabilize livestock grazing permit security by efficiently processing 10 year grazing 

permits/leases and transfers; 

• Preventing the introduction and spread of new invasive species and reducing the 

number of acres infested with invasive or noxious weeds. 

• Return western landscapes to their normal fire cycle, with an emphasis on the Great 

Basin. 

Critical Factors- Critical factors affecting the Rangeland Management Program 

performance include: 

• Climate change and its potential to affect specific long-term vegetation management 

goals. 

• Fire cycle, especially with annual grasses, that challenge restoration practices. 

• Enjoined grazing rule, increasing litigation, protests and appeals on EAs and RMPs, and 

Freedom of Information Act (FOIA) workloads impact ability to complete monitoring, land 

health assessments, permit renewals, treatments, and projects. 

• Existing regulation, policy and NEPA requirements has resulted in permit renewal being 

a major office workload keeping staff out of the field where they should concentrate on 

land health assessments, evaluations, monitoring, and allotment management planning. 

• Elimination of the 8100/8200 (Range Improvement) Program has been a principle 

funding source for addressing areas not achieving land health standards due to livestock 

grazing. 

• An increasing factor influencing the ability to conduct more monitoring and land 

treatments is the number of protests and appeals filed on grazing decisions by outside 

interests. 

Means and Strategies - The Rangeland Management Program’s means and strategies to 

achieve performance goals are:

1) Issue permit/lease renewals through improved RMP analysis, utilize criteria for 

prioritizing allotments, prioritize allotments for processing use large geographic areas 

to conduct land health evaluations and subsequent NEPA analysis,;

2) Implement the Vegetation Management Treatment EIS and ER (Environmental 

Record) to manage noxious weeds and invasive species, and other vegetation;

3) Implement the Interagency Ecological Site standards and definitions which will 

enable Federal agencies to share data across agencies;

4) Enhance land health assessment and evaluation across programs, scales and into 

RMPs; 

5) Enhance data management systems to support management needs and provide for 

public disclosure; and 

6) Implement the results of the DOI emergency stabilization and rehabilitation 

evaluation to manage cost effectiveness and treatment effectiveness.

Other Funding Sources - The activities of the Rangeland Management Program are 

funded by three primary sources other than appropriated funds 

• BLM can enter into agreements with stakeholders, usually grazing permittees, to 

collect monitoring data using contributed labor; 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III -51

• Weed management often occurs in partnership with County weed boards or County 

government. These may involve funding, in-kind-labor, or volunteer work; and 

• A portion of the grazing fees returned to BLM Field/District Offices (8100/8200 

program funds) are used to fund weed management, facilitate improved grazing 

management, and implement projects to meet land health standards. 

Strategic Plan – The Rangeland Management Program supports the Resource Protection 

mission goal from the Department’s Strategic Plan as well as the BLM Directors’ emphasis 

area of Managing Rangelands and Forests to achieve Healthy and Productive Watersheds. 

The outcome measures are related to increasing the quantity and quality of sagebrush 

steppe, grasslands, forest lands, and water quality. The key intermediate outcome 

measures include increasing the percent of lands managed or influenced by the BLM for 

which conditions are known, and the percent of priority acres targeted for restoration where 

treatments are completed to achieve a desired condition. . Desired condition for uplands is 

achieving Land Health Standards developed by the BLM State offices and approved by the 

Secretary in accordance with Title 43 CFR 4180.2. The description of desired condition 

includes measurable objectives for the identified attributes, including physical, chemical, 

hydrologic, and biologic attributes. The desired condition for a particular area may or may 

not be the attributes that represent natural conditions or indicate that natural processes 

predominate in the area. Primary output measures for the rangeland management areas 

include inventories (emphasis on invasive and noxious weeds), conducting assessments 

(emphasis on healthy rangelands and permit renewals), and implementing projects in 

upland areas that focus on landscape scale projects as described in the Healthy Lands 

Initiative (HLI), sage-grouse habitat restoration, ensuring environmentally sound energy 

development, and management of OHV use through involvement in the land use planning 

and NEPA process. (See the “Rangeland Management Performance Summary” at the end 

of this program discussion). 

The Rangeland Management Program also supports the Resource Use mission goal from 

the Department’s Strategic Plan as well as the BLM Directors’ emphasis area of providing 

commodity uses with issuance of grazing permits. . 

2009 PROGRAM PERFORMANCE 

2007 Program Accomplishments- In 2007, the Rangeland Management Program 

accomplished the following:

• 2,058 grazing permits were fully processed. An additional 869 permits were issued 

using the authority provided in PL 108-108. The average cost to issue these permits 

was $5,178 per permit.

• 489 range improvement projects were completed.

• 868,577 acres of rangeland were restored to conditions specified in management 

plans.

• 6.9 million acres were inventoried for the presence of invasive plant species.

• 231,727 acres were treated for invasive plant species.

• Monitoring was conducted on 3,037 allotments and land health evaluated on 1,586 

allotments.

2008 Planned Program Performance 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III -52

Rangeland Management and Grazing Permit Renewals- Emphasis will be placed on 

issuing grazing permit/lease renewals, building partnerships essential to ensure a 

successful weed management program, and providing vegetative technical support to all 

other programs and use authorizations in a timely, efficient, and environmentally responsible 

manner. 

Processing and issuing 10 year livestock grazing permits and leases continues to be the 

principle workload focus for the program. In 2007, a total of 2,927 permits and leases were 

issued using Congressional language. In 2008, a total of 2,780 permits and leases are 

planned to be issued. In order to more efficiently and effectively address the current permit 

workload, the next spike of expiring permits in 2009 and 2010, and the future workload of 

expiring permits, the Rangeland Management Program is updating the grazing 

administration manuals and handbooks. These documents are being updated to address 

the following challenges: 

• timely processing of expiring permits and requests for livestock grazing transfers 

• managing the competing demands for interdisciplinary team work for other priorities 

(e.g., planning, weeds management, Healthy Lands Initiative, and energy). 

Work will include completing an integrated land health assessment for priority rangelands 

and developing a variety of alternatives including range improvements and vegetation 

treatments on areas where changes are needed to meet land health standards. All existing 

data, land health assessments, and monitoring data will be collected and evaluated on 

grazing allotments to determine if land health standards are met, and if not, whether current 

livestock grazing management is a significant causal factor. The BLM will develop 

environmental assessments with full public disclosure on those allotments not meeting 

standards because of current livestock grazing management. 

Support for Healthy Lands Initiative - The Rangeland Management Program supports the 

Healthy Land Initiative through collection of monitoring and assessment data, development 

and implementation of activity plans to address allotment and landscape level grazing 

management, and development and implementation of rangeland improvements to benefit 

wildlife, rangeland, and watershed resources on a landscape level. 

Sage Grouse & Sagebrush Habitats - Continue to conduct rangeland management and 

implement actions to support cooperative conservation of sage-grouse and sagebrush 

habitats on public lands using guidance from the National Sage-Grouse Habitat 

Conservation Strategy (Nov. 2004) and the National Sage-Grouse Habitat Conservation 

Strategy Business Plan (July 2006). 

Rangeland management and grazing permit renewal work planned in 2008 includes: 

• Issuing 2,780 livestock grazing permits, 

• Treating 80,500 acres of shrub and grass vegetation, 

• Monitoring 9,400 acres of shrub and grass vegetative treatments, 

• Monitoring 2,537 grazing allotments, and 

• Completing 1,488 rangeland health evaluations. 

Weed Management and Invasive Species Program - Ongoing early detection and rapid 

response systems are being implemented on all BLM lands especially in areas where the 

BLM is facing emerging invasive species issues such as Sudden Oak Death in 

California/Oregon, Dreissena polymorpha (Zebra mussels) in Arizona/Nevada, and 

Cactoblastis cactorum (Cactus moth) which is slowly spreading in the Southern U.S. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III -53

Partners are essential to ensuring success in BLM’s weed management and invasive 

species program. Noxious or invasive weed management is being pursued using BLM’s 

Partners Against Weeds Action Plan (PAW) across three areas of emphasis: education, 

inventory, and control. These areas of emphasis are also identified in the National Invasive 

Species Management Plan. Partnerships serve as a clearinghouse for documenting 

noxious weed locations and treatment efforts. BLM offices will continue to develop and 

implement Coordinated Weed Management Areas (CWMA’s) and coordinate management 

plans on high priority areas, including lands found within the National Landscape 

Conservation System. One public concern is that western States vegetative resources are 

responding to global climate change where native and sensitive species will be increasingly 

replaced by more aggressive introduced species. The rate and magnitude of this 

conversion is not yet well understood. 

Infestations of leafy spurge and other emerging invasive weeds infest more than five million 

acres of land in 35 States and the prairie provinces of Canada. Leafy spurge is a native of 

Eurasia that causes significant problems by invading grazing lands for cattle and horses, 

reducing rangeland productivity and plant diversity, degrading wildlife habitat, displacing 

sensitive species, and drastically reducing land values. Habitat occupied by leafy spurge 

has doubled in acreage every ten years since the early 1900s and is expanding beyond its 

foothold in the western United States. In the Northern Great Plains, BLM manages lands in 

eastern Montana, western North Dakota, and the northwest corner of South Dakota 

extending to the banks of the Missouri River. Of the 214,000 acres of public lands in the 

Great Plains infested with invasive species, 204,000 acres, or 96 percent, are infested with 

leafy spurge. 

Tamarisk is an introduced invasive shrub-tree that was planted decades ago along 

waterways and railroad rights-ofways for erosion control and to 

serve as windbreaks. Its prolific 

reproductive traits and broad 

ecological tolerances have allowed 

tamarisk to spread quickly within 

the 12 western States, adversely 

affecting many water dependent 

activities across the southwestern 

United States. Along the Rio 

Grande River, in particular, 

tamarisk threatens water transport 

and is resulting in the loss of 

wildlife habitat. Tamarisk adversely 

affects community water supplies, 

replaces native vegetation and 

associated fauna, and modifies soil 

chemistry, river channels, and 

stream flows, as well as increases 

the risk of flooding during heavy rainfall episodes. Tamarisk infests an estimated two million 

acres of riparian lands in the western States. In the Rio Grande River Basin area, which 

covers the Rio Grande Basin from north of Albuquerque, New Mexico, to below Big Bend 

National Park, tamarisk infests an estimated 57,000 acres of public land and has now been 

detected as far north in parts of Wyoming and Montana. 

Angora goats controlling leafy spurge. BLM actively pursues 

integrated vegetation methods to control invasive and noxious 

weeds. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III -54

Weed management work planned in 2008 includes: 

• Conducting periodic and systematic weed and other invasive specie(s) inventories on 

approximately 5.4 million acres; 

• Supporting invasive and noxious weed control and management of weed-infested sites 

in sagebrush communities to enhance sage grouse habitat in western states with native 

sagebrush communities; 

• Treating 245,000 acres of weeds and invasive species to achieve desired condition; and 

• Evaluating weed treatments on 227,000 acres. 

2009 Program Performance 

Interior Provision Section 418 requests – Interior General Provision Section 418 requests 

an extension of the Section 325 of the Department of the Interior and Related Agencies 

Appropriations Act 2004, PL 108-108 for permit/lease renewal for an additional year. 

Rangeland Management and Grazing Permit Renewals - Due to the categorization of 

permits and leases along with the Interior General provisions Section 418 request and new 

manuals and handbooks to be issued by BLM in 2008, less time is anticipated to be 

necessary to issue permits/leases and transfers. An increased emphasis will be to refocus 

rangeland management specialists’ time in the field to collect monitoring and assessment 

data, and plan/implement grazing management plans and associated range improvements 

to improve land health. Building partnerships will continue to ensure a successful weed 

management program. Providing vegetative technical support to all other programs and for 

use authorizations will continue in a timely, efficient, and environmentally responsible 

manner. Processing and issuing 10 year livestock grazing permits and leases will become 

more administrative and less time consuming where allotments achieve land health 

standards. 

Rangeland management and grazing permit renewal work planned in 2009 includes: 

• Issuing 3,245 livestock grazing permits, 

• Treating 96,760 acres of shrub and grass vegetation to achieve desired condition, 

including 44,800 acres in HLI areas, 

• Monitoring 10,000 acres of shrub and grass vegetative treatments, including 4,600 acres 

in HLI areas, 

• Monitoring 2,497 grazing allotments, including 29 allotments in HLI areas, and 

• Completing 1, 484 rangeland health evaluations, including 10 allotments evaluated in 

HLI areas. 

Weed Management and Invasive Species Program - Emerging invasive species on BLM 

lands throughout the west will require the BLM to expand its ongoing early detection and 

rapid response systems (EDRR) and implement EDRR in areas where the BLM faces 

invasive species that were limited in their expansion and/or previously unknown to the west 

such as Sudden Oak Death in California/Oregon, Quagga mussels (most likely Dreissena 

polymorpha - Zebra mussels) in Arizona/Nevada, and Cactoblastis cactorum (Cactus moth)

which is slowly, but steadily spreading in the Southern U.S. Partners are crucial for the BLM 

to succeed in detecting, controlling and managing noxious weeds and other invasive 

species. The BLM actively pursues noxious or invasive weed management emphasis using 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III -55

BLM’s Partners Against Weeds Action Plan (PAW) in three areas of: education, inventory, 

and control. These areas are also emphasized in the National Invasive Species 

Management Plan. Collaborative efforts as well as partnerships serve as a clearinghouse for 

documenting noxious weed locations and treatment efforts. BLM offices will continue to 

develop and implement Coordinated Weed Management Areas (CWMA’s) and coordinate 

management plans on high priority areas, including lands found within the National 

Landscape Conservation System. It is not yet well understood what the rate and magnitude 

of the conversion of native species that are being replaced by more aggressive species is 

contributed from global climate changes and how it is increasing the rate of desertification; 

however, there is public concern that western States vegetative resources are responding to 

changes and the BLM faces vegetation management issues for maintaining and restoring 

the public lands. 

 

Infestations of non-native grasses such as annual brome species (red brome, downey 

brome or cheatgrass) now infest more than 25 million acres of public lands in the West 

creating fire-prone ecosystems as well as impacting critical habitat for species such as sage 

grouse. Other species such as leafy spurge and other invasive weeds infest more than five 

million acres of land in 35 States and the prairie provinces of Canada. Leafy spurge, a 

native of Eurasia has already caused significant problems by invading grazing lands for 

cattle and horses, reducing rangeland productivity and plant diversity, degrading wildlife 

habitat, displacing sensitive species, and drastically reducing land values. Habitat occupied 

by leafy spurge has doubled in acreage every ten years since the early 1900s and is 

expanding beyond its foothold in the western United States. 

Water thirsty Tamarisk, also known as Salt Cedar, is an introduced shrub-tree planted 

decades ago along waterways for erosion control and to serve as windbreaks. Tamarisk’s 

prolific reproductive traits and broad ecological tolerances has already affected many water 

dependent activities across the southwestern United States and is now found within the 12 

western States In the Rio Grande River Basin area, which covers the Rio Grande Basin from 

north of Albuquerque, New Mexico, to below Big Bend National Park, Texas. Tamarisk 

interferes with water transport resulting in the loss of wildlife habitat and now infests an 

estimated two million acres of riparian lands in the western States. Tamarisk can now be 

found as far north as in Wyoming and Montana. Without control and management, Tamarisk 

will continue to adversely affect community water supplies, increase the frequency of 

wildfires, replace native vegetation and associated fauna, while molding soil chemistry, river 

channels, and stream flows, as well as increases the risk of flooding during heavy rainfall 

episodes. 

Weed management work planned in 2009 includes: 

• Conducting periodic and systematic weed and other invasive specie(s) inventories on 

approximately 6 million acres, including 101,800 acres in HLI areas; 

• Supporting invasive and noxious weed control and management of weed-infested sites 

in sagebrush communities to enhance sage grouse habitat in western states with native 

sagebrush communities; 

• Treating 250,,000 acres of weeds and invasive species to achieve desired condition, 

including 18,400 acres in HLI areas; and 

• Evaluating weed treatments on 227,000 acres, including 9,400 acres in HLI areas. 

Support for Healthy Lands Initiative - The Rangeland Management Program proposes 

$2.96 million to support the Healthy Land Initiative through collection of monitoring and 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III -56

assessment data, development and implementation of activity plans to address allotment 

and landscape level grazing management, and development and implementation of 

rangeland improvements to benefit wildlife, rangeland, and watershed resources on a 

landscape level. 

Work planned in Healthy Lands Initiative units include: 

• Apply shrub and grass treatments on 67,455 acres, 

• Conduct weed treatment on 21,500 acres, 

• Evaluate weed treatments on 39,840 acres, 

Sage Grouse & Sagebrush Habitats - Continue to conduct rangeland management and 

implement actions to support cooperative conservation of sage-grouse and sagebrush 

habitats on public lands using guidance from the National Sage-Grouse Habitat 

Conservation Strategy (Nov. 2004) and the National Sage-Grouse Habitat Conservation 

Strategy Business Plan (July 2006). 

Integration with other Programs

– The Rangeland Management 

Program often provides the 

communication link between 

permittees and other programs as 

projects and plans are 

implemented. For example, the 

rangeland management specialist 

is responsible for coordinating 

livestock management following 

prescribed fire and other 

vegetation management projects 

and often provides the expertise 

for vegetation restoration and 

rehabilitation activities. Rangeland 

management specialists are often 

the resource advisors on wildfire firefighting teams because they are often the most familiar 

with terrain and the resources at risk. Interdisciplinary teams that assess and evaluate 

rangeland health are usually led by a range specialist who helps identify ecological sites and 

potential vegetation communities in order to classify wildlife habitat and it’s potential. 

Use of Cost and Performance Information in the 

Rangeland Management Program 

One of the highest priorities for grazing administration is 

the processing of grazing permit renewals. Field Offices 

are facing challenges to achieve this task over the past 

several years with a large backlog of permits and leases 

that are not yet fully processed. The BLM’s Activity Based 

Costing data is used to evaluate output unit costs of 

permit/lease workload measures and overall costs of 

producing these units. The ABC data has been used to 

help generate questions to Range Specialists in order to 

develop a Grazing Strategy to process permits/leases more 

efficiently. ABC data was also used to assist with 

formulation of questions relating to permit renewals and 

land health assessment processes for two State Alternative 

Internal Control Reviews that were conducted in 2007. 
Bureau of Land Management 2009 Budget 

Section III- Management of Lands and Resources 

RANGELAND MANAGEMENT PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 President's Budget Change 

2008 Pl

200

Percent of grazing permits and leases processed as planned consistent with applicable resource management plans. [SP] 

108% 

2512/ 

2329 

117% 

2,730/ 

2,342 

103% 

2,565/ 

2,479 

100% 

2,600/ 

2,600 

79% 

2,058/ 

2,600 

85% 

2210/ 2,600 

90% 

3,245/ 

3,606 

+5% 

Total Actual/Projected Cost ($000) 19,513 18,908 21,027 0 23,792 26,476 25,654 -$82Actual/Projected Cost per permit or lease (in dollars) $7,768 $6,926 $8,198 $0 $11,560 $11,980 $7,906 -$4,0Comments: 

The grazing strategy or planned number considers all permits due for renewal and a portion of the existing backlog 

by each office during the reporting period. A customer service standard is being implemented in 2007 to reduce th

backlog status. 

Cost per grazing permit/lease for processing and issuing grazing permits/leases. [SP] 

$4,227 $4,088 $4,956 $5,000 $5,178 $5,178 $5,178 0% 

Comments: 

* Support Measure - No cost will be shown. Increases in 2006 of protests and appeals, and increases in labor cos

increase in the cost of issuing grazing permits and leases which will continue in 2007 and 2008. 

Average time (average reduction, number of days) for processing and issuance of grazing permits and leases (lower number is good). [SP] 

215 207 204 204 116 116 116 0% 

Comments: * Support Measure - No cost will be shown. BLM has reduced the processing time for grazing permits and leases 

204 days over a three year period beginning in 2003. 

Percent of range improvements completed as planned. [SP] 

new 

measure 

new 

measure 

new 

measure 

95% 

95/ 100 

104% 

489/ 469 

95% 

446/ 469 

95% 

446/ 469 0% 

Comments: * Support Measure - No cost will be shown. This is a new measure. Historical data is not available. The target pe

95/100 was used until the baseline could be established. 

Percent of DOI acres that have achieved desired conditions where condition is known and as specified in management plans. (SP/PART) 

45% 

115,991,274/ 

258M 

48% 

123,949,644/ 

258M 

48% 

123,952,644/ 

258M 

51% 

131,756,644/ 

258M 

52% 

135,410,846/ 

258M 

56% 

143,414,846 

/ 258M 

59% 

151,418,846/ 

258M 

+3% 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page 

RANGELAND MANAGEMENT PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 President's Budget Change 

2008 Pl

200

Total Actual/Projected Cost ($000) $44,914 $41,193 $46,987 $0 $56,330 $57,253 $64,302 +$7,0Actual/Projected Cost per Acre (in dollars) $0.39 $0.33 $0.38 $0 $0.42 $0.40 $0.43 +$.0Comment: 

Two performance measures (wetlands and uplands) were combined to make one measure which counts total acrethe 2006 program assessment, BLM Forest Lands are now included and the denominator has been stabilized to sconsistent trend data. The new formula is shown beginning in 2004. Land Health Assessments being conducted 

add approximately 8 million acres each year to desired condition. This measure includes an increase for the Healt

of $2,897,492 in 2007 which will result in 72,079 acres treated, $922,964 in 2008 which will result in 55,114 acres 

$7,048,935 in 2009, which will result in 229,417 acres treated. Acres treated do not all reach desired condition in t

Treated acres here are shown as achieving desired condition 25% in the first year and 25% each of the next three 

Minimum desired condition for wetlands is achieving proper functioning condition (PFC) and functioning at risk with 

Desired condition for uplands is achieving Land Health Standards developed by the BLM State offices and approv

in accordance with Title 43 CFR 4180.2. 

Contributing Programs: Soil, Water, and Air Management, Forestry Management, Riparian Management, Challenge Cost Share, Oregon a

Lands 

Number of projects constructed or maintained or activity plans developed to achieve desired conditions on uplands, wetlands, and riparian areas. (Bur) 

10,110 9,538 7,251 7,192 9,077 9,103 9,227 +2% 

Total Actual/Projected Cost ($000) $60,103 $50,170 $53,654 $0 $56,489 $57,000 $58,099 +$10Actual/Projected Cost per Project or Plan (in dollars) $5,945 $5,260 $7,400 $0 $6,223 $6,262 $6,297 +$3Comment: 

This measure includes increases for the Healthy Lands Initiative of $73,758 in 2007, which will result in 6 stream/ri

$511,486 in 2008, which will result in 12 lake/wetland projects, 11 shrub/grass projects, and 3 native plant materia$1,099,344 in 2009, which will result in 19 additional shrub/grass projects constructed, 25 shrub/grass projects ma

additional stream/riparian projects constructed, and 44 stream/riparian projects maintained. Results for this measu

actual projects planned and will vary between years. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page 

RANGELAND MANAGEMENT PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 President's Budget Change 

2008 Pl

200

Number of DOI upland acres restored 

to the condition specified in management plans. (SP/PART) 

661,701 584,013 807,271 535,000 868,577 840,000 840,000 0% 

Comment: 

* Support Measure - No cost will be shown. Data gathered in 2007 supports higher performance than originally pla

target has been adjusted to reflect the new data. The Rangeland Management program contribution in 2007, is 47

the 535,000 acres. 

Percent of baseline acres infested with invasive plant species that are 

controlled. (SP) 

Establish 

Baseline 

0.9% 

317,959/ 

35,763,000 

1.0% 

310,332/ 

35,763,000 

0.9% 

318,000/ 

35,000,000 

1.0% 

338,585 

35,000 000 

1.0% 

338,585 

35,000 000 

1.0% 

338,585 

35,000 000 

0% 

Total Actual/Projected Cost ($000) $0 $2,903 $3,495 $0 $3,575 $3,925 $3,837 -$88 Actual/Projected Cost per Acre 

(in dollars) $0 $9 $11 $0 $11 $12 $11 -$1 

Issue Grazing Allotment Permits/Leases (number) 2,512 2,691 2,410 2,600 2,927 2,780 3,245 +46Evaluate Rangeland Health (number) 1,494 1,287 1,408 1,300 1,586 1,488 1,484 -4 Monitor Grazing Allotments (number) 3,573 3,147 2,683 2,500 3,037 2,537 2,497 -40 Shrub/Grass Vegetation Treatments 120,900 53,064 75,406 61,215 42,424 80,500 96,760 +16,2Monitor Shrub/Grass Vegetation Treatments 198,861 152,257 83,682 12,550 13,550 9,400 10,000 +60Inventory for Presence of Invasive and/or Noxious weeds (acres). 8,928,009 4,168,702 6,409,245 6,000,000 6,903,116 5,400,000 6,000,000 +600,0Apply Weed Treatments (acres). 258,093 205,256 135,787 150,000 231,727 245,000 250,000 +500Evaluate Weed Treatments (acres). 333,591 229,717 278,351 300,000 236,000 227,000 227,000 0 The 2009 column includes a performance increase for the Healthy Lands Initiative, and a performance shift to the new National Monuments and National subactivity which includes: 47 grazing allotments/permits/leases issued; 16 rangeland health evaluations; 103 grazing allotments monitored; 4,000 shrub/

monitored; 187,890 acres of weed inventories; 4,546 acres of weed treatments; and, 3,943 acres of weed treatments evaluated. For more details, please performance table at the end of the NLCS subactivity write-up. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page 

This page is intentionally left blank.
Bureau of Land Management 2009 Budget Justifications 

 

Section III- Management of Lands and Resources Page III -61

Activity: Land Resources 

Subactivity: Forestry Management 

 2009 

 Fixed Costs & Program Change 

 2007 2008 

Related 

Changes Changes Budget 

from 

2008 

 Enacted Enacted (+/ -) (+/ -) Request (+/-) 

Forestry ($000) 10,458 10,608 +156 -1,219 9,545 -1,063

 

FTE 77 76 0 -13 63 -13

Other Major Resources: 

Timber Contract Expense 131 100 0 0 100 0

Timber Extension Expenses 

Timber Pipeline Restoration 10,922 10,160 0 -7,732 2,428 -7,732

Forest Ecosystem Health & Recovery 7,274 6,579 0 -1,842 4,737 -1,842

Transfer: USFS Forest Pest Control 121 121 0 0 0 +121

Major Program IT Investments: 

FORVIS: 010-04-01-02-02-0437-00 80 85 85 0

TSIS: 010-04-01-03-02-0440-00 155 155 155 0

 

Summary of 2009 Program Changes for Forestry Management 

Request Component ($000) FTE

Program Changes: 

• Restoration of NLCS funding to 2008 Request level -123 

• Organizational & Administrative Streamlining -83 -1

• Travel & Relocation Expenses -53 

• Nat'l Monument & Nat'l Conservation Area funding (new subactivity created) -1,110 -12

• Healthy Lands Initiative funding to benefitting subactivity +150 

TOTAL, Program Changes -1,219 -13

JUSTIFICATION OF 2009 PROGRAM CHANGES

The 2009 budget request for the Public Domain Forest Management program is $9,545,000 

and 63 FTE a net program change of -$1,219,000 and -13 FTE from the 2008 enacted level, 

offset by $156,000 increase for fixed costs. 

Reduction of Unrequested NLCS Increase (-$123,000) - In 2008, the Congress 

provided an additional $123,000 in the Public Domain Forestry Management program, for 

Public Domain Forestry projects in the National Landscape Conservation System. The 

budget proposes funding the [program at the 2008 level in order to fund higher priorities. 

National Monuments and National Conservation Areas funding (new subactivity 

careation) (-$1,110,000) - The BLM is proposing a new subactivity in MLR to fund base 

Activity: Land Resources 

Subactivity: Public Domain Forest Management 
Bureau of Land Management 2009 Budget Justifications 

 Section III- Management of Lands and Resources Page III -62

operations at National Monuments and National Conservation Areas. As a result, $1.11 

million is shifted from the Public Domain Forestry Management subactivity to the new 

subactivity. The funding shifted from the Public Domain Forest Management subactivity is 

funding currently utilized in the NLCS-National Monuments and National Conservation 

Areas to meet the goals and priorities of the Public Domain Forest Management program. 

The funding will continue to be spent on forestry management priorities but will now be 

managed through the NLCS- National Monuments and National Conservation Areas 

subactivity. Performance in the Public Domain Forestry Management subactivity will 

decrease due to the funding shift; however, this performance will be shifted to the NLCSNational Monuments and National Conservation Areas subactivity and is shown in the 

performance goals for that subactivity. For more information about the new NLCS-National 

Monuments and National Conservation Areas subactivity, see section III.

Healthy Lands Initiative funding to benefiting subactivities (+$150,000) - The BLM 

proposes an increase of $150,000 for the Healthy Lands Initiative funding that is contained 

in the Public Domain Forestry Management subactivity. In 2008, BLM eliminated the single 

subactivity for the Healthy Lands Initiative and distributing the funding among seven 

subactivities. For 2009, BLM proposes a total of $150,000 in the Public Domain Forestry 

Management subactivity. The total funding request for the Healthy Lands Initiative is 

$14,922,000. The distribution of funding between subactivities, and the work to be 

performed, is described in the Healthy Lands Initiative chapter in the Crosscutting Activities 

section of the Justifications. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III -63Program Performance Change

2005 

Actual 

2006 

Actual 

2007 

Actual 

2008 

Plan 

2009 

Base 

Budget 

(2008 + 

Fixed 

Costs) 

2009 Pres. 

Budget 

Program 

Change 

Accruing 

in 2009 

Program 

Change 

Accruing in 

Out years 

Volume of wood products offered consistent with applicable management plans (Public Domain/MMBF) [SP] 

59 42 59 48 48 45 -3 0 

Total Actual/Projected Cost ($000) 1,065 998 1,007 1,309 1,309 1,222 -$86.88 0 Actual/Projected Cost per Acre (in dollars) 

$18,060 $23,779 $17,062 $27,274 $27,274 $27,151 $28,960 0 

Comments: 

Volume originally planned for 2006 was counted in 2005. Focus in 2006 for Public Domain was shifted to the more time consuming process of increasing the volume of biomass. As a result of the shift, the volume of biomass was increased 71% over 2005. 

Administrative cost per thousand board feet (MBF) of timber offered for sale [SP] 

$105 $135 $190 $190 $190 $180 -$10 0 

Comments: 

Several court orders in 2005 and 2006 have resulted in the need for additional species survey work that will increase the cost per thousand board feet of timber offered for sale. 

Contributing Programs: Public Domain Forest Management, Western Oregon Forest Management Number of DOI upland

acres restored to the condition specified in management plans. (SP/PART) 

584,013 807,271 868,577 840,000 840,000 840,000 0 0 

Comments: 

* Support Measure - No cost will be shown. Data gathered in 2007 supports higher performance than originally planned. The 2009 target has been adjusted to reflect the new data. 

Restore Forest and Woodlands through Sales (acres). 1,948* 10,845 11,668 14,500** 14,500 15,566 +$1,066 0 Total Actual/Projected Cost ($000) $1,730.174 $4,462.6 09 $6,986.4 48 $8,682.165 $8,682.165 $9,320.453 $638.288 0 Actual/Projected Cost per Acre (in dollars) $888.18 $411.49 $598.77 $598.77 $598.77 $598.77 $598.77 0 
Bureau of Land Management 2009 Budget Justifications 

 Section III- Management of Lands and Resources Page III Program Performance Change

2005 

Actual 

2006 

Actual 

2007 

Actual 

2008 

Plan 

2009 

Base 

Budget 

(2008 + 

Fixed 

Costs) 

2009 Pres. 

Budget 

Program 

Change 

Accruing 

in 2009 

Program 

Change 

Accruing in 

Out years 

Comments:Restore Forest and Woodlands through Development (acres). 4,103 7,118 3,330 7,800 7,800 5,322 -$2,478 0 Total Actual/Projected Cost ($000) $911 $2,995 $1,288 $6,686 $6,686 $4,562 -$2,124 0 Actual/Projected Cost per Acre (in dollars) $221.99 $420.70 $386.86 $857.23 $857.23 $857.23 $857.23 0 

Comments In 2005, the targets for Restore Woodlands through Sales and Restore Woodlands through Development did not include those completed under the Forest Ecosystem Health Restoration Fund (FEHRF). In 2006, the targets for Restore Woodlands through sales and Restore Woodlands through development are a combination of Public Domain Forest Management and Forest Ecosystem Health Restoration Fund targets. The targets were combined because most of the permanent labor associated with FEHRF workloads is paid by Public Domain Forestry accounts. The 2009 column contains performance increases for the Healthy Lands Initiative as follows: 116 acres of forest and woodlands restored through sales, and 122 acres of forest and woodlands restored through development. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III -65

PROGRAM OVERVIEW

Program Components – BLM manages 67 million 

acres of public domain forests and woodlands, of which 

20 percent are forests capable of producing traditional 

forests products such as timber. A recently completed 

inventory increased the acreage by 14 million over 

previous years. Changes in inventory protocols and 

methodology by the USDA Forest Service Forest 

Inventory and Analysis Program resulted in this 

increase. 

Long Term Vision - The long-term goals of the Public 

Domain Forest management program are to maintain 

and restore the health of BLM’s forests and woodlands, 

to provide forest products for economic opportunities and 

to increase biomass utilization for beneficial purposes, 

including energy production. Additionally, forest 

management activities contribute to the management of 

other BLM resources such as fish, plant, and wildlife 

habitat. BLM forests are managed using scientific 

principals, from planting and thinning young trees to harvesting timber. Up to 17 million acres of 

the BLM’s forest and woodlands in the lower 48 states have become unnaturally dense, and 

ecosystem health has suffered significantly, primarily due to decades of fire exclusion. By 

implementing these goals according to the priorities listed below, the BLM is increasing the area 

treated annually and the amount of material offered for sale. Funding priorities are:

1. Salvaging dead and dying timber in areas with hazardous fuels, considering wildlife 

habitats, watershed health, soil stability, and local economic opportunities. 

2. Implementing forest restoration projects that improve forest resiliency to disturbances 

from wildfires, insects and disease at the landscape scale. 

3. Providing personal use and/ or commercial opportunities for vegetative products from 

forests and woodlands. 

The Public Domain Forest Management program has been focusing on meeting the goals and 

objectives of the Healthy Forests Initiative, the Healthy Forests Restoration Act, the National 

Fire Plan, and the Energy Policy Act. With these new authorities to leverage the appropriated 

funding, BLM has increased the number of projects and acres treated. For example: 

• Acres of restored forest through sales and development have increased from 12,000 to 

18,750 acres annually. 

• Acres treated for sales and development to promote growth enhancement is 4200 acres 

annually, 

• Timber offered for sale has increased from 33.8 million board feet (MMBF) in 2003 to 59 

MMBF offered in 2007, 

• Tons of biomass offered has increased from 31,000 to 100,000 annually. Efforts 

continue to increase the volume of biomass offered where ecologically appropriate and 

economically feasible. 

Typically, there is a time lag between funded activities and actual ground accomplishments. For 

example, many of the treatments are conducted through three year contracts and 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III -66

 

purchaser/contractors often delay implementation to reflect changing market conditions for 

forest products. Stewardship contracts can last up to ten years so accomplishments are spread 

over the decade following funding depending on when bid items are completed. 

Critical Factors – The Public Domain Forest Management program is highly dependent on 

lumber market conditions during the planning and implementation of projects. Commercial sales 

are closely linked to the various swings in the housing demand and changes in interest rates. 

When the lumber market is up, contractors will liquidate their timber sale volumes quickly and 

vice versa. Projects can also be delayed due to weather and/or severe or extreme fire 

conditions exist sometimes until the next operating funds. 

Means and Strategies- The Public Domain 

Forest Management program has been 

exploring new processes to increase program 

efficiency. Examples include increased use of 

stewardship contracting, developing and 

implementing an integrated program of work 

(IPOW) with the fuels management program 

and use of emerging technologies to increase 

the effectiveness of the various activities that 

are accomplished in forest management. By 

integrating compatible projects with the fuels 

program, forestry is able to increase the 

efficiency of NEPA compliance and with 

proper scheduling of treatments, shared 

project supervision, the requested funding 

can accomplish more treatments and meet 

multiple objectives. Additionally, through EGovernance, Forestry is developing online 

processing of special forest product permits 

on an experimental basis to further provide 

access the publics that use the forested 

resources. 

Funding Source - The Public Domain Forest 

Management program is funded primarily by: 

● The Public Domain Forest Management account within the Management of Lands and 

Resources appropriation provides staff, equipment, and facilities needed to develop and 

manage forest and woodland projects on Public Domain forest lands discussed in this 

section. 

Other Funding Sources – Two other funding sources support the Public Domain Forest 

Management program. They are: 

● The Forest Ecosystem Health and Recovery Fund provides funding for much of the 

actual on-the-ground contracts designed to restore forest health, including salvaging 

dead and dying timber; reforesting areas degraded by natural or human disturbance; 

and enhancing tree growth by removing smaller trees and other forest vegetation. This is 

discussed in the Permanent Operating Funds Section XI, of this Justification. 

Use of Cost and Performance Information in 

the Public Domain Forest Management 

Program

The BLM’s Activity Based Costing (ABC) data is 

used to evaluate output unit costs of the workload 

measures and the overall production costs of 

achieving the Forest Management Program’s 

primary performance measure, "commercial 

timber offered". Using ABC data to evaluate the 

effectiveness of individual BLM state programs, 

the BLM has changed from evaluating solely field 

office level costs to evaluating total state 

controlled costs. This is just a single factor in the 

evaluation of individual States and their respective 

productivity and efficiency. Additionally, the ratio 

of indirect costs verses direct costs is a factor of a 

State being able to move additional resources to 

field level operations, thereby increasing the 

number of outputs relative to the total costs for 

those outputs. Trend data was generated for the 

last several years to show how effective individual 

States were at accomplishing their targets relative 

to their cost targets and the indirect/direct cost 

ratios. This information was used to move funding 

and resources between States to more effectively 

meet the program goals and Bureau priorities. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III -67

 

● Stewardship “End Results” Contracting - The Public Domain Forest Management 

program has been able to leverage the appropriated funding through the use of 

stewardship contracting to increase performance accomplishments. Stewardship 

contracting provides for the value of the by-products from restoration treatments to 

partially offset the cost of the restoration treatments, including: 

(1) Road and trail maintenance or obliteration for improved water quality; 

(2) Soil productivity, habitat for wildlife and fisheries, or other resource values; 

(3) Setting prescribed fires to improve composition, structure, condition, and health 

of stands or to improve wildlife habitat; 

(4) Removing vegetation or other activities to promote healthy forest stands, reduce 

fire hazards or achieve other land management objectives; 

(5) Watershed restoration and maintenance; 

(6) Restoration and maintenance of wildlife and fish habitat; and 

(7) Control of noxious and exotic weeds and reestablishing native plant species. 

The value of the by-product from the restoration treatments in stewardship contracts 

may be used to fund additional restoration treatments within the same contracts or other 

approved stewardship contract. 

Strategic Plan - The Public Domain Forest 

Management program supports three of the 

Department’s Strategic Plan Mission Goals: 

Resource Protection: From 2005-2007 the last three 

years, a total of 55,000 acres of forests have been 

restored or enhanced, helping to sustain biological 

communities. The strategic outcome has been the 

restoration of forest and woodlands to a healthier tree 

density, promote growth and vigor thus resisting fire, 

drought, insects, and disease. The Bureau has 

focused on restoration of forest ecosystem health as 

the highest priority for public domain forestry.

Resource Use: From 2005-2007, a total of 160 

MMBF of forest products, using timbersales, 

stewardship contracts and special forest products 

permits, were offered for sale or trade to local 

industries, helping to provide forest products for 

public benefit, promote responsible use and to 

ensure optimal value. This is a 50% increase over 

the previous three years. This is primarily due to the 

use of stewardship contracting. 

The program has, in the same timeframe, offered a 

total of 294,000 tons of woody biomass for utilization. 

Refer to the discussion of biomass utilization in the 

2009 Program Performance section for further information. 

PD Acres Restored

0

5000

10 0 0 0

150 0 0

20000

25000

2005 2006 2007

PD Volume Offered MMBF

0

10

20

30

40

50

60

70

2005 2006 2007

Stewardship

Contracts

Timber &

Special

Forest

Products
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III -68

 

Serving Communities: The Public Domain Forest Management program, has generated local 

and rural jobs in the logging industry, local mills, and small businesses through forest product 

sales and service contracts. Also the BLM annually issues in excess of 24,000 special forest 

products permits across the West to individuals for the collection of firewood, Christmas trees, 

mushrooms, posts and poles and a wide variety of other forest products. For example, within 

the five corners area of Nevada, Utah, Colorado, New Mexico and Arizona, the priority of the 

Forestry program is to provide a sustainable supply of non-traditional forest products. Annually, 

these states will issue in excess of 20,000 special forest product permits which are integral to 

the customs and traditions of these small rural communities. 

2009 PROGRAM PERFORMANCE 

2007 Accomplishments- In 2007, with level funding, the Public Domain Forest Management 

program; 

• Treated 18,748 acres for forest restoration and treated an additional 4,272 acres for 

growth enhancement and forestry improvements. This is an increase of 785 acres and 

303 acres respectively over 2006. 

• Timber and other forest product convertibles offered for sale increased from 42 MMBF 

in 2006, to 59 MMF in 2007, 

• Tons of biomass offered has decreased from 122,000 in 2006 to 100,752 tons in 2007. 

2008 Planned Program Performance- In 2008, with level funding, the Public Domain Forest 

Management program will; 

• Treat 22,000 acres for forest restoration and treat an additional 3,500 acres for growth 

enhancement and forestry improvements. 

• Offer 48 MMBF of timber and other forest product. 

• Offer 60,000 tons of biomass. 

2009 Planned Program Performance- In 2009, the focus of the Public Domain Forest 

Management program will be to continue implementation of the goals and objectives of the 

Healthy Forests Initiative, the Healthy Forests Restoration Act, the National Fire Plan, and the 

Energy Policy Act and provide support for the Healthy Lands Initiative where opportunities exist.

In support of the National Landscape Conservation System, the Public Domain Forestry 

Program will shift a total of $1,110,000 to the new NLCS MLR subactivity. With funding from the 

SUCCESS STORIES

The Public Domain Forest Management program continues to meet or exceed most of its primary 

performance measures, including volume of wood products offered. The target for 2007 was 50 Million 

Board Feet (MMBF) and the program, through integrating its activities with other programs, using the 

new tools of the Healthy Forest Initiative (Stewardship Contracting) exceeded the target by 18 percent, 

and offered 59 MMBF. Through stewardship contracting, several large, long term contracts are in place 

which will restore forest health and improve wildlife habitats on greater than 30 thousand acres in 

Washington (Huckleberry Stewardship), Oregon (Gerber Stewardship), Idaho (Two Tails Stewardship), 

California (Weaverville Stewardship) and Wyoming (Wyoming Aspen Front Stewardship) and as a 

byproduct of the restoration will sell and utilize greater than 60 MMBF during the life of the stewardship 

contracts to help offset a portion of the cost of restoration. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III -69

 

Public Domain Forestry, the NLCS will accomplish 1400 acres of restoration treatments, 

rehabilitate 3 miles of roads, inventory 13,500 acres of forest lands, monitor 7500 acres of 

wildlife habitats and issue 600 special forest product permits in the communities they serve. 

In support of the Bureau’s Healthy Lands Initiative, the Public Domain Forest Management 

Program received an additional $150,000 in 2009 for restoration treatments that will be 

leveraged with non-federal funding. This additional funding will restore 238 acres, construct four 

aspen enclosures and inventory an additional 18,400 acres of forests and woodlands. 

Forest Management – The BLM will use 2009 funds to restore forests and woodlands, which 

will improve the resiliency of forests to disturbances such as insects, disease, and wildfire, as 

well as restoration of wildlife habitats. With the primary focus of restoration on the Public 

Domain Forest Management Program proposes to allocate funding and assign workloads 

according the priorities of (1) Salvaging dead and dying timber (2) Implementing forest 

restoration, and (3) Providing personal use and/ or commercial opportunities. 

The BLM’s 2008 Public Domain Forest Management program supports the Department’s 

Strategic Plan Mission Goals. Funding at the requested 2009 level will allow the Bureau to 

complete the following: 

Resource Protection: 20,000 acres of forests and woodlands will be restored using funding from 

the Public Domain Forest Management Program and the Forest Ecosystem Health Recovery 

Fund (FEHRF). 

Resource Use: The volume of commercial timber offered for sale or trade will be 45 MMBF, a 

decrease of 3 MMBF from the 2008 target. Two thousand acres of forest will be treated 

(thinned, regeneration harvests, etc.) to enhance wood fiber production for future commercial 

sales value, a reduction from the 2007 and 2008 level, due to a movement of treatments that 

are under the Resource Protection umbrella as noted above. Sixty thousand tons of biomass 

will be offered for sale or trade as by-products of restoration and hazardous fuels treatments. 

Serving Communities: In 2009, BLM will issue approximately 23,000 special forest products 

permits across the west to individuals for the collection of firewood, Christmas trees, 

mushrooms, posts and a wide variety of other forest products. 

Biomass Utilization – To advance the goals of the Healthy Forests Restoration Act, the Energy 

Policy Act (2005), and the National Fire Plan, the BLM, working with their partners, have 

developed markets for biomass, and are exploring new contracting methods while molding 

existing databases to capture the volume of biomass offered. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III -70

 

For the last several years, BLM and the 

United States Forest Service have 

participated in the Lakeview Biomass 

Project since its inception in 2005. In 

November 2007, the BLM joined its partners 

in the Lake County Resources Initiative 

(U.S. Forest Service, Collins Companies, 

Marubeni Sustainable Energy, Town of 

Lakeview, City of Paisley and Lake County) 

in a Memorandum of Understanding for a 

20-year supply of woody materials for 

biomass for energy. We estimate that on 

the Lakeview District from western juniper 

cutting and removal, fuel hazard reduction 

and timber sales will result in the production 

of 6,000 to 13,000 “bone dry tons” of biomass per year – representing five to ten percent of the 

total annual supply needed for operation of the proposed facility. The Lakeview District has 

committed to applying mechanical treatments to approximately 2,000 acres per year, where 

biomass would be one of the natural resource products generated.

Biomass from BLM restoration treatment in the 

Klamath Falls Field Office on the Gerber Stewardship 

project. 

Program Assessment Rating Tool

 The Forestry programs continues to implement the recommendations from the 2006 Program Assessment 

Rating Tool (PART) evaluation “Resource Protection” stated that BLM needed to improve its’ data collection and 

reporting process. BLM has: 

• Added several annual output measures that should help show a better correlation to the outcome 

measures; 

• Aligned and combined many of the BLM workload measures in these new output measures; 

• Moved some workload measures from "Resource Use" to "Resource Protection" where the primary 

objective is resource protection; 

• Continue to define the percent of DOI acres that have achieved desired conditions where condition is 

known and as specified in management plans. Seek ways to accurately measure the performance 

measure which are statistically accurate at the National and state leave to ensure it will cascade to the 

appropriate levels of the organization. 

The BLM continues to validate the information collected by working closer with the State and Field Offices. These 

performance measures are linked to the budget allocations, as well as the measurable outputs. The BLM 

increasingly uses the information garnered from the Activity Based Costing system (ABC) to evaluate the states 

for efficiency and effectiveness in meeting the agreed upon targets and to determine the most effective 

distribution of funding between states that meets the National priorities identified in this justification. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources 

PUBLIC DOMAIN FOREST MANAGEMENT PERFORMANCE Overview 

Measure 

2004 

Actual 

2005 

Actual 

2006 

Actual 

2007 

Plan 

2007 

Actual 

2008 

Plan 

2009 

Presiden

Budget 

Volume of wood products offered consistent with applicable management plans (Public Domain/MMBF) [SP] 

188.5 257 243 276 255 286 313 

Total Actual/Projected Cost ($000) $1,170 $1,264 $1,423 $0 $1,438 $1,870 $1,745 Actual/Projected Cost per MMBF 

( in dollars) $6,207 $4,918 $5,856 $0 $5,639 $6,538 $5,575 

Comments: 

Focus in 2006 for Public Domain was shifted to the more time consuming process of increasing the volume 

shift, the volume of biomass was increased 71% over 2005. In 2007, increased litigation and the loss of sev

required the BLM to remove approximately 25% of the timber sale plan which when offered is the basis for th

Administrative cost per thousand board feet (MBF) of timber offered for sale [SP] $176 $105 $135 $190 $190 $190 $180 Comments: 

* Support Measure - No cost will be shown. Several court orders in 2005 and 2006 resulted in the need for a

which increased the cost per thousand board feet of timber offered for sale. The cost should begin to decrea

Contributing Programs: Public Domain Forest Management, Western Oregon Forest Management Percent of forestry improvements (acres) completed as planned. [SP] 

102% 

32,980/ 

32,335 

104% 

28,376/ 

27,376 

112% 

32,510/ 

28,919 

100% 

26,700/ 

26,700 

112% 

29,846/ 

26,700 

100% 

27,564/ 

27,564 

100% 

26,800/ 

26,800 

Total Actual/Projected Cost ($000) $12,123 $12,701 $13,173 $0 13,224 14,340 14,364 Actual/Projected Cost per acre 

(in dollars) $375 $441 $405 $0 $443 $520 $536 

Comments: This is a new measure in 2007. Historical data has been added to provide context. Contributing Programs: Public Domain Forest Management (2000/2000), Western Oregon Forest Management and Western Orego

Development. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources 

PUBLIC DOMAIN FOREST MANAGEMENT PERFORMANCE Overview 

Measure 

2004 

Actual 

2005 

Actual 

2006 

Actual 

2007 

Plan 

2007 

Actual 

2008 

Plan 

2009 

Presiden

Budget 

Volume of wood products offered (biomass for energy) consistent with applicable management plans. (Bur) 

30,000 tons 71,000 tons 122,000 tons 60,000 tons 100,752 60,000 60,000 

Total Actual/Projected Cost ($000) $0 $0 $0 $0 $109 $45 $43 Actual/Projected Cost per ton 

(in dollars) $0 $0 $0 $0 $1.08 $0.74 $0.71 

Comments: 

 The 2005 and 2006 Actual numbers represent a period of rapid escalation when new markets, and new con

were being developed by BLM and their partners. As markets adjust to the new availability of biomass and c

stable annual target is predicted. This new target is shown beginning in 2008. This measure was a support 

cost is shown for 2004-2006. Cost will be shown beginning in 2007. 

Contributing Programs: Public Domain Forest Management (60,000 tons), Western Oregon Forest Management. Percent of DOI acres that have achieved desired conditions where condition is known and as specified in management plans. (SP/PART) 

45% 

115,991,274/ 

258M 

48% 

123,949,644/ 

258M 

48% 

123,952,644/ 

258M 

51% 

131,756,644/ 

258M 

52% 

135,410,846/ 

258M 

56% 

143,414,846/ 

258M 

59% 

151,418,8

258M 

Total Actual/Projected Cost ($000) $44,914 $41,193 $46,987 $0 $56,330 $57,253 $64,302 Actual/Projected Cost per Acre (in dollars) $0.39 $0.33 $0.38 $0 $0.42 $0.40 $0.43 Comments: 

Two performance measures (wetlands and uplands) were combined to make one measure which counts tot2006 program assessment, BLM Forest Lands are now included and the denominator has been stabilized to 

data. The new formula is shown beginning in 2004. Land Health Assessments being conducted through 20

million acres each year to desired condition. This measure includes an increase for the Healthy Lands Initia

which will result in 72,079 acres treated, $922,964 in 2008 which will result in 55,114 acres treated, and $7,result in 229,417 acres treated. Acres treated do not all reach desired condition in the first year. Treated ac

achieving desired condition 25% in the first year and 25% each of the next three years. BLM-Minimum desir

achieving proper functioning condition (PFC) and functioning at risk with an upward trend. Desired condition 

Health Standards developed by the BLM State offices and approved by the Secretary in accordance with Tit
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources 

PUBLIC DOMAIN FOREST MANAGEMENT PERFORMANCE Overview 

Measure 

2004 

Actual 

2005 

Actual 

2006 

Actual 

2007 

Plan 

2007 

Actual 

2008 

Plan 

2009 

Presiden

Budget 

Number of projects constructed or maintained or activity plans developed to achieve desired conditions on uplands, wetlands, and riparian areas. (Bur) 

10,110 9,538 7,251 7,192 9,077 9,103 9,227 

Total Actual/Projected Cost ($000) $60,103 $50,170 $53,654 $0 $56,489 $57,000 $58,099 Actual/Projected Cost per Project or Plan (in dollars) $5,945 $5,260 $7,400 $0 $6,223 $6,262 $6,297 Comments: 

This measure includes increases for the Healthy Lands Initiative of $73,758 in 2007, which will result in 6 st

$511,486 in 2008, which will result in 12 lake/wetland projects, 11 shrub/grass projects, and 3 native plant m$1,099,344 in 2009, which will result in 19 additional shrub/grass projects constructed, 25 shrub/grass projec

stream/riparian projects constructed, and 44 stream/riparian projects maintained. Results for this measure a

planned and will vary between years. 

Number of DOI upland acres restored to 

the condition specified in management plans. (SP/PART) 

661,701 584,013 807,271 535,000 868,577 840,000 840,000 

Comments: 

* Support Measure - No cost will be shown. Data gathered in 2007 supports higher performance than origin

has been adjusted to reflect the new data. 

Manage Forest and Woodland Commercial Sales (acres). 2,440 2,634 2,992 2,800 756 1,500 1,500 Apply Commercial Forest and Woodland Management Treatments (acres). 773 1,546 977 1,100 1,112 500 500 Comments: 

The reduction in Commercial Forest and Woodland Treatments is offset by the same increase in Restore Fo

development. 

Restore Forest and Woodlands through Sales (acres). 1,100 *1948 **10,845 14,500 11,668 14,500 15,566 Restore Forest and Woodlands through Development (acres). 3,857 *4103 **7,118 7,800 3,330 7,800 5,322 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources 

PUBLIC DOMAIN FOREST MANAGEMENT PERFORMANCE Overview 

Measure 

2004 

Actual 

2005 

Actual 

2006 

Actual 

2007 

Plan 

2007 

Actual 

2008 

Plan 

2009 

Presiden

Budget 

* In 2005, the targets for Restore Woodlands through Sales and Restore Woodlands through Development did not include those completed under the FoRestoration Fund (FEHRF). **Beginning in 2006, the targets for Restore Woodlands through sales and Restore Woodlands through development are a combination of Public DomaiForest Ecosystem Health Restoration Fund targets. The targets were combined because most of the permanent labor associated with FEHRF workloadForestry accounts. The 2009 column includes a performance increase for the Healthy Lands Initiative, and a shift of performance to the new National Monuments and Natio

subactivity which includes: 50 acres of forest and woodlands restored through sales; and, 1,400 acres of forest and woodlands restored through develop

please see the performance table at the end of the NLCS subactivity write-up. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-75

Activity: Land Resources 

Subactivity: Riparian Management 

Activity: Land Resources 

Subactivity: Riparian Management 

 2009 

 Fixed Costs & Program Change 

 2007 2008 

Related 

Changes Changes Budget 

from 

2008 

 Enacted Enacted (+/ -) (+/ -) Request (+/-) 

Riparian ($000) 21,573 22,887 +305 -462 22,730 -157

 

FTE 171 178 0 -12 166 -12

Other Major Resources: 

 

Major Program IT Investments: 

 

 

Summary of 2009 Program Changes for Riparian Management 

Request Component $0 FTE

Program Changes: 

• Restoration of NLCS funding to 2008 Request level -197 

• Restoration of Program funding to 2008 Request level -403 -1

• Organizational & Administrative Streamlining -63 

• Travel & Relocation expenses -49 

• National Fish & Wildlife Foundation funding -246 

• Nat'l Monument & Nat'l Conservation Area funding (new subactivity created) -1,004 -11

• Healthy Lands Initiative funding to benefitting subactivity +1,500 

TOTAL, Program Changes -462 -12

JUSTIFICATION OF 2009 PROGRAM CHANGES

The 2009 budget request for the Riparian Management program is $ 22,730,000 and 171 

FTE, a net program change of -$ 462,000 and 12 FTE from the 2008 enacted budget. 

Reduction for NLCS Increase provided by Congress in 2008 (-$197,000) - In 2008, the 

Congress provided an additional $197,000 from the Riparian Management program, for 

riparian management projects in the National Landscape Conservation System. This 

budget proposes reducing the Riparian Management subactivity by $197,000 to address 

higher priorities. For more information about the new NLCS-National Monuments and 

National Conservation Areas subactivity, see section III.

Reduction of Unrequested 2008 Increase in Base Funding (-$600,000) - In Fiscal Year 

2008, Congress provided additional funding in the Riparian Management program including 

NLCS activities. The BLM proposes a reduction of this amount in order to fund program 

activities at the 2008 Request level. The BLM will continue to maintain core functions in the 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-76

Riparian Management program by focusing on highest priority riparian projects and 

efficiencies where possible. 

National Fish and Wildlife Foundation (-$246,000) - This decrease reflects a reduction of 

pass-through funding which had been provided to the National Fish and Wildlife Foundation 

(NFWF). NFWF is a well-established program that is able to independently generate 

significant amounts of matching funding. Reducing this funding will enable BLM to target 

funds to other priority areas. The BLM will continue to work cooperatively with the NFWF to 

conserve wildlife resources on BLM land where possible. 

National Monuments and National Conservation Areas (new subactivity created) 

(-$1,004,000) - The BLM is proposing a new subactivity in MLR to fund base operations at 

National Monuments and National Conservation Areas. As a result, $1.004 million will be 

shifted from the Riparian Management subactivity to the new subactivity. The funding 

shifted from the Riparian Management subactivity is funding currently spent in the NLCSNational Monuments and National Conservation Areas, to meet the goals of the Riparian 

Management program. The funding will continue to be spent on Riparian Management 

priorities but will be managed through the NLCS-National Monuments and National 

Conservation Areas subactivity. Performance in the Riparian Management subactivity will 

decrease due to the funding shift; however, this performance will be shifted to the NLCSNational Monuments and National Conservation Areas subactivity and will be shown in the 

performance goals for that subactivity. For more information about the new NLCS-National 

Monuments and National Conservation Areas subactivity and the specific shifts in 

performance, see “2009 Program Performance” at the end of this section as well as Section 

III.

Healthy Lands Initiative program (+$1,500,000) - The BLM proposes an increase of 

$1,500,000 for the Healthy Lands Initiative funding that is contained in the Riparian 

Management subactivity. BLM eliminated the single subactivity for the Healthy Lands 

Initiative in 2008 and is distributed the funding among seven subactivities. For 2009, BLM 

proposes a total of $1,992,000 in the Riparian Management subactivity, an increase of 

$1,500,000. Specific work to be performed in the Riparian Program is described in the 

Healthy Lands Initiative chapter in the Cross cutting Activities section as well as being 

described in “2009 Program Performance” below. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-77

Program Performance Change 

2005 

Actual 

2006 

Actual 

2007 

Actual 2008 Plan 

2009 Base 

Budget 

(2008 

Planned + 

Fixed 

Costs) 

2009 

Presidents 

Budget 

Program 

Change 

Accruing 

in 2009 

Program 

Change 

Accruing 

in Outyears 

A B=A+C C D 

Percent of DOI 

acres that have 

achieved desired 

conditions where 

condition is known 

and as specified in 

management plans 

(SP/PART) 

48% 

123,949,

644/ 

258,000,

000 

48% 

123,952,

644/ 

258,000,

000 

52% 

135,410,

846/ 

258M 

56% 

143,414,846

/ 258M 

56% 

143,414,

846/ 

258M 

59% 

151,418,

846/ 

258M 

+3% 

68% 

175,430,84

6/ 258M 

Total 

Actual/Projected 

Cost ($000) 

$41,193 $46,987 $56,330 $56,128 $56,128 $52,936 

Actual/Projected 

Cost per Acre 

(in dollars) 

0.33 0.38 0.42 0.42 0.42 0.35 .30 

Comments: 

Two performance measures (wetlands and uplands) were combined to make one measure which counts 

total acres. As a result of the 2006 program assessment, BLM Forest Lands are now included and the 

denominator has been stabilized to show more consistent trend data. The new formula is shown 

beginning in 2004. Land Health Assessments being conducted through 2012 will add approximately 8 

million acres each year to desired condition. This measure includes an increase for the Healthy Lands 

Initiative of $2,897,500 in 2007 which will result in 72,079 acres treated, $1,064,758 in 2008 which will 

result in 71,238 acres treated, and $7,1204,223 in 2009 which will result in 170,173 acres treated. Acres 

treated do not all reach desired condition in the first year. Treated acres here are shown as achieving 

desired condition 25% in the first year and 25% each of the next three years. 

Inventory 

Streams/Riparian 

Areas

4,303 3,867 1,742 1,450 1,450 1,350 -100 +50 

Total 

Actual/Projected 

Cost ($000) 

$2,729 $2,424 $2,648 $2,204 $2,204 $2,052 -$152 0 

Actual/Projected 

Cost $634.27 $627.01 $1,520.57 $1,520.57 $1,520.57 $1,520.57 0 0 

Construct 

Lake/Wetland/Stre

am/Riparian 

Projects (number).

310 289 145 180 180 190 +10 -10 

Total 

Actual/Projected 

Cost ($000) 

$1,989 $1,830 $1,300 $9,234 $9,234 $9,747 $513 0 

Actual/Projected 

Cost Per project $6,417.87 $6,334.19 $8,970.43 $8,970.43 $8,970.43 $8,970.43 0 0 

Comments: 

The funding shift resulting from the additional funding being spent in the Riparian Management 

subactivity on the Healthy Lands Initiative does not materially affect the 2009 performance numbers for 

Riparian Management in the aggregate. 

Note: Projected costs may not equal program change as these are full costs, which may include funds from other sources and 

(or) use averages. 

Column A: The level of performance and costs expected in 2009 at the 2008 level plus funded fixed costs. Reflects the impact 

of prior year funding changes, management efficiencies, absorption of prior year fixed costs, and trend impacts, but does not 

reflect the proposed program change. 

Column D: Outyear performance beyond 2009 addresses lagging performance — those changes occurring as a result of the 

program change (not total budget) requested in 2009. It does not include the impact of receiving the program change again in a 

subsequent out-year. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-78

PROGRAM OVERVIEW 

Program Components- The BLM manages over 23 million acres of land classified as 

riparian or wetland. 

• Management of riparian areas and wetlands is a key issue on public rangelands. 

The BLM places a high priority on the land health and improvement of riparian areas 

and wetlands. 

• These areas, while comprising only about nine percent of the total BLM-managed 

land, include or support some of the most ecologically diverse and important plant 

and animal communities occurring on public lands. 

• Riparian areas and wetlands include streams and rivers, lakes and ponds, 

reservoirs, bogs or swamps, springs, and the narrow strips of land along the edge of 

many of these bodies of water. 

• These areas provide habitat for 80 percent of the wildlife and fish species found on 

BLM land. These areas are critical to wildlife, water quality, ranching, and provide 

high value recreational experience for millions of Americans. 

• Healthy, functioning riparian areas and wetlands filter sediment substances, reduce 

downstream flooding, store water, and recharge vital underground aquifers. 

Long Term Vision– The long term vision of the program is to maintain, restore, improve, 

protect and expand the riparian-wetland areas so that the areas are in proper functioning 

condition as a minimum standard as it relates to their productivity, biological diversity, and 

sustainability. The goal of the Riparian Management program to achieve the ecological 

status (desired conditions) that are identified in resource management plans, subsequent 

activity level plans, and HLI emphasis areas. 

Significant components of this long term vision are: 

• Proper functioning riparian areas and watersheds in which streams meet State water 

quality standards; 

• National Landscape Conservation System landscapes are in the ecological condition 

identified in their plans; 

• All public land applications and use authorizations are processed with needed 

riparian information;

• Permanent, functional, and accessible riparian data systems, including a continued 

role in the land health assessment process. 

Critical Factors- Critical factors affecting the Riparian-wetland performance include: 

 

• Climate change and its potential to affect specific long-term vegetation management 

goals; 

• Impacts of seasonal wildfire suppression and stabilization activities. 

• The spread of new invasive species. 

Means and Strategies- The BLM’s riparian/wetland areas reflect the overall health of a 

watershed and the ecological systems associated with them. Therefore, BLM places a high 

priority on the sustainability, management, and improvement of riparian-wetland systems. 

The authorization of sustainable uses on the public lands is an integral part of the BLM’s 

multiple-use mission. Therefore, as a means of accomplishing these objectives, BLM is 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-79

continuing the implementation of the Creeks and Communities strategy. This strategy will 

assist in the protection and improvement of riparian and wetland areas through training, 

cooperatively developed, implemented, and sustainable management. In addition, this 

strategy is supported by the BLM’s emphasis on building partnerships, citizen based 

stewardship and the Department’s Cooperative Conservation Initiative. The Riparianwetland program’s performance goals and priorities set the direction and allow 

measurement and accountability. 

Other Funding Sources– The activities of the Riparian-Wetland Program have been 

supplemented by other sources; a few examples are as follows: 

1. Grants. The program has received National Fish and Wildlife Foundation grants, 

such as the Wetlands Conservation initiative and specific projects such as in Oregon 

(Bear Creek Riparian Tree Planting), California (restoration of critical habitat for the 

Fish Slough milk-vetch), and Colorado (Blanca Wetlands). The California project 

also received substantial grants and financial contributions through the State of 

California Off-Highway Vehicle Commission. 

2. Contributions in Kind. Contributions of labor, vehicle use, meeting space, etc. are 

common in partnerships. Several examples are the wetland assessments conducted 

in Montana by the Montana Natural Heritage Program (through the Montana State 

Library and University of Montana), Wetland improvements in California’s Bishop 

Field Office in the Long Valley Caldera south of Mammoth Lakes, CA, and 

restoration of critical habitat for the Fish Slough milk-vetch (Astragalus lentiginosus 

var. piscinencis) which only occurs in the Fish Slough ACEC. Some partners include 

the California Native Plant Society, Quail Unlimited, Audubon, California Deer 

Association, Sierra Club, and the Friends of the Inyo. 

3. Other BLM Program goals, objectives, funding, and subsequent project work (such 

as in the Fisheries program) are integral to the overall condition and multiple uses 

that occur on the riparian-wetland areas. 

Strategic Plan– The Riparian program supports the Resource Protection mission goal from 

the Department’s Strategic Plan as well as the BLM Directors six emphasis areas, (Healthy 

Lands, Southwest Borders, Community Growth, Energy, Non-Energy commodity, and 

National Landscape Conservation systems) for managing rangelands and forests to achieve 

Healthy and Productive Watersheds. The outcome measures are related to increasing the 

quantity and quality of sagebrush steppe, grasslands, forest lands, and water quality. The 

key intermediate outcome measures include increasing the percent of lands and waters 

managed or influenced by the BLM for which conditions are known, and the percent of 

priority acres or miles targeted for restoration where treatments are completed to achieve a 

desired condition. Primary output measures for the riparian-wetland areas include 

inventories (emphasis on invasive and noxious weeds), conducting assessments (emphasis 

on healthy rangelands and permit renewals), and implementing projects in riparian areas 

and wetlands that focus on landscape scale projects as described in the Healthy Lands 

Initiative (HLI), sage-grouse habitat restoration, ensuring environmentally sound energy 

development, and management of OHV use through involvement in the land use planning 

and NEPA process. (See the “Riparian Management Performance Summary” at the end of 

this program discussion). 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-80

2009 PROGRAM PERFORMANCE

2007 Program Accomplishments- In 2007, the Riparian and Wetlands program 

accomplished the following: 

• Over one and a half million acres of watershed assessments were completed. This 

work not only met the needs associated with the Riparian/Wetland Program but the 

healthy rangelands and permit renewal process as well. 

• In 2007, the Riparian Program spent 64% of its $22 million in the areas of emphasis 

as outlined in the budget documents and advice. This is a 9% increase from the 

previous two years. 

• The Riparian Program contributed over 30% of the accomplishments Bureau- wide in 

the areas of inventory, monitoring, and applying treatments as well as construction 

and maintenance of projects associated with the Bureau’s riparian areas, lakes and 

wetlands. Other programs that make a significant contribution to the overall 

accomplishments are fisheries, wildlife, and the Challenge Cost Share Programs. 

 

An excellent example of BLM’s riparian restoration efforts was recognized by the American 

Fisheries Society’s (AFS) Western Division. The Tillamook Resource Area Riparian 

Restoration Effort received AFS’ 2007 Riparian Challenge Award. Across this landscape, 

riparian habitats have been altered by various past land management practices. Oregon’s 

Department of Environmental Quality Total Maximum Daily Load studies, North Coast Basin 

Water Quality Management Plans, Watershed 

Council Action Plans, and the Tillamook Bay 

Comprehensive Conservation and Management 

Plan all concluded that vegetation is needed in 

riparian zones to reduce pollutants, stabilize 

streambanks, and lower stream temperatures. 

Recognizing the need to encourage riparian 

restoration on not just BLM lands, the Tillamook 

Resource Area and the Salem District’s Horning 

Seed Orchard entered into a Memorandum of 

Understanding (MOU) with various watershed 

partners to implement riparian restoration in all 

the watersheds in the resource area with BLM 

ownership including streams feeding the Lower 

Columbia River and several northwest Oregon 

coastal bays. The MOU was signed in 2002 and 

the restoration efforts have been ongoing since 

then. 

The primary objective of the partnership is to promote healthy forest/riparian ecosystem 

processes throughout the Tillamook Resource Area by collecting and growing native plant 

seeds and cuttings to develop into large planting stock better able to withstand competition 

and depredation for management plans and restoration activities on lands administered by 

BLM and on lands of interest by the various watershed and bay area councils. In addition to 

providing shade and filtering to improve salmonid habitat and water quality, much of the 

riparian planting is also used to help control invasive species such as Reed Canary grass, 

Scot's Broom, English Ivy, Himalayan Blackberry, and Japanese Knotweed that presently 

Students field plant riparian trees and install 

protective fencing along Neskowin Creek to 

help implement the Tillamook Resource 

Area Riparian Restoration Effort. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-81

occupy project sites. This is a collaborative effort designed to encourage application of 

innovative solutions to forest/riparian health conditions on an ongoing basis across the 

landscape to help implement the Oregon Plan for Salmon and Watersheds. Other objectives 

are to provide restoration project advice and education to promote better fish and wildlife 

habitat and ecosystem diversity. 

2008 Planned Program Performance- In 2008, program emphasis includes Healthy Lands 

Initiative areas and National Landscape Conservation System units. 

The 2008 Riparian and Wetland program priorities are to: 

• Participate in interdisciplinary teams conducting Proper Functioning Condition (PFC) 

assessments on riparian segments associated with watershed based Land Health 

Assessments. 

• Increase restoration efforts focusing on riparian-wetlands that are not properly 

functioning or achieving standards as well as special emphasis on those habitats that 

are important for sage-grouse and threatened or endangered species. 

• Continue to support and to expand partnerships with external sources to leverage 

funds and increase capabilities to manage, maintain, restore and enhance riparianwetlands, and ensure long term sustainable results. 

• Implement the initiative “Creeks and Communities: A Continuing Strategy for 

Accelerating Cooperative Riparian Restoration and Management.” 

• Continue to monitor riparian-wetland areas to ensure the progress and maintenance 

of the riparian-wetlands towards meeting PFC as well as the desired conditions as a 

result of management and restoration efforts. 

• Provide technical expertise to all levels of planning and provide support for the Oil 

and Gas, and livestock grazing programs as they relate to protection, reclamation, 

and restoration efforts. 

Some examples of the type of project work that is being accomplished include: 

The Yuma Field Office’s Wetland/Riparian Restoration Project of which the Mittry Lake 

Project is being implemented over several years. The yearly projects vary in size due to 

financial assistance, personnel availability, and partner involvement. The overall objective is 

to restore, improve, and create a structurally diverse cottonwood-willow forest in an existing 

12-acre area. This year, the focus was on 4.17 acres of riparian habitat along the lower 

Colorado River in Yuma, Arizona. Within the project area, the partnership is involved in 

planting, protecting, and irrigating 930 individual cottonwood, willow, and mesquite trees. 

These plants make up the “low elevation riparian” priority habitat, which support the 

threatened or endangered species; southwestern willow flycatcher and yellow-billed cuckoo. 

This restoration project would augment other BLM and City of Yuma plans to restore other 

adjacent areas which ultimately would form a contiguous, 12-km stretch of high-quality 

cottonwood-willow habitat along the lower Colorado River. Southwestern willow flycatcher 

and yellow-billed cuckoos need large, contiguous blocks of high-quality habitat to nest and 

forage. 

The National Riparian Service Team will assist States by increasing Network member skills 

in the human/social dimension (working with protocol developers, program managers, field 

personnel and others), participate in the National Monitoring Strategy’s Vegetation & Water 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-82

Business Process Review (BPR), Healthy Lands Initiative policy and budget teams, and 

participate on the National Collaborative Stewardship and Partnership Task Groups. 

Increasing restoration efforts, the Lower Crooked River Trails project in Oregon is a good 

example of trail work that is being completed to benefit not only the recreating public, but the 

riparian area and its function as well as to maintain the wild and scenic character of the 

Crooked River. This project was accomplished in cooperation with the Crooked River 

Watershed Council. The photos below show the work that was completed on the Horny 

Hollow Trail, where there were numerous, criss-crossing trails, and extremely eroded, down 

cut "chutes" that served as "trails" down to the river. The plan for the area is to keep this 

site at Horny Hollow as a non-advertised access point to the Crooked River. 

2009 Planned Program Performance – In 2009, the Riparian-Wetland program priorities 

will continue to focus on Healthy Lands Initiative Areas and National Landscape 

Conservation units: 

• Participating on interdisciplinary teams conducting Proper Functioning 

Condition (PFC) assessments on riparian segments associated with 

watershed based Land Health Assessments. 

• Increasing restoration efforts focusing on riparian-wetlands that are not 

properly functioning or achieving standards as well as special emphasis 

on those habitats that are important for sage-grouse and threatened or 

endangered species and the Healthy Lands Initiative objectives of 

landscape level restoration. 

• Continuing to support and expand partnerships with external 

organizations to leverage funds and increase capabilities to manage, 

maintain, restore, and enhance riparian-wetlands areas to ensure long 

term sustainable results. 

• Implementing the initiative “Creeks and Communities: A Continuing 

Strategy for Accelerating Cooperative Riparian Restoration and 

Management.” 

Youth Corps member planting a pole. Cottonwood poles planted on either side of this 

lane are leafing-out. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-83

• Continuing to monitor 

riparian-wetland areas 

to ensure the 

progress and 

maintenance of the 

riparian-wetlands 

towards meeting PFC 

as well as the desired 

conditions as a result 

of management and 

restoration efforts. 

• Providing technical 

expertise to all levels 

of planning and 

provide support for 

the Oil and Gas, and 

livestock grazing programs as they relates to protection, reclamation, and 

restoration efforts. 

 

In 2009, the Riparian Program anticipates active engagement in all of the priority BLM 

planning themes, two examples would be: 

Healthy Lands Initiative- The additional $1,500,000 requested for HLI project funding 

in the Riparian Program in the 2009 will yield the following accomplishments: 

• 8 more Outreach and Environmental Education efforts 

• 23,465 more acres will have shrub/grass vegetation treatments 

• 6 shrub, grass, and forest projects will be maintained 

• 1,403 acres of weeds will be treated 

• 909 acres of wetlands will be treated 

• 15 miles more of stream/riparian treatments 

• 4 lake/wetland/stream/riparian maintenance projects 

• 33 lake/wetland/stream/riparian maintenance projects 

• 2,025 acres of monitoring and evaluating weed treatments 

The Riparian program will play a significant role in the conservation and 

restoration of habitats on a larger scale such as a landscape level subregion or 

four digit Hydrologic Unit Code (HUC). The Riparian program’s emphasis on 

collaborative efforts (Creeks and Communities) will facilitate work and funding for 

the projects. The states will identify the high priority areas to concentrate their 

efforts and the following will be the long-term goals of implementing this initiative: 

3⁄4 Watersheds are in proper functioning condition;

3⁄4 Native plants and animal communities are conserved; 

3⁄4 Habitat fragmentation is decreased; 

3⁄4 Natural fire regimes are restored; and, 

3⁄4 Effective cross-jurisdictional partnerships are in place. 

National Landscape Conservation System- $1,004,000 in funds for management of 

the NLCS units previously contributed by the Riparian Program subactivity will be 

shifted to the MLR NLCS-National Monument & National Conservation Areas 

National Riparian Service Team Conducting training 

with Field Office employees on PFC Assessment 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-84

subactivity in 2009. This transfer will result in reductions in accomplishments in the 

Riparian Management Subactivity (and equivalent increases in the NLCS subactivity) 

in 14 workload measures (program elements). The following performance for the 

NLCS activities appears in the MLR NLCS performance overview in 2009: 

• 34 outreach and environmental education efforts 

• 224 acres inventoried for presence of invasive and or noxious weeds) 

• 63 miles of stream/riparian inventories 

• 400 acres of vegetation treatments that are applied on shrub/grasslands 

• 235 acres of treatments for controlling noxious/invasive species 

• 12 acres involved in lake/wetland treatments 

• 10 miles of stream/riparian treatments 

• 4 constructing of lake/wetland/stream/riparian projects 

• 54 maintenance lake/wetland/stream/riparian projects 

• 3 miles of Decommissioning & Rehabilitating roads and trails, which is the entire 

amount that the riparian program has accomplished in past years on an annual 

basis 

• 250 acres of weed treatments evaluated 

• 260 miles of stream/riparian habitat monitored 

• 155 acres of lake/wetland habitat monitored; and,

• 1,200 acres of monitoring post fire emergency stabilization and rehab. Treatments.
Bureau of Land Management 2009 Budg

Section III- Management of Lands and Resources 

RIPARIAN MANAGEMENT PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 President's Budget 

Ch

f

2

Pl

2

Percent of DOI stream/shoreline miles that have achieved desired conditions where condition is known and as specified in management plans. (SP/PART) 

91% 

126,821/ 

140,096 

90% 

128,329/ 

143,209 

90% 

128,829/ 

143,290 

90% 

129,329/ 

143,290 

90% 

128,310/ 

143,290 

90% 

128,810/ 

143,290 

90% 

129,310/ 

143,290 

+

Total Actual/Projected Cost ($000) $15,104 $16,781 $14,918 0 $13,757 $17,879 $17,315 -$Actual/Projected Cost per Mile 

(in dollars) $119 $131 $116 $0 $107 $139 $134 +

Comments: 

The denominator change in 2005 is based on BLM perfecting the inventory process which resulted in a more precise stream/shoreline miles. BLM-Minimum desired condition is achieving proper functioning condition (PFC) and function

upward trend. 

Percent of DOI acres that have achieved desired conditions where condition is known and as specified in management plans. (SP/PART) 

45% 

115,991,274/ 

258M 

48% 

123,949,644/ 

258M 

48% 

123,952,644/ 

258M 

51% 

131,756,644/ 

258M 

52% 

135,410,846/ 

258M 

56% 

143,414,846/ 

258M 

59% 

151,418,846/ 

258M 

+

Total Actual/Projected Cost ($000) $44,914 $41,193 $46,987 $0 $56,330 $57,253 $64,302 +$Actual/Projected Cost per Acre 

(in dollars) $0.39 $0.33 $0.38 $0 $0.42 $0.40 $0.43 +

Comments: 

Two performance measures (wetlands and uplands) were combined to make one measure which counts total acres. 

2006 program assessment, BLM Forest Lands are now included and the denominator has been stabilized to show m

data. The new formula is shown beginning in 2004. Land Health Assessments being conducted through 2012 will ad

million acres each year to desired condition. This measure includes an increase for the Healthy Lands Initiative of $2

which will result in 72,079 acres treated, $922,964 in 2008 which will result in 55,114 acres treated, and $7,048,935 result in 229,417 acres treated. Acres treated do not all reach desired condition in the first year. Treated acres here 

achieving desired condition 25% in the first year and 25% each of the next three years. BLM-Minimum desired condi

achieving proper functioning condition (PFC) and functioning at risk with an upward trend. Desired condition for uplan

Health Standards developed by the BLM State offices and approved by the Secretary in accordance with Title 43 CF
Bureau of Land Management 2009 Budg

Section III- Management of Lands and Resources 

RIPARIAN MANAGEMENT PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 President's Budget 

Ch

f

2

Pl

2

Contributing Programs: Soil, Water, and Air Management, Rangeland Management, Riparian Management, Forestry Management, Challeng

Oregon and California Grant Lands 

Number of projects constructed or maintained or activity plans developed to achieve desired conditions on uplands, wetlands, and riparian areas. (Bur) 

10,110 9,538 7,251 7,192 9,077 9,103 9,227 +

Total Actual/Projected Cost ($000) $60,103 $50,170 $53,654 $0 $56,489 $57,000 $58,099 +$Actual/Projected Cost per Project or Plan (in dollars) $5,945 $5,260 $7,400 $0 $6,223 $6,262 $6,297 +Comments: 

This measure includes increases for the Healthy Lands Initiative of $73,758 in 2007, which will result in 6 stream/ripa

$511,486 in 2008, which will result in 12 lake/wetland projects, 11 shrub/grass projects, and 3 native plant materials p$1,099,344 in 2009, which will result in 19 additional shrub/grass projects constructed, 25 shrub/grass projects maint

stream/riparian projects constructed, and 44 stream/riparian projects maintained. Results for this measure are based 

planned and will vary between years. 

Number of DOI riparian

(stream/shoreline) miles restored to the condition specified in management plans. (SP/PART) 

801 1,020 770 500 601 601 601 

Comments: * Support Measure - No cost will be shown. Results for this measure are based on actual projects planned and will v

In 2009, Riparian Management will restore or enhance 224 miles of wetlands which is included in the total of 601 wet

Number of DOI wetland acres 

restored to the condition specified in management plans. (Bur/PART) 

8,721 14,299 8,366 11,000 11,290 9,800 9,800 

Comments: 

* Support Measure - No cost will be shown. Results for this measure are based on actual projects planned and will vIn 2009, Riparian Management will restore or enhance 1,152 acres of wetlands which is included in the total of 9,800 

restored. 
Bureau of Land Management 2009 Budg

Section III- Management of Lands and Resources 

RIPARIAN MANAGEMENT PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 President's Budget 

Ch

f

2

Pl

2

Inventory Lakes/Wetland Areas (acres) 14,426 6,045 5,367 5,300 5,623 4,200 4,200 Inventory Streams/Riparian Areas 3,741 4,303 3,867 3,800 1,742 1,450 1,350 -Apply Stream/Riparian Treatments (miles). 417 542 560 550 228 211 210 Construct Lake/Wetland/Stream/Riparian Projects (number). 

231 310 289 280 145 180 190 +

Monitor Lake/Wetland Habitat (acres). 6,112 8,217 12,035 1,200 12,592 11,000 11,000 Monitor Stream/Riparian Habitat (miles). 2,658 2,383 2,623 2,623 2,197 1,600 1,600 The 2009 column includes an increase for the Healthy Lands Initiative, and a performace shift to the new National Monuments and National Conservati

For more details, please see the performance table at the end of the NLCS subactivity write-up. 
Bureau of Land Management 2009 Budg

Section III- Management of Lands and Resources 

This page intentionally left blank. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-89 

Activity: Land Resources 

Subactivity: Cultural Resources Management

Activity: Land Resources 

Subactivity: Cultural Resources Management 

 2009 

 Fixed Costs & Program Change 

 2007 2008 

Related 

Changes 

Changes 

Budget 

from 

2008 

 Actual Enacted (+/ -) (+/ -) Request (+/-) 

Cultural Resources ($000) 16,614 16,120 +277 -2,879 13,518 -2,602

 

FTE 123 119 0 -22 97 -22

Other Major Resources: 

 

Major Program IT Investments: 

 

 

Summary of 2009 Program Changes for Cultural Resources Management 

Request Component ($000) FTE

Program Changes: 

• Restoration of NLCS funding to 2008 Request level -345 

• Restoration of Program funding to 2008 Request level -492 -2

• Organizational & Administrative Streamlining -51 

• Travel & Relocation Expenses -67 

• Nat'l Monument & Nat'l Conservation Area funding (new subactivity created) -1,924 -20

TOTAL, Program Changes -2,879 -22

JUSTIFICATION OF 2009 PROGRAM CHANGES

The 2009 budget request for the Cultural Resources Management program is $13,518,000 and 

97 FTE, a net program decrease of $2,602,000 and 22 FTE from the 2008 Enacted level. 

Restoration of NLCS Funding to 2008 Request Level (-$345,000) - In 2008, Congress 

provided an additional $345,000 to the Cultural Resources Management program for cultural 

projects in NLCS areas. The budget eliminates the increase to focus on higher priority areas. 

Restoration of Program Funding to 2008 Request Level (-$492,000) – The 2008, enacted 

level contained funding over the 2008 request in the Cultural Resources Management program, 

an increase for NLCS activities. The BLM proposes a reduction to the 2008 request level. The 

BLM will continue to maintain core on highest priority cultural projects and achieving efficiencies 

where possible. 

New National Monument and National Conservation Area Funding (new subactivity 

created) (-$1,924,000) - The BLM is proposing a new subactivity in MLR to fund base 

operations at National Monuments and National Conservation Areas. As a result, $1,924,000 is 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-90 

shifted from the Cultural Resources Management subactivity to the new subactivity. The 

funding shifted from the Cultural Resources Management subactivity is funding currently spent 

in the National Monuments and National Conservation Areas to meet the goals of the Cultural 

Resources Management program. The funding will continue to be spent on Cultural Resources 

Management priorities but will be managed through the National Monuments and National 

Conservation Areas subactivity. Performance in the Cultural Resources Management 

subactivity will decrease due to the funding shift; however, this performance will be shifted to the 

National Monuments and National Conservation Areas subactivity and is shown in the 

performance goals for that subactivity. 

Program Performance Change

Measures 2005 

Actual 

2006 

Actual 

2007 

Actual 

2008 

Plan 

2009 

Base 

Budget 

(2008 

Plan + 

Fixed 

Costs) 

2009 

President’s 

Budget 

Program 

Change 

Accruing 

in 2009 

Program 

Change 

Accruing 

in 

Outyears 

A B=A+C C D 

Inventory Cultural and 

Paleontological 

Resources (acres). 

44,715 44,715 52,735 57,561* 57,561 52,735 -4,826 0 

Total Actual/Projected 

Cost ($000) 1,878 2,370 2,320 2,533 2,533 2,320 -212 0 

Actual/Projected Cost 

Per Site (whole dollars) 42 53 44 44 44 44 44 0 

Restore and Protect 

Cultural/Paleontology 

Properties (number). 

395 514 461 447* 447 354 -93 0 

Total Actual/Projected 

Cost ($000) 1,963 2,630 2,081 2,018 2,018 1,598 -420 0 

Actual/Projected Cost 

Per Site (whole dollars) 4,972 5,117 4514 4514 4514 4514 4514 0 

Monitor Cultural 

Properties and 

Paleontology Localities 

(number). 

2,819 3,524 3,579 3,668* 3,668 3,192 -476 0 

Total Actual/Projected 

Cost ($000) 1,674 1,815 1,414 1,449 1,449 1,261 -188 0 

Actual/Projected Cost 

Per Site (whole dollars) 594 515 395 395 395 395 395 0 

Note: Projected costs may not equal program change as these are full costs, which may include funds from other sources and (or) use 

averages. 

Column B: The level of performance and costs expected in 2009 at the 2008 level plus funded fixed costs. Reflects the impact of prior year 

funding changes, management efficiencies, absorption of prior year fixed costs, and trend impacts, but does not reflect the proposed 

program change. 

Column D: Outyear performance beyond 2009 addresses lagging performance — those changes occurring as a result of the program 

change (not total budget) requested in 2009. It does not include the impact of receiving the program change again in a subsequent outyear. 

*Numbers increased from 2008 Planned due to funding increase in 2008 enacted

PROGRAM OVERVIEW

The Cultural Resources Management program is responsible for protecting the irreplaceable 

heritage resources, cultural and paleontological, found on Western public lands. The cultural 

resources represent all major periods and events in the broad sweep of human occupation in 

the West, from prehistoric times up through the present era, and reflect the spirit and direction of 

the Nation’s founding. The paleontological, or fossil, resources tell about the development of life 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-91 

on Earth, as well as Earth’s paleoenvironment. The preservation of BLM’s heritage resources, 

including its museum collections, is in the public interest so that the vital legacy of cultural, 

educational, aesthetic, inspirational, scientific, recreational, and economic benefits will be 

maintained and available for future generations of Americans. The Cultural Resource 

Management program also oversees management of the heritage resources located within the 

NLCS units managed by the BLM, and consultation with Indian Tribes and Alaska Natives under 

cultural statutes. 

Program Components- 

• Cultural (Archaeological and Historical) Resources 

• Paleontological Resources 

• Museum Collections 

• Heritage Education and Public Outreach 

• Tribal Consultation 

Long Term Goals – The BLM Cultural Resource Management Program’s long- term goals 

focus on inventorying, stabilizing and protecting, and monitoring cultural and paleontological 

resources and the museum collections derived from these places, so they can be enjoyed by 

current and future generations. BLM currently manages 258 million acres, 18.5 million of which 

have been surveyed to date for cultural resources. Specifically, the Cultural Resources 

Management program will focus on:

• Inventorying, evaluating, nominating, protecting, studying, stabilizing, and managing 

archaeological, historical, and paleontological resources, including those located within 

NLCS units; 

• Automating and digitizing, in collaboration with the western State Historic Preservation 

Offices and other agencies, cultural and fossil resource data, to expedite the 

Administration’s priority work including the Energy Initiative; 

• Offering more information to the public on cultural and paleontological resources by: 

o increasing the number of developed BLM cultural and fossil resources that contribute 

to community economic development, in particular heritage tourism, as envisioned 

by Executive Order 13287 on Preserve America; 

o enhancing BLM’s existing websites 

(http://www.blm.gov/wo/st/en/prog/more/CRM.html and 

http://www.blm.gov/heritage/adventures ); 

o developing Heritage Education and public outreach and interpretive products; and 

o commemorating key events and anniversaries related to landmark cultural statutes. 

• Issuing and overseeing cultural and paleontological resource use permits; 

• Consulting with Indian Tribes and Alaska Natives; 

• Determining the ultimate disposition of museum collections subject to the provisions of the 

Native American Graves Protection and Repatriation Act; 

• Developing partnerships and managing volunteers who contribute their time and effort to 

benefit cultural and paleontological resources; and, 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-92 

• Working with non-Federal museums that house many of the archaeological and fossil 

collections derived from public lands to catalog, study, interpret, and make the collections 

more accessible. 

Critical Factors - Critical factors impacting program performance include: (1) Access to 

Partners and Volunteers: the availability of partners to assist BLM State offices and field offices 

to accomplish Challenge Cost Share projects varies by location; (2) Volume of Section 106 

Casework: Annually, BLM cultural specialists review upwards of 16,000 land use undertakings 

for their effect on listed or eligible National Register of Historic Place properties, at the expense 

of devoting time to proactive Section 110 work; (3) Logistical Access to Resources: Accessing 

heritage resources in some states, like Alaska, can involve considerably more time, money, and 

effort. 

Means and Strategies - The Cultural Resources Management program addresses the priorities 

of the program in a number of significant ways including: (1) continuing BLM’s national 

Programmatic Agreement negotiated with the Advisory Council on Historic Preservation 

(Council) and the National Conference of State Historic Preservation Offices (NCSHPO), 

currently celebrating its 10th anniversary, as the primary mechanism for streamlining the section 

106 review process and expediting approval of upwards of 16,000 land use undertakings 

annually; (2) continuing and expanding agreements with western State Historic Preservation 

Offices as part of BLM’s Cultural Resources Data Sharing Project to automate and digitize site 

records, site locations, and digitized space, allowing for expedited review of land use 

undertakings; (3) using Challenge Cost Share (CCS) agreements, which return on average 

$2.28 for every Federal dollar spent, to complete program work; (4) using volunteers, who 

annually contribute well in excess of 100,000 hours for heritage resource work and whose value 

to the BLM is at least $2M, to complete program work; (5) lengthening the time period that 

Cultural Resources Use Permits are in effect from one year to three years to reduce processing 

costs; and (6) using new technologies, such as CRM Tracker, ArchIMS, and the Cultural 

Resources Attributing Tool, to input and retrieve automated cultural resource site and survey 

data, and provide real-time information to SHPOs on land use projects to expedite their review 

and approval of the BLM decisions on inventory, evaluation, and treatment. 

Major Provisions of National Historic Preservation Act 

Section 106: Requires Federal agencies to take into account the effects of their actions and 

use authorizations on cultural properties included in or eligible for the National Register of 

Historic Places, in consultation with State Historic Preservation Offices (SHPOs), local 

governments, Indian tribes, and the interested public. The Section 106 process includes a 

series of sequential steps: Inventory and Evaluation; Consultation; and Mitigation. The BLM 

operates under a national Programmatic Agreement, negotiated with the Advisory Council on 

Historic Preservation and the National Conference of State Historic Preservation Offices, to 

streamline its compliance under Section 106. 

Section 110: Builds on Section 106 by adding a general requirement for Federal agencies to 

proactively preserve and document the cultural resources they manage. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-93 

Other Funding Sources – BLM has a number of partners and volunteers who assist State 

offices and field offices in accomplishing priority heritage work, including work related to 

performance measures. Together, CCS partners and volunteers aid BLM’s appropriation with 

in-kind contributions of upwards of $4-6 million annually. 

A key element of BLM’s national Programmatic Agreement is working with Western SHPOs to 

automate archaeological site records, and digitize site locations and inventories, part of BLM’s 

Cultural Resources Data Sharing program. BLM provides annual funding to SHPOs for these 

efforts, which is partially matched by money and staff time provided by SHPOs and other federal 

partners. This automated data allows the BLM to process section 106 undertakings in an 

expedited fashion. 

Several BLM State Offices, such as California and Colorado, tap directly or indirectly into state 

government funding to accomplish critical cultural resource work. BLM’s California State Office 

uses “green sticker” funds from the State of California to support the BLM Site Steward 

Program, while BLM’s Colorado State Office works through non-federal partners to tap into the 

Colorado Historic Fund to accomplish a wide range of cultural resource work throughout the 

state. In addition, BLM’s Project Archaeology program, based at Montana State University in 

Bozeman, Montana, has worked in partnership with MSU to obtain outside grants. In the past, 

Project Archaeology obtained grants from the American Honda Foundation, to extend 

archaeology education to African-American students, and from Kinder Morgan and El Paso 

corporations to develop educational materials for teachers and students in Northwest Colorado. 

In addition, Project Archaeology received a small grant through the Kentucky Heritage Council 

to support an annual conference for state program coordinators. 

Strategic Plan – This program supports the Resource Protection mission goal in the 

Department’s Strategic Plan by protecting cultural and fossil resources. Cultural and 

paleontological resources are a partial indicator of the health of the land; resources in “good” 

condition generally indicate public lands that are in better health. In the last several years, BLM 

has sustained the percentage of archaeological resources on the Departmental inventory in 

good condition at 82 percent, and the percentage of paleontological resources in the 

Departmental inventory in good condition at 98 percent. In the last three years, almost 1,300 

heritage properties have been stabilized and/or protected. With the recent addition of a new 

Performance Measure requiring Interior Bureaus to report on the percent of historic structures 

on the Departmental inventory in good condition, BLM has begun to compile a database of such 

Cultural Resources Quick Facts 

• Cultural Resource inventories are essential because users of public lands are required to 

mitigate impacts to National Register listed or eligible cultural resources. 

• 7.1% of BLM public lands have been inventoried for cultural resources. 

• On average, 500,000 acres of public lands are inventoried annually for cultural resources. 

• 90% of this inventory is paid for by land-use applicants. 

• Museum collections originating from public lands are found in over 140 museums and 

universities nationwide. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-94 

structures, which previously did not exist. Structures are being added on almost a daily basis, 

so while the initial 2007 list consisted of only 128 structures, of which roughly 60 percent were in 

good condition, the 2008 compilation consists of 362 structures, of which only 49 percent are in 

good condition; the decline in percentage in good condition is an indication that the recent 

additions to the list are structures more recently discovered as a result of proactive inventory 

that are in poorer condition. 

Emphasis Areas – The program also supports BLM’s Emphasis Areas of Healthy Lands, 

Southwest Borders, Community Growth, Energy, Non-Energy Commodity, and National 

Landscape Conservation. The Healthy Lands emphasis area conserves and restores habitats 

while providing for managed use, and the CRM program is a key player in conservation and 

restoration. The Southwest Border emphasis area focuses on interagency opportunities to 

enhance safety for employees and visitors and further mitigate damage on public lands from 

illegal immigration and smuggling, and has four priority workloads, one of which is the protection 

of archaeological sites. The Community Growth emphasis area strives to address impacts to 

public land and resources that stem from large community growth areas, and one essential area 

is preventing the loss of cultural resources. 

The program supports the Energy emphasis area through streamlining the section 106 

compliance process using its National Programmatic Agreement, participating in land use 

planning processes, and by conducting and updating baseline studies and regional reviews of 

state requirements to ensure that cultural resource protection measures are included in energy 

lease stipulations and energy permit conditions of approval. Specialists funded in the program 

also provide the framework of policy and information that is needed by local managers to 

assess impacts, make decisions, and monitor the effects or energy development to ensure 

environmentally responsive project development on public lands. The program also supports 

the Non-Energy Commodity emphasis area through streamlining section 106 compliance 

processes using its National Programmatic Agreement. The National Landscape Conservation 

System program is supported by the Cultural Resource Management program through the 

transfer of funds in 2009 so the NLCS program can use the funds to conserve, protect and 

restore, and well as conduct science within NLCS boundaries. 

Stemming from the President’s Executive Order 13287 on Preserve America and the Preserve 

America Summit, held in October 2006, in New Orleans, the BLM continues to develop and 

expand heritage tourism opportunities on the public lands, working in collaboration with the 

Federal and non-Federal partners, including Indian Tribes. The primary beneficiary of these 

expanded tourism opportunities will be “gateway” communities that adjoin public lands that may 

benefit economically from increased visitors in their regions. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-95 

2009 PROGRAM PERFORMANCE 

2007 Accomplishments - In 2007, Bureau Cultural Resource Management staff was 

responsible for: 

• Inventorying 52,735 acres of public lands for heritage resources 

• Issuing 419 Cultural Resource Use Permits 

• Recording, studying, and evaluating 835 heritage properties 

• Stabilizing and protecting 461 heritage properties 

• Monitoring 3,579 heritage properties 

2008 Planned Program Performance – The 2008 Appropriation will allow the BLM to: 

• Stabilize and implement other physical protection measures at the highest priority 

scientifically, culturally, economically, and educationally important and/or critically 

threatened heritage properties; 

• Sustain the number of volunteer hours contributed to heritage activities by working 

collaboratively with State Historic Preservation Offices and volunteer organizations; 

• Address collections management needs on highest priority BLM collections held in a nonfederal repository, where possible, cataloging, packaging and making them accessible for 

interpretation, education and research; 

• Sustain the number of sites monitored, primarily in collaboration with partners and 

volunteers; and 

• Maintain existing partnerships with Indian tribes, intended to identify and assess places of 

traditional cultural importance. 

Use of Cost and Performance Information 

Monitoring: Most monitoring of cultural properties on public lands is done by Site Steward and 

Adopt-a-Site volunteers. Such volunteer programs exist in eight BLM states, either regionally or 

statewide. Between 2005 and 2006, cost management data indicates that unit costs for conducting 

cultural resource monitoring declined; while unit costs increased slightly between 2006 and 2007, unit 

costs over the three years have been remarkably stable. Since BLM has been using more volunteers 

for such work and reporting the accomplishments of volunteers in the Management Information 

System (MIS), it would indicate BLM’s use of unpaid volunteers is responsible for this stability. As 

BLM increases its use of site stewards across states and field offices, unit costs for monitoring should 

stay reasonably level. 

Inventory: Inventories of public lands to document cultural and fossil resources are an important part 

of the Cultural Heritage Program; use of cost management data has aided the BLM in maximizing the 

number of inventories conducted with available funding. For example, cost management data on the 

average cost for conducting inventories using BLM employees has allowed the program to evaluate 

proposals by contractors to perform the same work. Over time, the average cost of in-house 

inventories is beginning to more closely mirror the cost for cultural inventories undertaken by 

contractors. However, in-house average costs will typically be less because BLM conducts many of 

these inventories under challenge cost share arrangements that involve use of unpaid volunteers. 

Nonetheless, cost management data provides information that allows for better comparisons for inhouse vs. contractor-undertaken work.
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-96 

Factors Influencing Unit Cost – An example of a business decision that can influence unit 

cost is expansion on use of site steward volunteers for heritage resource monitoring. While not 

altogether free to BLM, since use of volunteers entails infrastructure development, such as 

supervision, recruitment, training, and management costs, these individuals cost a good deal 

less that FTE employees (see discussion above 

on “Use of Cost and Performance Information”). 

Project – A key element of BLM’s national 

Programmatic Agreement is working with western 

SHPOs to automate archaeological site records, 

and digitize site locations and inventories, part of 

BLM’s Cultural Resources Data Sharing program. 

BLM provides annual funding to SHPOs for these 

efforts, which is partially matched by money and 

staff time provided by SHPOs and other federal 

partners. This automated data allows BLM to 

process section 106 undertakings in an expedited 

fashion. This project will continue into the 

foreseeable future because of its enormous 

importance. 

2009 Program Performance- The focus of the 

Cultural Resource program for 2009 will be to continue inventory, evaluation, protection, study, 

stabilization, interpretation, and management of archaeological, historical, and paleontological 

resources.

Planned Activities – With base funding in 2009, the program will: 

• Inventory 31,614 acres for heritage resources. This is a reduction from the Cultural 

Resource Management subactivity of 25,947 acres from 2008 levels. In 2009, 21,121 

acres will be inventoried for heritage resources and reported in the NLCS subactivity 

performance overview; 

• Restore and protect 309 cultural/paleontological properties. This is a reduction of 138 

properties from 2008 levels in the Cultural Resources Management subactivity. Fewer 

properties will be restored and protected in 2009 due to the one-time increase in 2008, 

and due to shifting funds to the NLCS program; 

• Conduct 869 outreach and coordination efforts for heritage resources, 218 less than 

2008 due to the one-time increase in 2008, and due to shifting funds to the NLCS 

program; 

• Monitoring 2,728 properties, 464 less than in 2008, due to the one-time increase in 2008 

and due to shifting funds to the NLCS program; 

• Sustain existing volunteer Site Steward programs, and, if possible, develop programs 

where they are not already in place; 

• Maintain existing heritage tourism opportunities; 

• Continue to account for and protect museum collections in non-Federal repositories; 

• Maintain investment in data sharing programs with State Historic Preservation Offices so 

that streamlining of section 106 compliance can be sustained and enhanced. 

Restored prehistoric artifact located at the Anasazi 

Heritage Center in Dolores, Colorado. The Anasazi 

Heritage Center houses several million artifacts, and 

includes exhibit areas and a laboratory.
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-97 

Base Program Improvements - Several program process improvements are planned for 2009: 

• Passport in Time Program — Expand the partnership with the U.S. Forest Service to 

have Forest Service help BLM recruit volunteers for BLM archaeological projects 

through their Passport in Time (PIT) Clearinghouse. PIT volunteers pay to work on 

archaeological projects, and the Forest Service can only place about one-half of their 

potential recruits, so a partnership with BLM and other Federal agencies makes sense. 

• Site Steward Programs — In collaboration with the Advisory Council and SHPOs 

continue to expand Site Steward Programs, particularly across the West. 

• Grants — Continue working to obtain grants to support and sustain heritage programs, 

such as site stewards, Project Archaeology and heritage education, and collections 

management. 

• Implementation of Task Force Recommendations on Historic Preservation 

Activities — Partner with SHPOs to implement a series of recommendations for 

improved communication and collaboration in meeting BLM’s responsibilities under the 

national Programmatic Agreement. 

• Advisory Council on Historic Preservation — Improve the consistency and quality of 

communications between the Council and BLM on programs, policies, and projects 

carried out under the BLM national Programmatic Agreement. 

• Tribal Consultation and Public Participation — Complete review of existing BLM 

policies and training for meeting tribal consultation and public participation requirements 

under the National Historic Preservation Act. 
Bureau of Land Management 2009 

Section III- Management of Lands and Resources 

CULTURAL RESOURCES MANAGEMENT PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 Presiden

Budget 

Percent of archaeological sites on BLM inventory in good condition (SP) 

81% 

35,744/ 

43,892 

82% 

38,656/ 

47,302 

82% 

41,860/ 

50,865 

82% 

44,743/ 

54,565 

83% 

44,911/ 

54,273 

83% 

47,537/ 

57,273 

82% 

49,663/ 

60,565 

Comments: * Support Measure - No cost will be shown. Archaeological sites are added to BLM inventory each year which 

denominator. 

Percent of historic structures on BLM inventory in good condition (SP) 

new 

measure 

new 

measure 

new 

measure 

60% 

77/ 128 

48% 

158/ 326 

49% 

176/ 362 

49% 

181/ 372 

Total Actual/Projected Cost ($000) 0 0 0 0 $2,906 $3,649 $3,174 Actual/Projected Cost per historic structure (in dollars) $0 $0 $0 $0 $18,394 $20,733 $17,536 Comments: * Support Measure - No cost will be shown. Additional historic structures are added to the inventory at the be

denominator. 

Percent of collections in DOI inventory in good condition. (i.e., maintained according to DOI museum property management collection standards). (SP) 

100% 

3 / 3 

100% 

3 / 3 

100% 

3 / 3 

100% 

3 / 3 

100% 

3 / 3 

100% 

3 / 3 

100% 

3 / 3 

Comments: * Support Measure - No cost will be shown. Percent of paleontological localities in DOI inventory in good condition. (SP) 

90% 

1,724/ 

1,915 

90% 

1,724/ 

1,915 

98% 

14,980/ 

15,351 

98% 

16,660/ 

17,000 

97% 

18,652/ 

19,134 

98% 

21,500 / 

22,000 

98% 

20,580/ 

22,000 

Comments: 

* Support Measure - No cost will be shown. Increase in 2006 actuals is the result of acquisition of additional da

Out year targets have been adjusted to reflect continued acquisition of data. 

Heritage Resources: Number of heritage resources conserved for public benefit (Bur) 

4,722 4,983 4,947 5,000 5,664 4,500 4,500 

Total Actual/Projected Cost ($000) 11,716 8,659 7,366 0 7,402 8,743 7,612 
Bureau of Land Management 2009 

Section III- Management of Lands and Resources 

CULTURAL RESOURCES MANAGEMENT PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 Presiden

Budget 

Actual/Projected Cost per Heritage Resource (in dollars) $2,461 $1,738 $1,489 $0 $1,307 $1,943 $1,692 Comments: * Support Measure - No cost will be shown. Results for this measure are based on actual projects planned and Heritage Resources: Number of acres of heritage resources inventory conducted (Bur) 

68,601 62,511 57,989 50,000 52,735 57,561 60,000 

Total Actual/Projected Cost ($000) $3,814 $3,420 $3,389 $0 $3,292 $3,312 $2,840 Actual/Projected Cost per Acre (in dollars) $56 $55 $58 $0 $62 $58 $47 Comments: Inventory for heritage resources is based on actual project acres which will vary between years. Heritage Resources: Number of outreach and coordination efforts conducted for heritage resources (Bur) 

new 

measure 

new 

measure 

new 

measure 

Establish 

Baseline 1,222 1,087 1,000 

Total Actual/Projected Cost ($000) 0 0 0 0 $2,828 $1,968 $1,727 Actual/Projected Cost per Outreach (in dollars) $0.00 $0.00 $0.00 $0.00 $2,314 $1,811 $1,727 Comments: Number of outreach and coordination efforts for heritage resources is based on actual projects planned and wilHeritage Resources: Number of heritage collections conserved for the future. (Bur) 

new 

measure 

new 

measure 

new 

measure 

Establish 

Baseline 116 109 104 

Total Actual/Projected Cost ($000) 0 0 0 0 $826 $898 $757 Actual/Projected Cost per collection (in dollars) $0.00 $0.00 $0.00 $0.00 $7,123 $8,239 $7,283 Comments: 
Bureau of Land Management 2009 

Section III- Management of Lands and Resources 

CULTURAL RESOURCES MANAGEMENT PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 Presiden

Budget 

Inventory Cultural and Paleontological Resources (acres). 68,601 50,990 47,554 44,715 52,735 57,561 36,440 Comments: 21,121 acres inventoried will be shifted to NLCS in 2009 Restore and Protect Cultural/Paleontology Properties (number). 

571 489 315 514 461 447 309 

Comments: 45 heritage resources stabilized, managed and protected will be shifted to NLCS in 2009 pending funding verifMonitor Cultural Properties and Paleontology Localities (number). 3,534 2,991 3,332 3,524 3,579 3,192 2,728 Comments: 464 heritage resources monitored will be shifted to NLCS in 2009 pending funding verification ** The 2009 column reflects a decrease in performance for the 2008 unrequested increase that will not be carried forward and a shift in performance to t

National Conservation Areas subactivity pending verification. Other workload measures to be shifted to NLCS in 2009 pending funding verification inclu

recorded, evaluated and studied; 10 museum collections accessioned, inventoried or upgraded; one inventory, repatriate and transfer custody of NAGPIndian Tribes and Alaskan Native Corporations. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-101

Activity: Lands Resources 

Subactivity: Wild Horses and Burros

Activity: Land Resources 

Subactivity: Wild Horse and Burro Management 

 2009 

 Fixed Costs & Program Change 

 2007 2008 

Related 

Changes Changes Budget 

from 

2008 

 Enacted Enacted (+/ -) (+/ -) Request (+/-) 

Wild Horse and Burro ($000) 36,354 36,201 +267 +493 36,961 +760

 

FTE 134 131 0 0 131 0

Other Major Resources: 

Adopt-A-Horse Program 634 650 0 0 650 0

Transfer: USFS Wild Horses 1,750 0 0 0 0 0

Major Program IT Investments: 

WHBPS: 010-04-01-03-01-0427-00 670 360 360 0

 

Summary of 2009 Program Changes for Wild Horse and Burro Management 

Request Component ($000) FTE

Program Changes: 

 

• Organizational & Administrative Streamlining -75 

• Travel & Relocation Expenses -110 

• Increase funding for acceptable population levels +678 0

TOTAL, Program Changes +493 0

JUSTIFICATION OF 2009 PROGRAM CHANGES 

The 2009 budget request for the Wild Horse and Burro program is $36,961,000 and 131 FTE, a 

program change of +$493,000 and +0 FTE from the 2008 Enacted Level. 

Increased funding for acceptable populations levels (+$678, 000) - In 2009, the BLM 

proposes to increase the program by $678,000 over the 2008 enacted level. The increased 

funding will allow the program to conduct additional gathers. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-102

PROGRAM PERFORMANCE CHANGE 

2005 

Actual 

2006 

Actual 

2007 

Actual 2008 Plan 

2009 Base 

Budget 

(2008 

Plan + 

Fixed 

Costs) 

2009 Plan 

Program 

Change 

Accruing in 

2009 

Program 

Change 

Accruing 

in Outyears 

A B=A+C C D 

Wild Horse and 

Burro Management 

Areas: Cumulative 

percent of number 

of Herd 

Management 

Areas achieving 

appropriate 

management 

levels. (Bur)

57% 

116/ 201 

72% 

145/ 201 

66% 

131/ 199 

48% 

96/ 199 

48% 

96/ 199

58% 

115/ 199 +10% 0 

Total 

Actual/Projected 

Cost ($000) 

$47,830 $44,543 $47,797 $44,135 $44,135 $44,813 +678 0

Actual/Projected 

Cost $412,327 $307,195 $364,861 $459,736 $459,736 $389,678 -$70,058 0

Comments 

In 2005 Congress approved a permanent reprogramming of approximately $10.5M. The new funding 

along with newly enacted sale authority and certain program efficiencies allowed the program to bring the 

population down from over 47,000 animals in 2004 to approximately 31,000 in 2006. Land exchanges 

completed in 2006 reduced the Herd Management Area number from 201 to 199. In 2008, Congress 

restored funding to the 2007 level therefore, due to the high cost of feeding the animals in holding (69% 

of the appropriation), progress towards AML will continue to decline in the out-years as a result of being 

unable to gather enough animals to achieve AML.

Note: Projected costs may not equal program change as these are full costs, which may include funds from other sources and (or) use 

averages. 

Column A: The level of performance and costs expected in 2009 at the 2008 level plus funded fixed costs. Reflects the impact of prior year 

funding changes, management efficiencies, absorption of prior year fixed costs, and trend impacts, but does not reflect the proposed program 

change. 

Column D: Out-year performance beyond 2009 addresses lagging performance — those changes occurring as a result of the program change 

(not total budget) requested in 2009. It does not include the impact of receiving the program change again in a subsequent out-year. 

PROGRAM OVERVIEW 

Program Components- The BLM is responsible for implementing the Wild Free-Roaming 

Horses and Burros Act of 1971. The Act requires the protection, management, and control of 

wild free-roaming horses and burros in a manner designed to achieve and maintain a thriving 

natural ecological balance on the public lands. 

The BLM manages wild horse and burro populations by monitoring the animals and their 

habitat, establishing Appropriate Management Levels, and removing animals when the 

Appropriate Management Levels are exceeded. The BLM strives to achieve Appropriate 

Management Levels because higher populations result in overgrazing of forage, increased soil 

erosion, reduced water quality, and expansion of invasive species. Appropriate Management 

Levels, which can range from high to low, are adjusted as necessary based on results obtained 

from monitoring the health of the land. Appropriate Management Levels in Herd Management 

Areas (HMA) is approximately 26,000 animals on the open range at any one time. The animals 

in each HMA are only gathered once every 3 to 4 years to ensure viable herds, free roaming 

nature, and minimal disturbance to the animals. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-103

In order to maintain healthy rangelands, the BLM continually removes excess animals. 

Amendments to the 1971 Act allowed the BLM to use helicopters and motor vehicles in gather 

operations. Some of the provisions ─ such as the destruction of healthy excess animals to 

achieve appropriate management levels are no longer utilized. 

The Secretary of Interior is also required to maintain a current inventory of wild free-roaming 

horses and burros on given areas of the public lands, to determine Appropriate Management 

Levels of wild free-roaming horses and burros on these areas of the public lands, and to 

determine whether Appropriate Management Levels should be achieved by the removal or 

destruction of excess animals, or other options (such as sterilization, or natural controls on 

population levels). Where it is determined that horses and burros must be removed to restore 

the range to a thriving natural ecological balance, the Secretary through BLM must humanely 

capture these animals and put them up for private adoption. 

The Act was again modified by the 2005 Omnibus Appropriations Act (Public Law 108-447) to 

allow the BLM to sell animals over 10 years of age or animals unsuccessfully offered for 

adoption three times. In the first few months, approximately 1,500 animals were sold, which 

provided a lifetime holding cost savings of $7.5 million to $15 million (based on the long natural 

lifespan of horses). 

As of November 2007, the program manages approximately 30,000 wild horses and burros on 

the public lands, another 10,000 animals in short-term holding facilities, and 21,000 animals in 

long-term holding facilities. 

Long Term Vision - The Wild Horses and Burro program goal is to achieve and maintain 

healthy, viable wild horse and burro populations while maintaining healthy rangeland and 

watershed conditions on public lands. 

Critical Factors – The Wild Horse and Burro program faces a number of challenges in 2009. 

The foremost difficulty will be dealing with the expenses associated with long-term holding of 

un-adoptable animals, which are expected to rise to more than two-thirds of the program’s costs 

this year. Another significant, and related, obstacle is the steady rate of decline in private 

adoptions of excess animals. The wild horse and burro population increases approximately 20 

percent each year in the absence of gathers. As a result of the increasing population on the 

range, the program uses fertility control whenever possible; however, there are limitations to the 

effectiveness and cost efficiency of the fertility controls that are currently available. 

Holding Costs – The foremost challenge facing the Wild Horse and Burro program today is the 

cost of providing lifetime holding of unadoptable horses and the lack of available land resources 

that will support the wild horse and burro population once gathered and unadopted. The BLM’s 

goal is to reduce holding costs over time by balancing annual gather removals with the private 

adoptions of excess animals. Holding costs include feed, the pasture or acreage, and 

administrative costs to manage the facilities. 

The BLM currently has eleven long-term holding facilities that hold 21,800 animals, which will be 

full by the end of the first quarter of 2008. Four of the facility contracts will expire in January 

2008; the BLM is currently renegotiating extensions of those agreements. The renegotiations of 

the contracts are not yet complete; however, based upon the information currently available in 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-104

January 2008, BLM anticipates that costs could be higher. The BLM allocated 58 percent of 

appropriated funds in 2007 to holding costs, a proportion that is expected to climb to 68 percent 

in 2008 based on current long-term holding costs estimates. 

Fertility Control – The BLM has promoted and supported the development of effective 

contraceptive agents for wild horses since 1978. The most promising agents are the Porcine 

Zona Pellucida (PZP) vaccines developed in the 1990s. The BLM is currently studying the 

effects of two formulations in the field, and thus far the vaccines appear to be safe. 

PZP has some limitations, however. The mares must be gathered to be treated, and maximum 

effectiveness is not achieved unless the mares are treated during a 3 to 4-month window prior 

to foaling. Under ideal circumstances, this agent may be able to lengthen the gather cycle by 

about one year. A longer-acting 3 to 4-year agent is needed to significantly reduce herd growth 

rates and achieve meaningful cost savings. 

The BLM supports the concept of fertility control. The BLM looks forward to the development of 

a longer-acting agent that can be used to control the wild horse population levels. The BLM will 

thus continue to encourage the development of a longer-acting contraceptive agent, and to 

apply the existing 2-year PZP formulation when possible in a fiscally responsible manner. 

 Barriers to Increasing Adoptions and Sales – Finding private long-term care for excess animals 

is another challenge the BLM faces. The number of annual adoptions has steadily declined from 

approximately 7,600 animals in 2001, to a projected 5,200 animals in 2008. 

Some factors underlying this phenomenon, including: the closure of all domestic commercial 

processing plants in 2007, and rising energy costs in recent years. The spike in energy prices 

has increased the price of transporting hay, as well as the cost of hay production, as the interest 

in ethanol has created competition for land resources. 

 

Recent findings of domesticated horses on BLM lands and other areas have also raised the 

concern that horse owners that are financially unable to care for or humanely euthanize 

unwanted horses are beginning to release them on public lands. 

Other Partnerships and Funding Sources – The BLM uses innovative ways to boost the 

public’s awareness of the adoption program, including media advertisements and public events. 

“Max,” the winner of the 2007 Extreme Mustang 

Makeover, shown with his trainer Guy Woods of Pilot 

Point, TX. After the competition, Mr. Woods 

successfully adopted “Max.” Since September 2007, 

the “Extreme Mustang Makeover” has drawn 

national attention to the program. In addition to the 

2nd Annual “Extreme Mustang Makeover” that will be 

held in Fort Worth, TX in September, “mini” 

makeovers are planned in Wisconsin and California 

in 2008.
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-105

The program will continue to grow its partnership with the Mustang Heritage Foundation, which 

is responsible for the “Extreme Mustang Makeover” and the “Trainer Incentive Program.” The 

latter offers incentives to trainers who assist the BLM by gentling and adopting wild horses. 

The BLM will continue to partner with Take Pride in America® and the Ford Motor Co. to 

promote the “Save the Mustangs Fund,” which funds private adoptions of older animals or 

animals that are not in the adoption pipeline. 

 

The BLM has also provided trained mustangs to other departments and agencies in the Federal 

Government at minimal cost to the taxpayers. Since 2005, the BLM has also partnered with the 

U.S Forest Service to gather Wild Horses and Burros. The U.S. Forest Service transfers funds 

to the BLM to remove, prepare, and adopt excess horses and burros from National Forest 

System lands. This authority extends through the end of 2009. 

Whenever possible, the BLM seeks to allocate funds from the Southern Nevada Public Lands 

Management Act (SNPLMA) account to manage wild horse and burro populations in Nevada in 

order to benefit the health of the land in Southern Nevada and to supplement monies 

appropriated as part of the Wild Horse and Burro program. 

In prior years, the program has also received support from other benefiting subactivities. The 

benefiting subactivities addressed Wild Horse and Burro related issues that impact program 

activities and performance. This funding support, which has averaged approximately $3 million 

annually, has enabled the Wild Horse and Burro program to focus its resources on gathers, 

feeding, adoption and holding costs, and providing the program with the funding needed to 

address the total WHB program costs. As Bureau and program priorities continue to change, the 

Wild Horse and Burro program will strive to develop new strategies to reduce overall costs, 

achieve Appropriate Management Levels and assist with maintaining the health of the land, 

Program Assessment Rating Tool 

During 2006, the Land Resources, Wildlife and Fisheries, Endangered Species and Oregon and 

California Grant Lands programs participating in “Resource Protection” work activities were evaluated 

using the Administration’s Program Assessment Rating Tool (PART). Results of the 2006 Resource 

Management program assessment indicated that BLM needed to improve its performance measures 

and the data collection and reporting processes for those measures. As a result of this 

recommendation, BLM has made improvements which will help to show the progress being made to 

achieve Resource Protection goals. The improvements BLM has made include: 

• Refined existing performance measures to clarify the standard used to reflect achievement. 

• Improved data collections and measurement processes to improve trend data; 

• Added several new intermediate measures that help show annual contributions to the longterm outcome measures; 

• Improved the alignment of program elements to work activities to show the increase of work by 

integrated programs to achieve “Resource Protection” objectives; and 

• Continued efforts to develop efficiency measure for the "Resource Protection" mission area. 

The BLM continues to validate the performance information collected by working closer with the State 

and Field Offices. Performance measures are linked to the budget allocations, as well as the 

measurable outputs. The BLM is also working to improve the way performance measure information is 

used in executive leadership performance appraisal plans to hold executives accountable for meeting 

performance targets.
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-106

BLM Partnerships in 2007 

In 2007, a unique partnership between 

the BLM and the Colorado Department 

of Corrections turned adopted mustangs 

into mounts for the U.S. Border Patrol 

agents on the Canadian border. The 

Border Patrol, like any adopter, pays a 

$125 BLM adoption fee and as well as a 

$1,000 training fee to the Colorado 

Department of Corrections, a significant 

savings over leasing horses. Using 

mustangs for patrol reduces the impact 

on wildlife and land; in environmentally 

sensitive areas, this is a huge benefit 

over the use of motorized transportation. 

therefore, reducing the dependency on benefiting subactivities in the future. In the upcoming 

months the BLM will conduct a thorough analysis of all the costs associated with the program. 

Strategic Plan – The Wild Horse and Burro program supports such Interior Department 

resource protection goals as: Improving the Health of Watersheds and Landscapes; Sustaining 

Biological Communities; and the Protection of Cultural and Natural Heritage Resources. The 

program also supports the DOI Strategic Plan Direction to provide for sustainable, multiple-use 

of the public lands by achieving Appropriate Management Levels of wild horses and burros. This 

will help to achieve healthy rangelands and improve habitat conditions. The performance 

measure used by the program to gauge progress towards meeting the mission goals is Herd 

Management Areas Achieving Appropriate Management Levels. 

2009 PROGRAM PERFORMANCE 

2007 Accomplishments - Due to efforts to gather and remove excess horses in 2007, the 

estimated population of animals in February 2007, was approximately 28,500─ within 4 percent 

of reaching the Appropriate Management Levels 

goal. 

In 2007: 

• Over 6,420 animals were removed from the 

public rangelands. 

• 4,920 animals were adopted. 

• 436 animals were sold. 

• The BLM provided 75 horses for the Extreme 

Mustang Makeover. The trainers adopted each of 

the animals, resulting in long-term holding 

savings of over $1 million. 

• The BLM will continue the partnerships with 

Animal and Plant Health Inspection Service, the 

Humane Society of The United States, the United 

States Geological Survey Biological Resource 

Division, and the US Forest Service. These 

partnerships were critical to improvements made 

in census and fertility control research efforts, as well as day-to-day management of wild 

horse and burro herds on the public lands. 

 

2008 Planned Program Performance- Due to the downward adoption trend, the numbers of 

animals in long-term holding are increasing and facilities are reaching capacity. In 2008, the 

BLM will provide feed and care for the over 29,000 animals in the BLM short- and long-term 

holding facilities at a cost of approximately $25 million. As a result of the increased costs and 

facilities almost at capacity, the program can only remove approximately 5,200 animals in 2008, 

a 1,220 decrease from 2007. 

Fires and extreme drought conditions in Nevada in late 2007 have also harmed habitat used by 

wild horses in the state. In 2008, 3,000 of the 5,200 animals to be gathered, will be gathered in 

Nevada due to emergency situations caused by drought and fire. In 2007, the BLM used $2.0 

million in Emergency Stabilization and Rehabilitation (ESR) funds to gather horses in areas 

burned by fires. These funds do not cover subsequent holding costs. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-107

Another 2,200 animals will be gathered during the summer of 2008 to help maintain the 

population at near the Appropriate Management Levels level. However, because more horses 

are being found in the emergency gather areas than the BLM anticipated, the population on the 

range is expected to stay above the high Appropriate Management Levels (see graph on page 

III-11). 

2009 Program Performance- In 2009, caring for the animals in holding will be the top priority 

for the program. Due to the increased number of animals in holding, holding costs will consume 

the greater portion of the Wild Horse and Burro program budget in 2009. 

Holding Costs- As shown in the chart below, the greater part of the Wild Horse and Burro 

program funding is spent on holding and caring for the animals. 

Holding Cost History and Projections 

0

5,000,000

10,000,000

15,000,000

20,000,000

25,000,000

30,000,000

Total Holding Costs

Short-term Holding

Long-term Holding

Total Holding Costs $20,754,080 $24,993,513 $21,669,067

Short-term Holding $11,379,158 $14,740,294 $10,392,814

Long-term Holding $9,374,922 $10,253,219 $11,276,253

FY 2007 FY 2008 FY 2009

The chart above shows a decrease in short-term holding costs in 2009, which is a result of the 

planned decrease in the number of animals gathered in 2008, as discussed earlier. The 

program is currently in the process of renegotiating several of the long-term holding contracts 

and obtaining additional contracts. However, the program does not have specific information on 

the likely costs. The program anticipates that the costs will increase, which could adversely 

impact the program. If additional facilities cannot be obtained in 2008, the long-term holding 

costs will also cap as the facilities will be at capacity by the end of the fall 2008. Thus gathers in 

2009 could also be impacted. 

2009 Holding Cost Challenges– The average life expectancy of a horse is 30 years (once in 

captivity) and historically animals over the age of 5-years are deemed “un-adoptable.” This 

presents a challenge to the program’s budget for several reasons. If a horse or burro is not 

adopted, BLM will be providing care for the horse for the remainder of the animal’s life. The 

most recent adoption trends indicate that the program can adopt 5,200 animals annually. 

Holding costs in the program may also be impacted as a result of the closing of the three 

remaining commercial processing plants in 2008. As a result of the closings, there will be an 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-108

additional 90,000 horses competing in the same adoption market as the BLM. Currently, BLM’s 

practice does not allow horses to be euthanized or sold without limitations. 

The chart below provides an analysis of the potential costs to the Wild Horses and Burros 

program with the current number of horses in BLM long-term holding facilities. The chart 

assumes that these animals will live the expected life span of 30 years at the four year average 

unit cost of $1.27, which does not include inflation, additional contracting and administrative 

costs. As indicated in the chart below, the costs of caring for the unwanted animals currently in 

long-term holding, over the next 28 years, will be over $200 million. The chart below does not 

account for any new animals that will be coming into BLM long-term holding facilities over the 

same period. 

AGE AND NUMBER OF ANIMALS IN LONG-TERM HOLDING

(as of the beginning of FY 2008)

10 304 1,035 1,410

7,393

1,574

4,475 4,599

20,800

0

5,000

10,000

15,000

20,000

25,000

Total Number of Animals as of Oct

2007

10 304 1,035 1,410 7,393 1,574 4,475 4,599 20,800

Total Lifetime Cost (in millions) $0.14 $4.10 $13.45 $17.63 $83.17 $15.74 $39.16 $34.49 $207.88

2 year 

olds

3 year 

olds

4 year 

olds

5 year 

olds

6-9 year 

olds

10 year 

olds

11-14

year 

olds

15-30

year 

olds

Grand 

Total

** Chart assumes the following: (1) Costs for horses currently in BLM long-term holding without the other costs resulting from additional gathers in the out-years. 

(2)Horses and burros live an average of 30 years and will live out remainder of life in BLM holding facility. (3 )Average four year unit costs to pay for horses per day 

at a rate of $1.27 without inflation. 

Furthermore, the funding needed to support the Wild Horse and Burro program will remain high 

until the animals in long-term holding begin to decline from natural mortality. (There is currently 

only a 3 percent mortality rate in the long-term holding facilities). 

Adoption and Marketing- The program saw another decline in adoptions in 2007 and expects 

that in 2008 and 2009 the trend will continue. This is a result of the new direct competition of 

unwanted domestic horses with the adoption market in the wild horse industry. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-109

In 2009, the program will continue updating its marketing strategy to address this issue and 

encourage partners to get the message out to new markets through events such as the Extreme 

Mustang Makeover, virtual adoptions and the trainer incentive programs. 

Herd Management- Other program requirements such as planning, research and herd area 

census have been limited in prior years so that funding could be used for removals to help make 

progress towards achieving appropriate management levels. Prior year support from other 

programs (i.e. “benefiting subactivities”) has allowed the Wild Horse and Burro program to 

continue gathers to help make progress towards achieving appropriate management levels, 

hold and care for the animals, and meet the minimum requirements for herd management, 

planning and census. 

In order to fund the higher priority activities of holding and gathering animals in 2009, the 

program has deemphasized herd management activities. The focus will be on feeding and 

caring for the animals currently in holding. Census and monitoring in herd management areas 

are very important to the success of the program and will be addressed wherever possible as 

resources become available. 

Gathers and Removals- In December 2007, the program conducted a new census, which 

revealed that the population is actually over 29,500 animals. As a result of the new census 

data, there is an increase of over 2,200 animals on the range exceeding appropriate 

management levels from the February 2007 estimate. Circumstances such as the summer foal 

crop impact the population estimate annually. 

The program also continues to face challenges related to emergency gathers necessitated by 

drought, fires and other disasters; the increasing costs of feeding, caring and transporting the 

animals; and funding for additional long-term holding facilities that will be needed in 2009 when 

the existing facilities are at full capacity. As a result of increased costs in holding and limited 

space to accommodate additional animals, the number of gathers in 2009 will be limited. In 

2009, the program will only be able remove 3,300 animals. This is a result of the large number 

of unadoptable animals in holding, which increased holding costs and the need for additional 

facilities. The program depends on the adoption market to balance the animals removed and 

gathered. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-110

Population / Removals

(Population numbers based on updated December 2007 

Census reports)

0

20,000

40,000

60,000

Removals

Population

AML High

Removals 8,631 13,277 12,029 10,081 9,899 10,232 10,272 6,420 5,200 3,300

Population 47,376 45,414 38,815 37,186 37,135 32,724 31,657 28,583 30,620 33,444

AML High 28,620 28,186 27,512 27,492 27,492 27,300

FY00 FY01 FY02 FY03 FY04 FY05 FY06 FY07 FY08 FY09

**In December 2007 an additional census was conducted that revealed that there are actually 29,850 animals on the range. In November 

2007 emergency gathers of 1030 horses were also conducted. This number is included in the FY2008 population. 

Population on the range is estimated every February following the fall gather season. The 

gather plan is on a 4-year cycle. This is due to the number of herd management areas (199 

total) and the ability to gather enough animals during each gather cycle that will bring the 

management levels down to the lowest level possible. The chart above shows the trend in the 

estimated population on the range. 

In 2008 and 2009, the program will be in the process of evaluating all of the factors required to 

gain better control of the population, escalating costs, holding contract challenges, adoption 

challenges, and many other unknowns. Further analysis of the internal and external factors that 

impact the program will be conducted to develop sound ways of protecting, managing, and 

controlling the wild free-roaming horses and burros. 
Bureau of Land Management 2009 B

Section III- Management of Lands and Resources 

WILD HORSE AND BURRO MANAGEMENT PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 President's Budget Chan

from 2

Plan 

200

Wild Horse and Burro Management Areas: Cumulative percent of number of Herd Management Areas achieving appropriate management levels. (Bur) 

51% 

103/ 201 

57% 

116/ 201 

72% 

145/ 201 

73% 

145/ 199 

66% 

131/ 199 

48% 

96/ 199 

58% 

115/ 199 +10

Total Actual/Projected Cost ($000) $43,883 $47,830 $44,543 $0 $47,797 $44,135 $44,813 +67Actual/Projected Cost per Herd Management Area (in dollars) $426,052 $412,327 $307,195 $0 $364,861 $459,736 $389,678 -$70,Comments: 

In 2005, Congress approved a permanent reprogramming of approximately $10.5M. The new funding along sale authority and certain program efficiencies allowed the program to bring the population down from over 42004 to approximately 31,000 in 2006. Land exchanges completed in 2006 reduced the Herd Management A201 to 199. Priority gathers in 2006, 2007, and 2008 are based on fire and draught issues and not on reachiManagement Areas. In 2009, priority will be focused on reaching AML for a 10% increase of Herd ManagemAML. 

Adopt Wild Horses and Burros (number). 6,407 5,701 5,790 8,500 4,920 5,200 5,200 0% Comments: The 2007 Planned amount published in the 2008 Budget Justification was 5,400 – units adjusted to current pPrepare/Hold Wild Horses and Burros (number feed days). 7,403,774 8,280,808 9,566,927 9,066,421 10,416,712 11,313,026 10,636,915 -6% Comments: Gather/Remove Wild Horses and Burros (number) 9,899 11,022 9,310 6,817 6,420 5,200 3,300 -37Comments: 
Bureau of Land Management 2009 B

Section III- Management of Lands and Resources 

This page intentionally left blank. 
Bureau of Land Management 2009 Budget Justifications 

Activity: Wildlife and Fisheries Management 

Activity Summary ($000) 

 2009 

 Fixed Costs & Change 

 2007 2008 

Related 

Changes 

Program 

Changes Budget 

from 

2008 

Subactivity Enacted Enacted (+/ -) (+/ -) Request (+/-) 

 Wildlife Mgt $ 28,369 30,724 +403 +316 31,443 +719

 FTE 198 212 0 -15 197 -15

 Fisheries Mgt $ 12,411 13,596 +175 -1,455 12,316 -1,280

 FTE 90 98 0 -6 92 -6

Total Activity $ 40,780 44,320 578 -1,139 43,759 -561

 FTE 288 310 0 -21 289 -21

Justification of 2009 Program Changes 

The 2009 BLM budget proposes a total funding level for the Wildlife and Fisheries Management 

activity of $43,759,000 and 287 FTE. This represents a net program decrease of $1,139,000 

and 21 FTE from the 2008 enacted level. The 2009 budget includes a request for $31,443,000 

to fund the Wildlife Management program and $12,316,000 to fund the Fisheries Management 

program. 

ACTIVITY DESCRIPTION

The Wildlife and Fisheries Management activity maintains and restores fish and 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 

of fish and wildlife. 

This activity supports the Department’s Strategic Plan as well as the Healthy Lands Initiative by 

improving the health of watersheds and sustaining biological communities. The overall goal of 

the fisheries and wildlife 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. See text box on next page for 

definition of “proper functioning condition.” 

The BLM manages the largest amount and the greatest diversity of wildlife habitat of any 

Federal agency. No other Federal agency manages as many different types of wildlife and 

aquatic habitats, or as many different species as the BLM. 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 

Section III- Management of Lands and Resources Page III-113 
Bureau of Land Management 2009 Budget Justifications 

habitats. In addition, the BLM manages more inland fish habitat than any other State or Federal 

agency, including 155,000 miles of fishable streams, and over 4 million acres of lakes and 

reservoirs. Because of their isolation, BLM lands include many of America’s rarest habitats, 

which support many rare plant and animal communities. 

The BLM’s Challenge Cost Share Program provides funding for hundreds of fish and wildliferelated projects each year in this activity. These collaborative projects play a vital role in 

implementing conservation and management plans that benefit fish and wildlife resources on 

BLM administered lands. Fish and wildlife resources that benefit from these collaborative 

projects include many at-risk species such as the Bonneville and Yellowstone cutthroat trout, 

Pacific salmon and steelhead trout, sage-grouse, prairie dogs, and lesser prairie chickens. 

BLM’s Fish and Wildlife Management program personnel play a significant role in BLM’s 

multiple use mission. In-depth knowledge of fish and wildlife resources, combined with 

knowledge and experience in managing habitats, are key functions of the biologists that work for 

the BLM. In addition, their experience and expertise regarding environmental laws and 

regulations is critical to BLM’s ability to effectively manage commercial uses on public lands 

while minimizing environmental damage to resources. 

Definition Proper Functioning Condition 

Riparian-wetland areas are functioning properly when adequate vegetation, landform, 

or large woody debris is present to dissipate stream energy associated with high water 

flows, thereby reducing erosion and improving water quality; filter sediment, capture 

bed load, and aid floodplain development, improve flood-water retention and groundwater recharge; develop root masses that stabilize stream banks against cutting action; 

develop diverse pond and channel characteristics to provide the habitat and the water 

depth, duration, and temperature necessary for fish production, waterfowl breeding, 

and other uses; and support greater biodiversity. The functioning condition of riparianwetland areas is a result of interaction among geology, soil, water, and vegetation. 

Section III- Management of Lands and Resources Page III-114 
Bureau of Land Management 2009 Budget Justifications 

Activity: Wildlife and Fisheries Management 

Subactivity: Wildlife Management

Activity: Wildlife and Fisheries 

Subactivity: Wildlife Management 

 2009 

 Fixed Costs & Change 

 2007 2008 

Related 

Changes 

Program 

Changes Budget 

from 

2008 

 Enacted Enacted (+/ -) (+/ -) Request (+/-) 

Wildlife ($000) 28,369 30,724 +403 +316 31,443 719

 

FTE 198 212 0 -15 197 -15

Other Major Resources: 

Trust Funds - Sikes Act 639 551 0 0 551 0

Major Program IT Investments: 

 

Summary of 2009 Program Changes for Wildlife Management 

Request Component $0 FTE

Program Changes: 

• Restoration of NLCS funding to 2008 Request level -221

• Restoration of Program funding to 2008 Request level -616 -2

• Organizational & Administrative Streamlining -97

• Travel & Relocation expenses -134

• Elimination of National Fish & Wildlife Foundation funding (inc. $566K 2008 NFWF Addon) -1,772

• Nat'l Monument & Nat'l Conservation Area funding (new subactivity created) -1,344 -14

• Healthy Lands Initiative funding to benefitting subactivity +4,500 +1

TOTAL, Program Changes +316 -15

JUSTIFICATION OF 2009 PROGRAM CHANGES

The 2009 BLM Budget request for the Wildlife Management program is $31,443,000 and 197 

FTE. This represents a net program increase of $316,000, including a net program decrease of 

15 FTE from the 2008 enacted level, offset by a $403,000 increase in fixed costs. 

Reduction of Unrequested NLCS Increase (- $ 221,000) – In 2008, Congress provided an 

additional $221,000 in the Wildlife Management program for wildlife management projects within 

the National Landscape Conservation System (NLCS). This budget proposes reducing the 

Wildlife Management subactivity by $221,000 in order to address higher priorities. 

Reduction of Unrequested Increase in Base Funding (- $ 616,000) – In 2008, Congress 

provided an additional $616,000 within the Wildlife Management program to fund core functions. 

The BLM proposes a reduction of this amount in order to address higher priorities. The BLM will 

Section III- Management of Lands and Resources Page III-115 
Bureau of Land Management 2009 Budget Justifications 

continue to maintain core functions in the Wildlife Management program by focusing on the 

highest priority wildlife management projects and promoting efficiencies where possible. 

Elimination of National Fish & Wildlife Foundation funding (- $1,772,000) – BLM proposes 

eliminating funding for the National Fish and Wildlife Foundation (NFWF). NFWF is a wellestablished program that is able to independently generate significant amounts of funding. 

Reducing this funding will enable BLM to target funds to other priority areas. The reduction is 

pass-through funding; therefore no program performance is impacted by the decrease. The 

BLM will continue to work cooperatively with the NFWF to conserve wildlife resources on BLM 

land where possible. 

National Monument and National Conservation Area Funding (New Subactivity Created) (- 

$1,344,000/-14 FTE) – The BLM is proposing a new subactivity in MLR to fund base operations 

at National Monuments and National Conservation Areas. As a result, $1.344 million is shifted 

from the Wildlife Management subactivity to the new subactivity. The funding will continue to be 

spent on Wildlife Management priorities, but will be managed through the National Monuments 

and National Conservation Areas subactivity. Performance in the Wildlife Management 

subactivity will decrease due to the funding shift; however, this performance will be shifted to the 

National Monuments and National Conservation Areas subactivity and is shown in the 

performance goals for that subactivity. For more information about the new National 

Monuments and National Conservation Areas subactivity, see Section VI. 

Health Lands Initiative Funding (+ $ 4,500,000) – The BLM proposes an increase of 

$4,500,000 for the Healthy Lands Initiative funding that is contained in the Wildlife Management 

subactivity. In 2008, Congress provided $1,477,000 for Healthy Lands Initiative funding in this 

subactivity. In 2009, BLM is eliminating the single Healthy Lands Initiative subactivity, and 

distributing its funding among seven subactivities. For 2009, BLM proposes a total of 

$5,977,000 in the Wildlife Management subactivity, an increase of $4,500,000. The total 

funding request for the Healthy Lands Initiative in 2009 is $14,922,000. The distribution of 

funding between the seven subactivities, and the work to be performed under the initiative, is 

described in the Healthy Lands Initiative chapter in the Crosscutting Activities section of the 

Justifications. 

Section III- Management of Lands and Resources Page III-116 
Bureau of Land Management 2009 Budget Justifications 

2009 PROGRAM PERFORMANCE CHANGE TABLE 

 2005 Actual 

2006 

Actual 

2007 

Actual 2008 Plan 

2009 Base 

Budget (2008 

Plan + Fixed 

Costs) 

2009 

President’s 

Budget 

Program 

Change 

Accruing 2009 

Program 

Change 

Accruing in 

Out years 

 A B=A+C C D 

Inventory 

Wildlife/Plant 

Habitat 

(acres).

4,656,856 9,490,879 8,492,223 6,355,295 6,355,295 5,615,530 -901,343 0 

Total 

Actual/Project

ed Cost 

($000) 

$2,669 $3,908 $4,752 $3,357 $3,357 $2,965 -$392 $0 

Projected 

Cost per 

workload 

measure. 

$1 $0 $1 $1 $1 $1 $1 $0 

Apply 

Shrub/Grassl

and 

Vegetation 

Treatments 

(acres). 

165,657 73,857 195,666 136,000 136,000 308,781 +172,781 0 

Total 

Actual/Project

ed Cost 

($000) 

$1,727 $3,375 $3,654 $2,584 $2,584 $5,867 +$3,283 $0 

Projected 

Cost per 

workload 

measure. 

$10 $46 $19 $19 $19 $19 $19 $0 

Monitor 

Terrestrial 

Habitat 

(acres). 

10,490,093 12,552,630 7,310,338 10,000,000 10,000,000 10,114,183 +114,183 0 

Total 

Actual/Project

ed Cost 

($000) 

$3,080 $3,374 $3,622 $4,955 $4,955 $5,012 +$57 $0 

Projected 

Cost per 

workload 

measure. 

$0 $0 $0 $0 $0 $0 $0 $0 

Monitor 

Species 

Populations 

(number). 

2,992 2,821 2,950 2,500 2,500 2,731 +231 0 

Total 

Actual/Project

ed Cost 

($000) 

$3,998 $4,472 $4,853 $4,113 $4,113 $4,492 +$379 $0 

Projected 

Cost per 

workload 

measure. 

$1,336 $1,585 $1,645 $1,645 $1,645 $1,645 $1,645 $0 

Construct 

Shrub, 

Grassland, 

Woodland, 

Forest 

Projects 

(number). 

174 201 180 185 185 216 +31 0 

Section III- Management of Lands and Resources Page III-117 
Bureau of Land Management 2009 Budget Justifications 

2009 Base Program 

 2005 Actual 

2006 

Actual 

2007 

Actual 2008 Plan 

Budget (2008 2009 Program Change 

Plan + Fixed 

Costs) 

President’s 

Budget 

Change Accruing in 

Accruing 2009 Out years 

 A B=A+C C D 

Total 

Actual/Project

ed Cost 

($000) 

$1,244 $937 $781 $803 $803 $937 +$134 $0 

Projected 

Cost per 

workload 

measure. 

$7,147 $4,660 $4,339 $4,339 $4,339 $4,339 $4,339 $0 

Maintain 

Shrub, 

Grassland, 

Woodland, 

Forest 

Projects 

(number). 

1,331 1,444 1,512 1,514 1,514 1,671 +157 0 

Total 

Actual/Project

ed Cost 

($000) 

$572 $736 $999 $1,001 $1,001 $1,105 +$104 $0 

Projected 

Cost per 

workload 

measure. 

$430 $509 $661 $661 $661 $661 $661 $0 

Implement 

Species 

Recovery/ 

Conservatio

n Actions 

(number). 

9 33 45 15 15 24 +9 0 

Total 

Actual/Project

ed Cost 

($000) 

$236 $309 $489 $163 $163 $261 +$98 $0 

Projected 

Cost per 

workload 

measure. 

$26,233 $9,364 $10,866 $10,866 $10,866 $10,866 $10,866 0 

Comments 

The 2009 Column shows reductions for the 2008 unrequested increases that will not be carried forward as well as an increase for

the Healthy Lands Initiative for a total increase of $3,663,000. 

Note: Projected costs may not equal program change as these are full costs, which may include funds from other sources and (or) use averages. 

Column D: Outyear performance beyond 2009 addresses lagging performance — those changes occurring as a result of the program change (not 

total budget) requested in 2009. Does not include the impact of receiving the program change again in a subsequent out-year. 

PROGRAM OVERVIEW 

The BLM’s Wildlife Program is responsible for maintaining, restoring and conserving wildlife 

habitat in a manner consistent with BLM’s multiple-use mission and priorities. The 258 million 

acres managed by the BLM include some of the Nation’s most ecologically diverse and 

important wildlife habitat. Over 3,000 species of wildlife occur on BLM lands, dispersed over 

geographically large and ecologically diverse areas. 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. As such, wildlife on BLM lands is enjoyed by millions of 

Section III- Management of Lands and Resources Page III-118 
Bureau of Land Management 2009 Budget Justifications 

Americans annually. In addition to the intrinsic value of wildlife, wildlife-related activities such as 

hunting or bird watching contribute hundreds of millions of dollars of economic benefits to local 

communities. 

Program Components - In order to provide for the long-term protection of fish and wildlife 

resources given other land use requirements, the Wildlife program supports aggressive habitat 

conservation and restoration activities including the application of habitat treatments, 

implementation and maintenance of habitat improvement projects, implementation of 

conservation actions in support of sensitive species and their habitats, and undertaking the 

requisite level of monitoring to ensure the success of habitat management actions undertaken. 

Long-Term Vision – The long-term vision for the Wildlife Program is to successfully maintain 

and manage wildlife habitat to ensure self-sustaining populations and a natural abundance and 

diversity of wildlife, fish and plant resources on public lands. 

Use of Cost and Performance in the Wildlife Management Program 

Activity Based Cost Management (ABC) data was coupled with Management Information Systems (MIS) 

data (performance information) in order to identify states that not only met performance targets but also 

appropriately allocated a large percentage of their Wildlife Management funding towards achievement of 

those targets. States meeting relatively higher performance standards, on the basis of information 

provided in ABC and MIS, will receive any additional funds available for allocation. The Washington 

office will continue to track both cost data and performance and recommend a base program adjustment 

if a state fails to perform. 

Critical Factors – The biggest challenge for the Wildlife program remains finding a balance 

between wildlife resource considerations and all other facets of BLM’s multiple use mission. 

This challenge is exacerbated in the face of stressors such as drought, disease, wildfire and a 

host of other anthropogenic factors (with urban growth and development being one of the most 

significant). An additional consideration is the impacts to wildlife species and habitats from 

noxious weeds and invasive species. Of particular importance are the effects of cheatgrass 

throughout the west. This invasive, non-native grass has the potential to dramatically alter 

habitat by replacing native plant species and altering fire regimens. 

Means and Strategies – The Wildlife program supports the Bureau’s multiple-use mission by 

ensuring that management actions conform to regulatory requirements and achieve the wildlife 

goals and objectives stated in resource management plans. Additionally, a proactive and 

effective wildlife program often precludes the need to list species under the Endangered 

Species Act. Addressing sensitive species and habitats before they become a concern has 

been one of the hallmarks of this Wildlife program. The Assessment, Inventory and Monitoring 

Strategy (AIM Strategy) will ensure sufficient consideration of wildlife habitat issues during the 

land use planning process. 

 

Other Funding Sources – Wildlife program funds are used to leverage additional dollars via 

partnerships with federal, state and non-governmental organizations. Leveraged funding allows 

expansion of the “on-the-ground” BLM project footprint, maximizing the geographic scale of 

BLM projects to the fullest extent possible. 

Strategic Plan – The Wildlife Program supports the Department’s strategic goal of protecting 

the Nation’s natural resources by sustaining biological communities and promoting land health 

Section III- Management of Lands and Resources Page III-119 
Bureau of Land Management 2009 Budget Justifications 

on BLM-managed public lands. Indirectly, the Wildlife program also supports the Department’s 

strategic goal of managing resources to promote responsible use and a sustained economy. 

2009 PROGRAM PERFORMANCE

2007 Accomplishments 

• Applied vegetation treatments on 195,666 acres, 

constructed 180 new habitat projects and 

maintained 1,512 habitat projects in order to restore 

and enhance habitat for a large variety of wildlife, 

including deer, elk, pronghorn, quail, and other 

game species. 

• Implemented 45 conservation actions in support of 

sensitive species such as Greater and Gunnison 

sage-grouse, lesser prairie chickens, white-tailed 

prairie dog, black-tailed prairie dog, Gunnison’s 

prairie dog, mountain plover, swift fox, and forest 

carnivores such as the fisher and pine marten and 

their habitats. 

2008 Planned Program Performance - In 2008, the 

Wildlife program will continue to support the missioncritical goals of the BLM’s priority programs while 

restoring, maintaining, and conserving wildlife 

resources. During 2008, as a result of the prior 

completion of large-scale inventorying efforts, workload targets pertaining to inventory will 

continue to decrease, while workload targets associated with work related to wildlife habitat 

improvements will increase. Areas of increased workloads include: application of treatments, 

construction and maintenance of projects that benefit wildlife, and conservation actions that 

support wildlife. Monitoring workloads are expected to remain stable. 

Male Greater Sage-Grouse displaying on a Blacktailed Prairie Dog town in Northeastern Montana. 

This is one of the healthiest populations left in the 

world although some segments linked with 

populations in Canada are also exhibiting declines. 

BLM and the University of Montana are conducting 

studies on this unique population associated with 

silver sage to determine habitat use and movement 

patterns. (Photo Credit: John Carlson, BLM) 

In 2008, it is anticipated that the Wildlife program will accomplish 136,000 acres of land 

treatments aimed at habitat quality improvement, construct 185 shrub / grassland / pinyon 

juniper forest projects, maintain 1,514 shrub / grassland / pinyon juniper forest projects and 

implement 15 species conservation actions. 

2009 Planned Program Performance- Though some program accomplishments will be 

reduced from the 2008 planned level (due to planned program changes outlined in the budget 

table), the Wildlife program will continue to emphasize wildlife habitat improvements, while 

maintaining a sufficient level of monitoring to ensure the effectiveness of those improvements. 

The Wildlife program anticipates streamlining and standardization of certain data sets across 

the Bureau resulting from the AIM Strategy. Among the anticipated benefits are improved 

coordination and communication within the Wildlife program and across programs with 

convergent goals. 

In addition to base program decreases, reductions in workload targets in the Wildlife Program 

are the result of base funds transferred to the new subactivity developed for NLCS units, and 

performance increases in the NLCS subactivity will offset the decrease in the Wildlife 

Management subactivity’s performance. Additional wildlife-related targets will be accomplished 

through actions supporting the Healthy Lands Initiative (HLI), and are part of those workloads 

Section III- Management of Lands and Resources Page III-120 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-121 

identified in the attached performance table. As a result of these shifts, funding will shift 

geographically to areas covered by HLI from areas not covered by HLI. 

The Wildlife program is an integral component of the cross-cutting Healthy Lands Initiative. In 

2009, a total of $5,977,000 from the Healthy Lands Initiative will be spent within the Wildlife 

Management subactivity and is included in the overall funding for this subactivity. Healthy 

Lands Initiative projects executed under this subactivty will meet the overall vision for the 

Healthy Lands Initiative by enhancing species and their associated habitat. Native plants will be 

used for HLI projects, where available. Native plant materials will be developed for HLI projects 

across the Bureau with particular focus on native plant species that have been identified as 

significant habitat components for Sage-grouse and other species of management concern. 

Accomplishments for the Healthy Lands Initiative projects funded with Wildlife program funds 

will be reported under this subactivity and are reflected in the overall 2009 performance targets. 
Bureau of Land Management 2009 Budget 

WILDLIFE MANAGEMENT PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Planned 2007 Actual 2008 Plan 2009 President's Budget C

fro

P

Percent of populations of species of management concern that are managed to desired condition. (SP) 

new 

measure 

new 

measure 

new 

measure 

Establish 

Baseline 

39% 

177/ 453 

49% 

255/ 519 

50% 

257/ 519 

Comment: 

 *Support Measure - No cost will be shown. As a result of the 2006 Resource Management PART recomredirected base funding internally to improve performance directly related to ESA listed species. Results in 2008. Additional species of management concern were identified early in 2008 changing the denomina

Number of acres of habitat restored or enhanced that directly support ESA listed and Bureau sensitive species conservation or recovery. (SP/PART) 

161,618 187,691 118,047 107,000 217,608 196,000 221,711 

Comment: * Support Measure - No cost will be shown. This measure has been modified as a result of program asse

Historical data has been added for context. Acres restored is based on actual projects planned and will v

Program Contributors: The Wildlife program provides 90% (176,600 acres) of the results for this measure. Other contributors inc

T&E Management, 9%; and O&C Wildlife Management, .5%. 

Inventory Wildlife/Plant Habitat (acres). 3,678,781 4,656,856 9,490,879 6,104,256 8,492,223 6,355,295 3,982,157 -2,Apply Shrub/Grassland Vegetation Treatments (acres). 150,825 165,657 73,857 106,902 195,666 136,000 258,307 +1Construct Shrub, Grassland, Woodland, Forest Projects (number). 158 174 201 131 180 185 216 Maintain Shrub, Grassland, Woodland, Forest Projects (number). 1,166 1,331 1,444 1,588 1,512 1,514 1,671 Implement Species Recovery/ Conservation Actions (number). 22 9 33 15 45 15 24 Monitor Terrestrial Habitat (acres). 7,208,487 10,490,093 12,552,630 10,065,332 7,310,338 7,543,766 9,759,253 +2Monitor Species Populations (number). 2,184 2,992 2,821 2,520 2,950 2,668 2,587 Monitor Shrub/Grassland Vegetation Treatments (acres). 65,377 52,048 33,909 61,870 113,379 93,005 67,951 -2

Section III- Management of Lands and Resources 
Bureau of Land Management 2009 Budget 

WILDLIFE MANAGEMENT PERFORMANCE Overview 

2005 

Actual 

2006 

Actual 

2007 

Planned 

2007 

Actual 

2008 

Plan 

2009 

President's 

Budget 

 C

fro

P

2004 

Actual Measure 

*The 2009 column contains a performance increase for the Healthy Lands Initiative, and a shift of performance to the new National Monuments anConservation Areas subactivity which includes: 116,500 acres of wildlife/plant habitat inventoried; 41,838 acres of shrub/grassland treatments appshrub/grassland/woodland/forest projects maintained; 1 species recovery action; 354,855 acres of terrestrial habitat monitored; 144 species monitoof shrub/grassland vegetation treatments monitored. For more detail, please see the performance table at the end of the NLCS subactivity write-u

Section III- Management of Lands and Resources 
au of Land Management 2009 Budget 

Section III- Management of Lands and Resources 

This page intentionally left blank.

Bure
Bureau of Land Management 2009 Budget Justifications 

Activity: Wildlife and Fisheries Management 

Subactivity: Fisheries Management

Activity: Wildlife and Fisheries 

Subactivity: Fisheries Management 

 2009 

 Fixed Costs & Change

 2007 2008 

Related 

Changes 

Program 

Changes Budget 

from 

2008 

 Enacted Enacted (+/ -) (+/ -) Request (+/-) 

Fisheries ($000) 12,411 13,596 +175 -1,455 12,316 -1,280

 

FTE 90 98 0 -6 92 -6

Other Major Resources: 

 

Major Program IT Investments: 

 

Summary of 2009 Program Changes for Fisheries Management 

Request Component $0 FTE

Program Changes: 

• Restoration of NLCS funding to 2008 Request level -98

• Restoration of Program funding to 2008 Request level -492 -2

• Elimination of National Fish & Wildlife Foundation funding (inc. $74K NFWF 2008 

Add-on) -246

• Organizational & Administrative Streamlining -67 -1

• Travel & Relocation expenses -46

• Nat'l Monument & Nat'l Conservation Area funding (new subactivity created) -306 -3

• Healthy Lands Initiative funding to benefitting subactivity -200

TOTAL, Program Changes -1,455 -6

JUSTIFICATION OF 2009 PROGRAM CHANGES

The 2009 BLM Budget Request for the Fisheries Management program is $12,316,000 and 92 

FTE. This represents a net decrease of $1,455,000 and 6 FTE from the 2008 enacted level, 

offset by a $175,000 increase in fixed costs. 

Restoration of NLCS Funding to 2008 Request Level (- $ 98,000) – In 2008, Congress 

provided an additional $98,000 in the Fisheries Management program for fisheries management 

projects within the National Landscape Conservation System. This budget proposes reducing 

the Fisheries Management subactivity by $98,000 in order to address higher priorities. For more 

information about the new National Monuments and National Conservation Areas subactivity, 

see Section III. 

Restoration of Program Funding to 2008 Request Level (- $ 492,000) – In 2008, Congress 

provided an additional $492,000 within the Fisheries Management program, including NLCS 

Section III- Management of Lands and Resources Page III-125
Bureau of Land Management 2009 Budget Justifications 

activities. The BLM proposes a reduction of this amount in order to address higher priorities. 

The BLM will continue to restore and maintain core functions in the Fisheries Management 

program by focusing on the highest priority fisheries management projects and promoting 

efficiencies where possible. 

Elimination of National Fish & Wildlife Foundation Funding (- $246,000) – BLM proposes 

eliminating funding for the National Fish and Wildlife Foundation (NFWF). NFWF is a wellestablished program that is able to independently generate significant amounts of funding. 

Reducing this funding will enable BLM to target funds to other priority areas. The BLM will 

continue to work cooperatively with the NFWF to conserve wildlife resources on BLM land 

where possible. 

National Monument and National Conservation Area Funding (New Subactivity Created) (- 

$ 306,000/-3 FTE) – The BLM is proposing a new subactivity in MLR to fund base operations at 

National Monuments and National Conservation Areas. As a result, $306,000 is being shifted 

from the Fisheries Management subactivity to the new subactivity. The funding shifted from the 

Fisheries Management subactivity is funding currently spent in the National Monuments and 

National Conservation Areas to meet the goals of the Fisheries Management program. The 

funding will continue to be spent on Fisheries Management priorities, but will be managed 

through the National Monuments and National Conservation Areas subactivity. Performance in 

the Fisheries Management subactivity will decrease due to the funding shift; however, this 

performance will be shifted to the National Monuments and National Conservation Areas 

subactivity and is shown in the performance goals for that subactivity. For more information 

about the new National Monuments and National Conservation Areas subactivity, see Section 

VI. 

Healthy Lands Initiative Funding (- $200,000) - In 2008, Congress provided $492,000 to the 

Fisheries Management subactivity in Healthy Lands Initiative funding. For 2009 the BLM is 

proposing a total of $292,000 in Healthy Lands Initiative funding for the Fisheries Management 

subactivity, a reduction of $200,000. The total funding request for the Healthy Lands Initiative is 

$14,922,000. An increase of $10,000,000 from the 2008 enacted amount. The distribution of 

funding between the seven subactivities, and the work to be performed under the initiative, is 

described in the Healthy Lands Initiative chapter in the Crosscutting Activities section of the 

Justifications. 

Section III- Management of Lands and Resources Page III-126
Bureau of Land Management 2009 Budget Justifications 

2009 PROGRAM PERFORMANCE CHANGE TABLE

2005 

Actual 

2006 

Actual 

2007 

Actual 

2008 

Plan 

2009 Base 

Budget 

(2008 Plan + 

Fixed 

Costs) 

2009 

President’s 

Budget 

Program 

Change 

Accruing 

in 2009 

Program 

Change 

Accruing 

in Out-

 years 

 A B=A+C C D 

Monitor 

Stream/Riparian 

Habitat (miles). 1,362 1,498 1,114 1,395 1,395 1,058 -337 0 

Total Actual/Projected 

Cost ($000) $1,881 $2,073 $1,836 $2,299 $2,299 $1,743 -$556 $0 

Projected Cost per 

workload measure. $1,381 $1,384 $1,648 $1,648 $1,648 $1,648 $1,648 $0 

Apply Lake/Wetland 

Treatments (acres) 3347 1142 1058 1429 1429 1005 -424 0 

Total Actual/Projected 

Cost ($000) $73 $107 $270 $364 $364 $255 -$109 $0 

Projected Cost per 

workload measure. $22 $94 $255 $255 $255 $255 $255 $0 

Monitor Species 

Populations 

(number). 437 460 444 471 471 421 -50 0 

Total Actual/Projected 

Cost ($000) $1,755 $2,040 $2,079 $2,206 $2,206 $1,970 -$236 $0 

Projected Cost per 

workload measure. $4,015 $4,435 $4,683 $4,683 $4,683 $4,683 $4,683 $0 

Apply 

Stream/Riparian 

Treatments (miles). 164 159 214 175 175 203 +28 0 

Total Actual/Projected 

Cost ($000) $594 $836 $859 $703 $703 $814 +$111 $0 

Projected Cost per 

workload measure. $3,624 $5,258 $4,015 $4,015 $4,015 $4,015 $4,015 $0 

 The 2009 Column shows reductions for the 2008 unrequested increases that will not be carried 

Comments forward as well as a reduction for the Healthy Lands Initiative for a total reduction of $790,000. 

 

Note: Projected costs may not equal program change as these are full costs, which may include funds from other sources and 

(or) use averages. 

Column D: Outyear performance beyond 2009 addresses lagging performance — those changes occurring as a result of the 

program change (not total budget) requested in 2009. It does not include the impact of receiving the program change again in a 

subsequent out-year. 

 

Section III- Management of Lands and Resources Page III-127
Bureau of Land Management 2009 Budget Justifications 

PROGRAM OVERVIEW

The BLM manages lands that directly affect over 117,000 miles of fish-bearing streams and 

almost three million acres of reservoirs and natural lakes. Fish-bearing waters on BLM lands 

are diverse, supporting a multitude of fish species of great regional and national importance. 

They range from isolated desert springs harboring populations of fish both rare and unique, to 

large Columbia River tributaries extending deep into the country’s interior that provide habitat 

not only to fish residing year round, but also to fish which must cyclically migrate up these 

tributaries to breed. BLM waters also support subsistence fisheries that sustain traditional 

Native American cultural practices, as well as fisheries providing recreational opportunities for 

the burgeoning human population of the western United States. In short, BLM’s rivers, lakes 

and streams are of great ecological, cultural, and recreational importance. 

Idaho BLM (Salmon FO) culvert for Lemhi River 

placed for upstream access of Chinook salmon and 

steelhead trout. 

The Fisheries Management Subactivity 

supports all BLM land use programs, most 

notably grazing, rangeland management, and 

energy development. It assists these 

programs by conducting standard, guideline, 

and environmental analyses that are needed 

before most land use activities can begin. The 

Fisheries Management Subactivity also 

participates in the land use planning 

processes as well as regional reviews of 

State requirements for energy development 

activities to ensure that fisheries 

considerations are included in both state and 

federal resource plans and guidelines. 

Additionally, fisheries biologists assist local 

managers in assessing the impacts and 

monitoring the effects of oil and gas 

development on public lands to ensure that the development is environmentally sound. 

 

The Fisheries Management subactivity also supports substantive proactive habitat restoration 

and conservation activities, often with the help of multiple partner organizations. The National 

Fish Habitat Action Plan (NFHAP) Initiatives, notably the Desert Fish Habitat Plan and the 

Western Native Trout Initiative, have been important avenues through which the BLM has 

partnered with other groups in order to conserve and restore habitats. Additionally, Challenge 

Cost Share (CCS) partnerships with State governments, other Federal agencies, nongovernmental organizations, and agreements with the National Fish and Wildlife Foundation 

and Trout Unlimited have helped the BLM to complete far more habitat conservation and 

restoration actions than it ever could alone. By working proactively to restore and conserve vital 

habitat for fish and other aquatic species, the Fisheries Management subactivity has not only 

been able to prevent those species from becoming threatened or endangered with extinction but 

also the regulatory strains that follows from species being listed as threatened or endangered. 

Section III- Management of Lands and Resources Page III-128
Bureau of Land Management 2009 Budget Justifications 

Program Components – The Fisheries program is critical to the BLM’s mission goal of 

sustaining the health, diversity, and productivity of public lands for the use and enjoyment of 

present and future generations. The Fisheries program sustains the diversity of public lands by 

providing essential support to land management practices. Through the land use planning 

process, the BLM uses sound aquatic science to design balanced and effective management 

approaches, to protect unique fish habitats on BLM-managed public lands. The Fisheries 

program pursues partnerships with 

public and private entities to conduct a 

variety of fish conservation activities 

aimed at improving the overall health of 

habitat for fish and aquatic wildlife. 

Funding and in-service contributions of 

labor and equipment supplement the 

fisheries appropriation, primarily through 

the Challenge Cost Share program. 

Long-Term Vision – The long range 

goal of the Fisheries program is to 

ensure that the BLM fulfills its obligation 

to present and future generations by 

conserving fish populations and the 

habitats on which they depend on BLM 

administered lands. With rapid 

population growth occurring throughout 

much of the West, more and more 

Americans are discovering the countless 

recreational, fishing and boating 

opportunities on public lands. In 2007, 

fishing and boating accounted for over 

six million visitor days on BLM-managed 

lands. The Fisheries Program uses 

cooperative conservation principles by 

engaging these recreational users, other 

stakeholders, private groups, local 

communities, and government agencies in the process of conservation. This approach is the 

key to the Fisheries program’s effectiveness in achieving its goal of improving, protecting and 

Alaska BLM (Arctic DO) fish biologist placing salmon 

counting screen on stream bottom for subsistence program.

restoring aquatic resources for continued public use and enjoyment. 

Means and Strategies – The Fisheries program uses cooperative conservation principles by 

engaging recreational users, private groups, local communities, government agencies, and 

other stakeholders in the process of conservation. Cooperative conservation is the method by 

which the Fisheries program will achieve its goal of improving, protecting and restoring aquatic 

resources for the preservation of the fish they sustain and the experiences and opportunities 

they allow the public to enjoy. Development and implementation of the BLM Assessment, 

Inventory, and Monitoring Strategy (AIM) should help the program become more efficient in 

collecting, analyzing and reporting on aquatic conditions across BLM lands. Ongoing support 

from the BLM Aquatic Monitoring Lab, a cooperative program with Utah State University, 

provides field offices with baseline information needed to assess condition and evaluate 

performance. 

Section III- Management of Lands and Resources Page III-129
Bureau of Land Management 2009 Budget Justifications 

Strategic Plan – Through its habitat restoration and conservation activities, the Fisheries 

program supports the DOI Strategic Plan, its theme of Resource Protection, and its end 

outcome goal of Sustaining Biological Communities. The Fisheries program also indirectly 

supports the end outcome goal of Providing Quality Recreational Experiences by helping to 

preserve game fishes such as salmon, trout, bass, crappie, and a variety of other cold and 

warm water fishes. 

2009 PROGRAM PERFORMANCE

2007 Accomplishments 

The Fisheries program emphasized monitoring and inventory activities during 2007 and 

decreased the amount of work being done in areas not central to its goals of sustaining 

biological communities and providing a quality recreational experience. Over 1,000 miles of 

stream habitat and 400 acres of wetland habitat were monitored with over 500 miles of stream 

miles inventoried. This information was used to assess or determine stream structure function, 

Resource Management Plan (RMP) revision needs, regulatory agency consultation 

requirements, and other program needs. 

The Fisheries program also completed: 

• 214 units of stream treatments 

• 110 stream construction projects and 

• Maintained 254 existing projects 

 

In 2007, the Fisheries Program continued to focus on high priority fish habitat conservation 

work, particularly projects featuring cooperative conservation approaches. The program also 

continued the improvement of its aquatic monitoring services by supporting and enhancing the 

capabilities of the Bureau’s National Aquatic Monitoring Center through participation in both the 

development of the National Monitoring Strategy and a national partnership to standardize fish 

sampling methods. 

The Fisheries program used internal partnerships to support recreational angler access to 

waters on public lands. Support to other Bureau programs took on a greater role as 

implementation of the Energy Policy Act of 2005 begins. Fisheries Program participation early 

in the project planning process allowed environmentally responsible energy development 

consistent with the habitat and water quality needs of fisheries resources. Funding at the 2007 

level allowed the Bureau to complete restoration or enhancement of 150,000 acres of terrestrial 

and aquatic habitat. 

This increased performance was the result of additional partnerships to complete on-the-ground 

projects as well as increasing the Wildlife Management Program in 2005 and 2006 for sagegrouse habitat restoration and conservation efforts. BLM constructed 110 lake and stream fish 

habitat projects, an increase of 19 projects over the 2006 level, the Fisheries program 

completed only 214 miles of stream and shoreline restoration or enhancement, an increase of 

55 miles from 2006 accomplishments. 

Fish Habitat Conservation – The National Fish Habitat Action Plan is a major cooperative 

conservation partnership established by the Department and the International Association of 

Fish and Wildlife Agencies. An assertive fish habitat conservation program directly achieves the 

Section III- Management of Lands and Resources Page III-130
Bureau of Land Management 2009 Budget Justifications 

DOI Strategic Plan goal of sustaining biological communities on DOI managed and influenced 

lands and waters. 

Funding for the Fisheries program in 2007 further enhanced efforts to conserve, restore, and 

protect native fish habitat, particularly through cooperative conservation approaches. 

Furthermore, the Fisheries program continued to use funds from the National Fish and Wildlife 

Foundation’s Bring Back the Native’s program and Challenge Cost Share whenever practicable, 

while also working with the National Fish Habitat Action Plan partnerships to focus funding for a 

limited number of habitat restoration projects on BLM lands. 

The following are examples of the types of projects that received funding in 2007:

• As part of a watershed restoration plan, four miles of degraded Westslope cutthroat trout 

habitat on the West Fork of Pine Creek in Idaho was restored. Log jams were constructed 

to collect woody debris and to increase instream habitat. Eroding banks and hillsides were 

stabilized. Riparian vegetation was restored on the streambanks and floodplain and erosion 

protection measures were taken to maintain the large fir and cedar trees that provide natural 

bank stabilization and fish cover. 

• By replacing a road culvert on Wyoming’s Muddy Creek, 19 miles of stream fish habitat was 

reconnected to the main river channel. The native fish assemblage of the Muddy Creek 

watershed has experienced dramatic declines and several species extirpations. This project 

is a component of a cooperative conservation effort with the Wyoming Game and Fish 

Department to restore the Muddy Creek watershed for native fish. The waters downstream 

of the culvert have been treated to remove competing nonnative fish and the area was 

restocked with native fish. 

Aquatic Monitoring to Support Land Management – Accurate information on the status of 

aquatic resources is critical for making land management decisions. Thus, monitoring of fish 

populations, fish habitat, macroinvertebrates, and other aquatic metrics continues to be an 

important activity of the BLM Fisheries program. The Fisheries program continued to participate 

in the Department-sponsored partnership to standardize fish sampling protocols. By developing 

new partnerships, the Fisheries Program continues to restore and enhance the capabilities of 

the National Aquatic Monitoring Center. The following are examples of the types of resource 

monitoring projects that received funding in 2007: 

Section III- Management of Lands and Resources Page III-131
Bureau of Land Management 2009 Budget Justifications 

• California’s Arcata Field Office inventoried and monitored fish habitat conditions in streams 

on the Headwaters Forest Reserve and the Arcata Resource Area. This information was 

essential to managers for making critical resource decisions. Limited habitat information 

exists for the 110 miles of streams in these areas, although these streams support three 

species of listed Pacific salmon and trout. 

• The Alaska Fisheries Program monitored the number of salmon returning to key spawning 

streams to evaluate population dynamics, subsistence harvest management, and to 

determine the effects of active mining. This information supported management decisions 

related to energy development, recreational activities, commercial and sport fishing. Monitor 

activities also were performed on populations of sensitive species in remote and high-use 

recreational fish populations, such as the Kigluiak char and the Gulkana steelhead. 

• Colorado monitored native cutthroat trout populations and associated habitat. Work was 

done cooperatively with the Colorado Division of Wildlife to monitor the spread of whirling 

disease in trout and chytrid fungus in amphibians. These diseases impact trout populations 

and thus affect local economies dependent on revenues from recreational angling.

2008 Planned Program Performance 

In 2008, the Fisheries program will continue to support the mission-critical goals of the BLM’s 

priority programs while restoring, maintaining, and conserving aquatic-dependent resources. 

While the fundamental operating structure of the program will not change from previous years, 

partnership resources available to the program have expanded under the Cooperative 

Conservation Initiative. Specifically, the National Fish Habitat Action Plan (NFHAP), recently 

approved by the Association of Fish and Wildlife Agencies (AFWA), has galvanized Federal and 

State agencies, tribes, industry, and sport and conservation groups to work together to establish 

mutually beneficial goals in fish habitat management. Partnerships institutionalized by this 

agreement focus on management of desert fishes, western native trout, and fish passage 

improvements. Although partnerships have been important in successful implementation of the 

Bureau’s program in the past, the NFHAP increases visibility and brings additional non-Federal 

funds to the program. 

Leaders in Fish Habitat Conservation - Few resource agencies conduct fish habitat 

restoration and enhancement on the same scale as the BLM. Since 2000, the Fisheries 

program with its internal partners have restored or enhanced fish habitat in 5,562 miles 

of stream and 113,592 acres of lakes and reservoirs. The BLM annually conducts 

maintenance on about 2,000 fish habitat projects. The BLM Fisheries program is fully 

engaged in the National Fish Habitat Action Plan, an umbrella cooperative conservation 

effort to focus resources on fish habitat. The Fisheries program will continue to provide 

leadership in the development of both the Western Native Trout Initiative and the Desert 

Fish Habitat Partnership. Both of these multi-state partnerships are pilot joint ventures 

under the National Fish Habitat Initiative. In 2007, in partnership with Wyoming Game 

and Fish Department, U.S. Forest Service, and private landowners, the BLM participated 

in a Western Native Trout Initiative pilot project that restored Colorado River cutthroat 

trout to 58 stream miles in Wyoming’s Labarge drainage. 

Section III- Management of Lands and Resources Page III-132
Bureau of Land Management 2009 Budget Justifications 

Program Assessment Rating Tool (PART) 

During 2006, the Land Resources, Wildlife, Fisheries, Endangered Species, and Oregon and 

California Grant Lands programs participating in “Resource Protection” work activities were 

evaluated using the Administration’s Program Assessment Rating Tool (PART). Results of the 

2006 Resource Management program assessment indicated that BLM needed to improve its 

performance measures and the data collection and reporting processes for those measures. As 

a result of this recommendation, the BLM has made improvements which will help to show the 

progress being made to achieve Resource Protection goals. The improvements that the BLM 

has made include: 

- Refined existing performance measures to clarify the standard used to reflect 

achievement 

- Improved data collections and measurement processes to improve trend data, 

- Added several new annual measures that help show annual contributions to the long 

term outcome measures 

- Improved the alignment of program elements to work activities to show the increase of 

work done by integrated programs to achieve “Resource Protection” objectives 

- Continued efforts to develop an efficiency measure for the “Resource Protection” 

mission area 

The BLM continues to validate the performance information collected by working closer with the 

State and Field Offices. Performance measures are linked to the budget allocations, as well as 

the measurable executive leadership performance appraisal plans to hold executives 

accountable for meeting performance targets. 

Other programs include Federal listing of anadromous fish as threatened and endangered 

species as well as bull trout habitat restoration activities in the Columbia River basin and other 

Pacific Ocean tributaries of the Pacific Northwest. Bull trout restoration activities include culvert 

replacement and construction of stream structures designed to increase habitat complexity to 

improve summer and winter rearing conditions for these fish. Multiple organizations both inside 

and outside BLM were involved in these efforts, principally BLM engineering, NMFS, USFWS, 

and various State resource management agencies. 

2009 Planned Program Performance 

In 2009, the Fisheries program will continue to support the mission-critical goals of the BLM as 

outlined in the BLM Operating Plan by maintaining and conserving aquatic-related species and 

habitats and restoring priority habitats on an as-needed basis. The BLM will continue to focus 

Fisheries program priorities through partnerships established under the National Fish Habitat 

Action Plan as approved by the Association of Fish and Wildlife Agencies (AFWA). For inland 

fisheries resources, the Western Native Trout Initiative and Desert Fish Habitat Partnership will 

serve as primary vehicles for identifying and prioritizing habitat actions within the range of trout 

and desert fish species. Because of land ownership patterns, 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, but not 

yet recognized under any formal partnership. Alaska, because of its unique nature and vast 

areas of undisturbed wilderness, will continue to focus their program funding on work supporting 

Section III- Management of Lands and Resources Page III-133
Bureau of Land Management 2009 Budget Justifications 

subsistence management, such as monitoring populations of salmon that are essential to rural 

residents and native peoples of Alaska. 

Priority workloads and on-the-ground accomplishments will continue to be tracked using the 

following workload measures: Apply Lake/Wetland Treatments, Apply Stream/Riparian 

Treatments, Construct Lake/Wetland/Stream/Riparian Projects, Maintain 

Lake/Wetland/Stream/Riparian Projects, Implement Species Recovery /Conservation Actions, 

Monitor Stream/Riparian Habitat, and Monitor Species Populations. As in 2008, specific 

fisheries inventory will be de-emphasized until standard protocols can be established that allow 

aggregation of fisheries and habitat conditions across all BLM states. It is anticipated that 

continuing work by the BLM’s AIM strategy will provide direction for integration of inventory 

measures across program boundaries. 

BLM maintaining angler access to high quality 

recreational fishing waters.

As in previous years, actual accomplishments will vary in response to changing conditions, such 

as wildfire, increases or decreases in partnership funding, and delays caused by required 

regulatory processes. Increased 

accomplishments within these fisheries 

program priority workloads may occur outside 

of the planned fisheries program as a result of 

fisheries funds being transferred to other 

programs. Reductions in workload targets in 

the fisheries program are also the result of base 

funds transferred to the new subactivity 

developed for NLCS units. Those workload 

reductions will show up as workload increases 

in the new NLCS subactivity. Additional 

fisheries-related targets will be accomplished 

through actions supporting HLI, and are part of 

those workloads identified in the attached 

performance table. 

The fisheries program is an integral component 

of the cross-cutting Healthy Lands Initiative. A 

total of $292,000 within the Healthy Lands 

Initiative will be executed under the Fisheries 

subactivity and is included in the overall funding 

for this subactivity. Healthy Lands Initiative 

projects which will be executed under this 

subactivity will meet the overall vision for the 

Healthy Lands Initiative, by enhancing fish species and their associated habitat. 

Accomplishments for the Healthy Lands Initiative projects funded with Fisheries funds will be 

reported under this subactivity and are reflected in the overall 2009 performance targets. 

The BLM will continue to move forward with high priority ecological work to meet our share of 

the DOI performance measure outputs. Examples of projects planned for 2009 include: 

• The Lakeview District in Oregon will restore 25 miles of Lost River Sucker habitat within the 

Gerber Reservoir watershed through hand cutting, piling, and burning of juniper and 

invasive pine tree species. Vegetation encroachment within riparian areas is impacting the 

natural function of these systems. 

Section III- Management of Lands and Resources Page III-134
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-135

• The Gunnison Field Office in Colorado plans to improve rainbow trout habitat adjacent to 

Mill Creek Campground, a highly popular recreation area, in the Lake Fork of the Gunnison 

River. Pool forming structures, comprised of boulders and rock collected from the 

surrounding area will be placed to increase holding habitat. This project complements 

ongoing efforts by the BLM to acquire private lands and conservation easements to increase 

angler access to blue ribbon fisheries streams. 

• The Billings Field Office in Montana proposes to install a fish barrier in Bad Canyon Creek, a 

tributary to the Stillwater River, to protect a genetically pure strain of Yellowstone Cutthroat 

Trout from non-native salmonid invasion. This project would expand the range of this 

species six miles downstream from a current barrier. This project helps achieve the goals of 

the Western Native Trout Initiative, and is supported by Trout Unlimited, the Montana 

Conservation Corps, and Forest Service. 
Bureau of Land Management 2009 Budget Justifications 

FISHERIES MANAGEMENT PERFORMANCE Overview 

2004 

Actual 

2005 

Actual 

2006 

Actual 

2007 

Planned 

2007 

Actual 

2008 

Plan 

2009 

President's 

Budget 

 Change 

from 2008 

Plan to 

2009 

 Measure 

Percent of populations of species of management concern that are managed to desired condition. (SP) 

new 

measure 

new 

measure 

new 

measure 

Establish 

Baseline 

39% 

177/ 453 

49% 

255/ 519 

50% 

257/ 519 +1% 

Comment: 

*Support Measure - No cost will be shown. As a result of the 2006 Resource Management PART recommendhas redirected base funding internally to improve performance directly related to ESA listed species. Results increase in 2008. Additional species of management concern identified early in 2008 change the denominato

Number of (stream/shoreline) miles of habitat restored or enhanced that directly support ESA listed and Bureau sensitive species conservation or recovery. (SP/PART) 

124 164 159 150 214 191 216 +13% 

Total Actual/Projected Cost ($000) $6,231 $7,211 $7,661 $0 $4,600 $5,116 $5,578 $0 Actual/Projected Cost per Mile (dollars) $50,251 $43,972 $48,184 $0 $21,195 $26,785 $25,824 -$961 Comment: 

This measure has been modified as a result of program assessment in 2006. Historical data has been added context. Miles of habitat restored is based on actual projects planned which will vary between years. This menot include the increases for the Healthy Lands Initiative of $516,318 in 2008, which will result in 77 miles restenhanced for species conservation or recovery, and $461,439 in 2009, which will result in 48 miles restored ofor species conservation or recovery. 

Contributing Programs: The Fisheries program provides 92% of the results for this measure. Other contributors include Wildlife Mana

and Threatened and Endangered Species, 7%. 

2,240 3,347 1,142 1,429 1,058 1,429 1,005 -424 

Apply Lake/Wetland Treatments (acres). 

124 164 159 119 214 175 203 +28 

Apply Stream/Riparian Treatments (miles). Construct Lake/Wetland/Stream/ Riparian Projects (number). 72 59 91 100 110 98 95 -3 

Section III- Management of Lands and Resources 
Bureau of Land Management 2009 Budget Justifications 

FISHERIES MANAGEMENT PERFORMANCE Overview 

2004 

Actual 

2005 

Actual 

2006 

Actual 

2007 

Planned 

2007 

Actual 

2008 

Plan 

2009 

President's 

Budget 

 Change 

from 2008 

Plan to 

2009 

 Measure 

117 451 250 140 254 246 241 -5 

Maintain Lake/Wetland/Stream/ Riparian Projects (number). 

23 11 25 16 51 58 48 -10 

Implement Species Recovery/Conservation Actions (number). 

1,737 1,362 1,498 1,395 1,114 1,395 1,058 -337 

Monitor Stream/Riparian Habitat (miles). Monitor Species Populations (number). 329 437 460 441 444 471 421 -50 *The 2009 column includes a performance increase for the Healthy Lands Initiative, and a shift of performance to the new National Monuments and Nat

Conservation Areas subactivity which includes: 1 lake/wetland/stream/riparian construction project; 2 lake/wetland/stream/riparian projects maintained; 4

stream/riparian habitat monitored; and, 50 species monitored. For more detail, please see the performance table at the end of the NLCS subactivity writ

Section III- Management of Lands and Resources 
Bureau of Land Management 2009 Budget Justifications 

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Section III- Management of Lands and Resources 
Bureau of Land Management 2009 Budget Justifications 

Activity: Threatened and Endangered Species 

Management

Activity: Threatened and Endangered Species 

Subactivity: Threatened and Endangered Species 

 2009 

 Fixed Costs & Program 

Chang

e 

 2007 2008 

Related 

Changes Changes Budget 

from 

2008 

 Actual

Enacte

d (+/ -) (+/ -) 

Reques

t (+/-) 

Threat. & Endangered Species 

($000) 

21,40

7 22,302 +310 -2,030 20,582 -1,720

 

FTE 170 173 0 -15 158 -15

Other Major Resources: 

 

Major Program IT Investments: 

 

Summary of 2009 Program Changes for Threatened and Endangered Species 

Request Component $0 FTE

Program Changes: 

• Restoration of NLCS funding to 2008 Request level -221

• Restoration of Program funding to 2008 Request level -497

• Organizational & Administrative Streamlining -72

• Travel & Relocation expenses -67

• National Fish & Wildlife Foundation funding -246

• Nat'l Monument & Nat'l Conservation Area funding (new subactivity created) -1,477 -15

• Healthy Lands Initiative funding to benefitting subactivity +550

TOTAL, Program Changes -2,030 -15

JUSTIFICATION OF 2009 PROGRAM CHANGES

The 2009 BLM budget request for the Threatened and Endangered Species Management 

activity is $20,582,000 and 158 FTE. This represents a net program decrease of $2,030,000 

and 15 FTE from the 2008 enacted level. 

Reduction of Unrequested NLCS Increase (- $ 221,000) – In 2008, Congress provided an 

additional $221,000 in the Threatened and Endangered Species Management Activity for 

threatened and endangered species management projects within the National Landscape 

Conservation System. The BLM budget proposes reducing the Threatened and Endangered 

Species Management Activity by $221,000 in order to address higher priorities. 

Reduction of Unrequested Increase in Base Funding (- $ 497,000) – In 2008, Congress 

provided $497,000 to fund core functions within the Threatened and Endangered Species 

Management program including NLCS activities. The BLM proposes a reduction of this amount 

Section III- Management of Lands and Resources Page III-139 
Bureau of Land Management 2009 Budget Justifications 

in order to address higher priorities. The BLM will continue to restore and maintain core 

functions in the Threatened and Endangered Species Management program by focusing on the 

highest priority threatened and endangered species management projects and promoting 

efficiencies where possible. 

National Fish & Wildlife Foundation (NFWF) (- $246,000) – For 2009, the BLM is proposing a 

$246,000 reduction in NFWF funding for the Threatened and Endangered Species Management 

program. NFWF is a well-established program that is able to independently generate significant 

amounts of funding. Reducing this funding will enable BLM to target funds to other priority 

areas, and will not impact program performance as the funding is pass-through. The BLM will 

continue to work cooperatively with the NFWF to conserve wildlife resources on BLM lands 

where possible. 

National Monument and National Conservation Area Funding (New Subactivity Created) 

(- $ 1,477,000/-15 FTE) – The BLM is proposing a new subactivity in MLR to fund base 

operations at National Monuments and National Conservation Areas. A total of $1.477 million is 

proposed to be shifted from the Threatened and Endangered Species Management Activity to 

the new subactivity. The funding shifted from the Threatened and Endangered Species 

Management subactivity is funding currently spent in the National Monuments and National 

Conservation Areas. In 2009, at least some portion of this funding will continue to be spent on 

Threatened and Endangered Species Management priorities, but will be managed through the 

National Monuments and National Conservation Areas subactivity. Performance in the 

Threatened and Endangered Species Management Activity will decrease due to the funding 

shift; however, this performance will be shifted to the National Monuments and National 

Conservation Areas subactivity and is shown in the performance goals for that subactivity. For 

more information about the new National Monuments and National Conservation Areas 

subactivity, see Section VI of the Justification.

Healthy Lands Initiative (+$550,000) – As Congress directed, BLM is eliminating the single 

Healthy Lands Initiative subactivity, and distributing its funding among seven subactivities and 

activities. For 2009, BLM proposes an increase of $550,000 for the Threatened and 

Endangered Species Management Activity. This increase is all new money as Threatened and 

Endangered Species received no HLI funding in 2008. The total funding request for the Healthy 

Lands Initiative is $14,922,000. The distribution of funding between the seven activities and 

subactivities, and the work to be performed under the initiative, is described in the Healthy 

Lands Initiative chapter in the Crosscutting Activities section of the Justifications. 

Section III- Management of Lands and Resources Page III-140 
Bureau of Land Management 2009 Budget Justifications 

2009 PROGRAM PERFORMANCE CHANGE TABLE

 

2005 

Actual 

2006 

Actual 

2007 

Actual 

2008 

Plan 

2009 

Base 

Budget 

(2008 

Plan + 

Fixed 

Costs) 

2009 

President’s 

Budget 

Program 

Change 

Accruing in 

2009 

Program 

Change 

Accruing 

in Outyears 

 A B=A+C C D 

Monitor Terrestrial 

Habitat (acres). 4,038,203 2,623,994 2,869,625 2,638,964 2,638,964 2,111,171 -527,793 0 

Total 

Actual/Projected 

Cost ($000) $1,576 $1,943 $1,815 $,1,663 $,1,663 $1,495 -$168 0 

Projected Cost per 

workload measure. $0 $1 $1 $1 $1 $1 $1 0 

Comments 

The 2009 Column shows reductions for the 2008 unrequested increases that will not be carried forward as 

well as an increase for the Healthy Lands Initiative for a total reduction of $168,000. 

 

Note: Projected costs may not equal program change as these are full costs, which may include funds from other sources and (or) 

use averages. 

 

Column D: Outyear performance beyond 2009 addresses lagging performance — those changes occurring as a result of the 

program change (not total budget) requested in 2009. It does not include the impact of receiving the program change again in a 

subsequent out-year. 

PROGRAM OVERVIEW

The Threatened and Endangered Species program works to ensure conservation and protection 

of federally listed species, while accommodating other resource use activities, such as timber 

harvest, energy development, recreation and grazing. The program also provides support for 

conservation of non-listed, rare plant species as designated by the BLM. In addition, the 

Threatened and Endangered Species program also supports interdisciplinary special initiatives 

and programs such as Healthy Lands, sage grouse, vegetation, fire, energy and other bureauwide initiatives. In accomplishment of these objectives the Threatened and Endangered 

Species program provides for restoration, enhancement and maintenance of functioning 

ecosystems that support the target species. 

Program Components- The BLM uses a multi-phased approach to successfully achieve 

recovery of listed species. First, the BLM inventories its lands to determine species presence or 

absence. Where species are present, the BLM becomes actively engaged in planning for 

species recovery by assigning field biologists and managers to participate in the recovery 

planning process. Subsequent to recovery planning, the BLM actively engages in activities 

designed to effect species recovery across its lands. Important recovery actions include 

monitoring of populations, implementation of treatments to restore or maintain suitable habitat 

conditions, conducting studies to understand and mitigate threats to species survival, and 

participating in efforts to establish new species populations. Program funding focuses on 

species conservation and recovery, and supports the staff that develops program policy and 

projects at all levels within the organization. 

Section III- Management of Lands and Resources Page III-141 
Bureau of Land Management 2009 Budget Justifications 

Another significant activity pertaining to endangered species management on BLM lands is 

consultation under section 7 of the Endangered Species Act. The BLM must consult with the 

US Fish and Wildlife Service and/or the National Marine Fisheries Service whenever it 

determines that an action it authorizes, funds, or carries out may affect a listed species. These 

consultations range from informal (requiring minimal effort) to lengthy formal consultations 

(requiring extensive documentation and months to complete). BLM policy provides that costs 

associated with such consultations be paid by the benefiting program rather than by the 

Threatened and Endangered Species program. 

Use of Cost and Performance Information 

Because of the variability in costs, beginning in 2008, BLM has adopted a new performance measure, 

“Percent of populations of species of management concern which are meeting desired conditions.” 

(Desired condition means eradicating or controlling invasive species) This outcome-based measure 

(number PIM.2.2.1.0712 from the DOI Strategic Plan) applies to those listed and unlisted species 

identified by the BLM State Director as critical in the accomplishment of the overall BLM mission within 

the State. Identification of this list of species will help to focus the actions of the agency on a subset of 

species which have clearly defined population goals, as well as a monitoring program in place to 

measure the effectiveness of agency conservation programs. While it is anticipated that species will 

be added and deleted from this list over time, this new performance measure will improve the ability of 

the agency to measure the outcome of its investment, and may be used in future funding allocations. 

Beginning in 2007, the Threatened and Endangered Species program began to reward states that 

allocate the greatest portion of their program funds to priority program activities (as identified in the 

President’s budget request) with greater funding. This is expected to encourage states to allocate a 

greater percentage of their available funds toward species recovery efforts. 

Long-Term Vision – The long-term goal of the program is to promote and sustain the biological 

diversity on BLM lands by achieving the recovery of listed species inhabiting BLM lands. A 

parallel goal is to support conservation of certain unlisted, rare plant species, as designated by 

the BLM, so that future listings of these species can be prevented. As listed species are 

recovered, some associated restrictions on uses of BLM lands may be eliminated, thereby 

enabling a full range of land uses consistent with BLM’s multiple use mission. 

 

Critical factors- There are many factors which influence the capability of BLM to achieve the 

fundamental goal of species recovery. A primary factor is the necessity of basic biological 

knowledge about the species themselves. However, such information can be difficult to come 

by as the Desert Tortoise, for example, spends about 90% of its life cycle underground. In 

addition, many factors affecting the recovery of species are beyond the ability of the agency to 

influence; for example, while some migratory species depend on BLM lands for a portion of their 

life cycle, BLM has little influence over availability of suitable habitat during times when those 

migratory species are not found on agency lands. 

Means and Strategies –BLM focuses its efforts on those species for which BLM lands provide 

a substantial amount of suitable habitat. Populations of certain narrow endemic species are 

contained entirely on BLM lands, however, the range of most of the more than 300 listed 

species found on BLM lands includes lands and waters not administered by the agency. For 

this reason, successful conservation of the majority of threatened and endangered species 

requires involvement of other stakeholders. Therefore, extensive collaboration and cooperation 

with a number of partners is an integral element of the Threatened and Endangered Species 

program. This collaboration begins with development of recovery plans, which are typically 

Section III- Management of Lands and Resources Page III-142 
Bureau of Land Management 2009 Budget Justifications 

developed by the US Fish and Wildlife Service and National Marine Fisheries Service. 

Implementation of recovery actions identified in plans typically involves such partners as State 

fish and game agencies, other federal agencies, and non-governmental agencies. While 

partner involvement provides opportunities for leveraging of funding and expertise to achieve 

species recovery, it also substantially increases the complexity of program implementation. 

Strategic Plan – The BLM’s Threatened and Endangered Species program directly supports 

the Department’s strategic goal to protect the Nation’s natural resources by sustaining biological 

communities on BLM-managed public lands. The Threatened and Endangered Species 

program also supports the Department’s strategic goal to manage resources to promote 

responsible use and a sustained economy through the development and implementation of 

recovery plans. 

2009 PROGRAM PERFORMANCE

2007 Accomplishments 

• BLM was actively engaged in the preparation of a number of recovery plans in 2007. 

Two very important recovery planning efforts with significant BLM involvement were 

plans for the northern spotted owl and the desert tortoise. These 2 species accounted 

for 33% of all species-specific expenditures reported by BLM to the US Fish and Wildlife 

Service for 2006. BLM-administered lands comprise 17% of the designated “critical 

habitat” for the northern spotted owl and 64% of the critical habitat for the desert tortoise. 

• BLM has initiated development of a nationwide database of listed species occurring on 

BLM-administered lands. Development of this new database will facilitate collection of 

annual species expenditure data, as required under the Endangered Species Act, as 

well as reporting of agency accomplishments pursuant to a new performance measure 

requiring the agency to track the status of species of management concern.

• In 2007, BLM again allocated a greater portion of Threatened and Endangered Species 

program funding to monitoring species populations than to any other program activity. 

Populations of more than 100 listed species were monitored. In a number of instances, 

these monitoring programs are implemented jointly with other federal and state 

agencies. 

• In 2007, BLM made strategic re-introductions of several listed species on BLM lands. 

These re-introductions have facilitated restoration of species to portions of their range 

from which they have been extirpated, and reduced the risk of future extinction. See 

information from an Arizona re-introduction of several fish species in the box below.

• BLM made adjustments in its program definitions to help ensure that costs for 

consultation under section 7 of the Endangered Species Act are properly paid by the 

benefiting program 

Section III- Management of Lands and Resources Page III-143 
Bureau of Land Management 2009 Budget Justifications 

2008 Planned Program Performance 

Beginning in 2003, BLM’s Las Vegas Field Office personnel have been 

working collaboratively with a variety of groups to reduce the negative 

impacts (albeit unintentional) to desert tortoises associated with the 

nearly 50 Special Recreation permits issued annually for off road 

vehicle tours and races. In 2007, the agency reached a milestone 

where on-the-ground course reviews and permit monitoring verified that 

no negative impacts occurred as a result of permitted activities. This 

successful program has addressed a threat to species recovery while 

enabling BLM to continue to offer OHV recreation opportunities in 

desert tortoise habitat without harming the tortoises. 

• There are three workload areas that are key elements to the BLM program for 

addressing recovery of species threatened or endangered with extinction: 1) recovery 

planning, 2) recovery plan implementation, and 3) population monitoring. These three 

areas will continue to receive most of the Threatened and Endangered Species 

program’s focus in order to ensure that its primary objective of promoting species 

recovery is achieved. 

• BLM will complete an updating 

of the agency endangered 

species management policies. 

This update is necessary to 

respond to policy changes made 

by the Fish and Wildlife Service, 

Department of the Interior 

Solicitor opinions and court 

decisions since the current BLM 

policy was adopted six years 

ago. 

• BLM will also complete an 

Alternative Internal Control 

Review of agency funding 

execution. This review will 

evaluate the success of 

measures undertaken by BLM to 

date to ensure that threatened 

and endangered species and 

other wildlife funding.

• In order to better track progress 

toward the recovery of its 

highest priority listed species, 

BLM will begin reporting on its accomplishments toward meeting a DOI performance 

measure regarding the “percent of populations of species of management concern that 

are managed to desired condition.” In 2007, states were required to identify their 

species of management concern. Beginning in 2008, states will be required to report on 

the status of those populations 

2009 Planned Program Performance - In 2009, the Threatened and Endangered Species 

program will continue to focus on the primary functions of planning for species recovery, 

implementing actions to achieve species recovery and monitoring effects of recovery actions 

and status of listed species on BLM lands. In order to permit the agency to focus on these 

higher priority functions, the BLM will substantially reduce its efforts to conduct inventories of its 

lands for the presence of threatened and endangered species in 2009. However, this is 

ultimately a necessary tradeoff as more species recovery actions are needed in the field to 

prevent species from becoming threatened or endangered. In 2009, BLM will also reduce 

monitoring of endangered species habitat by 20%. Performance in other critical aspects of the 

Threatened and Endangered Species program will be otherwise largely unchanged. However, 

the geographic focus of performance will be altered somewhat with the addition of the Healthy 

Lands Initiative to the program as some workloads will move to areas covered by the Initiative 

from areas not covered by the Initiative. 

Section III- Management of Lands and Resources Page III-144 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-145 

Success Story 

Four Native Fish Species Returned to Arizona Canyons - After 3 years of planning, a 

multi-agency team composed of the BLM, Forest Service, The Nature Conservancy, Arizona 

Game and Fish and private landowners implemented one of the largest reintroduction efforts 

of threatened and endangered species that Arizona had ever seen. Four listed species of 

fish, spikedace, loach minnow, gila topminnow and desert pupfish, were transported by 

helicopter from sites in Aravaipa Canyon to the Muleshoe Cooperative Management Area. 

More than 3500 individual fish were re-introduced into perennially flowing streams which 

closely match their native habitat. 
Bureau of Land Management 2009 Budget Justifications 

THREATENED AND ENDANGERED SPECIES MANAGEMENT PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 President's Budget Change from 200

Plan to 2009 

Percent of populations of species of management concern that are managed to desired condition. (SP) 

new 

measure 

new 

measure 

new 

measure 

Establish 

Baseline 

39% 

177/ 453 

49% 

255/ 519 

50% 

257/ 519 +1% 

*Support Measure - No cost will be shown. As a result of the 2006 Resource Management PART recommBLM has redirected base funding internally to improve performance directly related to ESA listed species. a 10% increase in 2008. Additional species of management concern were identified early in 2008 changindenominator to 519. 

Comment: Number of conservation actions implemented from recovery plans for ESAlisted species. (Bur/PART) New Measure New Measure New Measure 1,150 1,254 1,375 1,650 +20% Total Actual/Projected Cost ($000) $0 $0 $0 $0 $43,896 $44,373 $44,749 +376 Actual/Projected Cost per Conservation Action (in dollars) $0 $0 $0 $0 $35,005 $32,271 $27,121 -$5,150 

As a result of the 2006 Resource Management PART recommendations BLM has redirected base funding improve performance directly related to ESA listed species beginning in 2008. This measure includes an the Healthy Lands Initiative of $376,101 in 2009, which will result in 40 additional species recovery and coactions. 

Comment: 

The Threatened and Endangered Species program provides 82% (1379 actions implemented) of the resumeasure. Other contributors include Wildlife Management, 10%; Fisheries Management, 3%; O&C WildlManagement, 2%; and Challenge Cost Share, 3%. 

Contributing Programs: Inventory Wildlife/Plant Habitat (acres).* 23,785,859 4,122,141 4,601,175 2,569,059 2,708,811 0 0 0 Prepare T&E Species Recovery Plans (number). 19 30 27 30 46 46 46 0 Apply Shrub/Grassland Vegetation Treatments (acres). 2,979 13,734 38,198 8,234 13,883 16,695 16,695 0 Implement Species Recovery/Conservation Actions (number). 908 853 1,706 1,200 1,208 1,379 1,379 0 

Section III- Management of Lands and Resources 
Bureau of Land Management 2009 Budget Justifications 

THREATENED AND ENDANGERED SPECIES MANAGEMENT PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 President's Budget Change 

from 200

Plan to 2009 

Monitor Terrestrial Habitat (acres). 4,112,108 4,038,203 2,623,994 2,869,625 2,476,545 2,638,964 2,111,171 -527,793 Monitor Species Populations (number). 5,811 4,638 4,942 3,619 4,046 4,000 4,000 0 *Multi year sage grouse projects funded in 2005, had results counted in 2006 and 2007. Results for the T&E program are based on actual projects planned and will vary between years. In 2008 the program is placing a higher priority on imple

vegetation treatments and monitoring species populations, which will result in less monitoring of terrestrial habitat and less new wildlife/plant habitat inve

The 2009 column includes an increase for the Healthy Lands Initiative and a performance shift to the new National Monuments and National Conservati

subactivity. For more details, please see the performance table at the end of the NLCS subactivity write-up. 

Section III- Management of Lands and Resources 
Bureau of Land Management 2009 Budget Justifications 

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Section III- Management of Lands and Resources 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-149 

Activity: Recreation Management 

Activity Summary ($000) 

 2009 

 Fixed Costs & Program Change 

 2007 2008 

Related 

Changes Changes Budget 

from 

2008 

Subactivity Enacted Enacted (+/ -) (+/ -) Request (+/-) 

 Wilderness Mgt $ 16,182 17,366 +265 -1,086 16,545 -821

 FTE 132 139 0 0 139 0

 Recreation Resource 

Mgt $ 47,515 50,543 +868 -8,835 42,576 -7,967

 FTE 407 423 0 -59 364 -59

Total Activity $ 63,697 67,909 1,133 -9,921 59,121 -8,788

 FTE 539 562 0 -59 503 -59

 

 

ACTIVITY DESCRIPTION

The Recreation Management activity supports the Recreation and Resource Protection mission 

goals of the Department’s Strategic Plan. The Recreation Management activity funds BLM’s role 

in: 

• Providing resource-related recreational activities. 

• Furnishing quality visitor services. 

• Identifying and protecting wilderness values. 

• Assuring that the public receives a fair market value for any commercial ventures 

conducted on the public lands. 

• Collecting recreation use and entrance fees in the best interest of the general public. 

These responsibilities are all encompassed by BLM’s strategic goal to provide opportunities for 

environmentally responsible recreation. 

The Recreation Management activity supports the NLCS and Community Growth Emphasis 

Areas by funding positions and activities in recreation and wilderness. In NLCS units, 

wilderness areas, and in offices impacted by high community growth, recreation is a primary 

use. Recreation Management provides: 

• Recreation planning and visitor use monitoring. 

• Trails, access, and rivers management including OHV and comprehensive travel and 

transportation management. 

• Visitor services, information, interpretation and stewardship education. 

• Visitor health, safety, and accessibility for persons with disabilities. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-150 

• Recreation facility design, operation, and maintenance including visitor centers. 

• Recreation and community support partnerships including tourism and marketing. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-151 

Areas that Promote Public Land Recreation Resource Opportunities 

12 National Conservation Areas 3,372,866 acres

AK - Steese 1,208,624 acres 

AZ - Gila Box Riparian 22,905 acres 

 - Las Cienegas 41,972 acres 

 - San Pedro Riparian 56,400 acres 

CA - King Range 58,151 acres 

CO - McInnis Canyon 122,300 acres 

 - Gunnison Gorge 62,844 acres 

ID - Snake River Birds of Prey 484,034 acres 

NV - Black Rock Desert High Rock 

 Canyon Emigrant Trail 799,165 acres 

 - Red Rock Canyon 198,065 acres 

 - Sloan Canyon 48,438 acres 

NM - El Malpais 227,100 acres 

 

15 National Monuments 4,807,997 acres

AZ - Agua Fria 71,100 acres 

 - Grand Canyon-Parashant 808,724 acres 

 - Ironwood Forest 129,022 acres 

 - Sonoran Desert 486,603 acres 

 - Vermilion Cliffs 279,568 acres 

CA - California Coastal: 

883 acres along 840 miles of coastline 

 - Carrizo Plain 204,107 acres 

 - Santa Rosa and San Jacinto 86,400 acres 

CO - Canyons of the Ancients 163,892 acres 

ID - Craters of the Moon 274,800 acres 

MT - Pompeys Pillar 51 acres 

 - Upper Missouri River Breaks 374,976 acres 

NM - Kasha-Katuwe Tent Rocks 4,124 acres 

OR - Cascade-Siskiyou 52,947 acres 

UT - Grand Staircase-Escalante 1,870,800 acres 

190 Wilderness Areas 7,732,699 acres

591 Wilderness Study Areas 13,753,370 acres 

38 Wild and Scenic Rivers 2,052 miles

 256,656 acres (20% of the national system) 

10 National Historic Trails 4,877 miles 

 (85% of the national system) 

California 1,391 miles 

El Camino Real de Tierra Adentro 60 miles 

Iditarod 418 miles 

Lewis and Clark 369 miles 

Mormon Pioneer 213 miles 

Nez Perce 70 miles 

Oregon 656 miles 

Pony Express 697 miles 

San Juan Bautista De Anza 116 miles 

Old Spanish 887 miles 

3 National Scenic Trails 610 miles

Continental Divide &

Potomac Heritage 377 miles 

Pacific Crest 233 miles 

 Other Congressional Designations 

1 National Recreation Area:

White Mountain, AK 998,702 acres 

1 California Desert 10,671,080 acres 

1 Headwaters Forest Reserve, CA. 7,472cres 

1 Steens Mountain Cooperative 

 Management and Protection Area 

(Includes Donner and Blitzen Red 

 Band Trout Reserve), OR 428,156 acres 

1 National Outstanding Natural 

 Area, Yaquina Head, OR 100 acres 

Other Recreation Opportunities

 916 Areas of Critical Environmental Concern 

 12,946,979 acres 

 45 National Natural Landmarks 417,429 acres 

 164 Research Natural Areas 323,350 acres 

 55 National Back Country Byways 2,952 miles 

 31 National Recreation Trails 460 miles 

 375 Special Recreation Management Areas 

 263 National Register of Historic Places Sites 

 4,177 contributing properties 

 22 National Historic Landmarks 

 5 World Heritage Sites in Chacoan Outliers, NM 

 3 Biosphere Reserves in the California Desert 

 2 Globally Important Bird Areas 56,500 acres 

 897 Recorded Caves and Cave Resource Systems 

3,496 Recreation Sites (380 are fee sites) 

 510 Campgrounds 

 47 Recreation Cabins 

 421 Picnic areas 

 8 Long-term Visitor Areas in AZ and CA 

 87 Visitor Contact/Information Facilities and Centers 

 38 Watchable Wildlife Viewing Sites 

 154 Archaeologic or Historic Public Use Sites 

 362 Boat Ramps and Water Access Sites 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-152 

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Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-153 

Activity: Recreation Management 

Subactivity: Wilderness Management

Activity: Recreation 

Subactivity: Wilderness Management 

 2009 

 Fixed Costs & Program Change 

 2007 2008 

Related 

Changes Changes Budget 

from 

2008 

 Enacted Enacted (+/ -) (+/ -) Request (+/-) 

Wilderness ($000) 16,182 17,366 +265 -1,086 16,545 -821

 

FTE 132 139 0 0 139 0

Other Major Resources: 

 

Major Program IT Investments: 

 

 

Summary of 2009 Program Changes for Wilderness Management 

Request Component ($000) FTE

Program Changes: 

• Restoration of NLCS funding to 2008 Request level -984 

• Organizational & Administrative Streamlining -50 

• Travel & Relocation Expenses -52 

TOTAL, Program Changes -1,086 0

JUSTIFICATION OF 2009 PROGRAM CHANGES

The 2009 budget request for Wilderness Management is $16,545,000 and 139 FTE, a net 

program decrease of -$1,086,000 and 0 FTE from the 2008 enacted level, offset by a $265,000 

increase for fixed costs. 

Restoration of NLCS Funding to 2008 Request Level (-$984,000) In 2008, Congress 

provided an additional $984,000 to the Wilderness Management program for wilderness 

projects in the National Landscape Conservation System. This budget eliminates the increase 

in order to address higher priorities. 
Bureau of Land Management 2009 Budget Justifications 

Wilderness Performance Change Table

2005 Actual 2006 Actual 2007 Actual 2008 Plan 

2009 Base 

Budget 

(2008 Plan + 

Fixed Costs) 

2009 PB 

Program 

Change 

Accruing in 

2009 

Program 

Change 

Accruing 

in Outyears 

A B=A+C C D 

Monitor 

Wilderness and 

Wilderness 

Study Areas 

(acres) 

18,997,104 19,231,964 19,947,216 22,929,034 22,929,034 19,947,216 -2,981,818 0 

Total 

Actual/Projected 

Cost ($000) 

$6,994,583 $6,900,351 $6,557,570 $7,541,570 $7,541,570 $6,557,570 -$984,000 0 

Actual/Projected 

Cost per acre $.37 $.36 $.33 $.33 $.33 $.33 $.33 0 

Comments 2009 performance decrease reflects the reduction of the $984,000 unrequested NLCS increase in 2008. 

Note: Projected costs may not equal program change as these are full costs, which may include funds from other sources and (or) use averages. 

Column A: The level of performance and costs expected in 2009 at the 2008 level plus funded fixed costs. Reflects the impact of prior year funding 

changes, management efficiencies, absorption of prior year fixed costs, and trend impacts, but does not reflect the proposed program change. 

Column D: Outyear performance beyond 2009 addresses lagging performance — those changes occurring as a result of the program change (not total 

budget) requested in 2009. It does not include the impact of receiving the program change again in a subsequent out-year. 

PROGRAM OVERVIEW

Program Components – The Wilderness program is the largest component of the BLM’s 

National Landscape Conservation System (NLCS). The program accounts for almost 21.5 

million of the 26 million acres in the total NLCS (many Wilderness Areas and WSAs occur within 

other NLCS units such as National Conservation Areas). Over 7.7 million acres of 

Congressionally designated Wilderness (190 areas) and almost 13.8 million acres of Wilderness 

Study Areas (WSA) (591 areas) are located 

throughout the Western states and Alaska. 

In 2009, the BLM is creating a new NLCS 

subactivity specifically for managing National 

Monuments and National Conservation Areas. 

No Wilderness funding is being transferred to 

the new subactivity, though some of the 

Monuments or Conservation Areas in the NLCS 

include Wilderness or WSAs. The new 

subactivity will be funded separately in order to 

focus work on the unit as a whole, and to 

preserve the integrity of the wilderness-specific 

work, which is equally important to BLM’s 

management of the NLCS. 

The BLM administers Wilderness Areas and 

WSAs for the use and enjoyment of the 

Section III- Management of Lands and Resources Page III-154 

Definitions of Wilderness and 

Wilderness Study Area 

A Wilderness, as defined by the Wilderness Act 

of 1964, is an area of undeveloped Federal land 

that has a high degree of naturalness, 

outstanding opportunities for solitude or primitive 

and unconfined recreation, and may also contain 

other supplemental values. Congress has 

formally designated these areas as Wilderness. 

A Wilderness Study Area is a roadless area or 

island that the BLM has inventoried and found to 

have wilderness characteristics, as described in 

Section 603 of the Federal Land Policy 

Management Act. These areas have not been 

designated as Wilderness by Congress, but BLM 

manages them to protect their wilderness 

characteristics until Congress either designates 

them as Wilderness or decides to release them 

for non-Wilderness uses.
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-155 

American people so that present and future generations can continue to enjoy these stunning 

places. These areas offer a wide array of benefits such as world-class recreation opportunities, 

livestock forage, and habitat for wildlife, including hundreds of rare plant and animal species. 

The Wilderness program also protects rock art sites and other cultural resources, offers 

dispersed recreation opportunities, supplies clean air and water to communities in the fastgrowing west, and offers countless other benefits. 

The Wilderness program works to maintain the wilderness character of the BLM’s Wilderness 

Areas and WSAs. The bulk of the program’s budget is spent on labor devoted to monitoring 

Wilderness Areas and WSAs. This entails surveillance using a variety of methods to identify 

areas of concern such as noxious weed infestations, trespass activities, and the effects of noncommercial recreational permitting. The program also allocates funds toward restoring 

damaged areas that are identified through monitoring. Other major uses of program funds 

include providing visitor services and supporting the agency’s land use plans. 

Long-Term Vision – The goal of the Wilderness program is to maintain and enhance BLM’s 

Wilderness Areas and WSAs. 

 

Critical Factors 

• Ecological changes can influence the performance of the Wilderness program. For 

example, a noxious weed infestation occurring after a catastrophic wildfire in a 

Wilderness Area can have a large-scale impact that reduces the number of acres 

meeting wilderness character objectives. 

• Unauthorized uses occurring 

within Wilderness and WSAs also 

affect Wilderness program 

performance. Uncontrolled OffHighway Vehicle (OHV) use, for 

example, degrades wilderness 

character, and causes the 

program to spend money on 

restoring vehicle damage. 

Means and Strategies – The Wilderness 

program uses a variety of means to 

conduct its work. Field offices rely on 

volunteers to assist with monitoring 

Wilderness and WSAs. Partnerships 

enable more effective management of 

Wilderness Areas while raising the profile 

of the BLM in a positive way. In addition, 

the Wilderness program is using 

improved, higher-resolution satellite 

imagery to monitor Wilderness Areas and 

In 2007, Congress designated over 100,000 acres of BLM 

wilderness in California, including the King Range 

Wilderness, which preserves the longest undeveloped stretch 

of coastline in the coterminous United States. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-156 

WSAs, which is less expensive than on-the-ground patrols. Lastly, the use of innovative 

management practices, such as the use of aerial photography, helps the BLM maximize the 

effectiveness of appropriated funds to manage these areas. 

Responsibilities for managing the wilderness resource change over time. After a Wilderness 

Area is designated, the BLM typically spends the first three years mapping the Wilderness 

boundary, posting signs along its boundary, and providing visitor services such as maps and 

other public information. Subsequent management includes acquiring in-holdings using private 

donations, restoring wilderness character where needed, engaging in land use planning, 

monitoring Wilderness Areas and WSAs, implementing Wilderness Management Plans, and 

continuing to provide visitor services. 

Other Funding Sources 

• The Wilderness program benefits greatly from the in-kind contributions of volunteers. 

Thousands of hours of monitoring donated annually, contributions of material, and 

transportation for specific projects all leverage the efforts of Wilderness staff and enable 

the program to allocate its resources to other aspects of the program.

• The Wilderness program also benefits from several other subactivities. The programs 

that manage fire, weeds, and rangeland resources routinely fund projects that take place 

within Wilderness Areas and WSAs. 

Strategic Plan - The Wilderness program 

contributes to the Department’s Strategic 

Plan by protecting the Nation’s natural, 

cultural and heritage resources, one of the 

plan’s mission goals. The program protects 

and restores the overall health of 

landscapes and watersheds on the public 

lands while providing opportunities to 

improve scientific understanding of these 

ecosystems. The Wilderness program also 

supports the Recreation mission goal by 

providing outstanding recreational 

opportunities. 

Success Story: Partners Restore 

Unauthorized Routes in Nevada Wilderness 

2009 PROGRAM PERFORMANCE

2007 Accomplishments - The Wilderness 

program enjoyed some notable accomplishments in 2007 including the following: 

Over the past three years, the BLM in Nevada's Ely 

Field Office has used a combination of volunteer 

organizations, contracted crews, and BLM staff to 

obliterate and reclaim over 100 routes totaling about 

115 miles in Wilderness Areas. During 2007, in 

partnership with the Sierra Club, the Friends of 

Nevada Wilderness, the Great Basin Institute, and 

the Nevada Conservation Corps, the BLM 

rehabilitated 54 separate routes in 10 Wilderness 

Areas, a total of 26 miles of unauthorized routes. 

Monitoring has revealed that approximately 80 

percent of the rehabilitated routes remain unused 

after obliteration. Typical rehabilitation measures 

include loosening the compacted soil in the tire ruts, 

planting or placing visual barriers such as dead 

shrubs and rocks, seeding and vegetative restoration, 

and signing and barricading where needed. 

• Congress designated 13 new BLM-managed Wilderness Areas in California and 

Nevada, adding over 400,000 acres to the National Wilderness Preservation System. 

 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-157 

• The Wilderness program developed policy on the use of permanent fixed anchors in 

BLM’s designated Wilderness Areas. Permanent fixed anchors, commonly referred to 

as bolts, are used as safety devices by climbers. The policy provides on-the-ground 

managers with another policy tool to maintain wilderness character consistently across 

the agency. 

• The Wilderness program monitored almost 20 million acres of Wilderness and WSAs. 

Where BLM discovered impacts to wilderness character, the agency took action to 

restore the area to a natural condition. In 2007, for example, almost 400,000 acres of 

weed treatments took place in Wilderness and WSAs. 

2008 Planned Program Performance - The Wilderness program’s performance in 2008 will 

focus on managing Wilderness Areas and WSAs; contributing to land use planning; and 

restoring Wilderness and WSAs degraded by noxious weeds and other factors that affect 

naturalness. 

Managing Designated Wilderness 

Areas 

Examples of 2008 projects that maintain 

or improve wilderness character include 

the following: 

• In 2008, the BLM will complete 

wilderness restoration projects in 

Nevada. In the North and South 

Jackson Mountains Wilderness 

Areas, the BLM will remove 

tamarisk and apply treatments to 

prevent the return of this highly 

invasive, non-native plant at 12 

separate locations within the two 

areas. The project will result in 

restored natural character and functioning of important riparian habitats, which benefits 

native wildlife and improves recreational opportunities. BLM will also restore springs and 

remove spring-related developments in the South McCullough Wilderness in southern 

Nevada. Volunteer help is expected from the Friends of Nevada Wilderness, the Great 

Basin Institute, and the Nevada Conservation Corps. 

Volunteers from a local jeep club pose with a new 

barrier to prevent off-road damage to Behind the Rocks 

WSA, near Moab, Utah.

• In the Juniper Dunes Wilderness in Washington State, BLM will continue to protect 

habitat for a sensitive bird species and manage motorized recreation on adjacent public 

lands. Wildlife staff conduct monitoring to identify nesting sites for Ferruginous hawks, a 

BLM sensitive species, and have installed signs to route visitors away from nesting 

areas. A major focus for 2008 will be to use volunteers to monitor and protect the area 

from unauthorized uses. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-158 

Managing Wilderness Study Areas 

Examples of actions the BLM will take in 2008 to manage WSAs include: 

• In Moab, Utah, the Pritchett Canyon Jeep Safari route forms part of the boundary of the 

Behind the Rocks WSA. Over the years, the route had become increasingly popular for 

motorized vehicle use, which had led to an increase in unauthorized vehicle incursions 

into the WSA. A local Moab OHV club has partnered with the Moab BLM to eliminate 

these intrusions. The club has worked with the BLM to develop a plan that keeps the 

route open for travel while protecting the WSA. Actions undertaken have included signs, 

barriers, and fences. The BLM provides the direction and supervision, and the club 

provides transportation, materials and labor. This partnership has resulted in the 

restoration of this portion of the WSA boundary. 

• In Wyoming, BLM will continue to inventory users of the Prospect Mountain WSA. BLM 

is collecting data using electronic counters, visual observations, and surveys. This 

information will allow the Rawlins Field Office to better manage recreation within the 

WSA and provide the desired experience for users through outreach programs and 

brochures. 

Land Use Planning Activities 

In 2008 Wilderness program will develop and 

review new plans and plan revisions to ensure 

that planning documents adequately protect 

wilderness character. Authorized projects are 

evaluated to minimize impacts to the 

wilderness resource. 

Measuring Program Performance 

The program’s main performance measure 

assesses how many of the BLM’s acres of 

Wilderness Areas achieve wilderness 

character objectives established by the 

Wilderness Act. The agency will continue to 

evaluate these acres on a regular basis to determine what percentages achieve wilderness 

character objectives. For 2008, BLM has set a target that 78 percent of its acres of Wilderness 

Areas and other Special Management Areas will meet heritage resource objectives. 

BLM staff in Wyoming surveys a boundary road of 

Prospect Mountain Wilderness Study Area. 

2009 Program Performance - In 2009, the Wilderness program will continue to improve the 

BLM’s Wilderness Areas and WSAs and continue to support land use planning. 

Managing Designated Wilderness Areas 

The BLM’s primary responsibility under the Wilderness Act of 1964 is to maintain wilderness 

character. Each year, BLM conducts hundreds of projects that improve the quality of the 

wilderness resource. Wilderness program staff will continue to manage Wilderness and WSAs 

to protect these areas’ wilderness character. Specifically, the Wilderness program in 2009 will 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-159 

monitor 19 million acres of Wilderness Areas and WSAs. This figure represents a decrease of 

1.25 million acres from what the program proposes to monitor in 2008. 

The BLM will continue to reduce or eliminate unauthorized vehicle use and identify where new 

vehicle barriers are needed. Each year, BLM reviews hundreds of proposed activities within 

Wilderness Areas to ensure that these activities comply with Wilderness designations while 

protecting valid existing rights. BLM will also continue to notify the public of all proposed 

activities within Wilderness Areas. 

Managing Wilderness Study Areas 

BLM manages WSAs so as not to impair their suitability for preservation as wilderness. This 

means that BLM will prevent actions or impacts that will preclude Congress’s prerogatives to 

either designate the area as wilderness or release it for other non-wilderness uses. 

During 2009, the BLM will continue to monitor WSAs to ensure that their wilderness character is 

not impaired. The BLM will evaluate new proposals for authorized uses within WSAs to 

determine whether such activities meet the non-impairment standard established by FLPMA. In 

addition, the BLM will continue to monitor WSAs to eliminate unauthorized uses. Where the 

BLM discovers evidence of such uses, such as off-highway vehicle tracks off an existing route in 

a WSA, the agency will restore the site. 

Use of Cost and Performance Information

 in the Wilderness Program 

The Wilderness program focuses on monitoring Wilderness Areas and WSAs. In an effort to maintain 

wilderness character in these areas, the Wilderness program conducts shrub and grass projects in pinyonjuniper forests, a common ecosystem on BLM land. This type of work is typically coded to program 

element (JB). 

The BLM’s Activity Based Management system reveals that across the Wilderness program, the unit cost 

for work coded to JB declined 70 percent between 2006 and 2007. In addition to reducing unit cost from 

$7,736 in 2006 to $2,352 in 2007, the number of these projects also declined during the same period (from 

133 in 2006 to 90 in 2007). This indicates that the projects performed in 2007 were larger in scale, 

allowing BLM to realize cost savings from economies of scale at the project level. The reduction in unit 

cost then allows the program to shift those cost savings to other projects needed to manage the 400,000 

acres of wilderness newly designated in 2007. 

Land Use Planning and Additional Activities 

In 2009, the Wilderness program will continue to provide information on the wilderness resource 

to support BLM’s land use planning efforts. BLM Wilderness staff will help to revise existing 

plans. They will also participate in interdisciplinary teams that review various proposed activities 

in the multiple-use context. 

The program will also train hundreds of BLM employees annually in Wilderness and WSA 

management. 

Wilderness Areas and WSAs provide outstanding opportunities for research. Science is one of 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-160 

the top priorities for NLCS, and the Wilderness program supports this focus. Research in 

Wilderness Areas and WSAs can further scientific understanding of how these ecosystems work 

and improve overall management of the public lands. BLM’s Wilderness Areas and WSAs, 

finally, also serve as world-class classrooms, supporting educational efforts from traditional 

wilderness skills to outdoor treatment programs practicing wilderness therapy. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources 

WILDERNESS MANAGEMENT PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 President's Budget 

Chan

from 

200

Plan 

200

Percent of acres of Wilderness Areas and other Special Management Areas under DOI management meeting their heritage resource objectives under the authorizing legislation. (SP) 

new 

measure 

new 

measure 

new 

measure 

Establish 

Baseline 

78% 

39,657,668/ 

50,721,819 

73% 

37,310,748/ 

51,201,821 

73% 

37,310,748/ 

51,201,821 

0% 

Total Actual/Projected Cost $0 $0 $0 $0 $8,750 $13,630 $12,911 -$70Actual/Projected Cost per Acre (in dollars) $0.00 $0.00 $0.00 $0.00 $0.22 $0.37 $0.35 -$0.0Comment: 

This measure includes all of the acres of Wilderness units, Wilderness Study units, Herd Management Areas, the National Landscape Conservation System. A correction to the acres of Wild Horses and Burros Herd Machanges the denominator in 2008. 

Prepare Wilderness/WSR/NSHT/ Cultural Activity Plans (number). 

0 4 1 10 5 10 7 -3 

Process and Manage Non Commercial Special Recreation Permits (number). 6,922 6,452 5,340 4,804 4,497 5,000 4,500 -500 Monitor Wilderness and Wilderness Study Areas (acres). 19,839,913 18,997,104 19,231,964 18,500,000 19,947,216 20,250,000 19,000,000 - 1,250,Inventory for Presence of Invasive Plants and/or Noxious Weeds (acres). 2,800 613,728 85,999 3,740 15,265 125,000 100,000 -25,0Inventory for Presence of Invasive Plants and/or Noxious Weeds is based on actual projects planned and can vary greatly between years. 
au of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources 

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Bure
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-163 

Activity: Recreation Management 

Subactivity: Recreation Resources Management

Activity: Recreation 

Subactivity: Recreation Management 

 2009 

 Fixed Costs & Program Change 

 2007 2008 

Related 

Changes Changes Budget 

from 

2008 

 Enacted Enacted (+/ -) (+/ -) Request (+/-) 

Recreation ($000) 47,515 50,543 +868 -8,835 42,576 -7,967

 

FTE 407 423 0 -59 364 -59

Other Major Resources: 

Recreation Fee Demo 14,550 15,000 0 0 15,000 0 

Cost Recovery 1,147 1,200 0 0 1,200 0 

Trust Fund:- CA Off-Highway 8,218 7,127 0 0 7,127 0 

Major Program IT Investments: 

RMIS: 010-04-01-04-02-0424-00 260 260 260 0 

 

Summary of 2009 Program Changes for Recreation Management 

Request Component ($000) FTE

Program Changes: 

• Restoration of NLCS funding to 2008 Request level -1,330

• Restoration of Program funding to 2008 Request level -738

• Elimination of 2008 Earmark: CA Trail Center -738

• Organizational & Administrative Streamlining -275 -1

• Travel & Relocation Expenses -190

• Performance Contracting savings -36

• Nat'l Monument & Nat'l Conservation Area funding (new subactivity created) -5,528 -58

TOTAL, Program Changes -8,835 -59

JUSTIFICATION OF 2009 PROGRAM CHANGES

The 2009 budget request for Recreation Resources Management is $42,576,000 and 349 FTE, 

a net program change of -$8,835,000 and -74 FTE from the 2008 enacted level, offset by an 

$868,000 increase in fixed costs. 

Restoration of NLCS Funding to 2008 Request Level (-$1,330,000) In 2008, Congress 

provided an additional $1,330,000 to the Recreation Management program for recreation 

projects in NLCS areas. The budget eliminates the increase to focus on higher priority areas. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-164 

Restoration of Program Funding to 2008 Request Level (-$738,000) In 2008, Congress 

provided an additional $2,068,000 in the Recreation Management program for recreation 

management projects within the National Landscape Conservation System and for National 

Scenic and Historic Trails. This budget proposes eliminating the funding in order to address 

higher priorities. BLM will continue to maintain core function by focusing on the highest priority 

recreation projects. 

Elimination of Earmark: CA Trail Center (-$738,000) In 2008, Congress provided an earmark 

of $738,000 to fund the construction of indoor exhibits for the California National Historic Trail 

Interpretive Center in Elko, NV. This budget eliminates the earmarked funding in order to focus 

on higher BLM priorities. 

National Monuments & National Conservation Areas Funding (new subactivity created) 

(-$5,528,000 and -59 FTE) - The BLM is proposing a new subactivity in Management of Lands 

and Resources (MLR) to fund base operations at National Monuments and National 

Conservation Areas. As a result, $5.528 million is shifted from the Recreation Management 

subactivity to the new subactivity. The funding shifted from the Recreation Management 

subactivity is funding currently spent in the National Monuments and National Conservation 

Areas to meet the goals of the Recreation Management program. The funding will continue to 

be spent on Recreation Management priorities but will be managed through the NLCS-National 

Monuments and National Conservation Areas subactivity. Performance in the Recreation 

Management subactivity will decrease due to the funding shift; however, this performance will 

be shifted to the NLCS-National Monuments and National Conservation Areas subactivity and is 

shown in the performance goals for that subactivity. 

PROGRAM OVERVIEW

Program Components - Recreation Resources Management subactivity incorporates a broad 

and complex set of components and services encompassing over a dozen stand alone 

programs, each requiring an individual suite of guidance, policy and budget. The following 

visitor services related programs and program oversight responsibilities are included under the 

umbrella of recreation management for the public lands: 

• Recreation planning and visitor use monitoring. 

• Fees, permits, commercial, competitive and special use, concessions management. 

• Trails, access, and rivers management including OHV and comprehensive travel and 

transportation management. 

• Visual Resource Management, Scenic Byways, and transportation enhancements. 

• 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. 

• Cave and Karst Management. 

• Recreation and community support partnerships including tourism and marketing. 

• Providing American youth with opportunities to recreate on Federal Lands through the 

“Take It Outside” Initiative. 
Bureau of Land Management 2009 Budget Justifications 

Recreation Resources Management Performance Change Table 

2005 

Actual 

2006 

Actual 

2007 

Actual 

2008 

Plan 

2009 Base 

Budget 

(2008 Plan 

+ Fixed 

Costs) 

2009 PB 

Program 

Change 

Accruing 

in 2009 

Program 

Change 

Accruing in 

Out-years 

A B=A+C C D 

Provide Outreach 

Through 

Interpretation 

3,483 6,960 5,811 6,745 6,745 5,811 -934 0 

Total 

Actual/Projected 

Cost ($000) 

$9,147 13,283 $11,194 $12,994 $12,994 $11,194 -$1,800 0 

Actual/Projected 

Cost per program $2,626 $1,908 $1,926 $1,926 $1,926 $1,926 $1,926 0 

Comments 

Recreation Site 

Annual 

Maintenance 

UNK 41,017 35,333 46,577 46,577 35,333 -11,244 0 

Total 

Actual/Projected 

Cost ($000)

UNK $1,703 $1,589 $2,095 $2,095 $1,589 -$506 0 

Actual/Projected 

Cost Per Sq.Ft. UNK $42 $45 $45 $45 $45 $45 0 

Comments

Process SRP’s for 

Commercial Users 2,748 3,130 2,573 2,871 2,871 2,573 -298 0 

Total 

Actual/Projected 

Cost ($000)

$3,694 $3,257 $2,588 $2,888 $2,888 $2,588 -$300 0 

Actual/Projected 

Cost Per Permit $1,344 $1,041 $1006 $1006 $1006 $1006 $1006 0 

Comments

Evaluate Linear 

Recreation 

Management 

5,414 5,961 6,495 8,68 6,495 4,322 -2,173 0 

Total 

Actual/Projected 

Cost ($000) 

$456 $485 $599 $799 $599 $399 -$200 0 

Actual/Projected 

Cost Per Mile $84 $81 $92 $92 $92 $92 $92 

Comments The 2009 change column shows a reduction of $2,806,000 for the unrequested base funding and earmarks 

received in 2008. 

The overall priorities for Recreation Resource Management program include: 

• Improving dispersed recreation opportunities, including implementing off-highway vehicle 

(OHV) use designations through land-use and travel management planning. 

• Implementing the Federal Lands Recreation Enhancement Act and improving accountability 

and citizen oversight of the fee program. 

• Protecting resources and encouraging stewardship and responsible recreation use. 

• Monitoring visitor satisfaction and conducting surveys to assess performance and service 

delivery to enhance relationships with visitors and customers. 

• Maintaining collaborative partnerships and promoting volunteerism and public service. 

• Sustaining the diversity and health of regional economies and supporting community quality 

of life goals. 

• Providing interpretation, visitor information, stewardship education, and associated services 

to enhance recreation experiences. 

Section III- Management of Lands and Resources Page III-165 
Bureau of Land Management 2009 Budget Justifications 

• Promoting the new recreation management framework, Benefits Based Recreation (BBM). 

BBM is a results-based framework for planning and managing recreation resources to 

facilitate and maximize benefits to individuals, communities, economies, and the 

environment. It encourages partnerships, promotes leveraging of resources, requires 

community and regional landscape-level coordination, and planning and management of 

recreation settings, services, and facilities. 

• Providing American youth with opportunities to recreate on Federal Lands through the Take 

It Outside initiative. 

Long Term Vision - The Recreation Resource Management program is critical to the BLM 

mission and in meeting increasing expectations of the visiting public and local communities. The 

BLM’s long-term vision emphasizes: 

• Increasing the use of performance data to make better informed and more strategic 

budget allocation decisions. 

• Refining performance data and program elements to more accurately reflect evolving 

recreation program. 

• Developing manuals and policies promoting Benefits Based Management principles. 

• Providing more opportunities for dispersed recreation. 

• Maintaining the character of the landscape. 

Critical Factors - The Recreation program’s ability to achieve outcomes is directly affected by 

factors including the following: 

• Weather conditions such as the direct impacts from prolonged drought, wildland fires, 

availability of commercial services (outfitters and guides), and community services (food 

and lodging). 

• Variability in the number of visitors and the types of recreation opportunities in which 

they participate. 

Means and Strategies - The Recreation Resources Management program addresses the 

priorities of the program through: 

• Conducting baseline inventories. 

• Preparing comprehensive travel 

management plans. 

• Improving signing and websites, and 

developing travel maps. 

• Enhancing visitor health and safety. 

• Monitoring visitor and vehicular use. 

• Issuing recreation use permits for 

commercial, competitive, organized, 

and individual uses within specially 

designated areas. 

• Conducting recreation facility condition, 

accessibility, and fair market return 

assessments and program evaluations. 

• Emphasizing the use of volunteers and 

providing extensive public service 

opportunities. The recreation program 

has been particularly successful in 

Leveraging Dollars with 

Challenge Cost Share Funds 

The recreation program is working effectively to 

leverage resources and expand capability to 

address increasing OHV management, visitor 

services and education costs through the 

Challenge Cost Share (CCS) program, especially 

in support of the National Landscape Conservation 

System (NLCS). 

2009 CCS program funding will target OHV and 

travel management to foster and sustain 

partnerships for OHV management projects. By 

working with interested organizations in 

collaborative partnerships, BLM leverages its 

funding at an average of one federal dollar to 2.8 

non-federal dollars. 

Section III- Management of Lands and Resources Page III-166 
Bureau of Land Management 2009 Budget Justifications 

engaging volunteers, accounting for almost half of all the agency’s volunteer hours and 

nearly doubling the recreation workforce to serve visitors, maintain facilities and restore 

resources. 

• Enhancing budget, staffing, and resource allocation decisions by using scientifically 

defensible survey and program evaluation methods and accurate visitation and 

performance data. 

Other Funding Sources - The BLM has been highly successful in using and leveraging 

appropriated resources. 

• The BLM has built a history of innovation, creativity, and partnership success – these 

partnerships can serve as a tool to meet community growth demands placed on public 

lands. 

• The Recreation program engages corporate and local support from surrounding 

communities to collaboratively manage recreation resources. 

• The Recreation program accounts for a majority of the BLM’s partnerships, leveraging a 

significant amount of non-Federal resources to accomplish shared goals. 

• Partnership assistance is largely generated from the Challenge Cost Share program and 

the Recreation Resources Management program, where outside funding often exceeds 

a two or more to one match of Federal appropriations for recreation projects. A typical 

example of such a relationship occurs frequently with friends groups who assist BLM 

with development, construction and maintenance of trails used by local communities for 

recreation. 

Strategic Plan - Recreation is one of the 

Department’s four primary mission areas in 

the Department’s Strategic Plan in meeting 

public demand for outdoor recreation, 

supporting communities, diversifying 

healthy economies, and improving the 

quality of life for millions of Americans. 

The recreational activities hosted by the 

BLM provide key support for this 

Department mission and in achieving the 

goals of providing opportunities to the 

public for environmentally responsible 

recreation. The BLM continues to 

implement its five-year national recreation 

and visitor services strategy. 

Continental Divide National Scenic Trail south of 

Reese Creek, BLM Salmon Field Office, Idaho. 

• The program will continue to report on key performance measures, which provide a 

valuable tool in assessment of strengths and weaknesses of the program. 

• The program will report on both DOI Strategic Plan performance measures and those 

used exclusively for the BLM’s Operating Plan.

• The program will support the community growth emphasis area by redirecting funding 

from areas with low recreation demand to high use areas.

• The program will continue to support the NLCS emphasis area by improving dispersed 

recreation opportunities, managing OHV use, and promoting stewardship to protect 

lands in and adjacent to NLCS units.

Section III- Management of Lands and Resources Page III-167 
Bureau of Land Management 2009 Budget Justifications 

2009 PROGRAM PERFORMANCE 

2007 Accomplishments 

• Between 2005 and 2007, the program reduced the use of support program element 

codes by three percent. The program provided guidance on the proper use of program 

elements. This guidance will encourage staff to code to direct cost of on-the-ground 

recreation work and less on administration and overhead costs.

• Refined the definitions of performance measures and program elements so that they 

accurately reflect current and evolving recreation work at all levels of the organization.

• Continued to maintain and improve the budget allocation system which uses accurate 

and defensible visitor use, evaluation, and performance data.

• Examples of on-the-ground accomplishments include the following:

Partnership Work in Wyoming – Beaver Creek Ski Area Trails: The Lander Field 

Office, in partnership with the USFS and the Lander Nordic Ski Association 

purchased and installed standardized signs along ski trails in the Beaver Creek Ski 

Area. The Ski Area is located on BLM and USFS lands about 30 minutes south of 

Lander. Through the efforts of this partnership, recreation opportunities and quality 

of life are enhanced for the community of Lander. The BLM and USFS provide base 

property, maps, signing, and trailheads. The Lander Nordic Ski Association's 

member dues provide grooming and maintenance of the ski trail system. The signs 

correspond to ski system maps and are standardized within the Beaver Creek Ski 

Area and across Nordic Ski Area Systems 

Working With Youth In Colorado At Gunnison Gorge National Conservation 

Area - Olathe Schools Community Stewardship Day: For five years, BLM has 

partnered with Olathe teachers and students on their annual Community 

Stewardship Day. This year, the group conducted an extensive clean-up of a 

popular target shooting and trash-dumping area, and then participated in an 

interpretive hike with the NCA manager through the Eagle Valley Living Classroom 

site where they learned about the Area’s history, geology, wildlife and plant 

communities, and biological crusts. 

Providing Accessibility for Visitors with 

Disabilities – With continued support, BLM Field 

Offices have made progress to significantly increase 

recreational opportunities for people with disabilities. 

At the Cleveland Lloyd Dinosaur Quarry, the staff 

successfully incorporated Universal Design principles 

to make significant site and program improvements to 

walkways and viewing areas, ensuring visitors with 

disabilities have equal opportunities for the unique 

experience of viewing an actual dinosaur skeleton. 

Another example is the accessible fishing pier and 

hard-packed nature trail that were constructed at 

Meadowoods SMRA to accommodate increased 

urban usage by visitors with disabilities to that site. 

Other projects included major renovations at KashaKatuwe Tent Rocks NM to improve accessibility 

Kasha-Katuwe Tent Rocks 

NM is easily accessible to 

visitors with disabilities.

Section III- Management of Lands and Resources Page III-168 
Bureau of Land Management 2009 Budget Justifications 

throughout picnic areas and surrounding trails. The walkways and trails were 

realigned and hardened for wheelchair access, which also improved access for all 

visitors. 

2008 Planned Program Performance - The focus of the Recreation Resource Management 

program in 2008 is to:

• Continue to implement a strategy to support the Energy Policy Act. 

• Increase travel and transportation management planning, including implementing offhighway vehicle use designations. 

• Implement the Federal Lands Recreation Enhancement Act through the issuance of 

recreation permits and collection of fees. 

• Improve visitor information, interpretation, and stewardship education through development 

of partnerships and websites. 

Use of Performance and Cost Data in the Recreation Resource Management Program 

The number of BLM recreation permits issued for commercial, competitive, organized, and individual 

recreation uses provides important recreation and tourism data for local, state governments and the 

BLM. Using this cost/revenue management data to allocate funding also allows the BLM to focus 

resources to address the demand for these recreation use authorizations. 

The BLM continues to analyze and compare revenues and costs for workload accomplishments 

among offices and states to increase productivity and shift resources from locations with lesser 

workloads to states that have higher public demand for recreation use authorizations. Continued focus 

on the use of funds for priority recreation work has enabled the BLM to serve a greater number of 

visitors and customers.

2008 funds will be used for improving dispersed recreation opportunities on public lands in 

accordance with land use plan decisions, Congressional Acts, and Executive Orders as follows: 

• Conducting Travel Management Planning. 

• Implementing Travel Management Plans. 

• Issuing Recreation Permits and Implementing Fees. 

• Enhancing Partnerships and Promoting Stewardship. 

• Preparing Comprehensive Travel and Transportation Management. 

• Evaluating and assessing OHV monitoring protocols and developing monitoring program 

guidance. Field offices will designate OHV use areas as resource management plans 

are prepared or revised and designate roads and trails within limited use areas. 

Seventy-four recreation projects are planned for funding under the CCS program in 2008, which 

represents 20 percent of all 2008 CCS projects. At lease 50% of the these projects will be 

related to completing travel management plans. 

2009 Program Performance - The focus of the Recreation Resource Management Program for 

2009 will be to: 

• Redirect funding from areas with lesser recreation demand activity or low visitor use, to high 

use areas impacted by community growth. 

• Increase travel and transportation management planning, including implementing offhighway vehicle use designations. 

Section III- Management of Lands and Resources Page III-169 
Bureau of Land Management 2009 Budget Justifications 

• Implement the Federal Lands Recreation Enhancement Act through the issuance of 

recreation permits and collection of fees. 

• Improve visitor information, interpretation and stewardship education through development 

of partnerships and websites. 

Fiscal Year 2009 funds will be used for improving dispersed recreation opportunities on public 

lands in accordance with land use plan decisions, Congressional Acts, and Executive Orders as 

follows: 

• Preparing and Implementing Comprehensive Travel and Transportation Management -

The BLM national policy objective for travel management plans is to identify and designate 

roads and trails for motorized users to access public lands. To meet this objective the BLM 

will continue: 

o Conducting and improving consistency of comprehensive travel management 

planning. 

o Designating roads and trails within an interdisciplinary framework. 

o Implementing travel management decisions, including providing visitor services 

and information. 

o Rerouting, removing, rehabilitating specific roads and trails. 

o Establishing consistent mapping standards for the GIS database. 

o Developing interagency signing standards. 

o Mitigating impacts to natural and cultural resources. 

o Implementing stewardship education programs. 

o Increasing 

enforcement of road 

and trail 

designations. 

Field offices will designate areas 

open, closed, or limited to OHV 

use in accordance with current 

resource management plans. 

Field offices will identify and 

designate a road and trail travel 

network system within limited 

use areas as part of the travel 

management planning process. 

• Recreation Permits and Fee 

Implementation - In 2009, the BLM will enhance dispersed recreation management through 

recreation business practices by delivering consistent permit and fee policies, information, 

and guidance reflecting the new fee legislation. Recreation revenues will continue to be 

returned to recreation sites to improve facilities or services and enhance recreation 

opportunities. The Recreation Resource Advisory Committees (RRAC) provide greater 

feedback, citizen oversight and interaction with the public and stakeholders. This is due to 

the structure and format provided by the RRAC. 

Just outside of Las Vegas, NV, over 80,000 visitors per year 

hike trails through the awe-inspiring Red Rock Canyon. 

One excellent example of recreation fee dollars used to enhance a recreation site is the 

Upper Missouri River Breaks National Monument: Interpretive Center in Montana. Local 

citizens of Ft. Benton requested the interpretive center be built for their community in 

partnership with the BLM. This new interpretive center is a culmination of three attempts by 

Section III- Management of Lands and Resources Page III-170 
Bureau of Land Management 2009 Budget Justifications 

the local citizens to develop some sort of formal interpretive center for the Wild and Scenic 

Upper Missouri River which was designated in 1976, and the subsequent National 

Monument which was designated in 2001. Funding from recreation fees assists with 

creation and maintenance of new visitor amenities such as interpretive center exhibits, 

special visitor programs, paved parking area, sidewalks, landscaping and interpretive trails. 

Fees may also allow BLM to consider lengthening the season of visitation. The Central 

Montana Resource Advisory Council concurred on April 13, 2007, to charge a minimal fee of 

$2.00 per adult to participate in the interpretive center’s exhibits and programs, informational 

and bookstore contacts within the center. Since opening in October of 2006, approximately 

12,186 visitors have come to Ft. Benton just to see this community center. This fee is 

similar in cost to other regional visitor centers. Partnerships with the City of Ft. Benton 

assisting with maintenance of the outside facilities and the River and Plains Society 

providing interpretive sales have expanded visitor services 

• Enhancing Partnerships and Promoting Stewardship - Ongoing partnerships with many 

national and regional recreation interest groups, non-profit organizations, and local 

communities have enhanced the 

BLM’s ability to leverage resources 

and manage resources at the field, 

state, and national level. In addition, 

the BLM will coordinate and partner 

with external organizations and 

internal programs to improve delivery 

of real time information through web 

site development and provide 

stewardship ethics information to 

visitors of the public lands. 

One example of partnerships working to 

promote stewardship of BLM lands, is at 

the McGinnis Canyon NCA, in Colorado, 

where a dynamic partnership formed 

between the BLM and the local 

community to enhance recreation 

opportunities. McGinnis Canyon NCA 

(MCNCA) signed a Memorandum of Understanding with the Colorado Mountain Club (CMC) to 

adopt the Flume Canyon trail. The Grand Junction Field Office and MCNCA staff trained 

several CMC members in trail construction and maintenance as well as in trail layout and 

design. This gave CMC the opportunity to get engaged in the entire process as they helped 

NCA staff design a critical trail reroute to relocate the Flume Canyon trail from a sensitive 

riparian area to a more scenic and sustainable location. Through this partnership, CMC 

contributed 324 hours of volunteer time and in-kind donations at a value of more than $6,500 

while building 0.75 miles of new trail and restoring the old trail to the most natural condition 

possible. 

Kremmling Metal Mashers OHV Club is working with 

BLM to protect sensitive resources 

while building a rock crawling opportunity.

• Establishing Benefits-Based Management - The BLM will continue to pursue policies and 

emphasis in training that will accelerate BLM's transition to a business-oriented, benefitsbased management framework. This recreation management transition will emphasize 

collaborative and cooperative management of resources with other providers to meet shared 

economic, social, and environmental concerns, especially personal, economic, and 

Section III- Management of Lands and Resources Page III-171 
Bureau of Land Management 2009 Budget Justifications 

community beneficial outcomes. These initiatives pursue expanding the use of partners and 

building the relationship with volunteers and stakeholders. 

One example of Benefits-Based Management (BBM) implementation is in Alaska. A 

methodology was developed for statewide implementation of benefit-based assessment and 

monitoring of outdoor recreation resources management. Utilizing a Cooperative 

Ecosystems Study Unit contract with the University of Alaska at Fairbanks, a BBM study 

was conducted to collect recreation demand data for activities, experiences, place settings 

and benefit outcomes. The data will be used in the development of management objectives, 

setting prescriptions, and implementation framework, to manage for visitor, resident, 

community, economic, and environmental beneficial outcomes in the upcoming Eastern 

Interior Resource Management Plan, which encompasses five NLCS Units. 

• Ensuring Public Health, Safety and Accessibility - The Recreation program provides for 

the daily and routine operations and maintenance of over 3500 recreation facilities including 

campgrounds, picnic areas, major interpretive center facilities and thousands of miles of 

trails. The BLM must ensure that 

facilities are in good condition, 

attractive, accessible, and safe. The 

BLM has made accessibility a priority to 

improve access and recreation 

opportunities for persons with 

disabilities. Congress has authorized a 

dozen major visitor centers in the last 

decade. Currently, the Recreation 

Resources Management subactivity 

funds over $6.0 million annually in 

support of operations and maintenance 

at these facilities, accounting for 

approximately 12 percent of the 

subactivity funding. 

• Conducting Customer/Visitor Service 

Satisfaction Surveys - This annual 

survey is used to measure performance 

success in providing quality visitor 

services. The BLM will also be 

developing a National Visitor Use 

Monitoring methodology to improve the 

reliability and validity of its visitor use 

and social science data. 

Support of BLM 2009 Emphasis Area of 

NLCS 

The Recreation Management activity includes 

both the Wilderness and Recreation Resources 

Management subactivities. The Wilderness 

Management subactivity funds land 

management activities in both Wilderness Areas 

and Wilderness Study Areas. The Recreation 

Resources Management subactivity funds 

recreation-related operations across all public 

lands. The Recreation Resources Management 

subactivity contributes the largest amount of 

funding to NLCS units. The Recreation program 

is largely responsible for the operations on the 

National Historic and Scenic Trails, Wild and 

Scenic Rivers and the daily operation and 

annual maintenance of over 20 major visitor 

centers. These centers interpret world class 

resources and are windows for public land 

visitors to become more aware of the 

importance of conserving our public lands, 

building grassroots’ public support for the goals 

and objectives of the Healthy Lands Initiative (as 

described in the Management of Lands and 

Resources section) and other priorities. 

Section III- Management of Lands and Resources Page III-172 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-173 

The recreation resources performance overview table is displayed below and indicates the 

improvements made in meeting visitation and facility objectives. 

Changes in Performance Due to the Funding Shift to NLCS: 

In 2009 the following performance decreases (totaling $5.528 million) in recreation resources 

will appear as increases in the new NLCS-National Monuments and National Conservation 

Areas subactivity. 

• Provide Outreach Through Interpretation and Education, $1.0 million and 519 

interpretive talks and outreach opportunities with the public. 

• Recreation Site Annual Maintenance, $500,000 and 145 units. 

• Process SRP’s For Commercial Users, $300,000 and 298 Recreation Permits. 

• Evaluate Recreation Areas, $400,000. No unit cost associated with this workload. NLCS 

will be responsible for evaluating all current recreation areas in conservation areas and 

monuments. The $300,000 will be augmented by additional funding currently used to 

fund this work. 

• Recreation Site Building Annual Maintenance, $728,000 and 16,178 units. 

• Inventory Recreation Resources, $400,000. No unit cost associated with this workload. 

NLCS will be responsible for evaluating all current recreation areas in conservation 

areas and monuments. The $300,000 will be augmented by additional funding currently 

used to fund this work. 

• Prepare and Revise Recreation Activity Plans, $400,000 and 18 plans. Issue and 

Manage Recreation Use Permits, $400,000 and 133,333 permits. 

• Evaluate Designated Rivers and Trails, $400,000 and 883 evaluations. 

• Inspect Commercial SRPs for Compliance, $300,000 and 676 inspections. 

• Assess Linear Recreation Resources, $300,000 and 2, 679 assessments. 

• Evaluate Linear Recreation Management, $200,000 and 411 evaluations. 
Bureau of Land Management 2009 Budget 

RECREATION RESOURCES MANAGEMENT PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 President's Budget 

fr

Percent of visitors satisfied with the quality of their experience (SP/PART) 94% 91% 97% 94% 93% 93/ 100 93% 93/ 100 94% 94/100 Total Actual/Projected Cost ($000) $23,942 $21,060 $18,984 $0 $16,227 $24,152 $21,952 Actual/Projected Cost per Percent of Visitors Satisfied (in dollars) $254,702 $231,426 $195,715 $0 $174,480 $259,700 $233,531 -Comments: Customer surveys have a variance of +/- 6%. BLM hosted over 57 million visitors in 2007. 1% equals 5Percent of physical facilities in Special Recreation Management Areas (SMRA) in good or fair condition. (Bur/PART) 

87% 90% 92% 92% 94% 365/388 94% 366/ 388 

94% 365/388 

Comments: * Support Measure - No cost will be shown. Percent of recreation units with current management plan (SP) 

new 

measure 

new 

measure 

new 

measure 

Establish 

Baseline 

55% 

199/ 362 

56% 

201/ 362 

56% 

203/ 362 

Total Actual/Projected Cost ($000) $0 $0 $0 $0 $1,757 $2,373 $2,073 Actual/Projected Cost per Unit (in dollars) $0 $0 $0 $0 $8,829 $11,808 $10,210 Comments: 

Reflects the number of administratively designated Special Recreation Management Areas (SRMAs) with plans in place. These units include areas with significant recreation infrastructure development, high visitintensive recreation management needs. About 15% of BLM lands have been designated as SRMAs. 

Percent of priority recreation facilities that meet applicable accessibility standards (SP/PART) 

7% 

550/ 7700 

7% 

36/ 499 

8% 

39/ 512 

8% 

41/ 512 

8% 

41 / 512 

8% 

43/ 512 

9% 

45/ 512 

Comments: 

* Support Measure - No cost will be shown. The vast majority (over 80%) of BLM recreation sites incorpoelements such as rest rooms, parking lots, visitor centers, and trails and allow reasonable access to pers

Virtually all visitor centers meet basic ADA access requirements. However, only 9% of all facilities are fulaccessible and include virtually all visitor use elements (every campground, toilet, trail, etc) that have be

accessible. 

Section III- Management of Lands and Resources 
Bureau of Land Management 2009 Budget 

RECREATION RESOURCES MANAGEMENT PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 President's Budget 

fr

Percent satisfaction among visitors served by facilitated programs (SP/PART) 

No Data 82% 91% 91% 81% 81/ 100 81% 81/ 100 82% 82/ 100 

Total Actual/Projected Cost ($000) $0 $0 $0 $0 $45,461 $24,355 $21,779 Actual/Projected Cost per Percent of Visitors Satisfied (in dollars) $0 $0 $0 $0 $561,251 $300,676 $265,603 -Comments: Facilitated programs include all deliverable interpretive products and include a wide range of signs, kiosk

websites, educational programs etc...each of which may reach thousands of individual visitors. 

Overall condition of trails and campgrounds as determined by the Facilities Condition Index. (SP) 

new 

measure 

new 

measure 

new 

measure 

Establish 

Baseline 

0.9 

14,670/ 

16,724 

0.9 

14,670/ 

16,724 

0.9 

14,675/ 

16,724 

Comments: * Support Measure - No cost will be shown. Percent of visitors satisfied with services provided by commercial recreational operations. (SP) 

new 

measure 

new 

measure 

new 

measure 

Establish 

Baseline No report Establish Baseline TBD 

Total Actual/Projected Cost ($000) 0 0 0 0 0 10,618 9,592 Actual/Projected Cost per percent of Visitors Satisfied (in dollars) $0 $0 $0 $0 $0 TBD TBD Comments: A customer survey is being developed for this measure. The first survey will be done in 2008 and the res

provide targets for 2009 and beyond. 

Percent of customers satisfied with the value for fee paid (SP) 

85% 

85/ 100 

85% 

85/ 100 

86% 

86/ 100 

90% 

90/ 100 

86% 

86/ 100 

86% 

86/ 100 

87% 

87/ 100 

Total Actual/Projected Cost ($000) $0 $0 $1,118 $0 $515 $670 $647 Actual/Projected Cost per percent of Satisfied Customers (in dollars) $0 $0 $13 $0 $6 $8 $7 Comments: 

Section III- Management of Lands and Resources 
Bureau of Land Management 2009 Budget 

RECREATION RESOURCES MANAGEMENT PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 President's Budget 

fr

Percent of recreation fee program receipts spent on fee collection (SP) 

first data 

2005 15% 15% 15% 

3% 

439,500/ 

14,000,000 

3% 

439,500/ 

14,000,000 

3% 

440,500/ 

14,000,000 

Cost per visitor at developed recreational fee sites. (Bur/PART) $1.34 $1.23 $1.44 $1.44 $1.14 $1.14 $1.16 Comments: The data used in this measure was refined in 2007. The new formula has been applied to all prior year dPercent of DOI public lands management units where travel management plans or equivalent regulatory or policy documents are completed. (SP) 

new 

measure 

new 

measure 

new 

measure 

Establish 

Baseline 

39% 

61/ 155 

41% 

63/ 155 

42% 

65/ 155 

Comments: * Support Measure - No cost will be shown. Provide Outreach Through Interpretation and Environmental Education (number) (unit of measure changed in FY2004) 

11,364 3,483 5,577 5,800 5,811 6,746 5,292 

Inventory Recreation Resources (acres). 11,402,950 7,674,125 21,107,796 7,500,000 8,985,480 8,500,000 6,900,000 -1Assess Linear Recreation Resources (miles). 26,158 22,534 16,261 15,000 17,320 17,500 14,821 Evaluate Recreation Areas (acres). 6,693,994 6,934,674 8,238,004 8,239,000 6,924,093 6,887,165 6,886,754 -4*The 2009 column reflects a decrease to performance for the 2008 unrequested increases that will not be carried forward, and for the shift of fundin

Monuments and National Conservation Area subactivity which includes: 519 public outreach programs, 1,600,000 acres of recreation resources inassessments of linear recreation resources, and 411 miles evaluated for recreation management. Other workload measures involved in the shift in

recreation use permits; 16,178 square feet of recreation site building annual maintenance; 18 activity plans; 1,212,121 acres evaluated in recreatiotrail annual maintenance; 8 miles of trail construction; 15,385 square feet of recreation site building construction; 9 non-building recreation site conscompliance inspections; 883 miles evaluated for designated rivers and trails; and, 145 recreation sites with annual maintenance. 

Section III- Management of Lands and Resources 
Bureau of Land Management 2009 Budget Justifications 

Activity: Energy and Minerals Management 

Activity Summary ($000) 

 2009 

 Fixed Costs & Program Change 

 2007 2008 

Related 

Changes Changes Budget 

from 

2008 

Subactivity Enacted Enacted (+/ -) (+/ -) Request (+/-) 

 Oil and Gas Mgt $ 117,129 90,200 +1,604 +20,334 112,138 +21,938

 FTE 833 644 0 +180 824 +180

 Oil and Gas APD 

Processing Fund $ 0 25,500 0 -25,500 0 -25,500

 FTE 0 222 0 -222 0 -222

 Offsetting Fees $ 0 -25,500 0 +25,500 0 +25,500

 Coal Mgt $ 9,251 9,372 +161 -55 9,478 +106

 FTE 74 73 0 0 73 0

 Other Mineral 

Resources Mgt $ 10,157 10,301 +165 -114 10,352 +51

 FTE 82 81 0 -1 80 -1

Total Activity $ 136,537 109,873 1,930 20,165 131,968 22,095

 FTE 989 1,020 0 -43 977 -43

ACTIVITY DESCRIPTION

BLM’s Energy and Minerals programs support the Resource Use mission goal of the 

Department’s Strategic Plan by managing energy and mineral resources to enhance public 

benefits, to promote responsible use and ensure optimal value. In 2009, emphasis will be 

directly tied to providing opportunities for environmentally sound commercial energy 

development, including implementing the President’s National Energy Policy and provisions of 

the Energy Policy Act of 2005 (P.L. 109-58). The Act, signed by the President on August 8, 

2005, provides authorities which have improved the way the Bureau carries out its energyrelated responsibilities, including streamlining the permitting process for energy resource 

development and enhancing management practices to be more responsive to all stakeholders, 

whether landowners, lessees, local or state governments, or other interest groups or individuals. 

It also calls on the BLM to modernize regulations of various aspects of energy development on 

public lands and develop ways to improve coordination between all the agencies responsible for 

managing that development. 

Energy and mineral resources generate the highest revenue values of any uses of the public 

lands, over $3.9 billion in 2007 from royalties, rents, bonuses, sales, and fees. In 2007, the 

public lands produced 42 percent of the Nation’s coal, 14 percent of the natural gas and 5 

Section III- Management of Lands and Resources Page III-177 
Bureau of Land Management 2009 Budget Justifications 

percent of domestically produced oil. Other important mineral resources from Federal lands 

include: 

• potassium, 

• phosphate, 

• sodium, 

• gypsum, 

• lead, 

• zinc, 

• uranium 

• sand and gravel. 

Production of leasable minerals from Federal lands such as phosphate, potash, sodium, and 

certain hard rock minerals generated $31.2 million in revenues in 2007. BLM administered 298 

coal leases and over 49,100 oil and gas leases in 2007, of which over 21,600 were producing. 

The BLM presently manages 480 geothermal leases, with 58 leases in producing status. These 

leases generated over 900 gigawatt-hours of electrical power during FY2007 and provide 

alternative heat sources for direct-use commercial endeavors. Geothermal generates over 

$12.0 million in federal royalties each year. Competitive lease sales in FY 2007 netted over 

$28.0 million in bonus bids for lease parcels in Idaho, Utah, Nevada, and California. 

The BLM and USFS have initiated a Programmatic Geothermal Leasing Environmental Impact 

Statement (PGEIS) to amend land use planning documents for geothermal leasing. The PGEIS 

has an anticipated completion date in December 2008. The completion of this document is 

anticipated to result in additional allocations of land for new geothermal leasing. 

The BLM is also involved in efforts which will potentially assist the long term goals for domestic 

energy production from other unconventional energy resources. 

 Oil Shale - The United States holds significant oil shale resources underlying a total area 

of 16,000 square miles. More than 70 percent of American oil shale is on Federal land, 

primarily in Colorado, Utah, and Wyoming. In response to the Energy Policy Act of 

2005, the Bureau has prepared a programmatic environmental impact statement (PEIS) 

for a land use allocation of oil shale and tar sands resources. 

 Gas Hydrates –Working with other federal agencies and industry, BLM is supporting 

natural gas hydrate assessments on lands within Alaska’s Arctic North Slope. The 

objective of the work is to better define hydrate resources, to understand the factors 

which affect their production and to identify environmental hazards that may be 

generated by the production of hydrates. 

Section III- Management of Lands and Resources Page III-178 
Bureau of Land Management 2009 Budget Justifications 

Activity: Energy and Minerals Management 

Subactivity: Oil and Gas Management 

Activity: Energy and Minerals 

Subactivity: Oil and Gas Management 

 2009 

 Fixed Costs & Program Change 

 2007 2008 

Related 

Changes Changes Budget 

from 

2008 

 Actual Enacted (+/ -) (+/ -) Request (+/-) 

Oil and Gas ($000) 117,129 90,200 +1,604 +20,334 112,138 +21,938

 

FTE 833 644 0 +180 824 +180

Other Major Resources: 

Permit Processing Fund - BLM 21,950 23,224 0 -23,224 0 -23,224

Geothermal Steam Act Implementation 

Fund 4,360 9,300 0 -9,300 0 -9,300

APD fees – Offsetting Collections 0 25,500 0 -25,500 0 -25,500

Cost Recoveries 2,780 5,000 0 +34,000 39,000 +34,000

Navy Petroleum Reserve 2,081 504 0 -301 203 -301

Major Program IT Investments: 

AFMSS: 010-04-01-03-01-0417-00 2,110 2,110 -511 1,599 -511

LSS: 010-04-01-03-02-0444-00 250 250 +30 280 +30

RDAWP: 010-04-01-03-02-0445-00 370 370 +141 511 +141

 

Summary of 2009 Program Changes for Oil and Gas Management 

Request Component ($000) FTE

Program Changes: 

• AK Legacy Wells +11,200 +183

• Oil Shale EIS -1,950 

• Shift of Oil Shale funding to Oil/Gas Inspections & Enforcements [400] 

• Gas Hydrates -425 

• North Slope Science Initiative +376 

• Organizational & Administrative Streamlining1 -715 -3

• Travel & Relocation Expenses1 -375 

• Performance Contracting savings -207 

• Nat’l Monument & Nat’l Conservation Area funding (new subactivity created) -39 

• Shift Oil and Gas Management Base Funding from Offsetting Collections +12,469 

TOTAL, Program Changes +20,334 +180 1

 See General Statement for an explanation of these bureau-wide proposals. 

 

Section III- Management of Lands and Resources Page III-179 
Bureau of Land Management 2009 Budget Justifications 

JUSTIFICATION OF 2009 PROGRAM CHANGES

The 2009 budget request for the Oil and Gas Management program is $112,138,000 and 824 

FTE, a net program increase of $20,334,000 and 180 FTE from the 2008 level. 

The regular discretionary appropriations request increase largely reflects the expiration of the 

$4,000 fee on applications for permits to drill, which was included in the 2008 appropriation and 

is expected to generate $25.5 million in offsetting collections. The 2009 budget proposes to 

permanently implement a cost recovery fee for processing applications for permits to drill. The 

proposed fees will generate an estimated $34.0 million in FY 2009 and, similar to other cost 

recovery fees, would be deposited in BLM’s Service Charges, Deposits and Forfeitures 

Account. Within the energy and minerals budget, the funding resources available for oil and gas 

in 2009 represent a net program increase of $7.8 million over the 2008 level.

The program assumes that the Permit Processing Improvement Fund for pilot offices will be 

eliminated in 2009, but would be offset by new revenue from APD cost recoveries. This 

proposed legislative change would require Congressional modification of the Energy Policy Act 

of 2005. 

Alaska Legacy Well (+$11,200,000) – The BLM is responsible for the government-drilled well 

sites on Alaska’s North Slope, sometimes called the Alaska “Legacy Wells.” Some of these 

wells, and the associated facilities, contain fuel and other contaminants which present a risk 

from erosion to Alaska’s marine and tundra habitat. In order to continue a systematic program 

of remediation of these sites, in 2009 the BLM is requesting an increase of $11,200,000 to 

enable remediation of the Antigaru well site, the next highest priority well site after the East 

Teshepuk site. The BLM anticipates completing remediation of the East Teshepuk site in 2008, 

and initiating a contract at the end of the fiscal year for the Antigaru project so that deployment 

to the site can occur expeditiously in 2009. This will enable the project to be fully completed in 

the 2008-2009 winter work season. Work will consist of plugging the well and removing the 

reserve pit contents. Completing the project in one season with only one deployment is critical 

to constraining total project costs. The total estimated cost is $17.1 million, with 2008 funding of 

$300,000 and 2009 funding of $16.8 million, including $5.6 million of base funds and the 

requested increase of $11.2 million. 

Oil Shale EIS (-$1,950,000) – The BLM has been conducting a program to authorize oil shale 

development, as explained in more detail later in the subactivity chapter. The BLM plans to 

complete the most costly portions of the Oil Shale Programmatic Environmental Impact 

Statement and preparation of draft leasing rules in 2008; therefore a $1.95 million reduction is 

proposed for 2009. A provision in section 433 of the Consolidated Appropriations Act of 2008 

(Public Law 110-161) prohibits the use of funds for the preparation or publication of final oil 

shale regulations, but does not apply to a proposed rule. Therefore, the BLM plans to publish a 

proposed rule and will analyze comments received on the proposed rule, but will not prepare or 

publish a final rule using fiscal year 2008 funds as provided by this Congressional directive. In 

2009, an additional $400,000 in base funding for the oil shale program will be redirected to oil 

and gas inspection 

activities to improve the BLM’s ability to keep up with the pace of industry’s on-the-ground 

operations and better ensure that oil and gas operations are conducted in an environmentally 

Section III- Management of Lands and Resources Page III-180 
Bureau of Land Management 2009 Budget Justifications 

sound manner. The $400,000 for additional inspections is in addition to an increase of $1.95 

million provided by Congress in 2008, which will be carried forward in 2009 and used for 

inspection and production monitoring. 

Shift of Oil Shale funding to Oil/Gas Inspections & Enforcements [$400,000] – In 2009, an 

additional $400,000 in base funding for the oil shale program will be redirected to oil and gas 

inspection activities to improve the BLM’s ability to keep up with the pace of industry’s on-theground operations and better ensure that oil and gas operations are conducted in an 

environmentally sound manner. The $400,000 for additional inspections is in addition to an 

increase of $1.95 million provided by Congress in 2008, which will be carried forward in 2009 

and used for inspection and production monitoring. 

Gas Hydrates (-$425,000) – In order to focus available funding on other priorities within the Oil 

and Gas Program in 2009, BLM proposes this reduction. Cooperative gas hydrate studies will 

continue but at a slower pace than 2008. 

North Slope Science Initiative (+$376,000) – The BLM requests an increase to continue 

implementing Section 348 of the Energy Policy Act of 2005, which requires BLM participation in 

North Slope Science Initiative (NSSI) research and monitoring projects. This information is 

needed to support resource management decisions such as oil and gas leasing. This will be 

added to base funds of $1.0 million in 2008 and 2009. 

Nat’l Monument & Nat’l Conservation Area funding (-$39,000) - The BLM is proposing a new 

subactivity in 2009 to fund base operations at National Monuments and National Conservation 

Areas. As a result, BLM proposes to shift $39,000 from the Oil and Gas management 

subactivity to the new NLCS subactivity. The funding proposed for the shift is currently being 

spent in the National Monuments and National Conservation Areas, to meet the goals of the Oil 

and Gas management program. The funding will continue to be spent on Oil and Gas 

management priorities, but will be managed through the National Monuments and National 

Conservation Areas subactivity. 

Shift Oil and Gas Management Base Funding from Offsetting Collections (+$12,469,000) –

This increase represents the remaining shift required to restore base program funding in the oil 

and gas management subactivity based on the assumption that the 2008 APD fee offset will 

expire in 2009. 

Oil and Gas Cost Recovery [$34,000,000 in Service Charges, Deposits and Forfeitures 

Account] – In the 2008 Consolidated Appropriations Act (P.L. 110-161), Congress imposed a 

one-time assessment fee of $4,000 for applications for permits to drill (APDs) processed by the 

BLM. As the fee authority was included in the BLM’s annual appropriations language, it expires 

at the end of 2008. The 2008 appropriations bill assumed BLM would raise and retain $25.5 

million in offsetting collections through this authority, allowing Congress to impose a significant 

reduction in direct appropriations for the BLM’s oil and gas management program without 

reducing the funds available for processing APDs and associated use authorizations. The 2009 

budget request effectively makes permanent the intent of the 2008 Congressional action with 

respect to charging a fee to APD applicants. The Administration will re-propose legislation to 

amend Section 365 of the Energy Policy Act of 2005 to allow the BLM to undertake a 

rulemaking to permanently institute cost recovery fees on APDs. The 2009 budget assumes an 

Section III- Management of Lands and Resources Page III-181 
Bureau of Land Management 2009 Budget Justifications 

initial APD assessment fee of $4,150 that is estimated to generate $34 million in cost recovery 

revenues in 2009. The funds will be deposited in the Service Charges, Deposits and Forfeitures 

account.

PROGRAM OVERVIEW

Oil and gas resources generate the highest revenues of any uses of the public lands. Oil and 

gas development generated $3.9 billion through royalties, rents, and bonuses in 2007. In 2007, 

the onshore public lands produced 14 percent of the Nation’s domestically-produced natural 

gas, and 5 percent of its domestic oil. In 2007, the BLM administered over 49,100 oil and gas 

leases, of which over 21,600 oil and gas leases are producing. Information systems such as 

LR2000 and AFMSS are critical to managing and monitoring the performance of BLM’s Oil and 

Gas leasing and permitting. In addition to managing energy and mineral exploration and 

development on public lands, the BLM provides program management of mineral development 

on Indian lands. 

Strategic Plan - This program supports the Resource Use mission goal from the Department’s 

Strategic Plan by managing energy resources to enhance public benefits, to promote 

responsible use and ensure optimal value of the public land fluid mineral resources. 

Program Components 

• Oil and Gas Leasing 

• Processing Oil and Gas Applications for Permit to Drill (APDs) 

• Inspection, Enforcement and Production Accountability 

• Reservoir Management 

• Oil Shale Leasing 

• Geothermal Resource Management, including Leasing, Processing Geothermal 

Applications for Permit to Drill and Geothermal Inspection and Enforcement 

• Legacy Well and Orphan Well Management 

Oil and Gas Leasing – Currently over 45 million acres of onshore Federal oil and gas mineral 

estate are leased for oil and gas development in 33 states. Of this, about 11.6 million acres are 

in producing status with an estimated 420,000 acres of surface disturbance, which will ultimately 

be reclaimed upon completion of operations. 

The oil and gas industry nominates onshore Federal oil and gas mineral estate acreage to be 

leased in blocks of land called parcels. The BLM offers these parcels for oil and gas leasing if 

an adequate land use plan, which includes environmental protection stipulations, National 

Environmental Policy Act (NEPA) analysis, State and Tribal consultations, and documentation to 

support leasing decisions, have been completed. These parcels are offered competitively, by 

oral bid, at an oil and gas lease sale in order to maximize Federal and State revenue. Parcels 

not leased during the competitive sale process are available noncompetitively for two years. 

In order to comply with Section 363 of the Energy Policy Act of 2005, the Secretary of the 

Interior (BLM) and the Secretary of Agriculture (FS) entered into a Memorandum of 

Understanding to improve interagency coordination in oil and gas leasing and permitting 

Section III- Management of Lands and Resources Page III-182 
Bureau of Land Management 2009 Budget Justifications 

procedures and to establish joint data systems on BLM-managed public lands and National 

Forest lands which are leased for oil and gas. 

Processing Oil and Gas Applications for 

Permit to Drill (APDs) – 

Section III- Management of Lands and Resources Page III-183 

After an oil and gas lease has been issued, the 

oil and gas operator may choose to drill wells 

to explore for and produce oil and gas on the 

lease. Before any surface disturbance is 

allowed the BLM must first authorize the 

proposed development. 

The BLM reviews the operator’s APD proposal 

to ensure compliance with the National 

Environmental Policy Act and to identify 

important surface and subsurface resources 

that are present and any necessary sitespecific environmental protection measures the 

operator must take to protect those resources. 

0

2,000

4,000

6,000

8,000

10,000

12,000

1996

1998

2000

2002

2004

2006

2008

New APDs Received 

This facility for well fracturing operations will serve 

10 separate well pads up to 6,200 feet away, 

representing up to 200 individual wells in all. Each 

well pad can be made smaller because it no longer 

needs to be constructed large enough to hold the 

frac tanks and associated treatment equipment. All 

treatment fluids are stored on this pad, eliminating 

as many as 90 water truck trips each day during the 

treatment process. 

BLM has made a number of recent 

improvements which have streamlined the 

processing of APDs such as: 

• Gold Book - BLM updated the 

Surface Operating Standards and 

Guidelines for Oil and Gas 

Development (Gold Book). The Gold 

Book assists operators by providing 

information on the requirements for 

obtaining permit approval and 

conducting environmentally 

responsible oil and gas operations on 

Federal lands, including exploration, 

production, reclamation, and 

associated rights-of-way and special 

use authorizations. The Gold Book 

has resulted in fewer incomplete APD 

submissions and more efficient APD 

processing and is available at 

www.blm.gov/bmp/goldbook.htm. 
Bureau of Land Management 2009 Budget Justifications 

• Plan of Development - Another major innovation which BLM has implemented is the 

Plan of Development, or POD approach. This requires the operator to present a longterm development plan in the area where oil and gas permits will be requested. The plan 

includes all related actions (wells, roads, pipelines, rights-of-ways, water management 

plans) which can then be analyzed in a single NEPA document. The POD approach is 

appropriate for large-scale high-volume development, allowing for better planning and 

cumulative impact analysis which can significantly reduce environmental effects from 

development. 

• Best Management Practices (BMPs) - as part of an effort to continuously improve the 

way oil and gas development is 

managed on the public lands, BLM 

issued policy on June 22, 2004 which 

directed all field offices to incorporate 

appropriate environmental BMPs into 

proposed Applications for Permit to Drill 

(APDs), sundry notices, and associated 

Rights-of-Way approvals. 

Produced oil and water is piped from individual 

well pads to a centralized production facility. The 

result is greatly reduced truck and vehicle traffic. 

The use of electronic measurement and telemetry 

systems further reduces the amount of daily 

vehicle traffic. 

Section III- Management of Lands and Resources Page III-184 

Examples of environmental BMPs which 

are currently required for nearly all oil 

and gas development are: 

 Interim reclamation of well locations 

and access roads soon after the well 

is put into production; 

 Painting all new facilities with a color 

that blends with the background, 

typically a vegetated background; 

 Design and construction of all new 

roads to a safe and appropriate 

standard, “no higher than necessary” 

to accommodate their intended use; and 

 Final reclamation recontouring of all disturbed areas, including access roads, to the 

original contour or a contour that blends with the surrounding topography. 

 By reducing the area of disturbance, adjusting the location of facilities, and using numerous 

other techniques to minimize environmental effects, BLM is significantly reducing impacts 

associated with new energy development to wildlife habitat, scenic quality, water quality, 

recreation opportunities, and other resources. BLM has posted extensive information on 

BMPs to its public website at www.blm.gov/bmp/ . 

• Section 390 Categorical Exclusions (CX) - Where appropriate, BLM is also using the CX 

authorities provided by Section 390 of the EPAct of 2005. For example, this authority allows 

BLM to use a CX when an individual disturbance is less than five acres and the total surface 

disturbance on the lease is not greater than 150 acres and a site-specific analysis in a 

document prepared pursuant to NEPA has been previously completed. In 2006 and 2007, 

BLM was able to use the Section 390 CXs authority for 24 percent of the APDs approved. 
Bureau of Land Management 2009 Budget Justifications 

Oil and Gas Inspection and Enforcement – When an operator begins work on an approved 

APD, it is BLM’s responsibility to ensure that all conditions of the approval and lease stipulations 

are followed. This is accomplished through the inspection and enforcement portion of the Oil 

and Gas Management program. 

The inspection and enforcement program includes production verification of Federal and Indian 

leases to ensure that proper volumes are reported. The production verification portion of the 

inspection and enforcement program continues to be one of the most critical components of the 

Oil and Gas Management program because of the potential for lost revenue. Mishandling of 

production from Federal and Indian leases can result in under- or over-payment of royalties. 

BLM staff also performs environmental inspections to ensure that operators are complying with 

the lease stipulations and the surface and environmental conditions of approval attached to 

drilling permits. Enforcement actions include the issuance of notices of non-compliance and, if 

violations are not corrected, levying of fines. 

As many as 22 wells can be drilled directionally 

on a single well pad by this ultra-modern 

drilling rig, instead of creating separate well 

pads, roads and pipelines. 

Section III- Management of Lands and Resources Page III-185 
Bureau of Land Management 2009 Budget Justifications 

The feasibility of directional drilling depends on 

the subsurface geology and the well depth. 

Directional drilling costs are typically greater 

than vertical drilling but the ability to utilize a 

single well pad for multiple wells, as opposed to 

building a separate well pad for each well, often 

offsets the additional drilling costs and reduces 

impacts.power lines for each. 

Currently, the BLM has identified over 77,000 inspection items which include production, drilling, 

plugging, work-over, and environmental compliance inspection items. Not all inspection items 

are required to be inspected yearly. For the production-related items, the Federal Oil and Gas 

Royalty Management Act of 1982 (FOGRMA) outlines which producing leases are to be 

inspected annually. All other Federal leases are required to be inspected at least once every 

three years. 

Reservoir Management – This important component of the Oil and Gas Management Program 

includes the review and approval of operator agreements such as communitization, unitization, 

and underground gas storage agreements, as well as development contracts and well spacing 

orders. These agreements result in more efficient resource recovery while minimizing 

environmental impacts. 

The other major area of reservoir management program is drainage. Drainage is the migration 

of oil or gas, or associated resources, across lease lines, which results in a loss of Federal 

resources without compensation to the government. The BLM is also responsible for reviewing 

over 850 Federal and Indian drainage cases annually. When drainage occurs from Federal 

lands, BLM seeks to establish royalty compensation for the resources being drained or requires 

a well be drilled on the Federal lease being drained. 

Oil Shale – The United States holds significant oil shale resources underlying a total area of 

16,000 square miles. The Energy Policy Act of 2005 requires that BLM facilitate the 

development of oil shale and tar sands resources by issuing oil shale research, development, 

and demonstration (RD&D) leases and putting in place the framework for an oil shale 

commercial leasing program. 

The BLM has prepared a programmatic environmental impact statement (PEIS) for oil shale and 

tar sands resources on the public lands. The PEIS evaluates the issues associated with land 

use allocations of oil shale and tar sands resources, including foreseeable commercial 

development activities on BLM-administered lands located in Colorado, Utah, and Wyoming. A 

website for the PEIS has been established at www.ostseis.anl.gov . 

Geothermal Resources Management – The Geothermal Resources program manages the 

exploration, development, and oversight of geothermal resources on Federal lands. The BLM is 

Section III- Management of Lands and Resources Page III-186 
Bureau of Land Management 2009 Budget Justifications 

responsible for leasing Federal geothermal resources, and then issuing permits and licenses for 

post-lease development for both electrical and direct-use heat applications, while ensuring 

compliance with lease terms and NEPA and the protection of other resources. 

An increased emphasis on renewable energy is expected to result in an increased demand for 

the development of geothermal resources from federally managed lands to meet renewable 

energy portfolio standards. 

For example, the Governor of California signed into law the requirement for the three publicly 

owned utilities in California to have 20 percent of their energy mix from renewable sources by 

2017. This, as well as incentives, such as the renewable energy production tax credit and 

royalty reductions for the establishment of new geothermal energy production and qualified 

expansions of production has resulted in an intense renewed interest in leasing federal lands for 

geothermal energy. 

• The Energy Policy Act amended the Geothermal Steam Act of 1970 and resulted in a 

major revision in the rules that govern geothermal leasing. This will result in 

increased demands for leasing and associated operational workload, such as 

geothermal drilling permit applications and applications to convert to a new royalty 

rate payment structure and lease terms for existing geothermal leases. 

• Section 225 of the EPAct resulted in a MOU with the US Forest Service to facilitate 

interagency coordination and establish policies and procedures for the geothermal 

resources program. 

• The BLM and USFS have initiated a Programmatic Geothermal Leasing 

Environmental Impact Statement (PGEIS) to amend land use planning documents 

for geothermal leasing. The PGEIS has an anticipated completion date in December 

2008. The completion of this document is anticipated to result in a significant 

demand for new geothermal resources leasing. 

The BLM presently manages 480 geothermal leases, with 58 leases in producing status. These 

leases generated over 260 megawatt-hours of electrical power during FY2007 and provide 

alternative heat sources for direct-use commercial endeavors. Geothermal generates over $12 

million in federal royalties each year. Competitive lease sale in 2007 netted over $28 million in 

bonus bids for lease parcels in Idaho, Utah, Nevada, and California. 

Legacy Well Management - The BLM has a major program of well remediation in Alaska. The 

National Petroleum Reserve – Alaska, is an area of over 23 million acres in the northernmost 

part of Alaska. Through early exploration programs, the U.S. Navy (1944 – 1953) and the USGS 

(1975 – 1982) drilled 136 wells and core holes, termed, "legacy wells", ranging from 100 feet to 

20,335 feet. Many of these wells were left unplugged or only partially plugged. 

The East Teshekpuk Test Well #1 (a BLM legacy well site) is on a peninsula on the eastern 

bank of Teshekpuk Lake, approximately 103 miles southwest of Barrow and about 20 miles 

southeast of Camp Lonely DEW Line station near Pitt Point. The U.S. Geological Survey 

(USGS) drilled the 10,664-foot well in 1976 and later temporarily plugged it. The well bore 

contains a column of diesel fuel from a depth of 2,400 feet to the surface (approximately 15,000 

Section III- Management of Lands and Resources Page III-187 
Bureau of Land Management 2009 Budget Justifications 

gallons). Because of significant natural resources and local Alaska Native interests, the East 

Teshekpuk Lake well site and reserve pit is the number one priority legacy well clean-up project 

for BLM-Alaska. A contract for remediation of the reserve pit and plugging and abandonment of 

the well was awarded in 2007. 

Mobilization of the project site started February 1, 2008. Field activities are scheduled to be 

completed by April 8, 2008; demobilization should be completed by April 25. 

East Teshekpuk Lake

The site has been subject to active erosion from wave action on Teshekpuk Lake. The reserve 

and flare pits have been breached, and a small amount of metallic debris and materials are 

exposed and currently eroding into the lake. The compromised reserve pit threatens to release 

petroleum-contaminated drilling mud into the lake. 

Approximately 800 cubic yards (in-place volume) of drilling mud will be excavated and removed 

from the reserve pit and transported to the North Kalikpik storage site to prevent the release of 

petroleum contaminated drilling mud. Approximately 15,000 gallons of diesel fuel will be 

removed from the well 

bore, and the well properly 

plugged and abandoned. 

The solid waste and 

metallic debris will be 

removed from the site and 

properly disposed of. 

The BLM has assessed the 

condition of the 136 legacy 

wells. 41 wells may pose a 

potential risk to the 

environment. Since 2002, 

11 of these 41 wells have 

been plugged by the BLM. 

The assessment of the 

legacy wells is the subject 

of the Legacy Well 

Summary Report. 

The Energy Policy Act of 2005

In response to Congress's direction in Section 365 of the Energy Policy Act of 2005, the final 

rule published by BLM did not implement cost recovery fees for APDs, Geothermal Permits to 

Drill (GPDs), geophysical and geothermal exploration permits. The Administration’s proposal to 

use additional cost recoveries beginning in 2009 to fund oil and gas workload that is currently 

funded with mineral revenues provided under Section 365 of the Act is discussed elsewhere in 

this section and others, including the Service Charges, Deposits and Forfeitures section. 

Section III- Management of Lands and Resources Page III-188 
Bureau of Land Management 2009 Budget Justifications 

Highlights of BLM’s Implementation of Energy Policy Act of 2005 - Section 365 Permit 

Processing Improvement: 

• A Pilot Project Workshop was held in Denver, Colorado on November 15, 2006. 

Representation at the workshop included personnel from the seven Pilot Offices 

(Miles City, Montana; Buffalo and Rawlins, Wyoming; Vernal, Utah; Glenwood 

Springs, Colorado; and Farmington and Carlsbad, New Mexico), the USDA Forest 

Service, the U.S. Fish and Wildlife Service, the Environmental Protection Agency, 

the U.S. Army Corps of Engineers, the Bureau of Reclamation and State agencies. 

Approximately 150 attended the three day workshop. 

• The purpose of the workshop was to 1) share successes and lessons learned between 

the Pilot Offices, and between the Federal and State partners, 2) develop linkages 

and contacts between Pilot Office staffs so that a strong informal flow of information 

is established, 3) to promote active interagency dialogue and process improvement, 

and 4) identify issues and seek solutions to shared problems. 

• The workshop also contained two public listening sessions to provide an opportunity for 

members of the public to express their views and concerns about the Pilot Project. 

• The BLM will conduct another Pilot Office Project Workshop, in conjunction with the 

National Fluid Minerals Conference, in May of 2008. The purpose is to share 

lessons learned and efficiencies gained regarding consultation and coordination with 

other Federal and State agencies. 

• Pilot Offices processed 11percent more APDs in FY 2007 than were received. 

• Pilot Offices reduced the end-of-year pending APDs by 8% from FY 2006. 

• Pilot Offices processed 7 percent more Rights of Way than in FY 2006.

• Pilot Offices completed 20 percent more inspections than in FY 2006. 

Section III- Management of Lands and Resources Page III-189 
Bureau of Land Management 2009 Budget Justifications 

BLM’s seven Pilot Offices have developed several innovations, for example: 

• An Interdisciplinary Team (IDT) provides NEPA requirements input for new oil and gas 

projects. The IDT is composed of BLM personnel and other personnel from participating 

agencies, which may include the USFWS, USACE, state (e.g., SHPOs, Game and Fish 

Departments, DEQs, Oil and Gas Commissions), and County representatives, project 

proponent and proponent’s third party NEPA contractor preparing the NEPA document. 

IDTs provide an early opportunity for other stakeholders (e.g., other federal and state 

agencies and the local counties) who have an interest in ongoing activities on BLMmanaged lands to provide input into BLM’s NEPA process. 

• The Vernal Pilot Office has implemented a change in its NEPA process for higher priority 

NEPA documents. The NEPA coordinator determines and schedules which projects will 

be reviewed at the weekly NEPA meeting. Those projects are made available for review 

at least 1 to 2 weeks before the meeting. Having the project proponent and/or its third 

party NEPA contractor attend the meeting enables the proponent to commit to new 

applicant measures, or potentially change their proposed actions, based on issues or 

concerns affecting resource values that the IDT staff raises. In Vernal, the formal 

USFWS consultation response time has improved considerably as a result of their IDT 

involvement. 

• In late 2005, the Farmington Pilot Office implemented a new inspection strategy to address 

deficiencies between conducting annual high-priority inspections and rarely occurring lowpriority inspections. This new inspection strategy balances FOGRMA high and low priority 

inspections, ensuring that all 20,000 wells are inspected within a three year period while 

maintaining oversight on high-volume production. These efforts ensure that BLM 

inspections are performed on low-volume wells, especially in urban interface areas where 

environmental, health and safety concerns may exist for the public. The strategy has also 

established a working partnership with NMOCD to share common inspection goals and 

eliminate duplication of effort. The number of overall inspections has substantially increased 

since this strategy was implemented, totaling more than 3,000 inspections in 2006, which 

included nearly 6,000 wells. Environmental inspections dramatically rose as a result of not 

only increased staff but also a greater awareness of the environmental issues associated 

with oil and gas development in the San Juan Basin. The number of incidents of noncompliance (INCs) also increased, which can be attributed to inspections of lower priority 

wells that had not been inspected regularly in the past. 

2009 PROGRAM PERFORMANCE 

The 2009 Budget continues the implementation of provisions of the Energy Policy Act, using a 

combination of cost recoveries and appropriated funds. 

Leasing - In order to comply with Section 363 of the Energy Policy Act of 2005, the Secretary of 

the Interior (BLM) and the Secretary of Agriculture (FS) entered into a Memorandum of 

Understanding which will improve interagency coordination in oil and gas leasing and permitting 

procedures, and will result in the establishment of joint data systems, on BLM-managed public 

lands and National Forest lands. 

Section III- Management of Lands and Resources Page III-190 
Bureau of Land Management 2009 Budget Justifications 

Applications for Permit to Drill – BLM expects the demand for APDs to continue to be high; 

however, in 2008, 9,000 APDs are expected to be received, which is 3,500 fewer new APDs 

than estimated in the 2008 President’s Budget. The estimated number of new APDs received 

has been reduced to better reflect the demand for APDs the BLM is presently experiencing. 

 2006 

Actual 

2007 

Actual 

2008 

Planned 

2009 

Estimate 

Total Pending APDs at start of year 4,337 5,975 5,381 5,126

New APDs Received 10,492 8,370 9,000 9,100

APDs Approved 7,745 7,561 TBD TBD

Total APDs Processed 8,854 8,964 9,255 9,500

Total Pending APDs at end of year 5,975 5,381 5,126 4,726

Notes: 1. The numbers represented in this table are the total of both Pilot and Non-Pilot Field Offices. 

 2. BLM estimates the number of applications to be processed, which include a final decision. 

 However, BLM does not estimate the number of approvals. 

The processing of APDs remains a top priority 

for BLM and the shift to full cost recovery for 

APDs should allow a better match of funding 

with where the demand for permits is located. 

With the savings from implementing APD fees, 

BLM will focus funds that would have been 

spent on APD processing on handling the large 

increase in sundry notices, which support 

active oil and gas operations, and on other 

program priorities such as Alaska legacy well 

remediation. 

Section III- Management of Lands and Resources Page III-191 

Additional Sundry Notices - 

BLM plans to redirect additional funds within 

the request from use authorizations toward 

keeping up with the significant increase in 

sundry notices. As the number of APDs 

received has increased so has the number of 

sundry notices. These sundry notices usually 

cover maintenance required to be performed 

on producing wells and are therefore a high 

priority in processing. 

In 2007 the number of sundry notices 

processed increased by 14,340 over the previous year. The average cost per sundry notice in 

2007 was $359.75. This resulted in an additional $5,158,000 being spent on processing sundry 

notices in FY 2007. In 2009 the demand for sundry notices is expected to remain high. The 

deferring of processing sundry notices could result in a decrease in production from presently 

producing wells. 

New Sundry Notices 

0

10,000

20,000

30,000

40,000

50,000

60,000

70,000

80,000

1996 1998 2000 2002 2004 2006 2008

BLM plans to use base funding within the request 

to process significantly more sundry notices in 

2009. 
Bureau of Land Management 2009 Budget Justifications 

Inspection and Enforcement, Production Verification and Resource Monitoring – In 2009, 

the I&E program objectives are to maintain a professional, fully-trained, and certified contingent 

of Petroleum Engineering Technicians (PETs) and increase the number of Production 

Accountability Technicians (PATs) by 15 in order to ensure the proper accounting of production 

from Federal and Tribal lands and to protect the environment and health and safety where oil 

and gas production is occurring. In 2009, BLM will redirect $0.4 million within its Oil and Gas 

program from the current Oil Shale program funding level to add the annual capability to 

perform an additional 400 inspections to verify production and ensure environmental 

requirements are met. 

The BLM faces challenges in retaining trained inspectors in several Field Offices. In some 

cases, as soon as an inspector is trained, the oil and gas industry offers them a job at an 

increased salary. The BLM is actively working on ways to retain inspection staff so as to meet 

the goals set in earlier budgets. With the present staff and inspectors that are currently being 

trained, the BLM expects to complete 23,530 production, drilling, operational and environmental 

inspections and 920 production accountability reviews for a total of 24,450 inspections in 2009. 

Our inspection capability has continued to increase in recent years due to the increase in 

available staff, including natural resource specialists or surface compliance specialists. With the 

increase of these environmental specialists, the BLM has been able to perform additional 

environmental inspections which has provided for increased inspection numbers. 

In 2009 the BLM plans on hiring 15 additional PATs to increase the number of production 

accountability reviews. As with the PETs new PATs will require training before they become 

proficient, so full performance will not be seen for one to two years. 

In 2009, base funds will be used to assess the effectiveness of stipulations which are intended 

to address impacts to threatened, endangered and sensitive species in the areas where energy 

development is occurring, and to develop water monitoring and wildlife monitoring data and 

plans. As new wells are drilled, the BLM will be monitoring these operations to determine the 

effectiveness of lease stipulations and APD conditions of approval.

The table below outlines the number of inspections planned to be completed in 2009, compared 

with prior years. 

Section III- Management of Lands and Resources Page III-192 
Bureau of Land Management 2009 Budget Justifications 

Inspections Completed and Planned

FY 2006 FY 2007 FY2008 

Planned 

FY 2009 

Estimated 

Production Inspections (PI) 

 1. FOGRMA 558 512 627 627

 2. Other 5,704 5,873 5,897 6,053

PI Total 6,262 6,385 6,524 6,680

Other Inspections 

 1. Drilling Inspections 2,809 2,894 2,837 2,850

 2. Abandonment Inspections 832 940 1,123 1,120

 3.Workover inspections 255 327 403 500

 4. Environmental Inspections 8,574 11,773 11,863 12,380

 5. Record Verification 

Inspections 

1,110 887 890 920

 6. Undesirable Event 

Inspections** 

130 231

 7. Alleged Theft** 2 1

 Other Total 13,712 17,053 17,116 17,770

Total Inspections 19,974 23,438 23,640* 24,450***

* An additional 1,050 inspections are planned in 2009 as a result of the increased capacity from the 2008 

appropriation. 

** These inspections are on an as-needed basis. 

*** An additional 865 inspections are planned in 2010 as a result of the increased capacity from the 2008 enacted 

appropriation and from the $400,000 redirected within base in 2009. 

Oil Shale - BLM plans to spend $4.4 million within the Oil and Gas program on Oil Shale 

activities in 2008 in order to finalize the programmatic EIS, and manage the ongoing RD&D 

leases. The estimated date of issuance of the Final Programmatic EIS and ROD is December 

2008. Completion of the Oil Shale regulations will follow. 

In 2009, BLM plans to spend $2.0 million, included in the request, towards finalizing regulations, 

to continue management of the RD&D leases, to prepare resource studies which support sitespecific environmental analyses and to implement the consultations with State and local 

governments that are required under Section 369 of the Energy Policy Act of 2005. 

 

Use of Cost and Performance Information In the Oil and Gas Management Program 

BLM used information from its cost management system to determine how many additional inspections 

could be performed with the redirected funds. BLM will use $2.0 million within the 2008 enacted level to 

improve production accountability, monitoring inspections and enforcement. At an average cost of $1,620 

per inspection, BLM calculates that additional funds will add the capability to perform 1,234 additional 

inspections annually. In the first year, only 400 additional inspections would be performed because it 

takes new inspectors at least one year to become certified. 

Section III- Management of Lands and Resources Page III-193 
Bureau of Land Management 2009 Budget Justifications 

Geothermal Resources Management – In 2009, BLM expects to process 50 geothermal 

drilling permits, administer 58 producing geothermal leases, and conduct 300 geothermal 

energy inspections. 

Energy Policy and Conservation Act Studies - Section 604 of the 2000 EPCA reauthorization 

requires the Secretary of the Interior, in consultation with the Secretaries of Agriculture and 

Energy, to conduct an inventory of all onshore lands to identify the resource estimates on those 

lands and any constraints to the development of these resources. Section 364 of the Energy 

Policy Act of 2005 amends EPCA Sec. 604 by requiring the analysis of specific additional 

restrictions and impediments. 

Access to Federal lands is probably the most frequently cited issue affecting onshore domestic 

oil and gas exploration and production. The restrictions and impediments that constrain access 

to Federal lands are frequently a complex patchwork of requirements that can preclude drilling 

or increase costs and delay activity. They include areas unavailable for leasing, and areas 

where the minerals can be leased but the surface of the land may not be occupied, thereby 

affecting the cost of recovering of those resources. There are also limitations on drilling 

activities due to a variety of environmental considerations, typically manifested as lease 

stipulations and drilling permit conditions of approval (COAs). 

• Phase I of the inventory was released in January 2003 and covered five major basins 

within the Interior West: the San Juan/Paradox, Uinta-Piceance, Greater Green River, and 

Powder River Basins, and the Montana Thrust Belt. Phase I inventoried 59.4 million acres 

of Federal land overlying 3.9 billion barrels of oil and 138 trillion cubic feet of natural gas. 

• Phase II was released in November 2006. This release covered eleven basins and 

included the impact of drilling permit conditions of approval as required by the Energy Policy 

Act of 2005 (EPAct) and added reserves growth data to the analyzed resource base. The 

report included Northern Alaska (including AWNR), the Wyoming Thrust Belt, Florida 

Peninsula, and the Denver, Black Warrior and Appalachian Basins in addition to the five 

original basins covered by Phase I. Phase II inventoried 99.2 million acres of Federal land 

overlying 21.2 billion barrels of oil and 187 trillion cubic feet of natural gas. The Phase II 

release presented a summary of accessibility for the eleven basins containing 99.2 million 

Federal acres in the review: 

Section III- Management of Lands and Resources Page III-194 
Bureau of Land Management 2009 Budget Justifications 

Access 

Category* 

Federal 

Land 

(Million 

Acres) 

Percent 

of 

Federal 

Land 

Oil 

(Billion 

Barrels) 

Percent of 

Oil

Resources 

Natural 

Gas 

(Trillion 

Cubic 

Feet ) 

Percent of 

Natural Gas 

Resources 

Inaccessible 45.5 46% 10.8 51% 50.1 27% 

Accessible with 

Restrictions 30.0 30% 9.7 46% 111.5 60% 

Accessible 

under Standard 

Lease Terms 

23.8 24% 0.7 3% 25.2 13% 

Total (Phase II) 99.2 100% 21.2 100% 186.9 100% 

* “Inaccessible” refers to lands on which oil and gas leasing is prohibited; “accessible with restrictions” refers to 

lands on which oil and gas leasing is permitted, albeit with some seasonal and surface use restrictions; and 

“accessible under standard lease terms” refers to lands that are open to oil and gas leasing but still subject to 

environmental laws. 

• The findings of the EPCA inventory have been quoted or incorporated in a number of 

publications, the most recent being “North American Security of Natural Gas Supply in a 

Global Market” produced by the James A. Baker Institute for Public Policy of Rice University 

in 2007.

• Ιn 2005, the EPCA inventory was redesigned to meet the original requirement of EPCA 

2000 to inventory the entire onshore United States. By shifting detailed examinations to 

higher priority areas and using extrapolation to estimate the lower priority areas, the project, 

initiated in FY 2002, will meet the original intent of EPCA 2000 within six years rather than 

twelve. The resulting Phase III report is expected to be released in early 2008. 

• During 2008, BLM will use base funding to continue regular periodic updates to the 

inventory using any newly available USGS resource estimates and surface availability data 

and to make these updates publicly available, as required by the authorizing legislation. 

Alaska Legacy Wells – In 2009, BLM will use the requested increase, together with base 

funding to complete the remediation of the Atigaru well site, the highest priority for remediation 

according to BLM’s 2005 assessment of legacy wells. The total cost of the Atigaru project is 

estimated at $17.1 million, if completed in one field season. The 2009 budget request assumes 

that $300,000 in 2008 funds will be obligated to initiate the Atigaru project. The remaining $16.8 

million in costs will be covered in 2009 with the requested program increase of $11.2 million and 

$5.6 million in legacy well base funding. BLM would remove the reserve pit contents, which 

poses the most immediate threat to the marine environment, and transport them to an approved 

disposal site. BLM 

recognizes the costly nature of these remediation projects and takes advantage of any available 

equipment or ice roads in the area wherever possible to reduce cost. The most immediate 

threat is posed by the pit contents. 

Section III- Management of Lands and Resources Page III-195 
Bureau of Land Management 2009 Budget Justifications 

BLM plans to complete the remediation of 

East Teshekpuk well and reserve pit. and 

transport the contents to a permanent 

disposal facility using the 2008 base 

funding. 

Section III- Management of Lands and Resources Page III-196 

Royalty Credits under EPAct Section 

349 - Section 349 of the Energy Policy 

Act of 2005 required the Secretary of the 

Interior to carry out a pilot program under 

which new oil and gas leases may 

contain a provision which requires the 

lessee to properly abandon any orphaned 

wells on the leased lands. In such cases, 

the lessee would receive a federal royalty 

credit for the plugging and site 

reclamation costs. In 2007, the BLM 

developed a Pilot Program, in California, 

New Mexico and Wyoming, which will 

offer oil and gas lessees a royalty credit 

for the amount they spend on orphaned 

well remediation work directed by the 

BLM. The California, New Mexico and 

Wyoming pilot will run for two years, after 

which the BLM will determine if there is a 

need to expand the program to other 

states. 

BLM uses contractors during winter months to plug 

legacy wells in Alaska. In this 2005 photo, crews 

removed thousands of gallons of diesel fuel from the 

J.W. Dalton well bore. The removal was necessary in 

order to prevent a spill which threatened marine habitat 

in the Beaufort Sea.

In 2008 the BLM, in coordination with the Mineral Management Service, will establish a similar 

pilot program for plugging and reclamation for Federal orphan wells in Alaska. The royalty 

credit may apply to the Federal share of royalties for leases on public domain lands onshore or 

for leases on the Outer Continental Shelf offshore (as defined by Section 8 (g)(2) of the Outer 

Continental Shelf Lands Act, 43 U.S.C. 1337 (g)(2). 

Indian Lands - The BLM Oil and Gas Management program is responsible for trust 

responsibilities to Indian Tribes and Indian mineral owners. In fulfilling this obligation, the BLM 

supervises operational activities on 3,700 Indian oil and gas leases, and provides advice on 

leasing and operational matters to the Bureau of Indian Affairs, Indian Tribes, and individual 

Indian mineral owners. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-197 

Changes in 2007 and 2008 Expected Performance Levels

APDs - In 2007, BLM received 8,370 APDs. This was less than the 11,500 that BLM estimated 

we would receive. This decline in APDs submitted was likely due to several factors, including 

natural gas prices and lack of pipeline capacity to deliver the natural gas to market, capital 

expenditure delays and availability constraints for drilling and service equipment. Because of 

the lower-than-anticipated demand, the BLM processed more APDs than it received in 2007 and 

the number of pending APDs was reduced. BLM expects to process 9,255 APDs in 2008 and to 

complete 23,640 inspections. 

Sundry Notices – BLM processed higher numbers of sundry notices in 2007 than planned. 

Funds that were planned to be used in processing APDs were instead used to process 14,000 

more notices for active operations than 2006. BLM expects this trend to continue in 2008 and 

2009. 

Alaska North Slope Energy – The $12.4 million added to BLM’s 2007 budget for Alaska North 

Slope Energy was reduced by $6.4 million in the 2008 final Congressional action. BLM will use 

the $6.0 million remaining to support the North Slope Science Initiative at $1.0 million and 

complete the remediation of the East Teshekpuk legacy well site at $5.0 million. 
Bureau of Land Management 2009 B

OIL AND GAS MANAGEMENT PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 President's Budget 

Change 

from 

2008 

Plan to 

2009 

Percent of fluid mineral leases with approved applications for permits to drill. [SP] 

48% 

21,889/ 

45,836 

52% 

23,511/ 

45,479 

47% 

22,859/ 

48,423 

47% 

23,393/ 

49,731 

44% 

21,612/ 

49,152 

44% 

21,762/ 

49,731 

44% 

22,172/ 

50,361 

0% 

Total Actual/Projected Cost ($000) $12,259 13,289 15,250 0 16,666 15,410 18,373 +$2,963 Actual/Projected Cost per lease 

( in dollars) $560 $565 $667 $0 $737 $708 $829 +$121 

* Support Measure - No cost will be shown. This is a new measure in 2007. Historical data has been added to p

The numerator will change as non producing leases begin production. The lease is counted one time regardless 

APD's are approved for the lease. Comments: 

Average acreage disturbed per permitted energy exploration or development activity. (SP) 

2.3 acres 

8,824/ 

3,770 

2.3 acres 

10,882/ 

4,682 

2.3 acres 

13,442/ 

5,798 

2.1 acres 

2.1 acres 

10,059/ 

4,685 

2.1 acres 

10,059/ 

4,685 

2.1 acres 

10,059/ 

4,685 

0% 

Comments: * Support Measure - No cost will be shown. The average full cost of processing applications for (fluid energy) Permit to Drill Applications (APDs). (Bur/PART) 

$3,355 $3,494 $3,712 $4,085 

$5,091 

$45,631,397/ 

8,964 

$4,626 

$42,817,697/ 

9,255 

$4,618 

43,872,205/ 

9,500 

0% 

After three years of change to meet the requirements of the Energy Policy Act, which included the creation of pilo

internal reprogramming of funding, the declining cost of processing APD's should begin to level out and may evehigher in out-years as offices and costs stabilize. 

Comments: Percent of fluid minerals permit and lease applications processed. (APDs). (SP/PART) 

105% 

7,351/ 

6,979 

63% 

7,317/ 

11,662 

62% 

8,776/ 

14,131 

95% 

10,555/ 

11,067 

107% 

8,964/ 

8,370 

64% 

9,255/ 

14,381 

67% 

9,500/ 

14,226 

+3% 

Total Actual/Projected Cost ($000) 27,596 36,015 41,771 0 64,394 35,387 43,966 +$8,579 Actual/Projected Cost per APD 

( in dollars) $3,754 $4,922 $4,760 $0 $7,184 $3,824 $4,628 +$804 

Comments: 

Trend shows that the increase in industry demand in 2005 and 2006 was larger than anticipated. It also shows tincrease the number of applications processed by 20% (+1,779) in 2007, to help meet industry demand. Denom2007 Plan, and 2008 Plan, did not include pending APDs. Including pending APDs, the correct percentage for 262% (10,555/16,844). For 2008, the correct percentage would be 69% (11,984/ 17,356). 

Section III- Management of Lands and Resources 
Bureau of Land Management 2009 B

OIL AND GAS MANAGEMENT PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 President's Budget 

Change 

from 

2008 

Plan to 

2009 

Develop a commercial oil shale leasing program by FY 2008. [SP] 

new 

measure 

new 

measure 

new 

measure 

Establish 

Baseline 

35% 

35/ 100 

80% 

80/ 100 

100% 

100/ 100 +20% 

* Support Measure - No cost will be shown. The Energy Policy Act of 2005 (P.L. 108-58) mandated that the BLM "commercial oil shale leasing program" in place by 2008. There are five steps to completing this process and eaassigned a percentage. The draft EIS for 35% was completed in 2007. The final EIS and ROD for 15% will be c2008. Previous work on the draft regulations counts as 30%, and the final regulations will make up the last 20% 

completed in 2009. 

Comments: Percent of oil and gas leases issued (Bur) 

new 

measure 

new 

measure 

new 

measure 

90% 

3,996/ 

4,440 

90% 

3610/ 4,023 

90% 

3,610/ 

4,023 

90% 

3,687/ 

4,093 

0% 

 * Support Measure - No cost will be shown. Comments: 

Percent of geophysical permits processed. (Bur) 

new 

measure 

new 

measure 

new 

measure 

95% 

76/ 80 

96% 

54/ 56 

96% 

54/ 56 

95% 

63/ 66 -1% 

Total Actual/Projected Cost ($000) $0 $0 $0 $0 $509 $469 $583 +$114 Actual/Projected Cost per permit 

(in dollars) $0 $0 $0 $0 $9 $9 $9 0% 

Percent of oil and gas Reservoir Management Agreements processed. (Bur) 

new 

measure 

new 

measure 

new 

measure 

90% 

1,960/ 

2,180 

91% 

1,907/ 2,087 

91% 

1,907/ 

2,087 

90% 

1,913/ 

2,124 

-1% 

Total Actual/Projected Cost ($000) $0 $0 $0 $0 $4,460 $4,194 $5,203 +$1,009 Actual/Projected Cost per agreement ( in dollars) $0 $0 $0 $0 $2,339 $2,199 $2,720 +$521 Percent of oil and gas Drainage cases completed. (Bur) 

new 

measure 

new 

measure 

new 

measure 

86% 

877/ 

1,020 

89% 

872/ 976 

89% 

868/ 1,007 

87% 

868/ 1,007 -2% 

Total Actual/Projected Cost ($000) $0 $0 $0 $0 $1,389 $1,499 $1,866 +$367 Actual/Projected Cost per case 

(in dollars) $0 $0 $0 $0 $1,593 $1,727 $2,150 +$423 

Section III- Management of Lands and Resources 
Bureau of Land Management 2009 B

OIL AND GAS MANAGEMENT PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 President's Budget 

Change 

from 

2008 

Plan to 

2009 

Fluid Minerals: Number of acres reclaimed to appropriate final land condition. (SP ) 

new 

measure 

new 

measure 

new 

measure 

Establish 

Baseline 

 25% 

2,473/ 

10,059 

25% 

2,473/ 

10,059 

25% 

2,567/ 

10,234 

0% 

Comments: * Support Measure - No cost will be shown. Number of pending cases of permits that are in backlog status for fluid energy minerals (APDs) (Bur/PART) 

2,214 2,461 2,310 2,310 1,932 1,872 1,778 -5% 

BLM continues to process an increased number of APD's each year to keep pace with industry demand and redIf industry demand remains relatively steady, BLM anticipates being able to reduce the backlog -12% by 2012. Comments: 

Improve customer satisfaction rating with energy resources permitting process. (Bur/PART) 

48% 

48/ 100 

No 

Survey 

Measured 

Biannually 

52% 

52/ 100 

No Survey 

Measured 

Biannually 

No Survey 

Measured 

Biannually 

54% 

54/ 100 

54% 

54/ 100 0% 

Comments: This measure is biannual. Beginning in 2008, results will be shown for 2 years to provide trend data. Percent of required fluid mineral inspections and enforcement reviews completed. (SP/PART) 

108% 

18,950/ 

17,546 

97% 

17,884/ 

18,437 

84.4% 

19,405/ 

22,979 

69% 

20,343/ 

29,353 

81% 

23,798/ 

29,353 

88% 

23,640/ 

26,873 

86% 

24,450/ 

28,483 

-2% 

Total Actual/Projected Cost ($000) $24,192 $26,190 $34,491 $0 $32,195 $28,032 $34,537 +$6,505 Actual/Projected Cost per inspection (in dollars) $1,277 $1,464 $1,777 $0 $1,374 $1,186 $1,413 +$227 

The number of required inspections is subject to changes in economic conditions, business decisions of operato

factors that determine the number of new wells and the continuing operation of existing wells and associated fac

the percentage increases to 88% but the actual inspections completed will decline. It takes one full year to certifinspectors, and BLM has experienced a higher rate of turnover in new inspectors than planned. The recruitment replacements has delayed certification. A gradual increase to the number of inspections completed is anticipate

in 2009. 

Comments: Percent of fluid minerals safety violations (incidents of noncompliance) corrected by operators with first notice. (SP/PART) 

96% 

8,358/ 

8,706 

96.5% 

8,358/ 

8,706 

95.6% 

2,633/ 

2,754 

96.5% 

8,401/ 

8,706 

96% 

3,693/ 

3,843 

96% 

3,698/ 

3,848 

97% 

3,658/ 

3,784 

+1% 

Comments: 

Section III- Management of Lands and Resources 
Bureau of Land Management 2009 B

OIL AND GAS MANAGEMENT PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 President's Budget 

Change 

from 

2008 

Plan to 

2009 

Develop and Issue Fluid Mineral Leases. (number) 2,783 3,115 3,050 3,296 3,498 3,610 3,687 +71 Process Fluid Minerals Applications for Permit to Drill. (number) 7,736 7,436 7,585 9,016 8,964 9,255 9,500 +245 Process Oil and Gas Reservoir Management Agreements. (number) 2,944 1,962 1,967 1,766 1,960 1,907 1,913 +6 Process Sundry Notices. (number) 35,705 38,576 45,564 46,000 59,904 59,900 59,900 0 Conduct Fluid Mineral Inspection and Enforcement. (number) 18,934 17,255 19,567 19,576 23,438 23,640 24,450 +810 Resolve Fluid Mineral Drainage Cases. (number) 1,143 1,038 879 922 851 872 868 -4 

Section III- Management of Lands and Resources 
au of Land Management 2009 B

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Bureau of Land Management 2009 Budget Justifications 

Activity: APD Fees 

Subactivity: Oil & Gas APD Processing Fund 

Activity Summary ($000) 

 2009 

 Fixed Costs & Program Change 

 2007 2008 

Related 

Changes Changes Budget 

from 

2008 

Subactivity Enacted Enacted (+/ -) (+/ -) Request (+/-) 

O&G APD Processing 

Fund $ 0 25,500 0 -25,500 0 -25,500

 FTE 0 222 0 -222 0 -222

 Offsetting Fees $ 0 -25,500 0 +25,500 0 +25,500

 FTE 0 0 0 0 0 0

 Total Dollars $ 0 0 0 0 0 0

 FTE 0 222 0 -222 0 -222

Subactivity: Oil & Gas APD Processing Fund 

 2009 

 Fixed Costs & Program Change 

 2007 2008 

Related 

Changes Changes Budget 

from 

2008 

 Enacted Enacted (+/ -) (+/ -) Request (+/-) 

O&G APD Processing Fund ($000) 0 25,500 0 -25,500 0 -25,500

O&G APD Fee Collections ($000) 0 -25,500 0 +25,500 0 +25,500

 

FTE 0 222 0 -222 0 -222

 

Summary of 2009 Program Changes for O&G APD Processing Fund 

Request Component ($000) FTE

Program Changes: 

• Termination of Program - Fee Authority expires at the end of 2008 -25,500 -222

• Elimination of Offsetting Fees - Fee Authority expires at the end of 2008 +25,500 0

TOTAL, Program Changes 0 -222

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Bureau of Land Management 2009 Budget Justifications 

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Bureau of Land Management 2009 Budget Justifications 

Activity: Energy and Minerals Management 

Subactivity: Coal Management 

Activity: Energy and Minerals 

Subactivity: Coal Management 

 2009 

 Fixed Costs & Program Change 

 2007 2008 

Related 

Changes Changes Budget 

from 

2008 

 Enacted Enacted (+/ -) (+/ -) Request (+/-) 

Coal ($000) 9,251 9,372 +161 -55 9,478 +106

 

FTE 74 73 0 0 73 0

 

Summary of 2009 Program Changes for Coal Management 

Request Component ($000) FTE

Program Changes: 

• Organizational & Administrative Streamlining -27 

• Travel & Relocation Expenses -26 

• Nat'l Monument & Nat'l Conservation Area funding (new subactivity created) -2 

TOTAL, Program Changes -55 0

The 2009 budget request for the Coal Management Program is $9,478,000 and 73 FTE, a net 

program decrease of $55,000 and 0 FTE from the 2008 Enacted level. 

JUSTIFICATION OF PROGRAM CHANGES

Nat’l Monument & Nat’l Conservation Area funding (-$2,000) - The BLM is proposing a new 

subactivity in 2009 to fund base operations at National Monuments and National Conservation 

Areas. As a result, BLM proposes to shift $2,000 from the Coal Management subactivity to the 

new NLCS subactivity. 

PROGRAM OVERVIEW

The BLM’s Coal Management Program supports the Department’s Resource Use Goal by 

issuing authorizations which allow lessees to extract coal from Federal lands. Federal coal 

provides approximately 42 percent of the nation’s coal production. Since fiscal year 2000, 

approximately 3.5 billion tons of Federal coal have been produced with a gross value of $31.8 

billion. Royalty and lease payments totaled $3.4 billion. At the end of 2007, BLM administered 

298 Federal coal leases covering 467,000 acres of Federal mineral ownership. 

Since fiscal year 2000, BLM has held 39 successful coal lease sales generating $2.3 billion in 

accepted bonus bids for 3.4 billion tons of mineable coal sold on approximately 75,000 federal 

acres.

Section III- Management of Lands and Resources Page III-205
Bureau of Land Management 2009 Budget Justifications 

Coal is used to generate approximately 50 

percent of the nation’s electricity2

. The electric 

power sector (electric utilities and independent 

power producers) accounts for about 92 

percent of all coal consumed in the U.S. and 

are the driving force for the nation’s coal 

consumption3

. Coal from federal lands 

accounts for about 23 percent of all electricity 

produced in the U.S. Coal is used in the 

nation’s industrial sector to generate heat and 

power plants, while in the manufacturing 

sectors it is used to produce foods, primary 

metals, chemicals, papers, beverages, and 

fabricated metals. Coal is also used directly to 

heat residential structures and commercial 

facilities. 

Critical Factors – One very important factor 

that will and has affected the Coal Management 

Program is the continued availability of qualified 

Coal Management Specialists. Over 40% of 

BLM’s Engineers, Geologists, and Land Law 

Adjudicators will be eligible for retirement by 

2010. The best way to prepare new employees to successfully accomplish coal workloads is to 

have them trained for approximately 1 year before retiring employees leave. 

Photo of Caballo Mine Courtesy Peabody Energy 

The second factor that affects BLM’s ability to complete workloads in the Coal Management 

Program is the reliance on other agencies to consent or concur with BLM authorizations such as 

leases, licenses, lease modifications, resource recovery and protection plans, and logical mining 

units. BLM continues to work with state and federal agencies to delineate timelines and 

responsibilities in Memoranda of Understanding or Interagency Agreements to guide all agency 

personnel involved in similar workloads or procedures. Also, BLM has requested assistance 

from other agencies budgeting staff to ensure funding is available for their staff to complete 

workloads. 

In addition to reviews by cooperating agencies, coal leasing requires the consent of surface 

owners prior to holding a lease sale. BLM encourages these surface owners to participate in 

the land use planning process. The lease applicant is encouraged to acquire surface owner 

consent prior to submitting the lease application. 

The BLM continues to work with the U.S. Department of Agriculture’s Forest Service and the 

U.S. Office of Surface Mining Reclamation and Enforcement (OSM) to streamline multiple 

agency processes to minimize the time necessary to provide access to coal. The BLM and the 

U.S. Department of Labor are developing a Memorandum of Understanding delineating roles 

and responsibilities and action plans necessary to provide underground employees a safer 

workplace to develop Federal coal. 

 

2 Source: Energy Information Administration, Form EIA-906, "Power Plant Report."

3 Source: Energy Information Administration, U.S. Coal Supply and Demand 2006 Review

Section III- Management of Lands and Resources Page III-206
Bureau of Land Management 2009 Budget Justifications 

Post Leasing Rent, Production, and Coal Production Revenues 

Fiscal 

Year 

No. 

Leases Acres Lease Rent Estimated 

Production 

Tons 

Production 

Sales Value 

Production 

Royalty 

2000 311 461,883 $1,386,582 392,928,106 $2,978,102,249 $315,166,348

2001 317 473,303 $1,420,860 388,607,065 $3,067,474,614 $334,993,036

2002 312 468,744 $1,407,168 473,766,828 $3,874,505,112 $434,365,319

2003 308 465,686 $1,397,982 422,326,865 $3,673,528,331 $407,692,878

2004 301 456,578 $1,370,637 511,330,872 $3,916,962,643 $417,578,467

2005 295 453,442 $1,361,211 466,949,161 $4,426,536,110 $457,494,476

2006 293 466,652 $1,400,835 429,370,207 $4,648,597,905 $508,130,979

2007 298 466,943 $1,401,723 439,985,972 $5,167,947,075 

The number of leases and acres provided in the table above are averages while the other items 

have been added together. Federal coal lease rent is estimated based upon the number of acres 

under lease multiplied by $3.00. 

$561,549,252

Average 

or Sum 304 464,154 $11,146,998 3,525,265,076 $31,753,654,039 $3,436,970,755

Summary of Coal Sales

Fiscal Year No. Lease Tracts Sales Acres Sales Tons Sales Bonus Bids 

2000 3 10,473 329,097,000 $110,277,968

2001 3 6,994 90,600,000 $15,833,200

2002 4 8,436 566,391,000 $391,413,272

2003 2 920 7,930,000 $6,565,800

2004 8 16,857 1,060,482,000 $893,901,596

2005 9 18,006 1,042,105,000 $814,207,234

2006 5 7,942 113,317,335 $3,526,650

2007 5 5,641 227,900,000 $39,021,420

Total 39 75,269 3,437,822,335 $2,274,747,140

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, by the Subcommittee on Royalty Management shall be adopted to 

ensure the protection of trust responsibilities fulfilled by BLM, Minerals Management Service, 

and the Bureau of Indian Affairs. 

Means and Strategies – BLM is instituting the use of one NEPA document to process multiple 

use authorizations (i.e. lease applications, exploration licenses, right of ways etc.) in certain 

watersheds. This strategy and the addition of personnel needed in Wyoming has made 

possible the early completion of ten pending Lease By Applications (LBAs). Completing the ten 

LBAs earlier could allow for accelerated production from an estimated 3.4 billion tons of in-place 

coal and along with earlier collection of an estimated $2.8 billion in bonus bids. 

Another strategy is the use of technology to generate maps and analyses of coal to be mined 

and to facilitate mining plan development and evaluation, production verification, and 

reclamation plans for Federal coal. BLM engineers and geologists now revise data which 

Section III- Management of Lands and Resources Page III-207
Bureau of Land Management 2009 Budget Justifications 

serves as a basis for multiple analyses of resources, eliminating the need for recreating maps 

from the beginning for multiple resources. 

To provide information on a national level BLM adjudicators, geologists, and engineers utilize 

the relational database software to provide instant facts associated with coal authorizations. The 

maintenance of this system provides access to permanent records of coal use authorizations 

necessary to manage the Coal Program prior to and after the paper copy version of the data is 

filed away in the national archives. 

Other Funding Sources - The BLM retains the service charges it collects from coal lease 

document processing. These fees include case-by-case processing fees for some coal actions. 

In 2005, BLM increased service charges for transactions such as transfers of interest and 

amendments to previously recorded documents (See Rules and Regulations published in the 

Federal Register Volume 70, No. 194 page 58854 on Friday October 7, 2005). 

Competitive coal lease applications, lease modification applications, logical mining unit or 

modification applications, and royalty rate reduction applications are charged a processing fee 

on a case-by case basis. License to mine, exploration licenses, and lease or lease interest 

transfer fees were increased. 

In the second year of the new cost recovery fees, Fiscal Year 2007, BLM has reported total cost 

recoveries in the coal program $119,000. 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.

Strategic Plan –. The program’s success is measured by several key Resource Use outcomes 

including the number of pending lease applications processed and the percent of required 

inspections completed.

2009 PROGRAM PERFORMANCE

In 2009, the Coal Management Program will issue and process coal leases and gather data to 

be used in processing coal leases beyond 2008. The program will continue to improve BLM’s 

customer services, reduce future liabilities created by unauthorized uses, and provide technical 

support to Tribes and Indian mineral owners. 

Coal Leasing - Federal coal leasing relies on the Lease By Application (LBA) process. Many of 

the applications are located where industry has invested capital in adjacent coal reserve 

development. Industry applies for leases and exploration licenses as a result of projected 

market price, supply, national and international demands for coal. 

BLM has instituted new LBA processing procedures which should speed up lease processing in 

the Powder River Basin area where nearly 88 percent of Federal coal is produced. 

In 2008, BLM plans to complete environmental analyses for four LBA tracts, hold eight sales, 

and issue four coal leases should sales be successful. 

Post-Lease Actions - The BLM’s coal operations workload involves mandatory administrative 

actions for existing leases. BLM’s post-leasing administrative duties encompass additional 

exploration and all development activities that occur on Federal and tribal lands after the 

issuance of a coal lease. Operations workload includes monitoring for coal conservation 

Section III- Management of Lands and Resources Page III-208
Bureau of Land Management 2009 Budget Justifications 

through oversight of diligent development, bonding, and approval of the resource recovery and 

protection plan for federally owned coal. Other operational workloads, typically initiated by the 

lessee, include lease modifications, royalty rate reductions, formation of logical mining units, 

transfers by assignment sublease or otherwise, relinquishments, and readjustments. Timely 

completion of post-lease actions is critical to assure compliance with the established 

requirements and goals of diligent development, continued operation, maximum economic 

recovery, and conservation of the coal resource. 

In 2007, BLM completed 348, or 103 percent, of the post-lease actions planned including lease 

modifications, lease readjustments, and bond reviews. Many post-lease actions are industry 

driven, and industry activity has increased recently. 

Inspection, Enforcement, and Production Verification – To ensure effective recovery of coal, 

the BLM reviews the established requirements then performs inspection and enforcement on 

both inactive and producing coal use authorizations (i.e., leases, licenses, logical mining units, 

etc). On-the-ground inspections are required to ensure compliance with established 

requirements and to detect unauthorized actions such as noncompliance with the resource 

recovery, protection and drilling plans, trespasses, or deviations from reported production. 

Normally, inspections are conducted on tribal and Federal coal leases annually for nonproducing leases and quarterly, or as needed, for producing leases. Specific information 

collected during site inspections is used to independently verify coal production per royalty 

reporting period. Emphasis continues to be placed on inspection and enforcement activities on 

tribal and Federal producing leases and independent calculation of production and production 

verification. 

The Coal Management program supports the Resource Use mission goal from the 

Department’s Strategic Plan by managing coal resources to enhance public benefit, promote 

responsible use, and ensure maximum economic recovery. Key intermediate outcome 

measures include increasing the number of coal resource applications processed, processing 

post-lease administrative actions as needed, and completion of required compliance and 

production inspections. (See the Coal Management performance overview at the end of this 

program’s discussion). 

In 2007, due to mine design changes and increased industry interest in mining Federal coal, 

BLM completed 2,636 inspections, or three percent more inspections than planned, in support 

of the production of 440 million tons of Federal coal. 

Technical Assistance on Indian Lands - In 2007, BLM completed all required post-leasing 

actions and 41 inspection, enforcement and production verification actions, representing 200 

percent and 128 percent, respectively, of the actions anticipated on trust coal leases in Arizona, 

New Mexico, and Montana. The recent addition of a Mining Engineer for processing coal 

actions in Arizona has been very helpful. 

The Bureau of Indian Affairs issues coal leases or coal contracts on Indian coal. However, the 

BLM is responsible for providing technical expertise to Indian mineral owners in developing and 

managing the production of their coal resources. The BLM reviews mine plans, and provides 

inspection, enforcement, and production verification on Indian leases. BLM also provides 

oversight to contracts under the Indian Self-Determination Act. 

Section III- Management of Lands and Resources Page III-209
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-210

The BLM is working closely with other Departmental agencies on all levels evaluating business 

processes and procedures focused on efficient and effective stewardship and management of 

tribal resources.
Bureau of Land Management 2009 Budget Ju

COAL MANAGEMENT PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 President's Budget 

Cha

fro

20

Plan 

20

Number of onshore federal acres under lease for coal development. [SP] 456,578 453,442 466,652 464,500 466,943 467,234 464,450 -1% Total Actual/Projected Cost ($000) $3,089 3,290 3,607 0 3,977 4,139 4,185 +$Actual/Projected Cost per acre ( in dollars) $7 $7 $8 $0 $9 $9 $9 $Comments: 

This is a new measure in 2007. Historical data has been added to provide context. Major leasing e2004 and 2005 but relinquishments offset the gains. No significant change is projected for the coal through 2012. A process is being developed in Wyoming to approve multiple leases at the same timprocess will be implemented in 2012. 

Percent of coal lease applications processed. (SP/PART) 

13% 

5/ 38 

31% 

12/ 39 

20% 

9/ 44 

26% 

10/ 39 

14% 

5/ 35 

25% 

9/ 36 

25% 

9/ 36 0% 

Comments: 

* Support Measure - No cost will be shown. The percentage of coal lease applications processed 

low because of the multi-year processing aspects. A process is being developed in Wyoming to apleases at the same time. This new process will be implemented in 2012. 

Percent of required coal inspection and enforcement reviews completed. (SP/PART) 

99% 

3,524/ 

3,560 

111% 

2,305/ 

2,074 

109% 

2,253/ 

2,074 

95% 

2423/ 

2552 

103% 

2,636/ 

2,552 

103% 

2,636/ 

2,552 

103% 

2,636/ 

2,552 

0% 

Total Actual/Projected Cost ($000) $3,189 $1,976 $2,084 $0 $2,110 $2,303 $2,329 +$Actual/Projected Cost per inspection ( in dollars) $905 $857 $925 $0 $801 $874 $884 +$Comments: Number of coal pre and post leasing actions approved for energy minerals. (Bur) 362 384 356 360 348 335 360 +7Total Actual/Projected Cost ($000) 2,331 2,086 1,859,051 0 2,392 2,404 2,431 +$Actual/Projected Cost per inspection ( in dollars) $6,439 $5,431 $5,222 $0 $6,874 $7,176 $6,753 -$4Comments: 

Section III- Management of Lands and Resources Pa
au of Land Management 2009 Budget Ju

Section III- Management of Lands and Resources Pa

COAL MANAGEMENT PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 President's Budget 

Cha

fro

20

Plan 

20

Number of pending coal lease applications (LBAs) that are in backlog or inventory status. (Bur/PART) 

45 LBAs 35 LBAs 33 LBAs 33 LBAs 30 LBAs 35 LBAs 35 LBAs +0

Comments: * Support Measure - No cost will be shown. Industry demand is anticipated to increase backlog by Improve customer satisfaction rating with energy resources permitting process. (Bur/PART) 

48% 

48/ 100 

No 

Survey 

Measured 

Biannually 

52% 

52/ 100 

No Survey 

Measured 

Biannually 

No 

Survey 

Measured 

Biannually 

54% 

54/ 100 

54% 

54/ 100 0% 

Comments: * Support Measure - No cost will be shown. This measure is biannual. Beginning in 2008, the resu

for 2 years to provide trend data. 

Process Coal Leases. 48 56 44 57 33 35 36 +Process Coal Post Lease Actions. 362 384 356 325 342 360 360 0 Inspect and Verify Production at Coal Sites 2,130 2,357 2,253 2,504 2,636 2,570 2,570 0 Cost Recovery - Competitive Coal Lease n/a n/a 3 0 0 2 6 +4 Cost Recovery - Coal Lease Modification n/a n/a 0 8 3 3 3 0 Cost Recovery Coal – LMU Formation or Modification n/a n/a 0 8 3 3 3 0 Cost Recovery Coal – Royalty Rate Reduction n/a n/a 0 2 3 2 2 0 

Bure
Bureau of Land Management 2009 Budget Justifications 

Activity: Energy and Minerals Management 

Subactivity: Other Minerals Management 

Activity: Energy and Minerals 

Subactivity: Other Mineral Resources Management 

 2009 

 Fixed Costs & Program Change 

 2007 2008 

Related 

Changes Changes Budget 

from 

2008 

 Enacted Enacted (+/ -) (+/ -) Request (+/-) 

Other Mineral Resources ($000) 10,157 10,301 +165 -114 10,352 +51

 

FTE 82 81 0 -1 80 -1

 

Summary of 2009 Program Changes for Other Mineral Resources Management 

Request Component ($000) FTE

Program Changes: 

• Organizational & Administrative Streamlining -31

• Travel & Relocation Expenses -28

• Nat'l Monument & Nat’l Conservation Area funding (new subactivity created) -55 -1

TOTAL, Program Changes -114 -1

The 2009 budget request for the Other Minerals Management Program is $10,352,000 

and 80 FTE, a net program decrease of $114,000 and 1 FTE from the 2008 Enacted 

level. 

JUSTIFICATION OF 2009 PROGRAM CHANGES

Nat’l Monument & Nat’l Conservation Area funding (-$55,000) - The BLM is 

proposing a new subactivity in 2009 to fund base operations at National Monuments and 

National Conservation Areas, and expects to shift $55,000 from the Other Minerals 

Management subactivity to the new NLCS subactivity. 

PROGRAM OVERVIEW

Summary: The Other Minerals Management subactivity is composed of two programs – 

Non-energy Solid Leasable Minerals and Mineral Materials. Federal lands are the 

source of important mineral resources for the Nation, including potassium, phosphorus, 

sodium, potash, lead, zinc, and sand, gravel, and stone. These minerals are vital 

components of basic industry and life in the United States. Non-energy minerals are 

used for fertilizers, feed additives, road de-icers, tires, batteries, rust inhibitors, glass and 

papermaking, oil well drilling, water treatment, soaps, detergents, baked goods, 

medicines, and many chemicals. Aggregates are essential for construction of roads, 

foundations and buildings. The BLM processes leases and permits for non-energy solid 

leasable minerals, such as phosphate and potash, and processes sales and permits for 

mineral materials such as common clay, stone, sand and gravel. 

Section III- Management of Lands and Resources Page III-213
Bureau of Land Management 2009 Budget Justifications 

Revenues have increased in recent years along with gross sales values. 

During 2005, nonenergy 

solid leasable minerals 

produced from Federal 

lands had a market value 

of $856 million and 

generated $31.2 million in 

revenues to the 

Government. In 2006, 

market value increased to 

$953 million and revenues 

increased to $39.7 million. 

In 2007, market value 

increased further to $1,382 

million and revenue 

increased to $44.5 million. 

Federal 

Leases

Federal 

Prospecting 

PermitsExploration 

Licenses

Federal 

Preference 

Right Lease 

Applications 

Non-energy 

Commodity

Phosphate 100 4 2

Potash 138 3 0

Sodium (inc. Trona) 84 0 5

Hardrock leases 60 17 2

The numbers of mineral 

leases, lease applications, 

prospecting permits, and 

exploration licenses on 

public lands for solid nonenergy minerals are shown 

in Table 1. 

Other Minerals 19 3 27

Total 401 27 36

Table 1. BLM’s Other Minerals Management Federal Leases and 

Prospecting Permits (as of September 30, 2007) 

Future value of mineral materials issued under sales contracts and free use permits 

almost doubled during this period, increasing from $49.8 million in 2005, to $52.9 million 

in 2006, to $92.8 million in 2007. Revenue from mineral material production in those 

years was $18.2 million (2005), $19.3 million (2006) and $18.4 million (2007). 

Outcome measures focus on key work performed by the BLM, including authorizations 

and associated inspections for other mineral resources (salable mineral materials and 

non-energy solid leasable minerals) produced from BLM-managed or influenced lands. 

This program also funds technical assistance to the Indian Tribes and allottees for preleasing support, permitting, inspections and production accountability on Indian leases. 

Goals: The goal of the Other Minerals Management subactivity is to provide the 

minerals needed to support local infrastructure and other economic development needs. 

Demand is increasing worldwide for some products, such as fertilizers generated from 

non-energy minerals, which are used in producing food and alternative energy sources 

like biofuels, and gilsonite, which is used in drilling fluids for energy exploration. 

Section III- Management of Lands and Resources Page III-214
Bureau of Land Management 2009 Budget Justifications 

This program supports other BLM priorities 

such as recreation and the implementation of 

the President’s National Energy Policy. The 

program processes sales and permits for 

mineral materials, such as sand, gravel, stone, 

and clays. These common materials are 

essential to 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. 

Local supplies of mineral materials are needed 

for building the access required to develop energy minerals and for constructing the 

facilities for transporting coal, oil, gas, and electricity to the market. Mineral materials 

are used for drill pads and the access roads and foundations for oil and gas, oil shale, 

tar sands, coal, geothermal, and wind farm developments. These materials are needed 

for construction of houses, buildings, and basic infrastructure such as highway and 

energy transportation systems, pipelines, powerlines, ports, railroads, airports, and 

bridges.

Figure 1 Solar brine evaporation pond for 

production of salt at Intrepid Wendover 

operation, Utah 

The Bureau sells these materials at fair market value on a contract basis for private and 

commercial uses. As urban development increases and private sources become limited 

and restricted by zoning, the public and private sectors in the West increasingly look to 

BLM lands for these resources. There are often no other viable substitutes for federal 

mineral materials. 

Sand, gravel and other mineral materials are provided to State and local governments 

and nonprofit organizations at no cost. Government agencies continue to demand 

increasing amounts of materials while developing and maintaining the infrastructure for 

communities. 

Authorization and Leasing – Under the non-energy program on public lands, the BLM 

issues authorizations (permits, leases, and licenses) for exploration for and extraction of 

mineral resources, such as phosphate, potash, sodium, lead/zinc, gilsonite and other 

solid minerals other than coal. The BLM is responsible for classifying the land as 

prospectively valuable or as containing known value for these minerals. The Bureau 

also determines fair market value in support of leasing these other minerals on public 

lands, National Forest lands, and other lands for which the Federal government owns all 

or a portion of the mineral estate. This program includes ensuring compliance with 

environmental requirements and ensuring that the terms of leases or authorizations 

minimize future liabilities to the government. Examples of post-lease actions are the 

review and approval of mining or exploration plans, lease assignments, royalty rate 

reductions, lease renewals, lease modifications, lease readjustments, permit extensions, 

bonding modifications, lease terminations and relinquishments and review and approval 

of mining reclamation plans and licenses. 

Technical Support of Indian Minerals – The BLM provides technical assistance to 

Tribes and Indian mineral owners for solid non-energy mineral resource activities, in 

Section III- Management of Lands and Resources Page III-215
Bureau of Land Management 2009 Budget Justifications 

support of the Secretary’s trust responsibilities. This responsibility includes overseeing 

all solid mineral operations on leases issued by BIA on tribal and allotted lands, and 

assisting as requested with those taking on a greater role in self-governance under 

Section 638 compacts. Solid mineral trust operations include sand and gravel when 

Tribes authorize removal through a lease. When requested by the Tribes, the BLM’s 

responsibility includes approval of plans of operations, as well as inspection, production 

verification, and enforcement activities. The Bureau also pursues opportunities for 

contracting the minerals workload with interested Tribes. 

The BLM is active in the Indian Energy and Minerals Steering Committee (IEMSC) which 

is composed of members from five Departmental bureaus that manage Indian mineral 

leases, and members from the Office of the Secretary. The BLM provides support to a 

number of IEMSC initiatives each year, such as “listening forums” where tribal leaders 

express their concerns. 

Inspection and Enforcement and Production Verification - Inspection and 

enforcement actions, including verification of production, are conducted at least quarterly 

on non-energy leases to ensure that all revenues from Federal and tribal solid mineral 

non-energy leases are accurately reported, that operations are following approved 

mining and reclamation plans, and that the correct royalty rate is being applied. Annual 

on-the-ground inspections of non-producing mineral leases, licenses, contracts, and 

permits are also conducted. 

Mineral material permits and contracts are inspected in proportion to the quantity 

authorized to verify production, confirm adequacy of payments, and evaluate compliance 

with environmental mitigation and other requirements. When routine inspections or 

other information indicates an unauthorized removal of mineral materials or other 

compliance issue, the BLM investigates the alleged situation and takes action to resolve 

these cases. 

In various western counties, population expansion and use for energy development has 

greatly increased the demand for mineral materials. In some instances, existing mineral 

material sources in readily available locations are rapidly being depleted, and the BLM is 

closing material sites when they are exhausted. The increased demand for urban 

development and energy exploration has resulted in an increase in mineral material 

trespasses and enforcement actions on public lands, including reserved minerals. 

The BLM participated with the Royalty Policy Committee to prepare an analysis and 

report in 2008 on Mineral Revenue Collection from Federal and Indian Lands and the 

Outer Continental Shelf. Based on this report, BLM will update policy and guidance on 

production accountability in 2009 to strengthen royalty management and ensure that 

mineral companies are complying with existing statutes, lease terms, and regulations as 

they pertain to payment of royalties. 

Section III- Management of Lands and Resources Page III-216
Bureau of Land Management 2009 Budget Justifications 

Shifts in Allocations to Meet Changing Demand for Other Minerals Program Management 

Through Washington Office coordination with State Offices and use 

of the LR2000 computer system, BLM is able to identify needs and 

shift resources to meet unexpected changes in demand. In FY2007, 

Alaska had increased workloads in providing assistance with Native 

allotment operations and with needs by government agencies for 

mineral materials. By reallocating additional funding to Alaska, 

BLM was able to double the total number of permits processed, 

process free use applications for 10 million cubic yards of materials 

for expansion of the Port of Anchorage (photo), provide the 

requested assistance with processing trust work, and increase 

inspections and production verifications by 30 percent. 

 

2009 PROGRAM PERFORMANCE

In 2009, BLM will continue to emphasize cost recoverable permits and leases. The 

revenue from new case-by-case cost recovery fees, which went into effect on November 

7, 2005, will allow the BLM to respond to growing demand for minerals by providing 

funds to perform additional mineral material sales which would not have been possible to 

complete with appropriated funds. 

 

The BLM will maintain the high emphasis on preventing, discovering and resolving 

trespass at unauthorized sites, and will continue to conduct mineral material inspections 

and production verification to ensure compliance at authorized sites. 

Reorganizing Alaska offices has improved efficiency in processing requests for mineral 

materials for energy-related projects and has better integrated the Joint Pipeline Office 

into the BLM’s state structure. This should facilitate processing requests for mineral 

materials which would be needed for the proposed natural gas pipeline. Increased 

requests for assistance to Alaska native allottees for gravel developments in 2007 will 

continue into 2009. 

The BLM expects to meet or exceed most of the 2008 targets published in the 2008 

Budget Justifications, and will adjust others based on changes in demand. In 2008, BLM 

plans to complete work on 28 mineral leases, 289 non-energy post-lease actions, 4,496 

mineral material disposals, 1,355 solid mineral inspections, and 2,954 mineral material 

site inspections on public lands, process 43 trespass actions, and provide assistance to 

Tribes on 17 pre-lease actions. This work is primarily in response to increased demand 

by the public for minerals, roads and other infrastructure in high growth areas of the 

West and in areas with energy development. 

In 2008, BLM will put special emphasis on support for conventional and alternative 

energy development, energy conservation, serving needs of rapidly expanding 

communities, and identifying and resolving trespass cases in Arizona, California, 

Nevada and Utah. In Alaska, assistance will continue with infrastructure projects and 

new requests from allottees. Effort will be made to maintain the high levels of program 

service in Colorado and Idaho. In Idaho, California, New Mexico, Utah, and Wyoming, 

funds will be used to continue to provide mineral materials for infrastructure for 

Section III- Management of Lands and Resources Page III-217
Bureau of Land Management 2009 Budget Justifications 

conventional and alternative energy projects, and to maintain mineral leasing activities 

that assist with energy production. 

Mineral Materials -The BLM will continue to assist in reducing the cost of government 

services by making mineral materials available through free use permits to Federal 

agencies, State and local governments, and non-profit groups. New free-use 

authorizations remained at a high level in 2007 and are projected to continue through 

2009. BLM issued 220 permits for 24.2 million cubic yards valued at over $32.3 million 

in 2007. Production from free use permits in 2007 had a value of $1.9 million and 

amounted to 2.4 million cubic yards. These materials were primarily used for highway 

construction and maintenance. Limited amounts of mineral material were also provided 

to non-profit organizations. BLM is able to monitor its cost of sales and permits for 

mineral materials through use of its LR2000 and MIS databases. Using analyses such 

as the administrative cost per thousand cubic yards authorized and identification of 

areas of high demand for mineral materials, BLM can make adjustments to be more 

responsive to energy exploration and development and community growth while 

constraining costs. 

Selenium Contamination in Idaho's Phosphate Mining District - The phosphate 

mining industry is very active, with an average of two major EIS’s underway at any one 

time. Phosphate production from the three or four existing mines is projected to remain 

constant for 2009. The workload pertaining to selenium mitigation and remediation, 

production verification, inspection and enforcement, and monitoring continues and is 

expected to increase. Decisions will be made in 2008 on the environmental analysis of 

pending applications prior to final processing of lease modifications and fringe acreage 

leases. 

Other Funding Sources - The BLM published cost recovery regulations which became 

effective on November 7, 2005. The rule requires BLM to recover the cost of processing 

mineral disposal actions such as mineral material competitive sales on a case-by-case 

basis. While royalties, rents, and bonus bids reflect the value of the resource to the 

permittee, Congress authorized BLM to also recover its processing costs associated with 

providing access to the resource. 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 M36987 (December 5, 1996)). 

Although implementing full cost recovery adds to BLM’s capability to complete actions 

such as material sales, it has taken longer to realize the new revenues than originally 

anticipated. The new procedures began to be adopted in 2006 and were increasingly 

used in 2007 but receipts so far have been lower than anticipated. In 2007, BLM 

collected a total of $17,409 for fixed fee cost recoveries related to non-energy leasable 

minerals management and $66,120 in mineral material case-by-case fees. 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.

Costs of material sales for the pipeline system in Alaska are reimbursed under Public 

Law 93-153, Section 101, which made amendments to Section 28 of the Mineral Leasing 

Act of 1920. 

Section III- Management of Lands and Resources Page III-218
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-219

Funds collected from trespass recovery settlements 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. 

2007 Program Performance - Major accomplishments in the Other Mineral Resources 

Management program included the following: 

• The BLM met almost all of its projected goals in the Other Mineral Resources 

Management program. In some categories (leases and post-lease actions), the 

anticipated applications were not submitted. This was also true on Indian lands. With 

mineral materials, the number of sales and permits processed declined again but this 

does not reflect the full extent of the activity. Average quantity per application 

increased again. The total quantity of mineral materials increased from 45.2 million 

cubic yards in 2006 to 74.2 million cubic yards in 2007. This was due to continued 

demand for construction activity and energy operations. 

• The BLM issued 15 mineral leases, completed 195 non-energy post-lease actions, 

completed 4,401 mineral material disposals, resolved 59 mineral materials trespass 

cases, provided assistance to Tribes on 12 pre-lease actions, and conducted 1,516 

solid mineral inspections on public and Indian lands and 3,273 mineral material 

inspections on public lands. The BLM’s leases for non-energy minerals and 

materials disposals are important to energy and transportation projects in the West. 

BLM issued 220 free use permits for over 24.2 million cubic yards of materials valued 

at over $32.3 million. 

• The BLM emphasized mineral materials inspection and enforcement to ensure 

accurate accounting for the mineral materials removed and compliance with 

environmental protection stipulations. This helps to prevent the loss of Federal 

revenues by deterring illegal removals. The number of inspections at authorized 

sites is based on volume produced, with larger operations being inspected more 

frequently. However, trespass at unauthorized sites still caused considerable losses. 

Investigations, enforcement actions and litigation were successful at reducing the 

number of large cases, but the estimated value of unresolved mineral materials 

trespass cases nationally remains near $4 million. 

• In 2007, BLM’s cost per thousand cubic yards of mineral material authorized for 

removal continued to be lower than the historical average because applications 

involved much larger quantities of material per case, primarily in the Las Vegas 

office. The measure was developed based on the average national trend in 

authorizations over the past decade and is sensitive to the total quantity issued 

(greater quantity = lower BLM cost per cubic yard). BLM expects the cost to return 

to the historical average in future years as demand slows, purchasers increase 

production on their existing long-term contracts and permits, and the quantities 

requested in new applications return to historical averages. 
Bureau of Land Management 2009 Budget Justifications 

OTHER MINERALS MANAGEMENT PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 President's Budget Chan

from 2

Plan 

200

Number of onshore federal acres under lease or contract for non-energy mineral exploration and development (leaseable and saleable minerals). [SP] 

new 

measure 

new 

measure 

new 

measure 883,826 520,291 520,291 525,000 0% 

Total Actual/Projected Cost ($000) 0 0 0 0 4,818 5,509 5,536 +$2Actual/Projected Cost per acre ( in dollars) $0 $0 $0 $0 $9 $11 $11 $0 Comments: 

This is a new measure. Data was not collected in 2004-2006 in a way that would allow us to retrieve this measure. Baseline incorrectly included non-lease acres. Targets will be adjusted to reflect this cdefinition. 

Number of acres reclaimed to appropriate land condition and water quality standards. [SP] 1,786 12,131 4,151 4,000 3,750 3,750 3,750 0% Total Actual/Projected Cost ($000) 8,963 9,100 9,445 0 9,373 11,882 11,891 +$9 Actual/Projected Cost per acre (in dollars) $5,018 $750 $2,275 $0 $2,499 $3,168 $3,171 +$3 Comments: In 2006, demand for mineral materials was high and therefore not as many mined sites were closed 

Out-year targets have been adjusted to reflect the shift in demand. 

Percent of pending cases of permits and lease applications that are processed for non-energy minerals. (Bur/PART) 

new 

measure 

new 

measure 

101.7% 

713/ 701 90% 77% 707/ 922 77% 707/ 922 77% 707/ 922 +0% 

Comments: 

* Support Measure - No cost will be shown. The program reported that 101.7% of the new cases reccompleted in 2006, thus eliminating a portion of the backlog of pending cases. Although the program increase the number of applications processed in 2006, industry activity is predicted to increase the applications in 2007 and 2008. 

Percent of non-compliance and trespass actions that are resolved for non-energy minerals. (Bur/PART) 

8% 25% 41% 46/112 26% 46% 39/ 85 46% 39/ 85 46% 39/ 85 0% 

Comments: * Support Measure - No cost will be shown. 2006 was an unusually high year for resolving trespass 

targets are based on a more average year. 

Section III- Management of Lands and Resources 
Bureau of Land Management 2009 Budget Justifications 

OTHER MINERALS MANAGEMENT PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 President's Budget Chan

from 2

Plan 

200

Average 3 year rolling costs of Mineral Materials disposals, inspections and trespass protection divided by the cubic yards disposed. (Bur/PART) $228 $247 $188 $228 $119 $221 $228 +3% Comments: 

* Support Measure - No cost will be shown. This measure is being reported for the first time in 2007. has been added to provide context. Large disposals in a single year will tend to lower the overall cothe 3 year average. 2006 and 2007 included very large disposals. Outyear targets reflect a more av

Number of non-energy pre and post lease actions processed (Bur) 

new 

measure 

new 

measure 

new 

measure 

343 207 207 265 +28% 

Total Actual/Projected Cost ($000) 0 0 0 0 1,314 1,578 1,584 +$6 Actual/Projected Cost per action (in dollars) $0 $0 $0 $0 $6,349 $7,621 $5,977 -1,64Comments: 2006 showed an unusually high increase in demand which is not anticipated to continue in the out yeImprove customer satisfaction rating with the non-energy mineral permitting process. (Bur/PART) 

80% 80% 92% 92% 

No Survey 

Measured 

Biannually 

92% 92% 0% 

Comments: * Support Measure - No cost will be shown. This measure is biannual. Beginning in 2008, results w

years to provide trend data. 

Process Non-Energy Mineral Licenses, Permits or Leases. 26 108 15 18 15 28 28 0 Process Non-Energy Mineral Post Lease Actions. 453 351 235 263 195 289 289 0 Process Mineral Material Disposals. 6,004 5,478 4,790 4,609 4,401 4,496 *4,379 -21 Inspect and Verify Production at Solid Leaseable Mineral Sites-Non Energy. 1,311 1,591 1,344 1,384 1,516 1,355 1,350 -5 Inspect and Verify Mineral Materials Production. 3,238 3,215 3,188 2,989 3,238 2,954 *2,971 -29 * The 2009 column reflects a decrease to performance of 21 mineral material disposals, and 29 mineral material inspections, which will be shifted to the Monuments and National Conservation Areas subactivity. 

Section III- Management of Lands and Resources 
au of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources 

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Bure
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-223

 

 

Activity: Alaska Minerals 

Activity: Alaska Minerals 

Subactivity: Alaska 

Minerals 

 2009 

 Fixed Costs & Program Change 

 2007 2008 

Related 

Changes Changes Budget 

from 

2008 

 Actual Enacted (+/ -) (+/ -) Request (+/-) 

Alaska Minerals ($000) 1,600 0 0 0 0 0

 

FTE 13 0 0 0 0 0

The 2009 budget request for Alaska Minerals is $0 and 0 FTE, no change from the 2008 

enacted level, which eliminated the program. 
Bureau of Land Management 2009 Budget Justifications 

ALASKA MINERALS PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 President's Budget Change from 2008 Plan to 200

Number of Alaska Mineral Site Assessments (Bur) 158 212 83 90 0 0 0 0% Total Actual/Projected Cost 3,755 10,763 2,485 0 2,736 300 0 0% Actual/Projected Unit Cost (in dollars) $24 $51 $30 $0 $0 $0 $0 $0 Comments: This program is not funded beyond 2007. 

Section III- Management of Lands and Resources 
Bureau of Land Management 2009 Budget Justifications 

Activity: Realty and Ownership Management

Activity Summary ($000) 

 2009 

 Fixed Costs & Program Change 

 2007 2008 

Related 

Changes Changes Budget 

from 

2008 

Subactivity Actual Enacted (+/ -) (+/ -) Request (+/-) 

 Alaska Conveyance $ 35,165 36,346 +567 -3,531 33,382 -2,964

 FTE 266 274 0 -9 265 -9

 Cadastral Survey $ 13,757 12,255 +241 -1,435 11,061 -1,194

 FTE 106 95 0 -3 92 -3

 Land and Realty Mgt $ 33,716 33,649 +608 -1,394 32,863 -786

 FTE 292 287 0 -8 279 -8

Total Activity $ 82,638 82,250 1,416 -6,360 77,306 -4,944

 FTE 664 656 0 -20 636 -20

 

 

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 Land and Realty 

Management program authorizes uses of the land for purposes such as for rights-ofway, commercial filming, and communications sites. The Land and Realty Management 

program also implements changes to land ownership to consolidate public lands, by 

exchanging and purchasing lands, and by selling lands no longer needed for Federal 

purposes. The Cadastral Survey program provides cadastral survey services that are an 

important component to managing both Federal and private lands. The Alaska 

Conveyance program transfers BLM lands in Alaska to other ownership pursuant to a 

number of laws. 

Rights-of-Way: The BLM administers approximately 93,000 rights-of-way on the public 

lands; these rights-of-way serve communities and provide significant economic benefits 

to the Nation. A significant number of energy and other companies apply to the BLM 

each year to obtain right-of-way grants to use the public lands for roads, pipelines, 

transmission lines, and communication sites. Energy-related rights-of-way 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 provide for the basic 

infrastructure of a community by meeting the access, power, and communication needs 

of cities, towns, and rural communities. 

Section III- Management of Lands and Resources Page III-225 
Bureau of Land Management 2009 Budget Justifications 

The Lands and Realty Management program issues and amends these right-of-way 

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 

right-of-way locations and uses. 

Rights-of-Way Use Authorizations 

 

Transmission 

Lines 

Oil and 

Gas 

Pipelines

Telephone 

and 

Telegraph 

Lines 

Other 

Rights-ofWay* Total 

Number of 

Authorizations 14,376 28,804 4,829 48,606 96,615

Acres 1,480,068 244,142 55,427 5,893,053 1,779,637

Miles 122,106 40,283 4,573 ** 166,962

* Includes communications sites and non-oil and gas pipelines such as water lines 

** Length not applicable as many of these rights-of-ways are not linear. 

Based on 2007 Data

Cadastral Survey: To assure certainty in land transactions involving the public lands, 

the Cadastral Survey program provides cadastral survey products and services to 

Federal, State, county, and local governments. A cadastral survey, as performed by the 

BLM, is used to accurately identify land boundaries and to maintain the related survey 

records for all public and tribal lands. These cadastral surveys directly support the 

President’s energy policy and the Secretary’s fiduciary responsibilities for carrying out 

Trust responsibilities and for survey of Indian assets. 

Ownership information, financial information, and management of trust accounts are 

related to or are based upon information recorded in a cadastral survey. The BLM is 

responsible for the maintenance of current and historic land title records, including the 

Public Land Survey System, which is the foundation of the land survey and tenure 

system of the United States. Accurate cadastral surveys and land title records and the 

Geographic Coordinate Data Base provide precise information on land ownership, and 

provide crucial information to the BLM for energy leasing and other development on the 

public lands. The BLM is responsible for conducting cadastral surveys on all Federal 

land, including the Indian lands and lands managed by other Department bureaus and 

the Forest Service. The Cadastral Survey program receives funds from these bureaus 

for some of these services. 

Alaska Conveyances: The BLM has statutory responsibility to survey and convey 

lands to the State of Alaska, Alaska Native Corporations, and individual Native Alaskans, 

among other groups and tribes. The BLM carries out this responsibility through the 

Alaska Conveyance program. 

Section III- Management of Lands and Resources Page III-226 
Bureau of Land Management 2009 Budget Justifications 

Activity: Realty and Ownership Management 

Subactivity: Alaska Conveyance

Activity: Realty and Ownership 

Subactivity: Alaska Conveyance 

 2009 

 Fixed Costs & Program Change 

 2007 2008 

Related 

Changes Changes Budget 

from 

2008 

 Actual Enacted (+/ -) (+/ -) Request (+/-) 

Alaska Conveyance ($000) 35,165 36,346 +567 -3,531 33,382 -2,964

 

FTE 266 274 0 -9 265 -9

Other Major Resources: 

 

Major Program IT Investments: 

 

Summary of 2009 Program Changes for Alaska Conveyance 

Request Component $0 FTE

Program Changes: 

• Organizational & Administrative Streamlining -133 -1

• Travel & Relocation expenses -141

• Performance Contracting savings -57

• Nat'l Monument & Nat'l Conservation Area funding (new subactivity created) -70 -1

• General Program Reduction -3,130 -7

TOTAL, Program Changes -3,531 -9

JUSTIFICATION OF 2009 PROGRAM CHANGES

The 2009 budget request for Alaska Conveyance is $33,382,000 and 265 FTE, a net program 

decrease of -$3,531,000 and 9 FTE from the 2008 enacted level. 

National Landscape Conservation System Funding (- $70,000) – The BLM is proposing a 

new subactivity within MLR to fund base operations at National Monuments and National 

Conservation Areas. As a result, $70,000 is being shifted from the Alaska Conveyance 

subactivity to the new subactivity in MLR. The funding shifted from the Alaska Conveyance 

subactivity will continue to be spent on Alaska Conveyance priorities, but will be managed 

through the National Monuments and National Conservation Areas subactivity. Performance 

in the Alaska Conveyance subactivity will decrease due to the funding shift; however, this 

performance will be shifted to the National Monuments and National Conservation Areas 

subactivity and is shown in the performance goals for that subactivity. For more information 

about the new National Monuments and National Conservation Areas subactivity, see Section 

6. 

Section III- Management of Lands and Resources Page III-227 
Bureau of Land Management 2009 Budget Justifications 

General Program Reduction (- $3,130,000, -7 FTE Positions) 

The BLM proposes a decrease for the Alaska Conveyance Program of $3,130,000, to 

fund the program at approximately the 2008 request level. The decrease will be taken in 

contract services. 

The 2009 funding level will allow the BLM to finalize land ownership patterns by 

accepting final land selection priorities, noting those priorities to public land records, and 

transferring title by Interim Conveyance and Tentative Approval to approximately 94% of 

the land owed to Alaska Native Corporations, 96% of the land owed to the State of 

Alaska, and completing final action on 97% of all Native allotment applications by the 

end of 2009. The estimated completion date for land transfer by Interim Conveyance 

and Tentative Approval is 2012. Confirmatory patents, the final actions in land transfer, 

are dependent upon cadastral surveys and are expected to be completed by 2030. 

The Alaska Land Transfer Acceleration Act has since December 2004 helped BLM 

expedite the transfer of lands. The requested funding level will allow the BLM to make 

significant progress in transferring Federal lands in Alaska to Alaska Native Corporations 

and to the State compared to the situation prior to the Acceleration Act. In 2009, the 

BLM will have substantively completed determining land ownership patterns, a major 

goal of the Acceleration Act, which will increase certainty for all stake holders, with final 

patent following in subsequent years. 

Even with the proposed decrease, because the Alaska Conveyance program will be 

working on less complicated surveys in 2009, there will actually be a projected increase 

in the number of survey miles completed in 2009. 

PROGRAM OVERVIEW

Program Components – The Alaska 

Conveyance Program consists 

principally of two divisions – Alaska 

Lands and Cadastral Survey. These 

two divisions work in concert to help 

complete the statutorily mandated 

process of conveying federal land to the 

State of Alaska and Alaska Native 

corporations. The conveyance process 

is outlined below. Additional aspects of 

the program are also described. 

• The conveyance process begins 

with the filing of land selection 

applications by individual Alaska 

Natives, Alaska Native 

Corporations, and the State of 

Alaska. Applications are 

adjudicated for conformance to 

law and regulations. On-the ground cadastral surveys are performed to 

determine boundaries of approved applications. A cadastral survey plat is 

In December 2007, BLM Alaska Lands staff attended a 

meeting of Levelock Natives Limited to sign the final land 

patent owed to that village corporation under the Alaska 

Native Claims Settlement Act. The final patent was made 

possible through an agreement between BLM and the 

corporation authorized by sections 203 and 209 of the Alaska 

Land Transfer Acceleration Act. 

Section III- Management of Lands and Resources Page III-228 
Bureau of Land Management 2009 Budget Justifications 

subsequently produced, approved, and recorded in the Federal land records 

system. The final action is issuance of a land patent to the applicant based on 

the federal survey. 

In addition to completing land transfers, this program also: 

• Administers the townsite trustee program 

• Performs surveys for Village corporation reconveyances required under the 

Alaska Native Claims Settlement Act, which constitutes a significant amount of 

the program’s workload. 

• Makes administrative title navigability determinations to facilitate conveyance of 

federal lands 

• Manages and processes other land actions such as identifying and reserving 

federal easements and granting rights-of-way to 3rd parties on lands planned for 

conveyance 

• Recovers titles to erroneously conveyed land for re-conveyance 

• Supports land records automation and modernization initiatives 

Long Term Vision – The Alaska Conveyance program is a critical component of BLM’s 

Mission Goal of “Serving Communities. The transfer of land mandated by various 

statutes is important for sustaining and improving the quality of life in Alaska’s Native 

communities and to accommodate growth and economic development opportunities in 

the State of Alaska. The program continues to identify and implement streamlining 

measures that accelerate the transfer process. 

• Since its inception, the Alaska Conveyance program has patented 73 million of 

the original 150 million acres. 

• Approximately 77 million acres, including unsurveyed lands previously 

transferred by interim conveyance and tentative approval, await final patent to 

their respective claimants. 

The Alaska Conveyance program has been in operation since the mid-1960s, conveying 

Federal land in accordance with the following significant Federal laws: 

• the Native Allotment Act of 1906 

• the Alaska Statehood Act of 1958 

• the Alaska Native Claims Settlement Act of 1971 (ANCSA)

• the Alaska National Interest Lands Conservation Act of 1980 (ANILCA) 

• the Alaska Land Transfer Acceleration Act of 2004 (ALTAA) 

Critical Factors - The Alaska Conveyance program’s ability to achieve outcomes is 

directly affected by a host of factors, most of which relate to the inherent complexity of 

the conveyance and patenting process, as well as the difficulty involved in sorting 

through such a large number of conflicting land claims. Critical factors include: 

• The conflicts which often arise from competing land claims. 

• The cost and time involved in surveying land in Alaska. Much of the land that 

is being conveyed is located in remote areas that are difficult to reach. 

Section III- Management of Lands and Resources Page III-229 
Bureau of Land Management 2009 Budget Justifications 

• The most effective method for improving communication with Native clients—

face-to-face meeting with Corporate Boards in local communities--requires 

extensive travel to remote areas of the State. 

 

Means and Strategies - The Alaska Conveyance program addresses the priorities of 

the program through: 

• Use of the Fiduciary Trust Model, which is designed to provide cadastral services 

to Tribes, individual Native Americans, and Alaskan Natives. This model locates 

a BLM Cadastral Surveyor in the BIA Regional Office in Alaska, creates and 

implements a Certified Federal Surveyor Program, improves the condition of the 

Public Land Survey System and creates one standardized source of land status 

information based on cadastral data that delineates the official legal land 

descriptions. These components ensure effective stewardship and management 

of trust assets by providing cadastral survey service to Native American lands. 

• 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. 

Other Funding Sources - The BLM has been highly successful in using and leveraging 

limited and finite resources. 

Strategic Plan – The Alaska Conveyance Program supports the department’s strategic 

plan goal of “Serving Communities” by providing individual Natives, Native Corporations 

and the State of Alaska, in a fair and impartial fashion, with the land they need to 

preserve their heritage and quality of life and to enable future growth and development. 

2009 PROGRAM PERFORMANCE

2007 Accomplishments - In 2007, the BLM exceeded many of its primary output 

targets in the Alaska Conveyance program. 

Major accomplishments included: 

• 4,765,000 acres of land patented to the State of Alaska and 1,458,214 acres of 

land patented to Alaska Native Corporations. These totals were above target. 

• 70,238 acres of unsurveyed land transferred to Native corporations by interim 

conveyance; 2,054,174 acres of unsurveyed lands transferred to the State of 

Alaska by tentative approval. 

• Final resolution to 424 allotment parcels including issuance of title to 9 qualified 

Native veteran allotments, twice the number projected for 2007. Many of the 

veteran allotment applicants claimed land that was selected by a Native 

corporation or the State of Alaska. BLM worked very hard to procure voluntary 

relinquishments from these entities so that as many Native veterans as possible 

are able to obtain allotments in their preferred location. 

• Collected cadastral data for 495 townships to be incorporated into the 

Geographic Coordinate Data Base (GCDB). This is 115 more than planned due 

to greater implementation of the latest GIS technologies and less complex land 

Section III- Management of Lands and Resources Page III-230 
Bureau of Land Management 2009 Budget Justifications 

patterns in townships collected. These townships are subsequently posted on 

the internet and are available for downloading by the public on BLM’s website 

allowing all Alaskans the ability to utilize the data in managing lands.

2008 Program Performance - The 2008 budget for Alaska Conveyance is $36.3 million 

and 274 FTE. At the enacted level, BLM will be able to patent at the same rate as 

2007, supported by approved cadastral surveys from prior years. At the end of 2008, 

BLM will have patented 51 percent of the total land (150 million acres) required under 

law to be transferred by patent to the State of Alaska and Alaska Native Corporations. 

The additional one-time funding above the requested amount will allow BLM to issue 

additional survey contracts that will result in more acres being patented in 2011 than 

would otherwise be available. Completion of final patents under ANCSA and the Alaska 

Statehood Act is projected for 2030. 

Although the BLM continues to explore innovative ways to improve communication with 

Native clients in order to increase cooperation and participation, the most effective 

strategy to date--face-to-face meetings with Corporate Boards in local communities--

requires extensive, costly travel to remote areas of the State. The workload measure, 

Process Alaska Native Corp Selections (acres approved and acres processed but not 

approved), was abnormally high in 2007 because of specific actions that involve large 

acreages of land selections rejected by the BLM or relinquished by Native Corporations. 

There will continue to be considerable fluctuations in this workload measure from year to 

year depending on the unique circumstances occurring during the given year. However, 

BLM anticipates that the workload measure accomplishments will decrease to more 

normal levels in 2008 following higher than normal activity in 2007. 

As a result of the Program Assessment Rating Tool process, the Administration found 

that the program’s mission goals are clearly mandated by legislation. No additional 

performance measures were recommended. 

Priorities for the Alaska Conveyance program in 2008 include: 

• Issuing 200 patents for Native allotment parcels. 

• Patenting 3,000,000 acres to the State of Alaska, and patenting 1,500,000 acres of 

land to the Alaska Native Corporations. 

• Processing 3,000,000 acres of State of Alaska selections and processing 4,000,000 

acres of Alaska Native Corporation selections. 

• Processing 500 Native allotment parcel applications. This is 200 fewer than projected 

for completion in 2007 because fewer parcels remain. 

• Completing 600 miles of field survey work. This is 491 fewer than were completed in 

2007 because of the increased complexity in land patterns. 

• Approving 5,000 miles of cadastral surveys; this total includes 100 miles of Indian 

Trust surveys to be funded by the BIA. This is 7,481 fewer miles than were 

approved in 2007 because fewer actual on-the-ground surveys were conducted in 

prior years. 

• Collecting 420 townships of GCDB data. 

Section III- Management of Lands and Resources Page III-231 
Bureau of Land Management 2009 Budget Justifications 

PROGRESS IN CONVEYING 45.8 MILLION ACRES TO 

ALASKA NATIVE CORPORATIONS

PROGRESS IN CONVEYING 104.5 MILLION ACRES 

TO THE STATE OF ALASKA

Lands 

surveyed 

and 

patented to 

the State

48%

Lands 

conveyed 

by tentative 

approval 

but not yet 

surveyed

42%

Lands 

remaining 

to be 

surveyed 

and 

conveyed to 

the State

10%

Lands 

conveyed by 

interim 

conveyance 

but not yet 

surveyed.

34%

Lands 

surveyed 

and patented 

to Native 

Corps.

50%

Lands 

remaining to 

be surveyed 

and 

conveyed.

16%

The BLM has surveyed and patented 50 percent of the 45.8 

million acres that must be conveyed to Alaska Native 

Corporations. The BLM has transferred title to an additional 

34% of the lands by interim conveyance, pending completion of 

surveys. The BLM is required to survey and issue patent to 

lands previously transferred by interim conveyance as well as 

the remaining lands owed to Native Corporations. 

The BLM has surveyed and patented 48 percent of the 

104.5 million acres that must be conveyed to the State. 

An additional 42% of the lands have been transferred by 

tentative approval but are not yet surveyed. The BLM is 

required to survey lands previously transferred by 

tentative approval as well as the remaining lands owed to 

the State. 

2009 Planned Program Performance - The 2009 budget for Alaska Conveyance is 

$33,382,000 and 265 FTE. At the requested level, BLM will not be able to patent at the 

same rate as 2007 to the extent that planned acreage is supported by approved 

cadastral surveys from prior years. A decrease in the number of miles surveyed in 2007 

reduced the number of acres available for patent beginning in 2009 and will delay 

completion of final patents under the ANCSA and the Alaska Statehood Act until 2030. 

In 2009, BLM will also concentrate on transferring legal title to land selections prioritized 

by Native corporations and the State of Alaska in accordance with Secs. 403 and 404 of 

the Alaska Land Transfer Acceleration Act. Conveyance priorities that are not yet 

surveyed will be transferred by interim conveyance or tentative approval. At the end of 

2009, BLM plans to have transferred 94% of lands owed to Native Corporations and 

96% of lands owed to the State of Alaska. Native corporations and the State have all 

the rights and obligations of land ownership when they receive an interim conveyance or 

tentative approval land title document. The ANCSA and the Alaska Statehood Act 

provide for such lands to subsequently be surveyed and for the land title previously 

transferred to be confirmed by issuance of a land patent based on the approved 

cadastral survey. 

Priorities for the Alaska Conveyance program in 2009 include: 

Section III- Management of Lands and Resources Page III-232 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-233 

• Completing final action on 241 Native allotment parcels 

• Patenting 1,500,000 acres to the State of Alaska 

• Patenting 1,500,000 acres to Native corporations 

• Transfer title (by a combination of interim conveyance and patent) in an amount 

that will result in 94% (43 million acres) of the total ANCSA land title owed having 

been transferred into Native ownership 

• Transfer title (by a combination of tentative approval and patent) in an amount 

that will result in 96% (101 million acres) of the total State land titled owed having 

been transferred into State ownership 

• Complete 1,000 cadastral field survey miles 

• Approve 5,000 cadastral survey miles 

• Collect 430 townships Digital Cadastral Data 
Bureau of Land Management 2009 Budg

ALASKA CONVEYANCE AND LANDS PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 President's Budget C

from 

P

2

Alaska Land Conveyances: Percent of land patented to the State and Alaskan Native Corporations as required by statute. (Bur/PART) 

86% 

130,074,490/ 

150,027,451 

44% 

66,857,025/ 

151,113,591 

45% 

68,396,441/ 

150,113,591 

48% 

72,596,441/ 

150,497,040 

50% 

74,611,810/ 

150,497,040 

53% 

79,111,810/ 

150,497,040 

55% 

82,111,810/ 

150,497,040 

Total Actual/Projected Cost ($000) $11,911 $11,157 $13,822 $0 $12,311 $12,162 $11,253 -Actual/Projected Cost per Acre 

(in dollars) $0.09 $7 $9 $0 $2 $3 $4 

Comments: 

The 2004 actuals include land patented and interim conveyance. Beginning in 2005, only land patented is include

is counted in measure 4.1.27. The increase in performance beginning in 2007 is a result of the Alaska Land Trans(ALTAA) which provided tools so that the Alaska Native Allotment Act, the Alaska Statehood Act, and the Alaska NSettlement Act, could be worked in concert in order to facilitate additional transfer of land. 

Percent of land processed under IC, TA, relinquishments and rejections to the State and Alaskan Native Corporations. (Bur) 

new 

measure 

new 

measure 

5% 

3,450,882/ 

71,550,000 

14% 

9,900,000/ 

71,550,000 

23% 

16,359,196/ 

71,550,000 

26% 

18,603,000/ 

71,550,000 

54% 

38,093,760/ 

71,550,000 

+

Comments: Support Measure - No cost will be shown Approve Cadastral Survey (miles). 5,492 7,174 6,328 7,650 12,481 5,000 5,000 Complete Cadastral Field Survey (miles). 6,063 5,199 3,340 1,309 1,091 600 1,000 +Collect Digital Cadastral Data 596 962 510 380 495 420 430 Manage Public Land Records 8,007 8,276 10,445 7,400 13,766 8,000 9,500 +Process Alaska Native Allotment Conveyances (number).* 679 566 351 200 482 200 241 Patent Alaska State Conveyances (acres). 320,036 2,060,995 903,830 3,000,000 4,765,000 3,000,000 1,500,000 -1,5Patent Alaska Native Corporation Conveyances (acres). 900,299 1,466,162 674,956 1,200,000 1,458,214 1,500,000 1,500,000 

Section III- Management of Lands and Resources 
Bureau of Land Management 2009 Budg

ALASKA CONVEYANCE AND LANDS PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 President's Budget C

from 

P

2

Process Alaska Native Allotment Selections (parcels approved, processed but not approved) 

N/A N/A 1,145 700 3,161 500 241 

Convey Alaska State Selections (acres tentative appd,acres rejected, and acres relinquished). 

N/A N/A 1,645,709 1,800,000 2,407,615 1,500,000 5,800,000 +4,3

Process Alaska Native Corp Selections (acres app, pro but not approved). 

N/A N/A 1,804,028 8,100,000 10,500,699 4,000,000 4,200,000 +2

The 2009 column reflects a performance decrease of 25 parcels of Native Allotment Selection, 13,000 acres of Alaska State Selections, and 28,535 acr

Corporation Selections which will be shifted to the new National Monuments and National Conservation Areas Subactivity. 

*If the current workload projections for HM are met by the end of 2012, this important component of the conveyance process should be completed. Alaska Conveyance and Lands is responsible for reporting data to WO350 for the following measures: A) Boundary/Survey: Percent of cadastral survey 

and Indian Trust lands that are funded; B) Boundary/Survey: Percent of Surveys approved within eighteen (18) months of the funding date. These measCadastral Surveys (BLM Subactivity 1420), but could not be shown above because these are not Alaska specific measures. The performance for each 

computed by WO350 after compiling data submitted by all BLM state offices. Measures A and B are required under OMB's PART assessment that took 

In 2007, Approved Cadastral Survey in Alaska include 12,481 miles in subactivity 1410 (Alaska Conveyance and Lands); 109 miles approved for BIA mand 13 miles for USFS. Total Approved Cadastral Survey miles in Alaska equals 12,603. Completed Cadastral Field Survey miles include the number of miles surveyed from the funds in subactivity 1410 plus the number of miles surveyed for subactivity 1910. FY'07 actual accomplishments include 1,091Cadastral Field Survey miles from subactivity 1410 (Alaska Conveyance and Lands), 118 

subactivity 1910 (Cadastral BIA reimbursable), and 50 field survey miles for the U.S. Forest Service in subactivity 9820 (USFS Cadastral Survey). Tota

Field Survey miles equal 1,259. 

Section III- Management of Lands and Resources 
 2009 Budg

Section III- Management of Lands and Resources 

This page intentionally left blank. 

Bureau of Land Management 
Bureau of Land Management 2009 Budget Justifications 

Activity: Realty and Ownership Management 

Subactivity: Cadastral Survey

Activity: Realty and Ownership 

Subactivity: Cadastral Survey 

 2009 

 Fixed Costs & Program Change 

 2007 2008 

Related 

Changes Changes Budget 

from 

2008 

 Actual Enacted (+/ -) (+/ -) Request (+/-) 

Cadastral Survey ($000) 13,757 12,255 +241 -1,435 11,061 -1,194

 

FTE 106 95 0 -3 92 -3

Other Major Resources: 

Trust Fund: Public Survey 525 512 0 0 512 0

Transfer: USFS Cadastral 995 1,000 0 0 1,000 0

Major Program IT Investments: 

 

 

Summary of 2009 Program Changes for Cadastral Survey 

Request Component ($000) FTE

Program Changes: 

• Elimination of 2008 Earmark: UT GIS Mapping -246 

• Elimination of 2008 Earmark: WY Soil Surveys -79 

• Restoration of Program funding to 2008 Request level -984 -3

• Organizational & Administrative Streamlining -33 

• Travel & Relocation Expenses -93 

TOTAL, Program Changes -1,435 -3

JUSTIFICATION OF 2009 PROGRAM CHANGES

The 2009 budget request for the Cadastral Survey program is $11,061,000 and 92 FTE, 

a net program decrease of $1,435,000 and 3 FTE from the 2008 Budget level. 

Elimination of 2008 Earmark: UT GIS Mapping (-$246,000) - The budget eliminates 

funding for this one-time Congressional earmark. 

Elimination of 2008 Earmark: WY Soil Surveys (-$79,000) – The budget eliminates 

funding for this one-time Congressional earmark. 

Restoration of Program Funding to 2008 Request Level (-$984,000) – In 2008, 

Congress provided additional funding in the Cadastral Survey program to be used for 

core functions including NLCS activities. BLM proposes a reduction of this amount in 

order to address higher priorities. The BLM will continue to maintain core functions in 

the Cadastral Survey program by focusing on the highest priority projects and promoting 

efficiencies where possible. 

Section III- Management of Lands and Resources Page III-237 
Bureau of Land Management 2009 Budget Justifications 

Program Performance Change

2005 

Actual 

2006 

Actual 

2007 

Actual 

2008 

Plan 

2009 Base 

Budget 

(2008 Plan+ 

Fixed 

Costs) 

2009 

President’s 

Budget 

Program 

Change 

Accruing 

in 2009 

Program 

Change 

Accruing in 

Out-years 

A B=A+C C D 

Complete 

Cadastral Field 

Surveys (miles) 

5,199 1,179 936 290 284 200 -84 0 

Total Projected 

Cost ($000) $66,100 $9,654 $10,120 $,3,381 $3,311 $2,332 -$980 0 

Projected Cost 

per field mile 

surveyed 

(whole dollars) 

$12,714 $8,188 $11,660 $11,660 $11,660 $11,660 $11,660 $11,660

Comments The number of miles surveyed that receive direct funding from the Cadastral Proigram will be reduced by 

1,182 and an additional 1,108 miles that receive funding support from other sources will be reduced. 

Note: Projected costs may not equal program change as these are full costs, which may include funds from other sources and 

(or) use averages. 

Column B: The level of performance and costs expected in 2009 at the 2008 level plus funded fixed costs. Reflects the impact of

prior year funding changes, management efficiencies, absorption of prior year fixed costs, and trend impacts, but does not reflect 

the proposed program change. 

Column D: Outyear performance beyond 2009 addresses lagging performance — those changes occurring as a result of the 

program change (not total budget) requested in 2009. It does not include the impact of receiving the program change again in a 

subsequent outyear. 

PROGRAM OVERVIEW

BLM is responsible for performing cadastral surveys on all Federal and Indian lands. 

Cadastral surveys are the foundation for all land title records in the United States and 

provide Federal and tribal land managers with important information necessary for the 

management of their lands. 

Program Components 

Cadastral Survey - The Cadastral Survey program provides direct support to BLM’s 

minerals, realty, law enforcement, forestry, recreation, and fire programs. Cadastral 

surveyors assist these and other programs by interpreting and analyzing survey plats, 

locating boundary markers in the field, and performing new cadastral surveys when 

necessary. As illustrated in the pie chart on the following page, many of these programs 

fund the cost of cadastral surveys conducted on their behalf. This work is central to 

BLM’s efforts to lease public lands for energy development, grant rights-of-way for 

energy and electric transmission lines, resolve cases of trespass upon public lands, 

define the boundaries of timber sales, lease lands to local communities under the 

Recreation and Public Purpose Act, identify the boundaries of lands to be exchanged or 

sold, and identify the boundaries of Wilderness Areas and other special areas. 

Additionally, the Program has established a strong relationship with the Bureau of Indian 

Affairs (BIA) Real Estate Services program and the Office of Special Trustee for the 

purpose of providing cadastral services on Indian Trust lands. This relationship has 

produced positive results as the cadastral survey components of the Fiduciary Trust 

Section III- Management of Lands and Resources Page III-238 
Bureau of Land Management 2009 Budget Justifications 

Model have undergone implementation. The components provide a framework from 

which many reimbursable cadastral Trust services are provided. 

2007 Cadastral Surveys Funding Sources in the 48 Contigous United States

Privately Funded ,

$436,000, 2%

Western Oregon Forest 

Management, 

$2,119,000, 8%

Cadastral Survey Core 

Program Management 

Expense, $4,654,000, 17%

Other BLM Programs, 

$1,853,000, 7%

Cadastral Survey Funded 

Projects, $6,309,000, 23% Other Agency Reimbursable, 

$11,204,000, 39%

USFS, 

$949,000, 3%

SNPLMA Land Sales Prep, 

$275,000, 1%

Forestry Pipeline Restoration Wildlife Management Law Enforcement 

Rehab Burned Area Wilderness Management Mining Law Administration 

Riparian 

Rangeland Management Forestry (PD) Wild Horses & Burros 

SNPLMA Sales Preparation Resource Mgmt Planning Hazardous Mat Mgmt 

Recreation Resources Mgmt Wild Urban Fuels Title IV Hazardous Fuels Reduction 

Land and Realty Mgmt Cultural Resources Mgmt Fisheries Management 

Oil and Gas Mgmt Annual Maintenance Operations Maintenance 

Soil, Water, Air Mgmt T&E Species Wildland Fire Preparedness 

Other Programs (each < 2%) 

Surveyed and well-marked boundaries allow for better management of natural resources 

because the location of these resources is clearly defined. However, most of the public 

land boundaries remain unmarked, and boundary monuments on surveyed lands have 

been damaged over time by human activity or by natural forces. Boundaries that are 

correctly surveyed, with well-marked and well-maintained boundary markers, support 

effective decision making and minimize the risk of litigation by precluding the inadvertent 

use of the wrong lands.

Means and Strategies – Many of the services provided by the Cadastral Survey 

program have increasingly involved office analysis of geospatial information in a land 

survey-based the GIS. This analysis is conducted in conjunction with land records 

research to provide the most cost effective use of the GIS process by utilizing this cost 

effective analysis process office-related services can manage risks at acceptable levels, 

and expensive field survey operations are avoided. Each request for a cadastral service 

submitted to the program will continue to be analyzed to discern the actual need and a 

Section III- Management of Lands and Resources Page III-239 
Bureau of Land Management 2009 Budget Justifications 

recommendation made to as to the type of cadastral service needed to manage risks at 

acceptable levels. This strategy has become the dominant business model for providing 

the Cadastral Survey program’s customers with services at the lowest possible cost. A 

prime example of office products is the Standards for Indian Trust Lands Boundary 

Evidence and referenced in Departmental Manual, 303 DM 7.

Long-Term Vision – A variety of Federal statutes dating back to 1785 have vested 

authority in the BLM to provide cadastral services for all Federally managed lands. 

Providing these services has required the program to develop new and innovative 

approaches. The new business model includes: 

• Cost recovery as a key premise in addressing the funding of project requests; 

• Avoiding costly field surveys whenever possible by substituting office products as 

described above in Means and Strategies; and 

• Maintaining core in-house expertise to carry out the inherently governmental 

functions while contracting out as much of the commercial portion as is cost 

effective. 

Critical Factors – The BLM is vested with the authority to provide cadastral surveys and 

services for all Federal Interest and Federally managed lands. All Federal land 

management agencies rely on the BLM, Cadastral Survey, to provide Federal authority 

surveys when needed or requested. Each request for a cadastral service is reviewed to 

determine the type of service required to minimize costs while managing risks. 

Other Funding Sources – In 2007, funding from other Federal agencies included: BIA, 

$8.86 million (under a National RSA); USFS, $946,000; and NPS, BOR, DOD, and other 

Federal agencies, $3.34 million. An additional $0.38 million was contributed from nonFederal entities and private interests. Also in 2007, other BLM programs included: 

Oregon and California (O&C) funding in Oregon, $2.1 million; SNPLMA land sales 

preparation, $0.3 million; and all other Management of Land and Resources (MLR) 

funding, $1.9 million. 

Strategic Plan – The Cadastral Survey program supports the Resource Use mission 

goal of the Department’s Strategic Plan by managing the use of the public lands. The 

end outcome goal of the Resource Use mission goal is to manage and influence the use 

of the public land resources to enhance public benefits, promote responsible use, and 

ensure optimal values for energy. The Cadastral Survey program manages the use of 

the public lands to meet this end outcome goal. BLM plays a vital role in managing and 

facilitating access to energy resources not only through its leasing function, but also 

through the issuance of rights-of-way that authorize private energy producers and 

transporters to build the necessary infrastructure on public lands to produce or transport 

energy. A key intermediate outcome measure is to reduce the number of pending cases 

of right-of-way applications. 

The Cadastral Survey program also supports the Serving Communities mission goal of 

the Department’s Strategic Plan, through the authorization of numerous uses of the 

public lands that benefit communities, local governments and individuals. Key 

intermediate outcome measures for the Serving Communities mission goal include 

increasing the acreage of approved land disposals; increasing the acreage of land 

exchange and acquisitions to improve land tenure distribution; and increasing the 

Section III- Management of Lands and Resources Page III-240 
Bureau of Land Management 2009 Budget Justifications 

acreage of revocation of unneeded withdrawals of the public lands to improve resource 

management. 

BLM surveyors provide boundary location services on 

Federal and Indian lands managed by the BLM, BIA, NPS, 

USFS, and other Federal agencies. 

Geographic Coordinate Data (GCDB) - The Cadastral Survey program also conducts the 

GCDB Program, which is a system to represent land ownership boundaries in a 

coordinated, standardized digital fashion. The 2009 budget would allow for 

management of the GCDB, 

which includes overseeing 

the validation of the data 

base, sharing of the GCDB 

(exporting and importing) 

with States and counties, 

and stewardship of the 

database. Information 

systems such as the 

National Integrated Lands 

System (NILS) depend on 

the GCDB as the base 

layer for BLM processes 

such a leasing, sales, 

exchanges, and 

stipulations. The GCDB 

system represents the best 

practices for storing, 

displaying, and updating 

land records into the Public 

Land Survey System and 

the NILS. The BLM, other Federal agencies, States, and local governments utilize the 

GCDB system for many purposes. The GCDB facilitates energy development, wildland 

fire and emergency response, and provides for real time access to digital land title 

records. The Western Governors’ Association is supportive of the GCDB because of its 

ability to portray survey grade positions in a common, seamless digital environment. 

Cadastral Survey Guidance Manual – Pursuant to the Office of Management and Budget 

(OMB) Circular A-16, revised 2002, Government-wide leadership for cadastral data 

coordination is carried out by the Federal Geographic Data Committee (FGDC) 

Subcommittee for Cadastral Data. The lead agency responsible for cadastral data is the 

BLM Cadastral Survey program. The publication of the next edition of the Manual of 

Instructions for the Survey of the Public Lands of the United States is a critical factor in 

providing guidance and disseminating information in properly executing cadastral 

surveys. The FGDC is adopting this Manual as the definitive Federal document 

governing the procedures for conducting a cadastral survey. 

Fiduciary Trust Model - The Fiduciary Trust Model was the Secretarial approved initiative 

designed to provide cadastral services to the Tribes, individual American Indians, and 

the Alaska Natives. There are four components to this initiative, which have begun 

implementation during the last three years: 

• BLM Indian Lands Surveyors. The intent of this component is to install one 

highly experienced Cadastral Surveyor into each of the twelve BIA Regional 

Offices. This person was installed to provide expedited cadastral survey 

Section III- Management of Lands and Resources Page III-241 
Bureau of Land Management 2009 Budget Justifications 

services to the various American Indians, Alaska Natives, Agency Offices and 

Regional Offices in support of the Secretary's Fiduciary Trust responsibility. 

• Create the Certified Federal Surveyor Program (CFedS). The intent of this 

component was to assist licensed land surveyors, in good standing, to 

continue their professional development by designing, creating and 

implementing a training program that would emphasize the proper methods, 

orders and procedures of surveying or resurveying Indian or trust lands. The 

Program consists of a distance-learning course containing training exercises, 

quizzes, and video lecture. This training program started in Fiscal Year 2007 

and has 411 surveyors licensed in 39 states enrolled in the program as of 

October 1, 2007. To date, 138 of these surveyors have been certified.

• Improve the condition of the Public Land Survey System (PLSS). The intent 

of this component is to upgrade the PLSS by rehabilitating inferior 

monumentation, re-establishing lost or obliterated corners, resurveying 

questionable boundaries and provide for a posting and marking program. 

This component, while not currently implemented, continues to be one of the 

Department's highest survey priorities. 

• Create the Cadastral Geographic Information System (CGIS). The CGIS 

creates one standardized source of land status information based on 

cadastral data that delineates the official legal land descriptions. This CGIS 

will pictorially represent the records that compose the ownership and 

possession of the individual or the tribe. When the CGIS is complete the 

program or tribal manager will be able to more effectively or efficiently 

promote individual or tribal lands and resources. BLM and a few tribal 

entities are currently collecting the Geographic Coordinates that compose the 

base layer of the CGIS. 

BLM continues to refine an 

inventory of the survey needs on 

Indian Trust lands. This inventory 

includes a mechanism to prioritize 

lands for survey by evaluating 

each land parcel using specific 

criterion. This criterion, developed 

in collaboration with BIA and 

Office of Special Trustee, includes 

trespass abatement, timber 

harvest, mineral leasing, and other 

priorities related to Indian Trust assets and the disbursement of funds into Individual 

Indian Monetary accounts. 

Use of Cost and Performance Information 

The Program has conducted an extensive inventory, which 

identifies the need for cadastral services. Each item in the 

inventory is cross-referenced to BLMs emphasis areas to identify 

where the highest needs exist. Coordination between programs 

in each state office has proven valuable in addressing BLM’s six 

emphasis areas. Within each state office, the land boundary 

components related to each theme is identified and recorded in 

the Budget Planning System (BPS) to facilitate efficient 

planning. 

The Cadastral Survey program supports the Serving Communities mission goal of the 

Department’s Strategic Plan and fulfills the Secretary’s responsibility to maintain the 

Public Land Survey System. By creating, identifying, surveying, and maintaining the 

legal boundaries of Federal interest lands, information is readily available to States, 

tribal, local governments, local communities, and the public. 

Section III- Management of Lands and Resources Page III-242 
Bureau of Land Management 2009 Budget Justifications 

Lower 48 States

 10-Year Cadstral Survey Field Accomplishments With Total

Lower 48 States

 10-Year Cadstral Survey Field Accomplishments With Total

0

1000

2000

3000

4000

5000

6000

7000

8000

1998 1999 2000 2001 2002 2003 2004 2005 2006 2007

Source: Public Land Statistics

Miles of Survey

BLM

BIA

Other Fed

Total

Energy Policy Act of 2005 – Seven Pilot Project offices have been established to 

implement improvements in coordinating, processing and monitoring oil and gas 

authorizations. The Cadastral Survey program assists the energy pilot offices by 

providing geospatial information, which relates directly to on-the-ground property 

boundaries, well heads, and other physical features. Much of this work is expected to 

result in providing spatial information for the NEPA and the EPCA studies. Starting in 

2006, each State Office with an energy pilot office within its jurisdiction has been 

directed to provide the necessary land surveyors and the GCDB personnel to provide 

support. 

2009 PROGRAM PERFORMANCE

2007 Accomplishments- In 2007, the major accomplishments in the Cadastral Survey 

Program, excluding the Alaska State Office, included the following: Accomplishments 

completed in Alaska are funded in the Alaska Conveyance program and therefore 

described in the Alaska Conveyance budget justification section. Cadastral Survey 

funds are not expended in the Alaska Conveyance program. 

• approved 574 survey plats, 

• completed 5,710 miles of on-the-ground surveys, 

• within above total include 936 miles of on-the-ground surveys funded by 

Cadastral Surveys 

• approved 6,184 miles of cadastral survey 

• within the total approved include 1,172 miles funded by Cadastral surveys 

Section III- Management of Lands and Resources Page III-243 
Bureau of Land Management 2009 Budget Justifications 

• within the total approved include 5,012 miles funded by Cadastral Reimbursable 

• within the total approved for Cadastral Reimbursable include 179 miles approved 

for USFS 

• within the total approved for Cadastral Reimbursable include 3,663 miles 

approved for Indian Trust lands 

• Incorporated 1,406 townships into the GCDB system and updated GCDB data on 

another 2,954 townships. 

• Arizona – Provided extensive cadastral services under reimbursable agreements 

with BIA on Indian Trust lands. These services support the Secretaries Fiduciary 

Trust responsibilities on Navajo, Hopi, and Tohono O’odham reservations and 

allow Indian lands to be legally defined and effectively developed. Under a DOD 

reimbursable agreement, provided cadastral survey of exterior boundary of the 

Barry Goldwater Range; this survey supports the Justice Department in an 

ongoing court case to quiet title to lands surrounding the range where ownership 

was in question. 

• California – Provided timely cadastral surveys to BLM’s AML Program in areas of 

extensive arsenic poisoning in areas of mixed BLM and private ownership. Quick 

response resulted in identifying the location and ownership of affected lands and 

facilitated the cleanup operations. 

• Colorado – Performed multiple surveys to resolve color of title issues in support 

of land exchanges in several areas of the state. Performed GCDB maintenance 

and enhancements in support of the National Energy Policy, allowing the Fluid 

Minerals group to track stipulations and restrictions on leased areas or areas that 

have potential for leasing. 

• NTC -- Continued development of the training and management associated with 

the Certified Federal Surveyors Program. This Program has graduated 138 

qualified surveyors to date. Graduates have begun contracting with BLM to 

perform the non-inherently governmental portion of cadastral surveys. 

• Idaho – Several cadastral survey investigations were conducted to determine 

Federal ownership where trespass was alleged. Two of the investigations 

concluded the land not to be Federal; in each of those cases BLM was managing 

the land as Federal. Consequently BLM did not evict the claimants. 

• Montana – Completed cadastral surveys in partnership with the U.S. Forest 

Service (USFS) and a local conservation group. These co-funded surveys 

identified boundaries of public lands and supported the construction of trails 

connecting Crater and Lily Lakes within Custer National Forest. 

• Wyoming – Provided survey services for the Indian tribes of Nebraska, in 

partnership with the Bureau of Indian Affairs. These services provided accurate 

boundaries of Indian lands while assisting in the management of Indian Trust 

assets. 

Section III- Management of Lands and Resources Page III-244 
Bureau of Land Management 2009 Budget Justifications 

2008 Program Performance - In 2008, BLM estimates that at least 13 percent of all 

projects in the Cadastral Survey Services Inventory will be funded. Of these projects 

that will be funded, over 70 percent are expected to be completed within 18 months. 

Additionally, the program expects to perform at least 2,500 consultations, related to land 

boundary location on Indian Trust lands, with BIA and other Native American 

stakeholders. Approximately 75 percent of the workload expects to be funded through 

sources other than the Cadastral Survey program. 

The Program expects to have completed the following key performance outcomes in 

2008: 

• Complete 3,300 miles of field survey work. All except 305 miles expect to be funded 

through sources other than the Cadastral Survey program. Reduced funding, from 

both BLM and other agencies is expected to result in fewer cadastral field miles than 

in 2007. 

• Approve 4,400 miles of existing field survey efforts. All except 835 miles expect to 

be funded through sources other than the Cadastral Survey program. Reduced 

funding, from both BLM and other agencies is expected to result in fewer approved 

cadastral miles than in 2007. 

• Collect the GCDB data on 750 townships; all except 212 expect to be funded through 

sources other than the Cadastral Survey program. Collection of data in some of the 

plains states, including Oklahoma and the Dakotas, will increase because of an 

increased emphasis in oil and gas exploration, however many state offices are 

collecting fewer townships of the GCDB data because of a transition to GCDB data 

maintenance. 

• perform the GCDB data updates and maintenance on 2,000 townships; all except 

354 expect to be funded through sources other than the Cadastral Survey Program 

• Continue supporting the seven Bureau Energy Pilot Project Offices. Each State 

office with an energy pilot office within its jurisdiction will continue to dedicate the 

GCDB personnel, as funding permits, to support these offices. Over 50 percent of 

this workload expects to be funded through sources other than the Cadastral Survey 

Program. 

• Provide over 500 units of Boundary Standard Evidence Products to Native American 

trust beneficiaries. These products fall within the four categories as defined in the 

Standards for Indian Trust Lands Boundary Evidence. 

Energy Policy Act of 2005 - In 2008, the following cadastral services will be provided 

within the BLM Energy Pilot Project offices: 

 

• Colorado – Resurveyed townships, in an area of intensive energy exploration, that 

were last surveyed by the U.S. Government in the late 1800's. These townships had 

minimal remaining survey markers and were resurveyed to support the development 

natural gas fields. The updated survey information helps BLM land managers assure 

that the construction of access roads, well pads, and drilling of well bottom targets do 

not infringe on other property or mineral rights. Additionally, once the new survey 

markers are placed and survey maps produced, the updated data is entered into the 

Geographic Coordinate Data Base (GCDB). The GCDB, which is a graphic portrayal 

of the Public Land Survey System and provides a solid reference for the GIS, allow 

cadastral staff to work closely with the GIS staff, minerals experts, and the energy 

pilot office to display all stipulations and current leases in an automated format. 

Section III- Management of Lands and Resources Page III-245 
Bureau of Land Management 2009 Budget Justifications 

These services enable Federal land management agencies as well as industry to 

make informed decisions as Applications for Permit to Drill (APDs) are processed. 

• Montana -- The Montana State Office provided vital Cadastral Geographic 

Information System data to its pilot office, which has resulted in quicker preparation 

of lease information for official hearings. The Montana’s State Board of Oil and Gas 

estimates a savings of 45 percent of staff time by using the GCDB. Also, the 

Montana State Office provided for a Cadastral Geographic Information System 

project to a Tribal government for integration of GCDB data with oil and leasing 

information to more efficiently facilitate oil and gas lease sales. Additionally, survey 

reliability diagrams will be provided to customers to identify boundary risk associated 

with energy land management activities. 

• New Mexico – Providing the GIS expertise to assist several of BLM field offices with 

building a tracking data base for NEPA processing and reporting of acres reclaimed 

and restored as a consequence of oil and gas activities in these Field offices. The 

GCDB is being used to reference boundaries to actual on-the-ground survey 

measurements between Public Land Survey System corner markers in areas of oil 

and gas leasing. The “Restore New Mexico” effort has had success in building a 

data base which identifies restored lands. Through utilization of the GCDB, and 

support from other State Office personnel, this effort has provided valuable 

information for the Healthy Lands Initiative. 

• Utah -- New cadastral survey data was used to update the GCDB which provides for 

more orderly development of well spacing to facilitate efficient oil and gas 

development. Survey information is subsequently input into a seamless digital the 

GCDB environment benefiting many facets of energy development. These facets 

include location of habitat features to assist in protection, and also the planning of oil 

pads and access roads. These digital products assist in providing energy access 

while helping ensure the protection of healthy landscapes.

• Wyoming – New cadastral surveys support energy development by properly locating 

wells on the leases; this survey support has proven especially critical in areas of high 

well density. 

2009 Program Performance - In 2009, the Cadastral Survey program plans to 

accomplish the following: 

 

• Complete 5,000 miles of field survey work. All except 200 miles expect to be funded 

through sources other than the Cadastral Survey program. 

• Approve 5,500 miles of existing field survey efforts. All except 800 miles expect to 

be funded through sources other than the Cadastral Survey program. 

• Collect 225 townships of the GCDB data; all expect to be funded through sources 

other than the Cadastral Survey program. 

• Perform the GCDB data updates and maintenance on 2,000 townships; all except 

150 will be funded through sources other than the Cadastral Survey program. 

• Each state office with an energy pilot office within its jurisdiction has been directed, 

beginning in 2006, to dedicate the necessary cadastral survey services personnel, as 

funding permits, to support of the energy pilot office mission goals. 

Section III- Management of Lands and Resources Page III-246 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-247 

In 2009, funding will remain at the request level, the Cadastral Survey program will 

continue the core functions of approving surveys, addressing public inquires, consulting 

with staff from other programs to advise on boundary issues, providing guidance and 

oversight for field surveys paid for by other programs and bureaus, and managing the 

GCDB. 
Bureau of Land Management 2009 B

CADASTRAL SURVEY PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 President's Budget Change from 200

Plan to 20

Land Title Records: Number of public land title records posted on the internet to assist title, survey, historical, and genealogical research and retrieval. (Bur) 

97,835 121,677 143,148 139,475 139,475 125,000 125,000 0% 

Total Actual/Projected Cost ($000) $38,296 $41,955 $35,359 $0 $30,700 $24,784 $23,981 -$803 Actual/Projected Cost per Mile (in dollars) $391 $345 $247 $0 $220 $198 $192 -$6 Comments: Results for this measure reflect the accomplishments funded by BLM's Lands programs. Percent of survey projects of Federal and Indian Trust lands that are funded (Bur/PART) UNK UNK 11% 151/ 1432 8% 113/ 1418 14% 314/ 2176 13% 189/ 1464 12% 175/ 1464 -1% Total Actual/Projected Cost ($000) $0 $0 $71,628 $0 $70,262 $57,424 $54,938 -$2,486 Actual/Projected Cost per Project (in dollars) $0 $0 $474,360 $0 $223,765 $303,829 $313,931 $10,102 Comments: Results for this measure are based on actual projects planned and will vary between years. A larger nu

projects or a smaller number of larger projects may be funded in any given year. 

Survey: Percent of cadastral surveys approved within eighteen months of the funding date. (Bur/PART) 

new 

measure 

new 

measure 

1st data 

2007 

54% 

332/615 

63% 

389/ 615 

73% 

574/ 790 

73% 

574/ 790 

0% 

Comments: * Support Measure - No cost will be shown. Results for this measure are based on actual projects plan

between years. 

Approve Cadastral Surveys (miles) 18,470 7,174 1,402 1,169 1,172 835 800 '-35 Comments: 

2004 and 2005 included the results of multiple programs. Beginning in 2006, the results reflect only the accomplishments of the Cadastral Survey program. In 2004, Cadastral Survey approved 13, 191 miles1,398 miles were approved. 

*Complete Cadastral Field Surveys (miles) 1,280 1,010 1,179 895 936 306 200 -106 *Collect Digital Cadastral Data (GCDB) (number of townships) 358 353 579 1,278 1,406 212 0 -212 Section III- Management of Lands and Resources 
Bureau of Land Management 2009 B

CADASTRAL SURVEY PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2008 Plan 2009 President's Budget Change from 200

Plan to 20

2007 Actual 

*Update Digital Cadastral Data (GCDB) (number of townships) 1,389 1,587 2,111 2,400 2,954 354 150 -204 The results shown previously for 2004-2007 came from a wide range of benefitting programs. That data has been replaced with data related only to the C

program. The 2008 column reflects a reduction to performance for the 2008, $1,800,000 program reduction and for the difficulty of the remaining townshi

digital cadastral data. 

Miles of Approved Cadastral Survey: 2007 Actual Accomplishments include 1,172 miles of Approved Cadastral Survey in Subactivity 1420 (Cadastral Sumiles in Subactivity 1910 (reimbursable; including BIA for 3,663 miles, and the remaining 720 miles for NPS, DOD, BOR, and FWS); 179 miles in Subactireimbursable); 301 miles in a variety of other benefiting BLM Subactivities, and 149 miles for private reimbursable customers. The total Approved Field S2007 (excluding Alaska) equal 6,184. Miles of Completed Cadastral Field Survey: 2007 Actual Accomplishments include 936 miles of Completed Cadastral Field Miles in Subactivity 1420 (Ca

3,287 miles in Subactivity 1910 (reimbursable; including BIA for 2,685 miles, and the remaining 602 miles for NPS, DOD, BOR, and FWS); 273 miles in S(USFS Cadastral Survey); 1,115 miles for a variety of other benefiting BLM Programs, and 99 miles for private reimbursable customers. The total Comp

Field Survey miles (excluding Alaska) equal 5,710. 

WO350 reported for two OMB PART measures in 2007: Percent of survey projects of Federal and Indian Trust lands that are funded, and Percent of cadaapproved within eighteen months of the funding date. Reporting for these measures involves compiling reporting data from all twelve state offices. Althosurvey accomplishments in Alaska are funded through the Alaska Conveyance and Lands Program, these accomplishments are reflected in the above pe

measures. See note at bottom of Alaska Conveyance and Lands performance summary for BLM Alaska's reporting responsibilities for these measures. 

See Alaska Conveyance and Lands for primary outputs in BLM Alaska. Section III- Management of Lands and Resources 
au of Land Management 2009 B

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Bure
Bureau of Land Management 2009 Budget Justifications 

Activity: Land and Realty Management 

Activity: Realty and Ownership 

Subactivity: Land and Realty Management 

 2009 

 Fixed Costs & Program Change 

 2007 2008 

Related 

Changes Changes Budget 

from 

2008 

 Actual Enacted (+/ -) (+/ -) Request (+/-) 

Land and Realty ($000) 33,716 33,649 +608 -1,394 32,863 -786

 

FTE 292 287 0 -8 279 -8

Other Major Resources: 

Rights of Way 12,814 12,840 0 -500 12,340 -500

Trust Fund: Rights of Way 0 0 0 0 0 0

 

Major Program IT Investments: 

ALIS: 010-04-01-02-02-0442-00 202 202 +45 247 +45

GLO: 010-04-01-03-02-0416-00 488 523 +81 604 +81

 

Summary of 2009 Program Changes for Land and Realty Management 

Request Component ($000) FTE

Program Changes: 

• Restore program funding to 2008 request level -486 -2

• Organizational & Administrative Streamlining -370 -2

• Travel & Relocation expenses -144 

• Performance Contracting savings -36 

• Nat'l Monument & Nat'l Conservation Area funding (new subactivity created) -358 -4

TOTAL, Program Changes -1,394 -8

JUSTIFICATION OF 2009 PROGRAM CHANGES

The 2009 budget request for the Land and Realty Management program is $32,863,000 

and 279 FTE, a net program decrease of $1,394,000 and 8 FTE from the 2008 Enacted 

level, offset by a $608,000 increase for fixed costs. 

Restoration of Program Funding to 2008 Request Level (-$486,000) - In 2008, 

Congress provided additional funding in the land and Realty Management program, to 

be used for core functions, including NLCS activities. The BLM proposes a reduction of 

this amount in order to address higher priorities. The BLM will continue to restore and 

maintain core functions in the Land and Realty Management program by focusing on 

highest priority Land and Realty projects and promoting efficiencies where possible. 

National Monument and National Conservation Area Subactivity Funding (-

$358,000) - The BLM is proposing a new subactivity within MLR to fund base operations 

at National Monuments and National Conservation Areas. As a result, $358,000 is 

shifted from the Land and Realty Management subactivity to the new subactivity. The 

Section III- Management of Lands and Resources Page III-251 
Bureau of Land Management 2009 Budget Justifications 

funding shifted from the Land and Realty Management subactivity is funding currently 

spent in the MLR National Monuments and National Conservation Areas, to meet the 

goals of the Land and Realty Management program. The funding will continue to be 

spent on Land and Realty Management priorities but will be managed through the 

National Monuments and National Conservation Areas subactivity. Performance in the 

Land and Realty Management subactivity will decrease due to the funding shift; 

however, this performance will be shifted to the National Monuments and National 

Conservation Areas subactivity and is shown in the performance goals for that 

subactivity. 

PROGRAM OVERVIEW

The Lands and Realty Management program has many diverse responsibilities relating 

to the management and use of public lands. Through this program, BLM authorizes the 

use of public lands for oil and gas pipeline rights-of-way, electric transmission line and 

distribution line rights-of-way, telephone and fiber optic rights-of-way, and 

communication sites for serving communities with television services, cellular phone 

service and many other communication needs. Renewable energy rights-of-way are 

granted for wind and solar energy testing and production sites. In addition, the Land and 

Realty Management program authorizes the use of the public lands for water pipelines, 

roads and commercial filming. Through this program, BLM also works to improve the 

distribution and management of the public lands through land acquisitions, including 

purchases and donations, sales, disposals, and exchanges. 

Other uses of the public lands, such as withdrawals and revocation of withdrawals, are 

managed through this program. The Land and Realty Management program also works 

closely with the Department of Defense to coordinate withdrawals of the public lands for 

military purposes, resolves issues concerning over-flights of the public lands, and 

coordinates management of adjacent military and public lands. BLM has also taken on 

an expanded role and additional responsibilities in the area of Federal Power Act

requirements and policies pertaining to licensing and relicensing of hydropower projects 

on the public lands; the Land and Realty program provides leadership and support for 

these responsibilities. In addition, BLM will continue to implement pertinent portions of 

the Energy Policy Act of 2005 involving designating utility corridors for locating electric 

transmission lines, oil and gas pipelines and fiber optic lines. 

Program Components – 

• Rights-of-Way – Under the Federal Land Policy and Management Act (FLPMA) and 

the Mineral Leasing Act provisions (MLA), BLM issues right-of-way grants to 

authorize the construction, operation, and maintenance of a wide range of facilities

on the public lands. When authorizing rights-of-way, BLM develops terms and 

conditions to enhance public benefits and promote responsible uses of the public 

lands. Many of these right-of-way grants are related to energy development, such as 

rights-of-way for oil and gas pipelines and related facilities; electric transmission and 

distribution lines; wind and solar energy site testing and development facilities roads; 

water pipelines for community water supplies; and communication sites needed for 

the increasing demand for cellular telephone services, television, microwave facilities 

and communication equipment needed by communities for police, fire and medical 

responders. Non-energy related grants for use of the public lands include rights-ofSection III- Management of Lands and Resources Page III-252 
Bureau of Land Management 2009 Budget Justifications 

way for access to private lands, and rights-of-way for utility, water, and telephone 

lines to serve local communities. 

• Renewable Energy – Long Term Vision -The President’s National Energy Policy and 

Section 211 of the Energy Policy Act of 2005 (P.L. 109-58) encourages the 

development of renewable energy resources, including wind energy, as part of an 

overall strategy to develop a diverse portfolio of domestic energy supplies for the 

future. The extension of the Federal wind energy production tax credit and a variety 

of State-level tax credits have generated a renewed interest in commercial wind 

energy projects on the public lands. 

• Hydropower Relicensing - The Federal Power Act of 1920 authorizes the Federal 

Energy Regulatory Commission (FERC) to permit the use of Federal lands by private 

entities to develop hydropower facilities. These existing facilities, many of which 

were licensed in the 1940s and 1950s, are located on public lands withdrawn by 

FERC. A large number of these facilities are nearing the end of their license terms, 

and BLM, through participation in FERC’s re-licensing process, is providing input into 

the license review and approval process, and identify applicable terms and 

conditions necessary to protect or enhance specific resource values. Hydropower 

license and re-license projects are located primarily in California, Washington, 

Oregon, and Idaho. In 2007, BLM reported to FERC that BLM’s cost of 

administering Part 1 of the Federal Power Act for BLM was approximately $750,000. 

BLM is not reimbursed for the work it performs in the relicensing effort.

• Use Authorizations - Through the Land and Realty Management program, BLM 

authorizes the use of public lands for activities such as commercial filming, short 

term uses of public land such as for storage, and longer term uses such as 

agricultural use of isolated parcels surrounded by private lands that are being 

farmed. States, local government, and qualified non-profit organizations that operate 

recreational or other facilities devoted to public uses such as schools and parks, can 

apply for the lease or patent of public lands for recreation and other community 

purposes under the authority of the Recreation and Public Purpose Act of 1954. 

• Land Sales, Exchanges, Disposals and Withdrawals - BLM adjusts boundaries of 

public lands to more efficiently manage the public lands, through sales, land 

exchanges, acquisitions, disposals, withdrawals, and revocation of withdrawals. For 

example, in some cases BLM disposes of lands that are in small parcels and isolated 

from other public lands. These parcels are difficult to manage due to the distance 

from other public lands. BLM may sell or exchange these lands for privately owned 

lands near other Federal lands or within the boundaries of a BLM-managed area. 

• Land Sales - The Federal Land Transaction Facilitation Act of 2000 (FLTFA) 

authorizes BLM to use certain proceeds from land sales to acquire privately owned 

in-holdings and other lands with exceptional resource values within applicable areas 

managed by BLM, U.S. Forest Service, U.S. Fish and Wildlife Service, and National 

Park Service. To quality lands sold must have been identified as suitable for 

disposal through a land use plan in effect on July 25, 2000, the date of enactment of 

FLTFA. 

• Land Exchanges – The BLM’s land exchange program is an important and essential 

tool for management of the public lands. The land exchange program has 

Section III- Management of Lands and Resources Page III-253 
Bureau of Land Management 2009 Budget Justifications 

undergone significant improvement over the past few years. Weaknesses were 

identified and corrected. Starting in late 2003 the BLM increased management 

oversight for all land exchanges, issued new program guidance and redesigned 

training to incorporate these improvements. Based on the many challenges and 

opportunities presented by the fragmented nature of the public land holdings, land 

exchanges will remain an important and effective public land management tool, 

particularly for land acquisition from State governments. Steady progress in 

restoration of the program will continue. However, the BLM anticipates a slower rate 

of progress in 2009 and 2010 due to emphasis on energy priorities and use of land 

sales. 

Critical Factors – Appraisal Reorganization – The land appraisal function that BLM 

formerly managed was transferred to the Department in 2003. The Land and Realty 

Management program formerly provided the majority of the funds for the salaries and 

benefits of the appraisers; however, the Land Acquisition activity, the Southern Nevada 

Public Lands Management Account, and the O&C Account also provided some funds. 

These funds were permanently transferred to the Department as required by the 2006 

Appropriation Act. 

• Land Withdrawals - Each year BLM reviews lands that have been withdrawn for 

specified purposes, revoking unneeded withdrawals when appropriate to allow more 

uses of the lands. Many withdrawals prohibit disposal or use of the public lands for 

minerals extraction; other withdrawals prohibit additional activities on the public 

lands. The number of acres of withdrawals reviewed and considered for revocation 

varies from year to year, depending on the other uses proposed for the lands. 

• Military Base Closure Issues - Many military bases were created from public lands; 

as the military closes these bases, BLM must process the relinquishment of the 

withdrawal and resolve issues such as hazardous waste contamination before 

accepting the relinquishment. After relinquishment, BLM assumes responsibility to 

manage the lands. 

Means and Strategies – As much of the work in lands and realty is customer driven, the 

anticipated number of filings of applications for the various authorizations within the 

program can not be predicted with certainty. 

Cost Recovery: 

Studies, surveys and environmental analyses required to process right-of-way 

applications are funded through a combination of funds appropriated through this 

subactivity and cost recovery (subactivites, Major Category Rights of Ways and Minor 

Category Rights of Ways) fees charged to applicants for BLM to process applications for 

rights-of-way and monitor the terms and conditions of the grant through construction of 

the facility once the right-of-way has been granted. 

Federal Land Transaction Facilitation Act (FLTFA) (P.L. 106-248): 

The Federal Land Transaction Facilitation Act (FLTFA) became law on July 25, 2000. It 

provides for the use 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. The FLTFA does 

not apply to lands identified for disposal through land use plans or land use plan 

Section III- Management of Lands and Resources Page III-254 
Bureau of Land Management 2009 Budget Justifications 

amendments approved after July 25, 2000. The revenue derived from FLTFA sales is 

split between the respective State (4 percent for educational purposes or for the 

construction of public roads), and a special account 96 percent available to the 

Secretary of the Interior and the Secretary of Agriculture for: 

• Acquiring inholdings within certain federally designated areas, or lands adjacent 

to those areas and containing exceptional resources (of the funds used for acquisition, 

80 percent must be expended in the same State in which the funds were generated and 

20% may be expended for acquisition in any of the 11 other Western states); 

• Administrative and other expenses necessary to carry out the sale program 

under the FLTFA (up to 20 percent of revenues from disposals may be used for this 

purpose). 

Southern Nevada Public Land Management Act of 1998 (SNPLMA) (P.L. 105-263): 

SNPLMA became law in October 1998. It allows the Bureau of Land Management to 

sell public land within a specific boundary around Las Vegas, Nevada. The revenue 

derived from 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 

available to the Secretary of the Interior 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 the SNPLMA direct certain land sale and acquisition procedures, 

direct BLM to convey title to land in the McCarran International Airport noise zone to 

Clark County, and provide for the sale of land for affordable housing. 

Long-Term Goals – The Land and Realty program authorizes use of the public lands for 

other uses such as communication sites and commercial filming. Through this program, 

the BLM will continue to improve the distribution and management of the public lands 

through land acquisitions, sales, disposals, and exchanges, consistent with the Strategic 

Plan mission goal Serving Communities, and the associated intermediate outcome 

goals. Other uses of the public lands, such as withdrawals and revocation of 

withdrawals, are managed through this program. The Land and Realty program will 

continue to closely with the Department of Defense to withdraw the public lands for 

military purposes, resolve issues concerning over-flights of the public lands, and provide 

effective management of adjacent military and public lands. The BLM will continue in its 

expanded role and additional responsibilities in the area of Federal Power Act 

requirements and policies pertaining to licensing and re-licensing of hydropower projects 

on the public lands. 

Strategic Plan – The Land and Realty Management program supports the Resource 

Use mission goal of the Department’s Strategic Plan by managing the use of the public 

lands. The end outcome goal of the Resource Use mission goal is to manage and 

influence the use of the public land resources to enhance public benefits, promote 

Section III- Management of Lands and Resources Page III-255 
Bureau of Land Management 2009 Budget Justifications 

responsible use, and ensure optimal values for energy. The Land and Realty 

Management program manages the use of the public lands to meet this end outcome 

goal. BLM plays a vital role in managing and facilitating access to energy resources not 

only through its leasing function, but also through the issuance of rights-of-way that 

authorize private energy producers and transporters to build the necessary infrastructure 

on public lands to produce or transport energy. A key intermediate outcome measure is 

to reduce the number of pending cases of right-of-way applications. 

The Land and Realty Management program also supports the Serving Communities 

mission goal of the Department’s Strategic Plan, through the authorization of numerous 

uses of the public lands that benefit communities, local governments and individuals. 

Key intermediate outcome measures for the Serving Communities mission goal include 

increasing the acreage of approved land disposals; increasing the acreage of land 

exchange and acquisitions to improve land tenure distribution; and increasing the 

acreage of revocation of unneeded withdrawals of the public lands to improve resource 

management. 

2009 PROGRAM PERFORMANCE

2007 Accomplishments- In 2007, BLM exceeded almost all of its goals for primary 

outputs. The accomplishments are described below: 

• BLM processed 6,895 new linear ROW grants, & amendments. In this same timeframe, our Field Office personnel processed another 1,457 linear ROW Assignments 

and Renewals. 

• In 2007, the ROW program generated over $12.8 million in cost recovery processing 

& monitoring fees. In addition to the cost recovery fees, BLM's ROW program 

generated over $20.5 million in rent. 

• BLM completed 31,247 acres of land exchange disposals and 19,846 acres of land 

exchange acquisitions in 2007. 

• BLM exceeded by 19 percent its goal in the posting of public lands records on the 

internet. These records include data that can be used to assist title searches, land 

surveys, and historical and genealogical research and retrieval. 

• BLM exceeded by 48 percent the number of FLPMA leases, permits licenses and 

easements processed. 

• BLM processed over 42,732 acres of withdrawal revocations exceeding our target by 

over 1,526 percent due to greater acreage being revoked than anticipated. 

2008 Program Performance- In 2008, BLM will continue to place a priority on 

processing rights-of-way and other use authorizations for energy-related projects. Other 

priorities include: 

• In 2009, BLM will continue to process an increasing number of applications for wind 

energy site testing and monitoring and wind energy development projects. The 

Section III- Management of Lands and Resources Page III-256 
Bureau of Land Management 2009 Budget Justifications 

existing projects and future proposals will create a significant workload and demand 

a commitment of resources and a priority to the timely and consistent processing of 

right-of-way applications. 

• Wind Energy - In January 2003, BLM released a report on renewable energy 

development, and began preparation of an Environmental Impact Statement (EIS) to 

analyze wind energy development for the western states. This work effort was 

completed in June 2005. The EIS provides a means whereby required NEPA 

documentation can be tiered off of the programmatic EIS. Also, the EIS incorporated 

amendments to applicable land use plans so that new plan amendments are not 

required for siting wind energy projects. Therefore the processing of wind energy 

ROW applications or more efficient because of the above. 

 

• Right-of-Way Corridor – The BLM will proceed with implementation of applicable 

portions of the Energy Policy Act of 2005. Implementation actions include 

preparation of a Draft Programmatic Environmental Impact Statement (PEIS) to 

establish right-of-way corridors that was completed in October 2007. BLM will 

continue work on the performance elements (PE’s) in 2008. 

• Exchanges - The BLM anticipates completing 20,000 acres of land exchange 

disposals and 20,000 acres of land exchange acquisitions in 2008. Fewer 

exchanges will be completed because of the continued emphasis on land sales to 

take advantage of the use of funding received as a result of FLTFA.

• Rights-of-Way - The demand for additional energy and power capacity is expected to 

increase this workload by as much as 15-20 percent per year over the next five 

years. Energy and non-energy related rights-of-way on the public lands represent a 

significant workload for BLM. BLM administers approximately 93,000 rights-of-way 

on the public lands, including approximately 27,000 oil and gas pipeline and 14,000 

electric transmission systems rights-of-way. Oil and gas pipeline rights-of-way are 

authorized under the Minerals Leasing Act of 1920 (MLA); while electric 

transmission, telecommunication, fiber optic, water pipeline and road rights-of-way 

are authorized under the FLPMA. BLM processes over 5,500 rights-of-way actions 

annually, including over 1,400 new oil and gas pipelines and 500 electric system 

rights-of-way applications, with an increase in applications of over 10 percent a year 

during the last several years. The Energy Policy Act of 2005 requires the study of 

cost recovery fees associated with the granting of ROWs. BLM will initiate such a 

study this year. In 2008, BLM estimates it will collect more than $14.5 million in cost 

recovery fees for new rights-of-way, amendments, assignments and renewals. 

• Renewable Energy - In 2008, BLM will continue to process an increasing number of 

applications for wind energy site testing, monitoring, and wind energy development 

projects and solar energy sites. The existing projects and future proposals will create 

a significant workload and demand a commitment of resources and a priority to the 

timely and consistent processing of right-of-way applications. 

• Land Sales - The Federal Land Transaction Facilitation Act of 2000 authorizes the 

BLM to use certain proceeds from land sales to acquire privately owned in-holdings 

and other lands with exceptional resource values within applicable areas managed 

by BLM, U.S. Forest Service, U.S. Fish and Wildlife Service, and National Park 

Service. At the end of 2007, BLM had received a cumulative amount of $96 million 

Section III- Management of Lands and Resources Page III-257 
Bureau of Land Management 2009 Budget Justifications 

in receipts from land sales. BLM plans several sales in 2008 and these proceeds will 

be used by BLM and the other land managing agencies in 2008 to purchase lands. 

The funding source for these acquisitions will be tracked under newly established 

subactivity accounts the FLTFA, and FLTFA land Acquisition. 

• Land Withdrawals - BLM will continue to review withdrawals in 2008, and anticipates 

revoking withdrawals for 150,000 acres in 2008 and 125,000 acres in 2009; however, 

the acreage for which withdrawals are revoked is dependant on the terms of each 

individual withdrawal. BLM will also continue to process extensions of existing 

withdrawals upon application. 

• Military Base Closure Issues - BLM anticipates an increased workload over the next 

few years to process the relinquishments and a corresponding increase in lands 

managed by BLM, with an estimated $100,000 of expenses in 2007 and a similar 

workload in 2008. 

2009 Planned Program Performance- In 2009, BLM estimates it will collect more than 

$15 million in cost recovery fees for new rights-of-way, amendments, assignments and 

renewals. 

Strategic Use of Performance and Cost Data in the Land and Realty Management 

Program 

BLM has experienced a 10 percent increase in applications for energy type rights-of-way 

annually. With the demand for large, complex energy rights-of-way, such as interstate 

natural gas pipelines, interstate electric transmission lines and wind energy development 

projects, a need was identified for an experienced single point-of contact for the industry 

to work with throughout the processing of the application, NEPA preparation and 

subsequent construction of the facility. 

The rights-of-way Project Manager program was developed to respond to requests from 

BLM’s right-of-way applicants, and field offices. Major benefits have been better customer 

service to both our industry customers as well as field offices by locating these positions in 

the field, close to the projects while maintaining minimum budget impacts to BLM because 

the position salaries and expenses are primarily cost recoverable. Project managers are 

currently responsible for 18 major projects including energy development projects such as 

oil and gas pipelines, wind and solar energy development projects, power generation 

plants, and electric transmission lines.

• Land Sales - The Federal Land Transaction Facilitation Act of 2000 authorizes BLM 

to use certain proceeds from land sales to acquire privately owned in-holdings and 

other lands with exceptional resource values within applicable areas managed by 

BLM, U.S. Forest Service, U.S. Fish and Wildlife Service, and National Park Service. 

At the end of 2008, the BLM estimates receiving a cumulative amount of $94 million 

in receipts from land sales. 

 

• Military Base Closure Issues - BLM anticipates an increased workload over the next 

few years to process the relinquishments and a corresponding increase in lands 

Section III- Management of Lands and Resources Page III-258 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-259 

managed by the BLM, with an estimated $100,000 of expenses in 2008 and a similar 

workload in 2009.
Bureau of Land Management 2009 Budget Justifications 

LANDS AND REALTY MANAGEMENT PERFORMANCE SUMMARY 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 President's Budget Change from 200

Plan to 2009 

Number of megawatts of installed capacity authorized on public land for renewable energy development. (SP) 

new 

measure 

new 

measure 

new 

measure 

Establish 

Baseline 458 595 700 +2% 

Comment: * Support Measure - No cost will be shown. Percent of wind farms incorporating best management practices for protecting raptors, and other birds and bats. [SP] 

new 

measure 

new 

measure 

28% 

35/ 125 

38% 

55/ 145 

59% 

93/158 

63% 

113/ 178 

72% 

143/ 198 +9% 

Comment: 

 * Support Measure - No cost will be shown. All wind energy development rights-of-way grants on pubapproved after 11/2005, will incorporate best management practices for protecting raptors and other bApproximately 20 new wind energy rights-of-way grants are approved each year. In addition, beginninapproximately 10 existing wind energy rights-of-way grants are scheduled for renewal each year and wincorporate best management practices in order to be renewed. 

Percent of pending cases of right-of-way permits and grant applications in backlog status. (SP/PART) 

28% 

1,007/ 

3627 

30% 

1,117/ 

3690 

31% 

1,350/ 

4300 

30% 

1,100/ 

3,666 

47% 

1,492/ 

3,153 

47% 

1,492/ 

3,153 

42% 

1,324/ 

3,153 

-5% 

Comment: * Support Measure - No cost will be shown. Trend shows how industry demand for energy related RO

the backlog thru 2007. 

Average cost to process a minor category right-of-way permit or grant application (major types of rights-of-way reported separately). (Bur/PART) 

new 

measure 

new 

measure 

new 

measure $700 $700 $700 $700 0% 

Comment: * Support Measure - No cost will be shown. Average length of time required to process a minor category right-of-way permit or grant application. (Bur/PART) 

new 

measure 

new 

measure 

new 

measure 60 days 60 days 60 days 60 days 0% 

Comment: * Support Measure - No cost will be shown. 

Section III- Management of Lands and Resources 
Bureau of Land Management 2009 Budget Justifications 

LANDS AND REALTY MANAGEMENT PERFORMANCE SUMMARY 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 President's Budget Change from 200

Plan to 2009 

Land Title Records: Number of public land title records posted on the internet to assist title, survey, historical, and genealogical research and retrieval. (Bur) 

106,299 

records 

150,151 

records 

260,397 

records 

200,000 

records 

238124 records 

125,000 

records 

125,000 

records 0% 

Total Actual/Projected Cost per Record ($000) $38,296 $41,955 $35,359 $0 $30,700 $24,784 $23,981 -$803 Actual/Projected Cost per Mile (in dollars) $360 $279 $136 $0 $129 $198 $192 -$6 Comment: Results shown for 2004-2007 reflect accomplishments associated with a wide range of benefiting prog

Beginning in 2008, only the accomplishments funded by BLM's Lands programs will be recorded in thi

Increase the acreage of land disposals and conveyances completed outside Alaska. (Bur/PART) 

40,200 121,046 121,788 11,500 84,363 30,000 30,000 0% 

Total Actual/Projected Cost ($000) $7,822 $5,640 $5,166 $0 $5,139 $5,297 $5,143 -$154 Actual/Projected Cost per Acre (in dollars) $195 $47 $42 $0 $61 $177 $171 -$6 Comment: 

Projects funded in prior years were completed in 2006. New bureau performance measures were addthe Southern Nevada Public Land Transfer Act, which will change the results of this measure beginnindisposals and conveyances are based on actual project acres which will vary each year. 

Increase the number and acreage of land exchanges and acquisitions to improve land tenure distribution. (Bur/PART) 

40,712 90,655 72,887 25,000 46,560 4,434 333 -92% 

Total Actual/Projected Cost ($000) $225,468 $193,078 $80,069 $0 $141,973 $109,300 $105,189 -$4,111 Actual/Projected Cost per Acre (in dollars) $5,538 $2,130 $1,099 $0 $3,049 $24,650 $315,822 $291,17Comment: Results for the Southern Nevada Public Lands Management Act (SNPLMA) are included in 2004-2006

developed separate bureau measures in 2006. 

Percentage of total acreage of land sales offered by competitive or modified competitive means. (Bur/PART) 

new 

measure 

new 

measure 

new 

measure 

90% 

82% 

9,694/ 

11,849 

82% 

9,694/ 

11,849 

82% 

9,694/ 

11,849 

0% 

Section III- Management of Lands and Resources 
Bureau of Land Management 2009 Budget Justifications 

LANDS AND REALTY MANAGEMENT PERFORMANCE SUMMARY 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 President's Budget Change from 200

Plan to 2009 

Total Actual/Projected Cost ($000) $0 $0 $0 $0 $9,601 $9,570 $9,541 -$29 Actual/Projected Cost per Acre (in dollars) $0 $0 $0 $0 $990 $987 $984 -$3 Comment: Number of ROW actions completed to provide for use of public lands (Bur) 

new 

measure 

new 

measure 

new 

measure 

2755 7,140 7,140 2,925 +3% 

Total Actual/Projected Cost ($000) 0 0 0 0 35,821 36,941 36,669 -272 Actual/Projected Cost per ROW (in dollars) $0 $0 $0 $0 $5,017 $5,174 $12,537 $7,363 Comment: Process Realty Permits/Licenses/Easements. (number) * 807 1,105 797 725 883 725 650 -75 Process Right-of-Way Grants. (number) ** 4,392 4,498 3,365 3,500 2,865 3,500 3,474 -26 Process Land Exchanges - Disposals (acres) *** 9,015 19,756 28,549 20,000 31,247 20,000 20,000 0 Process Land Exchanges - Acquisitions (acres) *** 4,733 92,357 44,770 20,000 19,846 20,000 20,000 0 Conduct Realty Inspections. (number) 3,471 5,978 3,105 3,800 3,052 3,800 3,100 -700 *Does not include geophysical permits. **Measure changed to include only ROW grants, amendments and renewals. *** Measure for Processing land exchanges split into two measures, one for disposals and one for acquisitions, now reported in acres. The 2009 column reflects a performance decrease of 26 rights-of-way grants which will be shifted to the new National Monuments and National Conserv

subactivity. 

Section III- Management of Lands and Resources 
Bureau of Land Management 2009 Budget Justifications 

Activity: Communication Site Management 

Subactivity: Communication Site Management

Activity: Communication Sites Management 

Subactivity: Communication Sites Management 

 2009 

 Fixed Costs & Program Change 

 2007 2008 

Related 

Changes Changes Budget 

from 

2008 

 Enacted Enacted (+/ -) (+/ -) Request (+/-) 

Communication Sites ($000) 2,000 2,000 0 0 2,000 0

Communication Sites Offset ($000) -2,000 -2,000 0 0 -2,000 0

 

FTE 19 19 0 0 19 0

Other Major Resources: 

 

Major Program IT Investments: 

 

JUSTIFICATION OF 2009 PROGRAM CHANGES

The 2009 budget request for the Communication Site Management is $2,000,000 and 19 

FTE. The request will be offset by $2,000,000 in rental fees. 

PROGRAM OVERVIEW

Program Components - Communication sites on public lands provide for the 

transmission of television and AM/FM radio broadcasts, cellular and mobile telephone 

service, mobile radio service, and common carrier and private microwave transmissions. 

These sites are generally located on areas of higher elevations such as mountain tops, 

hills, or buttes. Equipment at a communication site generally consists of a tower 

structure for placement of antennas to receive and transmit a particular frequency, and a 

building or shelter to house other types of equipment. Other improvements may include 

fuel tanks, utility lines, roads, and perimeter fences. A typical lease for one facility may 

encompass a 60 foot by 60 foot area for self-supporting towers, or a 300 foot by 300 foot 

area for towers requiring the use of guyed wires. A communication site generally 

accommodates multiple facilities and a variety of different communication uses, and 

often has multiple users at the site. 

BLM processes applications for communications sites from commercial, private, and 

governmental entities under Title V of the Federal Land Policy Management Act, 

(FLPMA) and issues a right-of-way use authorization for the communication site. To 

date, BLM has authorized over 3,500 separate rights-of-way for communication sites. 

Prior to 1996, each user had to have a separate authorization, even when users shared 

a site. In response to the Telecommunications Act of 1996, BLM implemented new 

regulations and policies in 1997 that greatly simplified and streamlined the authorization 

and administration of these uses. BLM now requires only the owners of the towers and 

Section III- Management of Lands and Resources Page III-263 
Bureau of Land Management 2009 Budget Justifications 

facilities to have right-of-way authorizations, while other users of the site can collocate in 

these facilities, as tenants or customers, without further approval from BLM. 

Both the FLPMA and the Telecommunications Act of 1996 require holders of 

communication rights-of-way (ROW) (unless specifically exempted by statute or 

regulation) to pay market value rent for locating communications equipment on the 

public lands. Of the 3,555 total authorizations, 47 percent or 1,681 are exempted from 

the payment of rental fees. Rent is assessed to the holder of the lease based on the 

highest value use in the facility, plus 25 percent of the scheduled rent for all other uses, 

unless the use is exempted from rent by statute or regulation. A national rent schedule 

has been adopted based on the type of use and the population of the community being 

served by the facility or site. Separate appraisals, which are time consuming and 

expensive, are no longer used to establish rent for those uses covered by the schedule. 

As a result of these changes, rental fees from authorized public land communication site 

users have increased from under $2.0 million in 1996, to over $5.1 million in 2007. 

Prior to 1996, BLM had implemented very few communication site management plans, 

had a significant backlog of pending applications to process, and was collecting rent 

based on outdated appraisals. By appropriating a portion of the total rent funds 

collected in the program, Congress has provided BLM with the necessary funds to 

greatly improve the overall management and administration of communication sites 

located on public land, and returning a greater amount each year to the general funds. 

Means and Strategies – The Communication Site Management Program addresses the 

priorities of the program through partnerships and FLPMA by: 

• Training of employees 

• Timely processing of new sitting requests 

• Decision within 60 Days 

• Periodic site inspections 

• Completion of Site Management Plans 

• Administration of existing sites and authorizations 

• Timely and accurate rental billings 

Long Term Vision - The long term vision of the communication site program is to 

continue to grant authorizations under Title V of FLPMA to any qualified individuals, 

businesses, or governmental entities and to administer these authorizations and uses on 

public lands in a manner that: 

(a) Protects the natural resources associated with public lands and adjacent 

lands, whether private or administered by a government entity; 

(b) Prevents unnecessary or undue degradation to public lands; 

(c) Promotes the use of communication site rights-of-way and leases in common 

considering engineering and technological compatibility, national security, 

and land use plans; and 

(d) Coordinate, to the fullest extent possible, all BLM actions under this program 

with state and local governments, interested individuals, and appropriate 

quasi-public entities. 

Section III- Management of Lands and Resources Page III-264 
Bureau of Land Management 2009 Budget Justifications 

Critical Factors - Partnerships- In 2007, the ROW program strengthened several 

partnerships. These strengthened partnerships helped us improve a suite of BLM & 

inter-agency/industry sponsored ROW management courses. These strong 

partnerships helped us draft environmentally sound and fiscally responsible regulations. 

They also allowed BLM with the Departments' of the Interior, Energy, Defense, 

Commerce, and Forest Service collaborators publish a Draft West-wide Energy Corridor 

Programmatic Environmental Impact Statement pursuant to Section 368 of the Energy 

Policy Act of 2005. This Programmatic Environmental Impact Statement (PEIS) is an 

important step in designing a national grid to deliver energy products w/out congestion & 

in a reliable manner. 

Other Funding Sources – In addition to the funding provided by this subactivity, the 

Communication Site Management program relies on processing and monitoring (cost 

recovery) fees assessed to new applicants that wish to site communication facilities on 

public lands. These fees are receipted into and expended from the Major Category 

Rights-of-Way, (ROW) (requires project number) and Minor Category Rights-of-Way. 

State and local governmental entities are exempt from these fees. 

Strategic Plan – The Communication Site Management program supports the Resource 

Use mission goal of the Department’s Strategic Plan by providing transmission of 

television and AM/FM radio broadcasts, cellular and mobile telephone service, mobile 

radio service, and common carrier and private microwave transmissions. These sites 

are generally located on areas of higher elevations such as mountain tops, hills, or 

buttes, for managing the use of the public lands. The end outcome goal of the Resource 

Use mission goal is to manage and influence the use of the public land resources to 

enhance public benefits, promote responsible use, and ensure optimal values for 

energy. The Communication Site Management program provides communications for 

the use of the public lands to meet this end outcome goal. The BLM plays a vital role in 

managing and facilitating access to energy resources not only through its leasing 

function, but also through the issuance of rights-of-way that authorize private energy 

producers and transporters to build the necessary infrastructure on public lands to 

produce or transport energy. A key intermediate outcome measure is to reduce the 

number of pending cases of right-of-way applications. 

The Communication Site Management program also supports the Serving Communities 

mission goal of the Department’s Strategic Plan, through the use of television and 

AM/FM radio broadcasts, cellular and mobile telephone service, mobile radio service, 

and common carrier and private microwave transmissions, of numerous uses of the 

public lands that benefit communities, local governments and individuals. Key 

intermediate outcome measures for the Serving Communities mission goal include 

increasing the acreage of approved land disposals; increasing the acreage of land 

exchange and acquisitions to improve land tenure distribution; and increasing the 

acreage of revocation of unneeded withdrawals of the public lands to improve resource 

management. 

Section III- Management of Lands and Resources Page III-265 
Bureau of Land Management 2009 Budget Justifications 

McClelland Peak Communication Site 

Carson City Field Office 

2009 PROGRAM PERFORMANCE

2007 Accomplishments - In 2007, the major accomplishments in the Communication 

Site Management program included the following: 

• Administered over 3,500 communication use authorizations, including the inventorying 

of the types and number of communication uses within each authorized facility. 

• Completed and implemented 38 final communication site management plans. 

• Processed 187 right-of-way actions, including issuance of new leases and rights-ofway to new holders, amendments to and renewal of existing authorizations, and 

assignments of authorizations from one holder to another, exceeding the target of 157 

right-of-way actions. 

• Completed 458 compliance inspections of new and existing communication sites. 

Several of these inspections were accomplished in cooperation with the Federal 

Communication Commission, as well as the users of the facilities and sites. This 

exceeded the planned target of 385 compliance inspections, mainly due to an increased 

emphasis on combining site inspection work while visiting field locations to develop site 

management plans. 

• Trained over 180 agency and industry employees on communication use policy and 

wireless system technology, as well as over 100 BLM and U.S. Forest Service line 

managers on their role and responsibilities in the communication site management 

program. 

The Communication Site Management program continues to be a very high priority with 

our field offices. In 2007, the BLM approved 347 new and amended communication site 

Section III- Management of Lands and Resources Page III-266 
Bureau of Land Management 2009 Budget Justifications 

authorizations. Seventy-five [75] communication site ROW were assigned and/or 

renewed. All these authorizations were approved after thoughtful analysis and included 

enforceable stipulation that protect the health, safety and the environment. 

2008 Planned Program Performance - The focus of the Communication Site 

Management Program for 2008 is to continue to process applications for 

communications site leases and rights-of-way, as well as, applications for assignments, 

amendments, and renewals. In addition, BLM will continue to emphasize site 

administration and management. BLM expects to complete 25 final communication site 

management plans in 2008; process 60 actions for lease/grant issuances, rejections, 

amendments, and renewals; process 40 actions for assignments, cancellations, 

relinquishments, and other administrative work; and complete 100 site/facility 

inspections. BLM will also train over 50 agency and industry personnel on the sitting 

and administration of communication uses on public land, plus train 75 BLM and Forest 

Service line managers on their role and responsibilities in the communication site 

management program. In 2008, BLM expects to collect over $5.2 million in rental fees. 

2009 Planned Program Performance - In 2009, BLM will continue to process 

applications for communications site leases and rights-of-way, as well as, applications 

for assignments, amendments, and renewals. The BLM will also continue to emphasize 

site administration and management. BLM expects to complete 30 final communication 

site management plans in 2009; process 65 actions for lease/grant issuances, 

rejections, amendments, and renewals; process 50 actions for assignments, 

cancellations, relinquishments, and other administrative work; and complete 120 

site/facility inspections. BLM will also train over 60 agency and industry personnel on 

the sitting and administration of communication uses on public land, plus train 75 BLM 

line managers on their role and responsibilities in the communication site management 

program. In 2009, BLM expects to collect $5.4 million in rental fees.

Section III- Management of Lands and Resources Page III-267 
Bureau of Land Management 2009 Budget Justifications 

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Section III- Management of Lands and Resources Page III-268 
Bureau of Land Management 2009 Budget Justifications 

Section III - Management of Lands and Resources Page III-269 

Activity: Resource Protection and Maintenance 

Activity Summary ($000) 

 2009 

 Fixed Costs & Change 

 2007 2008 

Related 

Changes 

Program 

Changes Budget 

from 

2008 

Subactivity Enacted Enacted (+/ -) (+/ -) Request (+/-) 

 Resource Mgt 

Planning $ 49,153 47,486 +646 -4,740 43,392 -4,094

 FTE 311 297 0 -34 263 -34

 Resource Protection 

& Law Enforcement $ 20,062 22,633 +337 -702 22,268 -365

 FTE 128 141 0 +7 148 +7

 Hazardous Materials 

Mgt $ 15,939 15,859 +207 +758 16,824 +965

 FTE 100 97 0 -1 96 -1

Total Activity $ 85,154 85,978 1,190 -4,684 82,484 -3,494

 FTE 539 535 0 -28 507 -28

ACTIVITY DESCRIPTION

The Resource Protection activity funds land use planning and compliance processes required 

by the National Environmental Policy Act and Federal Land Policy and Management Act. This 

activity supports all mission goals from the Department’s Strategic Plan by enabling the BLM to 

manage resources to enhance resource use, resource protection, recreation use, and serving 

communities. For example, the Law Enforcement program supports the Serving Communities 

mission goal from the Department’s Strategic Plan by providing for the protection of lives, 

resources and property. Key intermediate outcome measures of performance include reducing 

the number of illegal incidents leading to damage or loss to Federal or private property located 

on BLM-managed or influenced lands (Refer to the performance overview table at the end of 

each program discussion). 

There are three subactivities within the Resource Protection and Maintenance Activity. All three 

subactivities contribute to the protection and safety of public land users and environmentally 

sensitive resources. 

• Resource Management Planning 

• Resource Protection & Law Enforcement 

• Hazardous Materials Management 

They also provide for protection from criminal and other unlawful activities and the prevention, 

mitigation, and remediation of the effects of hazardous material releases and other dangers on 

the public lands. The land use planning function is based on collaboration with local 

communities and State and tribal governments, as well as on good science-based analysis.
Bureau of Land Management 2009 Budget Justifications 

Section III - Management of Lands and Resources Page III-270 

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Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-271 

Activity: Resource Protection and Maintenance 

Subactivity: Resource Management Planning 

Activity: Resource Protection and Maintenance

Subactivity: Resource Management Planning 

 2009 

 Fixed Costs & Change

 2007 2008 

Related 

Changes 

Program 

Changes Budget 

from 

2008 

 Enacted Enacted (+/ -) (+/ -) Request (+/-) 

Resource Mgmt. Planning 

($000) 49,153 47,486 +646 -4,740 43,392 -4,094

 

FTE 311 297 0 -34 263 -34

Other Major Resources: 

 

Major Program IT Investments: 

ePlanning: 010-04-01-07-01-0409-00 2,375 2,000 -1,450 550 -1,450

Summary of 2009 Program Changes for Resource Management Planning 

Request Component $0 FTE

Program Changes: 

• Restoration of NLCS funding to 2008 Request level -221

• Organizational & Administrative Streamlining -182 -1

• Travel & Relocation expenses -215 -1

• Performance Contracting savings -129

• Restoration of Program funding to 2008 Request level -985

• General Program Reduction -3,008 -33

TOTAL, Program Changes -4,740 -35

JUSTIFICATION OF 2009 PROGRAM CHANGES

The 2009 BLM Budget request for the Resource Management Planning subactivity is 

$43,392,000 and 231 FTE. This represents a net program decrease of -$4,740,000 and -63 

FTE from the 2008 enacted level. 

Restoration of NLCS to 2008 Request Level (-$221,000) - In 2008, Congress provided an 

additional $221,000 in the Resource Management Planning program for planning projects within 

the National Landscape Conservation System. This budget does not retain the increase in 

order that program focus on higher priority projects. 

Restoration Program Funding to 2008 Request Level (-$985,000) - In 2008, Congress 

provided $985,000 to fund core functions within the Resource Management Planning program, 

including NLCS activities. The BLM proposes a reduction of this amount in order to address 

higher priorities. The BLM will continue to restore and maintain core functions in the Resource 

Management Planning program by focusing on the highest priority planning projects and 

promoting efficiencies where possible. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-272 

General Program Reduction (-$3,008,000 / -33 FTE Positions) - The BLM proposes a $3.008 

million reduction for the Resource Management Planning program. With the proposed 

reduction, the BLM will focus resources on completing on-going energy related land use plans in 

Utah, Wyoming, and Colorado. The BLM anticipates that no new Resource Management Plans 

(RMP) will be started in 2009. 

 

Program Performance Change Table

2005 

Actual 

2006 

Actual 2007 Actual 2008 Plan 

2009 Base 

Budget 

(2008 Plan + 

Fixed 

Costs) 

2009 

President’s 

Budget 

Program 

Change 

Accruing 

in 2009 

Program 

Change 

Accruing 

in Outyears 

A B=A+C C D 

Prepare Final Land 

Use Plan 

Amendment and 

Record of Decision 

(number) 

2 4 1 4 3 3 0 -10 

Total 

Actual/Projected 

Cost ($000) 

$779 $1,421 $1,327 $5,309 $5,309 $1,095 -$4,214 $0 

Projected Cost per 

workload measure. $389,658 $355,464 $1,327,225 $1,327,225 $1,769,667 $365,000 $0 $0 

The 2009 column shows a reduction for the 2008 unrequested increases that will not be carried forward as well as the 2009 

program reduction for a total decrease of $4,214,000. The reductions will affect new planning starts in 2009, resulting in 10 

fewer plans being finalized in out years. 

Comments 

Note: Projected costs may not equal program change as these are full costs, which may include funds from other sources and 

(or) use averages. 

Column D: Outyear performance beyond 2009 addresses lagging performance — those changes occurring as a result of the 

program change (not total budget) requested in 2009. It does not include the impact of receiving the program change again in a 

subsequent out-year. 

PROGRAM OVERVIEW

Program Components – Resource Management Planning (RMP) is the foundation of effective 

National Public Land Management. Plan decisions, made in collaboration with the public and 

other agency partners, describe the resource conditions desired and how land uses will be 

managed to achieve those conditions. Plan decisions are the basis for every on-the-ground 

action the BLM takes. The Resource Management Planning program facilitates interdisciplinary 

work to accomplish the entire decision making cycle of plan development, plan implementation, 

assessment, inventory, monitoring, evaluation, maintenance, and amendment. This cyclical, 

adaptive decision-making process allows the BLM to make continuous adjustments to respond 

to new issues, changing public demands and changing resource conditions. Through 

collaboration and partnerships, the planning process helps BLM determine how best to manage 

public lands to meet the needs of both local communities and the Nation as a whole. The 

planning process has four components: 

• Plan Revision/Development 

• Plan Implementation 

• Plan Assessment, Inventory, and Monitoring 

• Plan Evaluation, Maintenance and Amendment 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-273 

Plan Implementation

Plan Assessment, Inventorying,

 & Monitoring 

Plan Evaluation, Maintenance, 

& Amendment

\

Plan Revision\Development

 

The BLM has completed 50 RMP revisions and major plan amendments since the current 

planning initiative began in 2001. Since 2001 the BLM has been able to triple its production of 

plan revisions and thereby better coordinate its efforts in adjusting to the public’s growing use of 

BLM lands as well as to the profound changes in resource conditions experienced across the 

West. Currently, there are 59 revisions or major amendments in progress which will result in 70 

Records of Decision. Multiple Records of Decisions from one planning effort are a result of the 

BLM’s strategy to streamline the process by combining the National Environmental Policy Act 

(NEPA) review of multiple plans into one NEPA document for units that have similar issues. 

The BLM has approximately 30 pending RMP revisions. Improved management of the number 

of on-going plans in 2009 will allow the BLM to manage the work on the remaining revisions to 

ensure completion within the 4 year performance goal. 

Strategic Use of Performance and Cost Data in the Resource Management Program 

During the next several years, as the number of resource management plan completions increase, funds 

need to be incrementally redirected to support identification of plan implementation priorities, plan 

effectiveness, monitoring and evaluation, plan maintenance, and targeted amendment. In addition, BLM’s 

funding for NEPA analysis will be increased to ensure effective plan implementation in support of major 

Bureau emphasis areas, and to respond to increasing NEPA litigation workload. 

In order to meet this need, the BLM developed a systematic funding strategy for both plan development and 

base funding needs. This funding strategy provides direction on funding future land use plan development, 

revision, and multi-issue amendments and base needs for BLM Planning and NEPA expertise to implement, 

monitor, and evaluate plan decisions, as well as keep plan decisions current.

Long Term Vision – The central goal or vision of the Resource Management Planning 

program is to provide the BLM, in an accurate and timely manner, with the plans it needs to 

effectively manage the 258 million surface acres and over 700 million acres of subsurface 

Federal minerals. 

• The Resource Management Planning program is focusing on revisions or amendments 

of 59 ongoing or new plans, and the revision of approximately 30 pending RMPs. The 

BLM has given priority to completing plans that address increased demands for oil and 

gas leasing, legislatively-mandated plans for National Monuments and National 

Conservation Areas, or early avoidances or resolution of prospective litigation, appeals, 

and protests. Also, the Planning program will support implementation of the Healthy 

Lands Initiative by providing technical NEPA guidance as well as planning assistance. 

• The BLM has completed 50 RMP revisions and major amendments since the current 

planning initiative began in 2001. As a greater number of RMPs are completed, the 

Planning program focus is shifting greater resources to plan implementation and 

evaluation, as well as assessment, inventory, and monitoring as per the BLM’s 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-274 

Assessment Inventory and Monitoring Strategy (AIM). As a result, the Planning 

program is in the process of reducing its total number of ongoing plan revisions. 

Critical Factors – The Resource Management Planning program faces a number of critical 

factors affecting its ability to develop the plans BLM needs to effectively manage its lands for 

the public good. These factors in some ways mirror the broader challenges that the BLM itself 

is facing, and include: 

 

• The rapid population growth of the Western United States that has brought more people 

with a greater diversity of interests and values into direct contact with BLM land. This 

change requires that many, if not all of the BLM’s land use plans, be adapted to reflect 

this growth in public demand so that the BLM can effectively manage its lands in 

accordance with its multiple use mission and goal. The current planning initiative has 

since 2001 begun to address the problems posed by these demographic changes. 

• The planning process is inherently time consuming and costly. Planning does not end 

with the creation of the plan itself. The plan must be implemented, assessed, monitored 

and evaluated to ensure that its decisions meet changing public demand and resource 

conditions. 

• With over 150 plans in operation, the Planning program faces a difficult challenge to not 

only create plans but to also successfully implement, monitor and evaluate them in the 

face of rapid population growth, changing resource conditions, climate change and 

other external factors requiring constant reconsideration. 

• By addressing the broad scope of issues, resources, and demands related to the 

management of the public lands, the BLM’s planning process often involves a highly 

complex environmental analysis. Such complexities often result in the need for greater 

public and cooperating agency participation in the planning process. While such 

participation is both necessary and welcome, it also increases the likelihood that conflict 

between one or more of the interested parties will ensue. Such conflict is typically time 

consuming and costly. 

Means and Strategies – The Resource Management Planning program addresses program 

priorities by: 

• Completing a Bureau-wide workload analysis in 2008 to clarify the base work funding 

needs and strategies to ensure successful accomplishment of plan implementation, 

assessment, inventory, monitoring and evaluation. This workload analysis will identify 

the Resource Management Planning and NEPA skills necessary to provide overall BLM 

support needed for multiple resource programs. These programs accomplish on-theground actions to meet desired resource condition goals and public demand for the use 

of Public Land resources. 

• Completing a systematic funding strategy for targeted revisions or amendments of 

existing decisions to ensure that RMP decisions adapt to changing resource conditions 

and public demand through systematic maintenance and amendment actions. 

• Creating an “Assessment, Inventory, and Monitoring (AIM) Strategy” to manage the 

collection, storage, and use of information about the resources the agency manages. 

The strategy provides the means for gathering and analyzing this kind of information, 

and such work represents a large percentage of the BLM’s day-to-day operations. 

Implementation of the strategy will continue to identify data gaps and coordinate the 

collection and reporting of key performance data, as well as monitor the health of public 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-275 

lands. This information is essential in order to assess the effectiveness of the BLM’s 

planning decisions. 

• Developing an innovative application for project management, plan development and 

public participation. The ePlanning application is a relational database approach to 

creating, managing, sharing, and reviewing land management and NEPA information in 

accordance with paper and digital publishing requirements. Textual and related spatial 

information is created and shared in a team-based environment using the Internet, 

Geographic Information Systems (GIS) technology, and dynamic content management. 

The ePlanning application, once fully operational, is anticipated to bring greater 

efficiencies to the planning program in managing the complex land use planning 

process. 

Other Funding Sources – The BLM has been highly successful in using and leveraging its 

resources. The Resource Management Planning program benefits greatly from the 

involvement, data, and technical expertise provided by cooperating agencies (e.g., local, state, 

and other federal agencies) who participate in the land use planning process, though no funds 

are provided for direct support of plan development. 

Strategic Plan – RMPs provide landscape level agency decisions from which all on-the-ground 

decisions are based. This includes all decisions related to how the BLM supports 

implementation of DOI Strategic Plan goals and objectives for land and cultural resource health, 

energy resource use, recreation use and community service. By providing the framework within 

which the BLM manages its resources, the Planning program helps to ensure that the BLM is 

focused on achieving the goals established to manage its resources for the public good in a 

multiple use context. 

2009 PROGRAM PERFORMANCE

2007 Accomplishments – In 2007, the BLM completed the 49th new or revised major land use 

plan and plan amendment since 2001. The following is a summary of Planning program 

accomplishments in 2007: 

• Six RMPs were completed and signed, compared to four in 2006; 

• Twenty-one Draft RMPs/EISs were completed in 2007, compared to 10 in 2006; 

• Seven Final Proposed RMPs/Final EISs were published in 2007, compared to eight in 

2006; and 

• One major, time-sensitive land use plan amendment was completed and signed in 2007 

– the Roan Plateau (CO) plan - and six other land use plan amendments were 

completed in Oregon. 

2008 Planned Program Performance – The BLM plans to complete 27 RMPs and major plan 

amendments in 2008. Eight of the RMPs that will be completed in 2008 are related to energy 

development, a BLM priority. Several RMPs that were originally scheduled to be completed near 

the end of 2008 will conclude in 2009. Project completion dates for these plans have been 

extended due to the need for additional time required for: 

• Collaboration with local communities and coordination with cooperating agencies during 

the planning process; 

• Addressing complex natural resource issues in the planning documents; and 

• Maintaining the quality of NEPA documents in light of increasing legal challenges. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-276 

BLM has been working to develop new performance measures to assess the efficiency 

(timeliness) and effectiveness (implementation) of the program. The BLM developed a 

performance measure for efficiency which reflects the percentage of RMPs completed within 

four years (from plan initiation, or publication of the Notice of Intent in the Federal Register, until 

signing of the Record of Decision). 

The BLM also is developing a performance measure to reflect the effectiveness of implementing 

our RMPs. The scope of this measure is dictated by the effectiveness of new RMPs. 

To improve program performance in this area, the BLM is continuing to implement the 

Assessment, Inventory, and Monitoring Strategy in 2008 to identify data gaps and coordinate 

the collection and reporting of key performance data, as well as to monitor the health of the 

public lands. This information is essential in order to assess the effectiveness of the BLM’s 

RMPs. The BLM will use the findings and recommendations from the program assessment to 

continue improving the Resource Management Planning program. 

Assessment, Inventory, and Monitoring (AIM) Strategy 

In 2008, the BLM will finalize Regional and National Level reports, which will be consolidated 

with local level reports to develop the vision for the AIM Strategy. This vision contains elements 

to be implemented over the next several years, which will allow the BLM to realize its overarching goal of promoting the BLM's efficiency and effectiveness. Success under this strategy 

will be realized when: 1) assessment, inventory, and monitoring work is only conducted to 

support BLM’s ability to make and implement decisions, and to determine the effectiveness of 

those decisions (including planning decisions); 2) the BLM uses a corporate approach for 

acquiring critical assessment, inventory, and monitoring information; and 3) assessments, 

inventories, and monitoring have been integrated across work processes, programs, and scales. 

• A comprehensive analysis of the state of assessments, inventories, and monitoring in 

the BLM. The analysis focuses on past BLM changes to assessment, inventory, and 

monitoring practices that altered requirements in these areas at the field level. Much of 

this information is contained in the now competed Local Work Group Report. 

• A summary of management requirements for assessment, inventory, and monitoring 

information, expressed as management questions at different scales. 

• Data management requirements to corporately manage information about the condition 

of vegetation, air, and water resources using field data capture devices and web-based 

data systems. 

• Modifications to the land health assessment process in coordination with the Healthy 

Lands Initiative. 

• Guidance on the integration of assessments, inventories, and monitoring with the 

development and implementation of land use plans. 

• Protocols for assessing conditions at regional and national levels, and guidance on the 

use of that information in planning efforts and in regional and national-level reporting. 

• Policies to acquire corporate assessment, inventory, and monitoring data (e.g., remote 

sensing, soil survey, and water quality information) as part of an agency-wide acquisition 

strategy. 

• Assessment, inventory, and monitoring technical support (e.g., for the storage and use 

of imagery products) that can be shared across the agency. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-277 

Together, the groups of work products will help BLM implement a strategic vision for 

assessments, inventories, and monitoring for years to come. 

2009 Planned Program Performance – The BLM plans to complete 24 RMPs and major plan 

amendments in 2009. Fifteen of the 24 RMPs and major amendments that will be completed in 

2009 are related to energy development, a BLM priority. 

Several RMPs that were originally scheduled to be completed near the end of 2008 will likely 

conclude in 2009. Project completion dates for these plans have been extended due to the 

need for additional time required for: 

• collaboration with local communities and coordination with cooperating agencies during 

the planning process; 

• requirements to address complex natural resource issues in the planning documents; 

and 

• maintaining the quality of NEPA documents in light of increasing legal challenges. 

Assessment, Inventory, and Monitoring (AIM) Strategy 

In 2009, the BLM will continue the work begun in 2008 of implementing specific 

recommendations of the AIM Strategy strategic vision. This is an ongoing process as the BLM 

continues to realize the strategy’s over-arching goal of promoting the BLM's efficiency and 

effectiveness at multiple scales. With these efficiencies, the AIM Strategy would provide for 

more informed land management decision-making to the benefit of all BLM resource programs. 

 

This strategy will take the appropriate actions to achieve its goals by: 

Working with BLM’s Managing for Excellence Data Subcommittee to: 

• Adopt and develop guidance for standard methods for data collection at multiple scales 

• Purchase and distribute standard devices for the collection of data, 

• Purchase (or construction) and implementation of standard data storage, analysis, and 

data sharing procedures for data 

• Adopt and implement a policy for legacy data 

• Outline and establish a regional support structure for data storage and maintenance 

Continued integration of AIM and the Healthy Lands Initiative by: 

• Developing and implementing guidance that outlines the broad-scale assessment 

process 

• Developing and implementing guidance for using assessments to establish priority 

conservation and rehabilitation areas 

• Adopting and implementing effectiveness monitoring protocol at multiple scales 

• Developing guidance to determine decision points for management actions (Adaptive 

Management) 

• Developing guidance for cross-program integration of assessment, inventory, and 

monitoring work 
 2009 

Section III- Management of Lands and Resources 

RESOURCE MANAGEMENT PLANNING PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 President's Budget Chan

from 20

Plan 

2009 

Percent of plans completed within four years of start. (Bur/PART) no data 55% 6/ 11 55% 11/ 20 60% 12/ 20 30% 6/ 20 75% 6/ 8 100% 3/ 3 +25% Comment: * Support Measure - No cost will be shown. The number of new plan starts varies each year. The planning 

10 year planning schedule. 

Percent of open complaints received from property owners concerning DOI actions affecting status of their private property, resolved within one year. (SP) 

new 

measure 

new 

measure 

new 

measure 

Establish 

Baseline 

100% 

0/ 0 

90% 

9/ 10 

90% 

9/ 10 0% 

Comment: * Support Measure - No cost will be shown. In 2007, no open complaints regarding private property were rec

Lands and Realty staff. 

Evaluate Prepare Land Use Plans (number) 3 11 2 3 1 4 4 0 Prepare Pre- Land Use Plan (number) 13 4 8 4 9 9 2 -7 Complete Land Use Plan Scoping Report/Planning Criteria 12 13 7 8 7 10 0 -10 Prepare Draft Land Use Plans (number) 6 13 10 15 15 18 15 -3 Prepare Proposed LUP/Final Environmental Impact Statement (number) 

9 3 7 24 7 24 13 -11 

Resolve Land Use Plan Protest and Prepare Record of Decision (number) 8 7 4 19 6 25 20 -5 Prepare Draft Environmental Impact Statement level Land Use Plan Amendment (number) 

10 3 1 2 0 3 3 0 

Prepare Final Land Use Plan Amendment and Record of Decision (number) 

4 2 4 3 1 4 3 -1 

Bureau of Land Management 
Bureau of Land Management 2009 Budget Justifications 

Section III - Management of Lands and Resources Page III-279 

Activity: Resource Protection and Maintenance 

Subactivity: Law Enforcement

Activity: Resource Protection and Maintenance 

Subactivity: Resource Protection and Law Enforcement 

 2009 

 Fixed Costs & Change

 2007 2008 

Related 

Changes 

Program 

Changes Budget 

from 

2008 

 Enacted Enacted (+/ -) (+/ -) Request (+/-) 

Res. Prot. & Law Enforcement 

($000) 20,062 22,633 +337 -702 22,268 -365

 

FTE 128 141 0 +7 148 +7

Other Major Resources: 

 

Major Program IT Investments: 

IMARS: 010-04-01-05-03-0018-00 500 454 +115 569 +115

 

Summary of 2009 Program Changes for Resource Protection and Law Enforcement 

Request Component ($000) FTE

Program Changes: 

• Restoration of NLCS funding to 2008 Request level -148

• Redirection of Base funding 0 +12

• Organizational & Administrative Streamlining -43

• Travel & Relocation Expenses -63

• Nat'l Monument & Nat'l Conservation Area funding (new subactivity created) -448 -5

TOTAL, Program Changes -702 +7

JUSTIFICATION OF FY 2009 PROGRAM CHANGES

The 2009 budget request for the Law Enforcement program is $22,269,000 and 148 FTE, a 

program change of -$702,000 and +7 FTE from the FY 2008 Enacted level. 

Reduction of Unrequested NLCS Increase (-$148,000) - In 2008, the Congress provided an 

additional $148,000 in the Law Enforcement program, for Law Enforcement projects in the 

National Landscape Conservation System. This budget proposes reducing the Law 

Enforcement subactivity by $148,000 in order to address higher priorities within BLM. 

Redirection of Base Funding [$3,937,000 / +12 FTE Positions] – In 2008, the Congress 

provided an additional $3,937,000 to assist with law enforcement needs in the vicinity of the 

southwestern border and to supply a general program increase. In 2009, the BLM is proposing 

to carry forward the onetime increase from Congress as base funding in the Law Enforcement 

program. The BLM is using these additional funds in 2008 to add six new Dispatchers to the 

Phoenix Interagency Dispatch Center in Arizona (to give the Center 24/7 response capability), 

upgrade the existing console system, purchase several new radio repeaters and base stations 

to place at remote locations, and add four special agents and seven ranger positions along the 

Southwest border in an effort to provide increased safety for officers and employees in the field. 
Bureau of Land Management 2009 Budget Justifications 

Section III - Management of Lands and Resources Page III-280 

In addition, the law enforcement program increase will be directed towards operational support 

for major investigations into paleontological, oil & gas, wild horse & burro violations and the 

Archaeological Resource Protection Act; providing additional law enforcement presence at high 

visitation areas during holiday weekends and special events; the investigation and eradication of 

marijuana grown on public lands; and the upgrade and replacement of equipment to increase 

officer safety in the field. Some of the investments in the Law Enforcement program involved 

one-time costs, such as start-up costs which include hiring, background investigation costs, 

relocation costs, training and equipment. The 2009 budget redirects the funds used for these 

2008 one-time costs in order to fund labor, supplies, and other costs for operations in the 

Southwest border and non-border areas. For more information related to Law Enforcement 

efforts on the Southwest border, please see the Safe Borderlands Initiative in the 2009 

Emphasis Areas section.

National Monuments and National Conservation Area Funding (new subactitvity created) 

(-$448,000 / -5 FTE Positions) - The BLM is proposing a new subactivity in MLR to fund base 

operations at National Monuments and National Conservation Areas. As a result, $448,000 is 

shifted from the Law Enforcement subactivity to the new subactivity. The funding shifted from 

the Law Enforcement subactivity is funding currently spent in the National Monuments and 

National Conservation Areas to meet the goals of the Law Enforcement program. The funding 

will continue to be spent on Law Enforcement priorities but will be managed through the NLCSNational Monuments and National Conservation Areas subactivity. Performance in the Law 

Enforcement subactivity will decrease due to the funding shift; however, this performance will be 

shifted to the NLCS-National Monuments and National Conservation Areas subactivity and is 

shown in the performance goals for that subactivity. 

Program Performance Change Table 

2005 

Actual 

2006 

Actual 

2007 

Actual 

2008 

Plan 

2009 Base 

Budget 

(2008 + 

Fixed 

Costs) 

2009 

Plan 

Program 

Change 

Accruing 

in 2009 

Program 

Change 

Accruing 

in Outyears 

A B=A+C C D 

NU – Conduct 

Patrol 

Enforcement 

Activities 

1,452 1,922 1,917 *2,921 *2,921 2,873 -48 0 

Total 

Actual/Projected 

Cost ($000) 

$4,551 $5,713 $5,888 $8,974 $8,974 $8826 $148 0 

Actual/Projected 

Cost $3,135 $2,973 $3,072 $3,072 $3,072 $3,072 $3,072 0 

Comments *The 2009 change column shows a reduction of $148,000 for the increase in 2008 that will not be carried forward. 

Note: Projected costs may not equal program change as these are full costs, which may include funds from other 

sources and (or) use averages. 

Column A: The level of performance and costs expected in 2009 at the 2008 level plus funded fixed costs. Reflects 

the impact of prior year funding changes, management efficiencies, absorption of prior year fixed costs, and trend 

impacts, but does not reflect the proposed program change. 

Column D: Outyear performance beyond 2009 addresses lagging performance — those changes occurring as a 

result of the program change (not total budget) requested in 2009. It does not include the impact of receiving the 

program change again in a subsequent out-year. 
Bureau of Land Management 2009 Budget Justifications 

Section III - Management of Lands and Resources Page III-281 

PROGRAM OVERVIEW

Program Components – The two major objectives of the Resource Protection and Law 

Enforcement program are to: 1) protect public land, resources and BLM facilities, and 2) 

maintain safe environments for public land users and employees. The BLM enforces 

regulations that protect fragile environments and preserve natural resource values by ensuring 

appropriate use of public lands through 261 rangers and agents, who are mainly stationed in the 

western United States. 

Two-thirds of BLM-managed lands are within an hour's drive of major urban centers. The Law 

Enforcement program focuses on criminal activities occurring in these interface areas as well as 

on other BLM-managed lands; especially those illegal activities that endanger public health and 

safety, and damage to resources and property. 

Long-Term Vision – The Law Enforcement and Resource Protection program supports all of 

the Mission Areas of the Strategic Plan, with emphasis on the Mission Goal of Servicing 

Communities. The primary outcome goal is Protecting Lives, Resources and Property. To meet 

this objective, the Office of Law Enforcement and Security (OLES), through a proactive 

program: 

• Provides public assistance and responds to 

illegal activities that compromise public 

safety or damage public lands; 

• Promotes visitor safety issues to reduce 

criminal activity on NLCS units and nonNLCS units, focusing on reducing criminal 

activity that threatens the resource & visitor 

safety or property; 

• Enforces off-road vehicle use regulations; 

• Eradicates marijuana and other drug use; 

• Prevents the destruction and stealing of 

cultural artifacts on BLM-managed lands; 

• Enforces the Wild Free-Roaming Horse and 

Burro Act of 1971;

• Aggressively investigates wildland fires to 

determine cause and origin, identify those 

responsible, and recommend criminal 

prosecution of anyone who intentionally sets a fire on public lands;

Imperial Sand Dunes Recreation Area – 

Buttercup Area. The area is popular 

with off-highway vehicle (OHV) 

enthusiasts and is within close proximity 

to the border of Mexico. 

• Prevents damage and theft to BLM’s mineral sites;

• Provides security and protection of resources and public safety on BLM lands near 

international borders, and;

• Investigates and prosecutes the theft of oil and gas from BLM lands.

Critical Factors – Factors that impact the Law Enforcement program include:

• The unpredictable nature of the type, location, and volume of criminal activity, which 

may result in significantly higher or lower actual performance than predicted. 

• Other impacts are affected by unplanned work, relating to natural disasters and fire. 

Means and Strategies – Program performance is affected by the unpredictable nature of the 

type, location, and volume of criminal activity, which is a critical factor that may result in 

significantly higher or lower actual performance than predicted. It is also affected by unplanned 
Bureau of Land Management 2009 Budget Justifications 

Section III - Management of Lands and Resources Page III-282 

work related to natural disasters and fire. There is 

no mechanism in place to measure how much 

crime or illegal activity is prevented or diminished 

by the presence of a law enforcement officer. As 

costs related to criminal activity on public land and 

other demands on law enforcement have 

increased, BLM law enforcement looks at the use 

of technology, interagency efforts and partnerships 

to increase performance.

Other Funding Sources – The BLM receives 

ome additional funding from the Office of National 

trategic Plan – This work supports the Department of Interior’s Strategic Goal of Serving 

009 PROGRAM PERFORMANCE 

007 Accomplishments – 

ate staff rangers, 

• enforcement

nd

• l agents on the investigation of 

aw Enforcement Incident Statistics (provided by BLM LAWNET) – The following table shows 

data on reported incidents and associated enforcement actions for several law enforcement 

s

Drug Control Policy, to help eliminate or reduce 

drug trafficking and the growing and cultivation of 

marijuana on public lands, which continues to be 

an increasing problem each year. 

S

Communities by Protecting Lives, Resources and Property, and the BLM’s budget emphasis 

areas, particularly; improving dispersed recreational opportunities and protecting cultural and 

natural heritage resources. 

2

2

• Hired six new st

one each for Alaska, Colorado, 

Idaho, New Mexico, Utah, and 

Wyoming. There is now one state 

staff ranger in each State Office 

which brings Office of Law 

Enforcement and Security (OLES) 

into compliance with the 

Secretary’s 2002 Law Enforcement 

Directives for BLM. 

Prioritized law 

presence at areas of high visitor 

use on weekends and for events 

related to off-highway vehicle 

recreation, which resulted in fewer 

crowd control incidents as well as a 

decrease in the number of 

enforcement actions such as citations a

Focused the efforts of a select group of specia

Marijuana eradication work done by Law 

Enforcement officers in Arizona. 

Efficient and Effective Use of Resources 

The Office of Law Enforcement and Security 

met to discuss innovative ways to reduce costs 

within its organization. After an analysis was 

done it was determined that staff was carrying 

several electronic devices, a cell phone to 

make and receive calls and a Blackberry to 

retrieve and send e-mail. 

In 2007, all Washington Office staff was 

required to carry just one electronic device. 

Instead of having a cell phone and Blackberry, 

everyone converted to Blackberry’s with cell 

phone service. The Office of Law Enforcement 

& Security realized a 14 percent reduction in 

telephone costs in 2007. 

 arrests. 

cultivation activities in California and Oregon. The efforts of this group as well as the 

special agents currently assigned to those states resulted in the eradication of 

444,315 marijuana plants (a 15 percent increase over 2006) and 77 arrests. 

L
Bureau of Land Management 2009 Budget Justifications 

Section III - Management of Lands and Resources Page III-283 

emphasis areas. A change in the number of incidents from year to year is generally due to the 

unpredictable nature of the type and level of crime that occurs on the public lands. In 2007, the 

number of illegal drug/narcotics incidents has increased while theft, vandalism, wild horse & 

burro, fire and off-highway vehicle related incidents have decreased. Law enforcement 

presence is essential to combating the increasing criminal activity and the protection of BLM 

employees and visitors. 

Crime Statistics in Calendar Year 2007

Type of Incident 2005 2006 % Change 

2005/2006 2007 % Change 2006/2007 

Theft Incidents 562 492 -12.46% 405 -17.68% 

 Theft Enforcement Actions 267 214 -19.85% 210 -1.87% 

Vandalism Incidents 750 685 -8.67% 600 -12.41% 

 Vandalism Enforcement Actions 268 275 2.61% 211 -23.27% 

Illegal Drug/Narcotic Incidents 969 851 -12.18% 1,034 21.50% 

 Illegal Drug/Narcotic Actions 863 735 -14.83% 925 25.85% 

Marijuana Plants Seized 391,603 386,634 -1.27% 444,315 14.92% 

 Pounds of Processed Marijuana Seized 2 7 182 580 247.39% 12,991 71.39% 

Wild Horse & Burro Incidents 123 140 13.82% 88 -37.14% 

 Wild Horse & Burro Enforcement Actions 45 51 13.33% 24 -52.94% 

Fire (including Arson) Incidents 713 746 4.63% 690 -7.51% 

 Fire Enforcement Actions 507 531 4.73% 474 -10.73% 

Off-Highway Vehicle Incidents 5642 5510 -2.34% 5,472 -0.69% 

2008 Planned Program Performance – 08, Co pr an additional 

3,937,000 compared to the 2008 President’s Budget ($2,571,000 over the 2007 enacted level) 

In 20 the ngress ovided

$

to assist with law enforcement needs on public lands in the vicinity of the southwestern border 

and to supply a general program increase. The increased funding in 2008 will support the 

hiring, background investigation costs, relocation costs, training and equipment for several new 

special agents, rangers and dispatchers. 

Safe Borderlands Initiative 2008 2009 

Communications (includes 6 dispatchers) 666,000 549,000 

Special Agents/Rangers rangers) 00 1,170,000 (includes 3 agents & 6 1,862,0

Other Southwest Border Priorities (includes service 

agreements, drug eradication support & other costs) 272,000 622,000 

Subtotal – Safe Borderlands Initiative 2,800,000 2,341,000 

Law Enforcement Program – Outside Border Area (includes 1 

agent, 1 ranger & other costs) 1,137,000 1,596,000 

Grand Total – Law Enforcement 3,937,000 3,937,000 

The following des that will be the orcement 

rogram in 2008: 

ations – Of the $3,937,000 increase in 2008, $666,000 will support six 

dispatchers and the labor, licensing, equipment, training and the general operating costs 

cribes the $3,937,000 million used in Law Enf

p

• Communic

associated with the dispatchers for the Phoenix Interagency Dispatch Center, to give the 

center the capability to provide services 24/7. This also includes updating the dispatch 

console system to meet the needs of today and beyond, adding several new radio 

repeaters and base stations at remote locations (to provide better radio coverage), and 

upgrading, modifying and enhancing several existing remote radio sites, equipment and 

infrastructure.
Bureau of Land Management 2009 Budget Justifications 

Section III - Management of Lands and Resources Page III-284 

•

 support hiring, background investigation costs, relocation costs, training 

•

r dispatch service 

•

a 

curity program for 2008 will be to: 

• Concentrate law enforcement presence at high-visitation areas during holiday 

e use is, to 

•

aping and hazardous waste 

•

ts to interdict drug shipments before they enter the illicit drug market 

•

criminal prosecution of anyone who intentionally sets a fire on public 

Funding fo ill continue to focus on entering into law enforcement agreements with state, 

local and county Sheriff agencies for dispatch service and increased patrol support on BLM 

lands, protecting cultural and historical sites from vandalism; enforcing the Wild Free-Roaming 

Agents/Rangers on the Southwest Border – Of the $3,937,000 increase in 2008, 

$1,862,000 will

and equipment of three new special agents and six new rangers on the Southwest 

border, to provide the additional manpower needed to maintain for public safety. The 

three special agents will be deployed to Arizona, California and New Mexico. Of the six 

new rangers, four will be deployed to Arizona, California and New Mexico and the 

remaining two will be deployed to NLCS units in Arizona and New Mexico. Increased 

law enforcement presence in the border area will protect public lands, resources and 

facilities; maintain safe environments for public land users; and by providing on-theground presence, serving as a deterrent to illegal smuggling activities. 

Other Southwest Border Priorities – Of the $3,937,000 increase in 2008, $272,000 will 

support the investigation and eradication of drugs from public lands, fo

agreements used on the border and other costs for operations near the border areas. 

Law Enforcement Program Outside Border Area – The remaining $1,137,000 of the 

2008 increase will be used to support priorities outside of the Southwest border are

including adding one agent to the Canadian border and one ranger to the NLCS unit in 

Nevada and additional dispatch service agreements in non-border areas. 

The focus of the Office of Law Enforcement & Se

CAD knows where every piece of equipment is at 

all times due to global positioning technology. 

This is commonly referred to as “AVL” or 

Automatic Vehicle Location. This technology not 

only selects the closest most appropriate unit to 

dispatch, it is also a tool used by the Incident 

Taker when reassuring the caller, by being able 

to give them precise information about the units 

distance from the call. 

weekends and special events, where a majority of off-highway vehicl

prevent resource damage and better protect the public; 

Investigate complaints and concentrate on identifying those responsible for the illegal 

dumping of household, commercial, construction, landsc

on public lands; 

Prevent the use of public lands for the growing and cultivation of marijuana and to 

concentrate effor

in the U.S.; and 

Investigate wildland fires to determine cause and origin, identify those responsible, 

and recommend 

lands. 

r 2008 w
Bureau of Land Management 2009 Budget Justifications 

Section III - Management of Lands and Resources Page III-285 

Horse and Burro Act of 1971; preventing damage to BLM’s natural resources and mineral sites, 

providing security and protection of resources and public safety on BLM public lands near 

international borders, as well as focusing more closely on the following areas: 

• Off-Highway Vehicle Use 

• Illegal Dumping 

• Marijuana Eradication 

• Wildland Fire Investigation

ncident Statistics (provided by BLM’s LAWNET system)

2009 P – In 2009, the BLM will retain the increase provided by 

Congress in

• $1,170,000 is retained to continue to 

ing of the 

 South om the 

•

•

• Law Enforcement I

lanned Program Performance

 2008 as base funding, but will redirect a portion of it to other priority needs and 

activities. 

 

The following describes the $3,937,000 that will be 

used in the Law Enforcement program in 2009: 

• Communications – $549,000 is retained to 

support the operational costs of maintaining 

the Phoenix Dispatch Center as well as 

funding the labor and supplies associated 

with hiring the six new dispatchers in 2008. 

The decrease from the $666,000 needed in 

2008 is due to the funding of one-time 

hiring, background investigation costs, 

relocation costs, equipment and other startup costs in 2008. 

Agents/Rangers on the Southwest Border – 

support labor, training and general operations costs asso

three agents and six rangers in 2008 on the

ciated with the hir

west border. The decrease fr

$1,862,000 needed in 2008 is due to the funding of one-time hiring, background 

investigation costs, relocation costs, equipment and other start-up costs in 2008. 

Other Southwest Border Priorities – $622,000 is retained to support dispatch service 

agreements; providing a cache of technical investigative equipment to be used by 

rangers and agents in the field; offering more support for the investigation and 

eradication of drugs from public lands; and providing for overtime and travel costs for 

rangers and agents to support areas of high visitation during holidays and special 

events. Funding will also support the overtime and equipment costs for field operations. 

Law Enforcement Program Outside Border Area – The remaining $1,596,000 will be 

used to continue to support priorities used outside of the Southwest border area, 

including: one agent and one ranger, as discussed in the 2008 section; dispatch service 

agreements; drug cultivation investigative support; technical investigative equipment; 

providing for overtime and travel costs for rangers and agents to support areas of high 

visitation during holidays and special events; the absorption of pay and pay related cost 

increases and increasing funds for general operations to support major investigation into 

crimes involving oil & gas, paleontological, wild horse & burro and the Archaeological 

Resource Protection Act. 

Illegal aliens intercepted by Law 

Enforcement officers in Tucson, AZ. 
Bureau of Land Management 2009 

RESOURCE PROTECTION AND LAW ENFORCEMENT PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 President's Budget Change from 2008 Plan to 2009 

Law Enforcement: Number of serious injuries per 100,000 visitors. [SP] 

0.33% 

177/ 540 

0.26% 

146/ 561 

0.26% 

144/ 553 0 .27% 153/ 573 0.28% 159/ 573 0.28% 159/ 573 0% 

Comments: * Support Measure - No cost will be shown. Law Enforcement: Number of fatalities per 100,000 visitors (SP) 

0.07 

37/ 540 

0.06 

32/ 561 

0.05 

27/ 553 0 0.06 37/ 573 0.06 37/ 573 0.06 37/ 573 0% 

Comments: * Support Measure - No cost will be shown. Law Enforcement: Percent change in Part I offenses that occur on DOI lands or under DOI jurisdiction (SP) 

new 

measure 

new 

measure 

new 

measure 

Establish 

Baseline 

-35% 

-127/ 365 

+26% 

62/ 238 

+4% 

10/ 300 +4% 

Total Actual/Projected Cost ($000) 0 0 0 0 $32,913 $11,482 $11,304 -$178 Actual/Projected Cost per percent change (in dollars) $0 $0 $0 $0 $259 $185 $1,130 -$945 Comments: * Support Measure - No cost will be shown. Law Enforcement: Percent change in Part II offenses (excluding natural, cultural, and heritage resource crimes) that occur on DOI lands or under DOI jurisdiction. (SP) 

new 

measure 

new 

measure 

new 

measure 

Establish 

Baseline 

+5% 

148/ 2974 

+1% 

31/ 3122 

-4% 

-126/ 3153 -4% 

Comments: * Support Measure - No cost will be shown. Law Enforcement: Percent change of natural, cultural and heritage resource crimes that occur on DOI lands or under DOI jurisdiction (SP) 

new 

measure 

new 

measure 

new 

measure 

Establish 

Baseline 

-7% 

-692/ 

10,317 

-5% 

-485/ 

9,625 

+12% 

+1,096/ 

9,140 

+12% 

Comments: * Support Measure - No cost will be shown. Law Enforcement: Percent of incidents/investigations closed for Part I, Part II and natural, cultural and heritage resource offenses. (SP) 

new 

measure 

new 

measure 

new 

measure 

Establish 

Baseline 

59% 

7,596/ 

12,985 

50% 

13,009/ 

26,018 

50% 

19,796/ 

39,591 

0% 

Total Actual/Projected Cost ($000) $0 $0 $0 $0 $8,453 $12,452 $12,267 -$185 

Section III - Management of Lands and Resources 
Bureau of Land Management 2009 

RESOURCE PROTECTION AND LAW ENFORCEMENT PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 President's Budget Change from 2008 Plan to 2009 

Actual/Projected Cost per incident closed (in dollars) $0 $0 $0 $0 $1,113 $957 $620 -$337 Comments: 

Law Enforcement Subactivity 

Conduct Patrol Enforcement Activities (number of incidents) 1,566 1,452 1,922 1,825 1,917 *2921 **2727 +194 Conduct Non Drug Investigative Activities (number of cases cleared) 1,040 1,108 2,024 1,922 2,366 *2,666 2,666 0 Conduct Emergency Response Activities (number of incidents resolved) 

142 788 33 31 21 25 25 0 

Conduct Security Activities (number of vulnerability assessments) 198 215 163 154 131 147 125 -22 Conduct Drug Enforcement Activities (number of seizure incidents) 1,011 1,054 952 904 1,113 *858 925 +67 *The 2008 column includes a general program increase and an increase for the Safe Borderlands Initiative for a total of $3,937 which will result in an adPatrol Enforcement Activities, and 492 Non Drug Investigative Activities, and 20 Drug Enforcement Activities. **The 2009 column reflects a performance decrease of 48 Patrol Enforcement Activities for the 2008 unrequested increase that will not be carried forwa

Patrol Enforcement Activities which will be shifted to the new National Monuments and National Conservation Areas subactivity. 

The unpredictable nature of the type, location, and volume of criminal activity is a critical factor that may result in significantly higher or lower actual perfopredicted. Beginning in 2008, law enforcement performance elements are broken out to show Law Enforcement program targets separate from other co

program targets. All law enforcement activities will continue to be recorded in the LAWNET automated system. The main contributors under “All Other 

Wild Horse & Burro, Recreation Resources Management, Land and Realty Management, Wilderness Management, Wildlife Management, Cultural Reso

Hazardous Materials Management, and Rangeland Management. 

ALL OTHER PROGRAMS 

Conduct Patrol Enforcement Activities (number of incidents) 7,688 7,011 15,823 15,031 15,314 0 0 0 Conduct Non Drug Investigative Activities (number of cases cleared) 620 618 8,840 8,398 8,982 0 0 0 Conduct Emergency Response Activities (number of incidents resolved) 

2,593 1,570 1,591 1,511 1,392 0 0 0 

Section III - Management of Lands and Resources 
 2009 

Section III - Management of Lands and Resources 

RESOURCE PROTECTION AND LAW ENFORCEMENT PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 President's Budget Change from 2008 Plan to 2009 

Conduct Security Activities (number of vulnerability assessments) 540 148 2 1 0 0 0 0 Conduct Drug Enforcement Activities (number of seizure incidents) 1,557 81 0 0 0 0 0 0 

Bureau of Land Management 
Bureau of Land Management 2009 Budget Justifications 

Section III - Management of Lands and Resources Page III-289

Activity: Resource Protection and Maintenance 

Subactivity: Hazardous Materials Management

Activity: Resource Protection and Maintenance

Subactivity: Hazardous Materials Management 

 2009 

 Fixed Costs & Change 

 2007 2008 

Related 

Changes 

Program 

Changes Budget 

from 

2008 

 Enacted Enacted (+/ -) (+/ -) Request (+/-) 

Hazardous Materials ($000) 15,939 15,859 +207 +758 16,824 +965

 

FTE 100 97 0 -1 96 -1

Other Major Resources: 

Transfer: Central Haz. Mat. 

Fund(26xx) 

Transfer: Nat. Res. Damage Assess 

(9210/60) 

Major Program IT Investments: 

PRIS: 010-04-01-03-02-0446-00 87 87 +41 128 +41

 

Summary of 2009 Program Changes for Hazardous Materials Management 

Request Component ($000) FTE

Program Changes: 

• Organizational & Administrative Streamlining -36

• Travel & Relocation Expenses -83

• Restoration-Remediation SW Border +1,000

• Nat'l Monument & Nat'l Conservation Area funding (new subactivity created) -123 -1

TOTAL, Program Changes +758 -1

JUSTIFICATION OF FY 2009 PROGRAM CHANGES

The 2009 budget request for the Hazardous Materials Management program is $16,824,000 

and 96 FTE, a program change of +$758,000 and -1 FTE from the 2008 Enacted level. 

Restoration and Remediation Along Southwest Border (+$1,000,000) - In 2009, the BLM is 

proposing an additional $1,000,000 for use in the Hazardous Materials Management program to 

address environmental degradation along the Southwest border caused by illegal immigration 

and to reclaim abandoned mines that facilitate illegal activity in the Southwest border region. 

The BLM will use these additional funds to restore and remediate the illegal dumping of 

household, commercial, construction, landscaping and hazardous waste on public lands near 

the southwest border. Emphasis will be placed on cleaning up illegal dumping and other 

hazardous waste activities that has become a common occurrence on public lands over the 

years. 

Funding will be used in the Hazardous Materials Management program as follows: 

• Arizona ($625,000) – to remove trash, hazmat, and abandoned vehicles, repair 50 illegal 

routes, restore approximately 8 acres and improve signage for visitors. 
Bureau of Land Management 2009 Budget Justifications 

Section III - Management of Lands and Resources Page III-290

• California ($200,000) – to conduct wilderness restoration and close abandoned mines 

used by illegal aliens to hide. 

• New Mexico ($175,000) – to close abandoned mines used by illegal aliens to hide. 

National Monuments and National Conservation Area Funding (new subactivity created) 

(-$123,000 / -1 FTE Position) - The BLM is proposing a new subactivity to fund base operations 

at National Monuments and National Conservation Areas. As a result, $123,000 is shifted from 

the Hazardous Materials Management subactivity to the new subactivity. The funding shifted 

from the Hazardous Materials Management subactivity is funding currently spent in the National 

Monuments and National Conservation Areas to meet the goals of the Hazardous Materials 

Management program. The funding will continue to be spent on Hazardous Materials 

Management priorities but will be managed through the NLCS-National Monuments and 

National Conservation Areas subactivity. Performance in the Hazardous Materials Management 

subactivity will decrease due to the funding shift; however, this performance will be shifted to the 

NLCS-National Monuments and National Conservation Areas subactivity and is shown in the 

performance goals for that subactivity. 

Program Performance Change Table 

2005 Actual 2006 

Actual 

2007 

Actual 2008 Plan 

2009 Base 

Budget 

(2008 + 

Fixed Costs) 

2009 Plan 

Program 

Change 

Accruing 

in 2009 

Program 

Change 

Accruing in 

Out-years 

A B=A+C C D 

HQ – Mitigate 

Other Hazards 

(Number) 

465 541 572 572 572 896 +324 0 

Total 

Actual/Projected 

Cost ($000) 

$940 $941 $1,104 $1,104 $1,104 $1,729 $625 0 

Actual/Projected 

Cost $2,023 $1,741 $1,930 $1,930 $1,930 $1,930 $1,930 0 

BG – Other 

Hazardous Sites 

(Number) 

481 627 655 655 655 907 +252 0 

Total 

Actual/Projected 

Cost ($000) 

$1,108 $1,346 $975 $975 $975 $1,349 $374 0 

Actual/Projected 

Cost $2,305 $2,148 $1,489 $1,489 $1,489 $1,489 $1,489 0 

Comments *The 2009 Change column includes a $1,000,000 increase for the Safe Borderlands Initiative. 

Note: Projected costs may not equal program change as these are full costs, which may include funds from other sources and (or) use averages. 

Column A: The level of performance and costs expected in 2009 at the 2008 level plus funded fixed costs. Reflects the impact of prior year 

funding changes, management efficiencies, absorption of prior year fixed costs, and trend impacts, but does not reflect the proposed program 

change. 

Column D: Outyear performance beyond 2009 addresses lagging performance — those changes occurring as a result of the program change (not 

total budget) requested in 2009. It does not include the impact of receiving the program change again in a subsequent out-year. 

PROGRAM OVERVIEW

Program Components – The Hazardous Materials Management program, also referred to as 

the HazMat program, protects public health and safety and the environment through: 

• Hazardous Materials – Minimizing environmental contamination on public lands; 

• Hazards – Reducing and eliminating risk associated with physical and environmental 

hazards; 
Bureau of Land Management 2009 Budget Justifications 

Section III - Management of Lands and Resources Page III-291

• Environmental Compliance – Correcting environmental compliance problems in a timely 

fashion; 

• Environmental Management Systems – Managing all environmental issues that may 

hinder the BLM’s mission; and, 

• Pollution Prevention – Reducing the generation of wastes or contaminants at the source, 

and thereby reducing releases to the environment that could pose hazards to the 

environment and public health. 

In addition to the HazMat program’s traditional responsibilities, the HazMat program has 

expanded its responsibilities by implementing a program, the BLM Environmental Management 

System. A cross functional organization, the HazMat program provides services to other BLM 

programs, such as the Lands Program, through assessments done in support of the 

Comprehensive Environmental Response Compensation and Liability Act. Since its inception, 

the HazMat program has protected human health and safety by cleaning up hundreds of 

contaminated sites on BLM managed land. 

The program also supports the BLM and Department priorities for responsible resource use 

while employing protection of natural resources by removing hazards. 

Long-Term Vision – The long range goals of the program include: 

• Improving accountability by creating effective ways to monitor and track 

contaminated sites;

• Establishing innovative methods to prevent as well as reduce illegal dumping on 

public lands;

• Auditing sites and facilities to ensure compliance; and

• Developing internal and external partnerships to jointly provide effective solutions to 

environmental issues on BLM public lands.

Critical Factors – Critical factors that impact BLM’s capability to protect public health and 

safety include: 

• Supporting maintenance and monitoring demands at previously remediated sites 

while continuing to address cleanups at current and future sites on BLM managed 

land; 

• The growing population in BLM remote areas has increased illegal dumping on 

public lands. 

Means and Strategies – This program meets performance goals by the following: 

• Developing, implementing and maintaining internal All-Hazards and Emergency 

Management plans; 

• Leveraging funding to respond to community needs and concerns; 

• Assessing and maintaining BLM facilities to ensure compliance with environmental 

laws and regulations; and 

• Searching for parties responsible for contamination on public lands and either 

seeking their participation in remediating the site or recovering government costs. 

• Partnering with other environmental protection related agencies such as the Fish and 

Wildlife Service, Environmental Protection Agency, Army Corps of Engineers, and 

the U.S. Forest Service, as well as several BLM programs: Abandoned Mine Lands 

program, Law Enforcement program and Recreation program. 
Bureau of Land Management 2009 Budget Justifications 

Section III - Management of Lands and Resources Page III-292

Other Funding Sources – Other funding sources that contribute to activities addressed by the 

Hazmat Program include the Department’s Natural Resource Damage Assessment and 

Restoration Fund and Central Hazardous Materials Fund.

Strategic Plans – The HazMat program supports the Department’s goals of Serving 

Communities and Resource Protection by protecting lives, resources and property, and 

improving the health of landscapes and watersheds. Key intermediate outcome measures for 

the Department’s mission goals of Serve Communities and Resource Protection include: 

increasing the percent of BLM facilities rated in good safety, health and environmental condition; 

the percent of physical and chemical hazards mitigated; and, the percent of known 

contaminated sites that have been remediated. 

The HazMat program supports BLM’s 2009-2012 Strategic Plan through contributing to the 

effort of providing more domestic energy resources. The program prevents and minimizes 

adverse impacts of commercial development by identifying environmental liabilities and 

ensuring that compliance, restoration, and energy conservation activities are conducted in a 

manner that protects natural resources and reduces environmental impacts. 

Before After

Dump site on BLM-managed lands in San Lorenzo Canyon, New Mexico. The BLM 

collaborated with the public to remove trash and debris and hazardous materials on the 

southwest border.

Central Hazardous Materials Fund 

Managed by the Department of the Interior 

The BLM has access to funding managed by DOI called the Central Hazardous Materials Fund. This 

appropriation includes funding to conduct response actions, remedial investigations and feasibility studies, 

and cleanups at sites where a release has occurred of hazardous substances (as defined in the 

Comprehensive Environmental Response, Compensation, and Liability Act), for which the Department is the 

lead agency. Established in 1995 from offsetting reductions to bureau’s budgets, this fund: 

• provides a central account for remedial investigation and feasibility studies and cleanup for 

hazardous materials sites, 

• brings greater consistency, direction and coordination, 

• pursues cost recovery action from potential responsible parties, 

• provides “no-year” funding, important for these multi-year projects. 

Currently, the BLM manages 21 Central Hazardous Materials Fund sites. In 2007, the Central Hazardous 

Materials Fund program allocated $3.2 million to BLM sites. These sites are managed separately from the 

HazMat Program, and funding is separate from the HazMat Program. 
Bureau of Land Management 2009 Budget Justifications 

Section III - Management of Lands and Resources Page III-293

2009 PROGRAM PERFORMANCE

2007 Program Performance Accomplishments – 

• The BLM developed an inventory of Environmental Professionals to comply with new 

Environmental Protection Agency requirements concerning the qualifications of 

personnel engaged in the environmental screening process for real property 

acquisitions. The BLM also established a training curriculum at the BLM National 

Training Center to qualify BLM Environmental Professionals (EP) through a 

certification process. 

• The BLM remediated 16 sites listed on its Environmental Disposal and Liabilities 

(EDL) inventory. The EDL inventory reflects the BLM’s contingent environmental 

liabilities and highest priority sites. 

• The BLM proposed and implemented two pilot Environmental Management Systems 

(Washington Office and Wyoming State Office). The implementation included the 

identification of appropriate organizational significant aspects and impacts and 

targets and objectives. 

2008 Planned Program Performance – The HazMat program will do the following activities in 

2008: 

• Illegal Dumping Prevention 

• Complex Contamination sites Cleanups 

• Environmental Professionals 

• Environmental Management System 

• Pollution Prevention 

• Global Climate Change 

• Special Cleanup Funding - the following projects are being initiated in 2008: 

State Site Name Description of Action 

AK Ungalik Airstrip Hazmat Removal of hazardous waste, drums, and 

contaminated structures 

AK Fort Egbert Dump Closure Removal of hazardous waste 

AZ Old Highway 91 Wireburn Removal of hazardous waste at historic wire burn site 

CA Keyesville Recreation Area Closure of physical safety hazards at abandoned mines 

CA Bat Gates at Tumco Install bat gates to protect bats at abandoned mine site 

CA Laue Occupancy Trespass Removal of hazardous waste, drums, and 

contaminated structures 

CA Rademacher Hills Closure of physical safety hazards at abandoned mines 

near OHV area 

CA South Yuba and Stevens 

Trail 

Closure of physical safety hazards at abandoned mines 

near OHV area 

CO CO Illegal Dump 

Remediation 

Removal of hazardous wastes at dump sites in western 

Colorado 

CO AML Closures Closure of physical safety hazards at abandoned mines 

near OHV area 

ID Bayhorse Mine Closure Closure of physical safety hazards at abandoned mines 

and removal of hazardous waste adjacent to state park 

ID German Lake Dump Removal of hazardous waste at dump site 

ID Owyhee Adit Closures Closure of physical safety hazards at abandoned mines 

ID Eastern Snake Plain 

Aquifer Dumps 

Cleanup three illegal dumps 

MT Zortman Landusky Capture and treat mine-impacted water 
Bureau of Land Management 2009 Budget Justifications 

Section III - Management of Lands and Resources Page III-294

State Site Name Description of Action 

NV Virginia City Mine Hazard 

Closures 

Closure of physical safety hazards at abandoned mines 

NV Spruce Mountain Closure of physical safety hazards at abandoned mines 

NV Ruhenstroth OHV Trail Closure of physical safety hazards at abandoned mines 

near OHV area 

OR Yaquina Head Lead Soils Conduct removal site evaluation and cleanup of 

hazardous materials. 

UT Manning Canyon Complete remedial actions 

WY Jelm Mountain Closure of physical safety hazards at abandoned mines 

near OHV area 

2009 Planned Program Performance – The HazMat program will continue to do the following 

activities in 2009: 

• Illegal Dumping Prevention – The BLM plans to continue its prevention effort in 2009 

by targeting cleanups, outreach and monitoring on BLM lands near the southwest 

borders to ensure human safety and to mitigate environmental damage. Additionally, 

the BLM plans to expand it partnerships by teaming up with local communities. 

• Complex Contaminated Sites Cleanups – The BLM plans to leverage funding to 

address cleanups at large complex hazardous waste sites that pose an imminent risk 

to the public. In 2009, the BLM will continue its cleanup effort at Kelly Mine, a high 

priority site located in California. Additionally, the BLM will explore means to address 

increasing cost associated with long term maintenance and monitoring. 

• Environmental Professionals – In 2009, the BLM plans to use lessons learned to 

improve its Environmental Professional Certification Process. Environmental 

professionals are individuals who are qualified to conduct environmental site 

assessments to evaluate a property’s environmental conditions and assess potential 

liability for any contamination. 

• Environmental Management System – Executive Order 13423 requires agencies to 

use EMS as the primary management approach for addressing environmental 

aspects of internal agency operations and activities, including energy and 

transportation functions, to meet the goals of the EO. In 2009 the BLM proposes to 

expand its implementation of EMS to two additional organizational units and begin 

the development of EMS at three other units. An Environmental Management 

Manual will also be published in 2009 providing the field with guidance on their 

responsibilities related to Environmental Management Systems and compliance 

trends. 

• Pollution Prevention – In 2008, the BLM will develop the required policies and 

guidance, as well as operational procedures, in accordance with the approved action 

plan, and update senior managers on the progress. Additionally, the BLM will 

continue to hold meetings and conference calls to coordinate and monitor the BLM's 

overall Greening performance. In 2009 the BLM will move forward with implementing 

pollution prevention guidance and operational procedures as part of the overall 

Greening Strategy. 
Bureau of Land Management 2009 Budget Justifications 

Section III - Management of Lands and Resources Page III-295

• Safe Borderlands Initiative – In 2009, the BLM plans to target cleanup, pollution 

prevention and monitoring efforts in Arizona, New Mexico and California. Recent 

illegal border activity has contributed to pollution of the environment causing human 

health and environmental risk. To combat this issue, the BLM’s HazMat program 

and Law Enforcement program will partner to remove illegally dumped material such 

as trash, hazardous materials, abandoned vehicles and other illegally dumped 

material in its Southwest border states. Additionally, the Hazmat Program will 

partner with the Abandoned Mine Land Program to close abandoned mines used by 

illegal aliens to hide. These cleanup, pollution prevention and monitoring efforts will 

minimize and mitigate adverse impacts to the ecosystem and the environment. For 

• Global Climate Change – The BLM will 

develop new prescriptive specifications for 

use by the BLM engineering and space 

leasing programs in 2009 to achieve the 

goals in Executive Order 13423 of 

improving energy efficiency and reducing 

greenhouse gas emissions, through 

reduction of energy intensity by 3 percent annually through the end of 2015 relative 

to the baseline of the BLM’s energy use in 2003. This will be accomplished by 

contracting with a Resource Energy Manager (REM) who will be tasked to revise the 

BLM's standard construction and space leasing specifications and award an Energy 

Savings Performance Contract (ESPC) specifically for the construction of renewable 

energy sources at BLM facilities or on BLM land. 

• Special Cleanup Funding – The HazMat Program uses a portion of the appropriated 

funds, referred to as the Special Cleanup Fund, to manage specific safety hazards 

and conduct hazardous materials cleanups that are not currently eligible for funding 

from Department’s Central Hazardous Materials Fund. The BLM has used the 

Special Cleanup Fund to perform assessments, sampling, investigations, removal 

actions and other related hazardous 

materials cleanup activities. The 

remediation of specific physical safety 

hazards can also receive Special Cleanup 

Fund funds. The Special Cleanup Fund has 

been instrumental in remediating 

approximately 32 sites in 2003 through 

2006. In 2009, the HMRRP will continue to 

fund removal of physical safety hazards and 

hazardous materials through the Special 

Cleanup Fund. 

more information, please see the Safe Borderlands Initiative in the Emphasis Areas 

section. 

Greening is the process of conducting the BLM's operational activities in a manner 

that is beneficial to the environment. Greening within the BLM is required by statute, 

regulation, and Executive Orders. It includes sustainable buildings and facilities 

design, pollution prevention and recycling, electronic stewardship, energy and water 

conservation, vehicle fleet management, environmentally preferable purchasing, and 

alternative energy source development. The BLM is committed to "prevention of 

pollution at Bureau facilities to reduce costs and risk." 

Success within the HazMat Program 

In the summer of 2007, the BLM teamed up 

with local authorities in New Mexico to clean 

up 3 illegal dump sites containing disposed 

trash and other construction dumped on 

public land in the Socorro Field Office 

resource area. Two of the dumps were 

located near a recreation area of significantly 

high scenic quality known as San Lorenzo 

Canyon. The dumps posed a human health 

hazard, were a visual impairment and 

contributed to the degradation of the 

environment. The successful cleanup resulted 

in the removal and disposal of dumped 

material and the overall restoration of the 

scenery. 

In 2008, the BLM will continue prevent and 

reduce the occurrence of illegal waste 

dumping along its southwest borders and 

other locations on BLM managed land.
Bureau of Land Management 2009 

 HAZARD MANAGEMENT AND RESOURCE RESTORATION PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 President's Budget Change from 2008 Plan to 2009 

Facility Compliance: Percentage of BLM organizational units rated in good safety, health, and environmental condition. (BUR) 

87% 

103 / 118 

78% 

94 / 120 

83% 

99/ 120 

80% 

96/ 120 

88% 

105/ 120 

88% 

105/ 120 

88% 

105/ 120 0% 

Comments: * Support Measure - No cost will be shown. Infrastructure improvement results for non-building assets construc

recreation sites are based on actual planned projects which will vary each year. 

Mitigate Hazards: Percent of physical and chemical hazards mitigated in appropriate time to ensure visitor or public safety (SP] 

Establish 

Baseline 

97% 

1,029/ 

1,059 

90% 

861 / 955 

70% 

410 / 589 

93% 

436/ 468 

90% 

715/ 794 

91% 

1039 / 

1143 

+1% 

Total Actual/Projected Cost ($000) 0 4,609 4,508 0 4,778 4,625 5,625 +1,000 Actual/Projected Cost per hazard mitigated (in dollars) $0 $4,479 $5,235 $0 $10,960 $6,468 $5,414 -$1,054 Comments: In 2005, BLM Field Offices responded to an increased number of emergencies and time critical removals. This m

includes an increase of $1,000 million for the Safe Borderlands Initiative which will result in 324 hazards mitigate

Percent of known contaminated sites remediated on DOI managed land. (SP) 

1.5% 

5/ 330 

11% 

28/ 265 

9% 

33/ 358 

5.5% 

15/ 272 

6% 

16/ 272 

11% 

30/272 

17% 

45/272 +6% 

Total Actual/Projected Cost ($000) 20,124 26,404 24,694 0 18,139 18,218 18,931 +713 Actual/Projected Cost per Site (in dollars) $4,024,881 $942,995 $748,315 $0 $1,133,713 $1,301,254 $1,262,051 -39,203 Comments: Multi-year projects funded in prior years were completed in 2006. Lower project costs allowed BLM to complete 

Beginning in 2007, the denominator for this measure has been stabilized and data becomes cumulative. 

Assess Hazmat Sites (number) 813 771 652 530 572 591 *583 -8 Respond to Hazmat Risk Site (number) 322 271 222 176 203 300 *299 -1 Monitor and Maintain HAZMAT & NRDAR Sites (number) 105 122 242 96 115 169 169 0 Evaluate PRP’s for Cost Avoidance/Recovery (number) 46 21 13 8 13 10 10 0 

Section III - Management of Lands and Resources 
Bureau of Land Management 2009 

 HAZARD MANAGEMENT AND RESOURCE RESTORATION PERFORMANCE Overview 

 Measure 

 Change 

2004 2005 2006 2007 2007 2008 2009 

Actual Actual Actual Plan Plan President's Budget from 2008 Plan to 2009 

Actual 

Process HAZMAT Cost Avoidance/ Recovery Cases (number) 6 9 11 5 8 8 8 0 *The 2009 column reflects a performMonuments and National Conserv

ance f 8 zmat Sites, and 1 Respond to Ha Site ll be the new Nat

ation vi

decrease o

Areas subacti

Assess Ha

ty. 

zmat Risk s which wi shifted to 

Section III - Management of Lands and Resources 
Bureau of Land Management 2009 

This page intentionally left blank. 

 Section III - Management of Lands and Resources 
Bureau of Land Management 2009 Budget Justifications 

Section III - Management of Lands and Resources Page III-299

Activity: Transportation and Facilities Maintenance 

Activity Summary ($000) 

 2009 

 Fixed Costs & Change 

 2007 2008 

Related 

Changes 

Program 

Changes Budget 

from 

2008 

Subactivity Enacted Enacted (+/ -) (+/ -) Request (+/-) 

 Operations $ 6,242 6,392 +65 -572 5,885 -507

 FTE 49 49 0 -5 44 -5

 Annual Maintenance $ 30,969 31,913 +479 -2,498 29,894 -2,019

 FTE 240 244 0 -17 227 -17

 Deferred Maintenance $ 33,157 36,485 0 -10,155 26,330 -10,155

 FTE 88 99 0 -11 88 -11

 Infrastructure 

Improvement* $ 0 0 0 0 0 0

 FTE 2 1 0 0 1 0

Total Activity $ 70,368 74,790 544 -13,225 62,109 -12,681

 FTE 379 393 0 -33 360 -33

 

 

* Carryover funding from FY 2005 supports proposed FTE usage in 2007, 2008, 2009. 

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 these 

programs on: 

• Operating clean, safe, and fully functional facilities at recreation sites. 

• Performing annual maintenance on all funded facilities. 

• Conducting comprehensive assessments on the physical condition and regulatory 

compliance for all facilities. 

• Implementing the Five-Year Deferred Maintenance and Capital Improvement Plan to 

reduce the maintenance backlog. 

• Improving capabilities to manage facilities maintenance through development of an 

automated facility asset management system. 

• 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. 

There are three subactivities within the Transportation and Facilities Maintenance Activity. All 

three subactivities contribute to the proper stewardship of the BLM’s facilities. 

• Operations: provides for the utilities, janitorial services, and waste management 

needs of the BLM’s recreation areas. 
Bureau of Land Management 2009 Budget Justifications 

• Annual Maintenance: provides for emergency repair, preventive maintenance, and 

cyclic maintenance on all facilities. 

• Deferred Maintenance: provides for upkeep, repair or replacement of facilities that 

have lost value or use because annual maintenance was not performed on schedule. 

Deferred maintenance projects are prioritized to address critical health and safety issues 

followed by critical resource protection needs. Work 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 complexes, fire 

stations, interagency dispatch centers, internal communication sites, equipment 

maintenance shops, and field camps. The BLM maintains and operates 4,777 

buildings and structures and 725 administrative sites. 

• Recreation Sites – The BLM is responsible for maintaining 380 recreation fee sites, 

2,224 non-fee recreation sites, 1,237 campgrounds with approximately 17,510 

campsites, 368 boat ramps, and 87 interpretive centers or contact stations. In 

addition, the BLM is responsible for a portion of the maintenance on numerous 

facilities jointly held with other Federal, State, county, or private entities. 

• Transportation – Lands administered by BLM have 75,959 miles of roads, 18,932 

miles of trails, and 856 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 tracks and maintains 590 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 dams. 

Section III - Management of Lands and Resources Page III-300
Bureau of Land Management 2009 Budget Justifications 

Section III - Management of Lands and Resources Page III-301

Activity: Transportation and Facilities Management 

Subactivity: Operations Maintenance 

Activity: Transportation and Facilities Maintenance 

Subactivity: Operations 

 2009 

 Fixed Costs & Change 

 2007 2008 

Related 

Changes 

Program 

Changes Budget 

from 

2008 

 Enacted Enacted (+/ -) (+/ -) Request (+/-) 

Operations ($000) 6,242 6,392 +65 -572 5,885 -507

 

FTE 49 49 0 -5 44 -5

Other Major Resources: 

 

Major Program IT Investments: 

 

 

Summary of 2009 Program Changes for Operations 

Request Component ($000) FTE

Program Changes: 

• Restoration of NLCS funding to 2008 Request level -98 

• Organizational & Administrative Streamlining -25 

• Travel & Relocation Expenses -13 

• Nat'l Monument & Nat'l Conservation Area funding (new subactivity created) -436 -5

TOTAL, Program Changes -572 -5

JUSTIFICATION OF FY 2009 PROGRAM CHANGES

The 2009 budget request for the Operations Maintenance program is $5,885,000 and 44 FTE, a 

program change of -$572,000 and -5 FTE from the 2008 Enacted level. 

Restoration of NLCS funding to 2008 Request level (-$98,000) - In 2008, Congress provided 

an additional $98,000 in the Operations Maintenance program for operations maintenance 

projects in the National Landscape Conservation System. This budget proposes reducing the 

Operations Maintenance subactivity by $98,000 in order to address higher priorities within BLM. 

National Monuments and National Conservation Area Funding (new subactivity created) 

(-$436,000 / -5 FTE Positions) - The BLM is proposing a new subactivity in MLR to fund base 

operations at National Monuments and National Conservation Areas. As a result, $436,000 is 

shifted from the Operations Maintenance subactivity to the new subactivity. The funding shifted 

from the Operations Maintenance subactivity is funding currently spent in the National 

Monuments and National Conservation Areas to meet the goals of the Operations Maintenance 

program. The funding will continue to be spent on Operations Maintenance priorities but will be 

managed through the NLCS-National Monuments and National Conservation Areas subactivity. 

Performance in the Operations Maintenance subactivity will decrease due to the funding shift; 
Bureau of Land Management 2009 Budget Justifications 

Section III - Management of Lands and Resources Page III-302

however, this performance will be shifted to the NLCS-National Monuments and National 

Conservation Areas subactivity and is shown in the performance goals for that subactivity. 

Program Performance Change Table 

2005 

Actual 

2006 

Actual 

2007 

Actual 2008 Plan 

2009 Base 

Budget 

(2008 PB + 

Fixed Costs) 

2009 Plan 

Program 

Change 

Accruing 

in 2009 

Program 

Change 

Accruing in 

Out-years 

A B=A+C C D 

IA - Recreation Site 

Annual Maintenance 

(square feet)

*530 184,737 209,854 214,754 214,754 209,854 -4,900 0 

Total Actual/Projected 

Cost ($000) $4,242 $4,592 $4,298 $4,396 $4,396 $4,248 $98 0 

Actual/Projected Cost $20 $25 $20 $20 $20 $20 $20 0 

Comments 

*Numbers reported for 2005 Actual are number of sites. In 2006 the definition changed from sites to square feet, 

which results in much larger numbers. 

The 2009 change column shows a reduction of $98 for the 2008 unrequested increase that will not be carried 

forward. 

Note: Projected costs may not equal program change as these are full costs, which may include funds from other sources and (or) use 

averages. 

Column A: The level of performance and costs expected in 2009 at the 2008 level plus funded fixed costs. Reflects the impact of prior year 

funding changes, management efficiencies, absorption of prior year fixed costs, and trend impacts, but does not reflect the proposed program 

change. 

Column D: Outyear performance beyond 2009 addresses lagging performance — those changes occurring as a result of the program change 

(not total budget) requested in 2009. It does not include the impact of receiving the program change again in a subsequent out-year. 

PROGRAM OVERVIEW

Program Components – The Operations program is established to fund activities that assist in 

the smooth operations of BLM recreation facilities. Operation funds are used to supplement 

recreation site fees where collected fees are insufficient to meet adequate health and safety 

compliance, and are also used at non-fee collection sites. Operation funds are also used for: 

• Janitorial services; 

• Cleaning and waste management of comfort stations; 

• Rodent and pest control; 

• Landscape upkeep; and 

• Payment of utilities (such as electricity, water, and sewage, fuel, and pressure 

washing.) 

Long-Term Vision – The Operations program’s long-term vision is essential to the operation of 

BLM recreation facilities by: 

• Preserving the useful life and condition of facilities; 

• Improving work place and visitor health and safety, and 

• Increasing visitor satisfaction at BLM facilities through increased efficiencies in 

maintenance and operations. 

Critical Factors – The BLM’s constructed assets are disbursed throughout BLM administered 

lands. 

• A significant factor to the operations activities is the increase in operations costs 

across the board as a result of fuel and material price increases. 

• Some areas of the Country have seen substantial increases in the construction and 

maintenance and operations costs of new and old facilities and the upward trend is 
Bureau of Land Management 2009 Budget Justifications 

Section III - Management of Lands and Resources Page III-303

not expected to drop in the near future. This has a particularly negative impact for 

recreation areas that are remotely located. 

 Means and Strategies – The Operations program 

employs the necessary assessment of inventory, 

strategic investment and upkeep to properly 

maintain recreation sites for the public visitor and 

safety. 

• The Operations program needs are 

driven by visitation patterns at BLM 

recreation facilities. With the ever 

increasing urban interface with BLM 

lands, more and more people are using 

BLM established recreation facilities, 

resulting in increased efforts in 

maintaining these facilities. 

• The BLM focuses the Operation 

program to meet visitor’s expectation for 

clean and safe BLM recreation facilities. Expenditure of program funds at recreation 

sites are made on a priority basis and may be supplemented by recreation fees. 

Typical BLM comfort station, janitorial and trash 

collection at this remote site near the Arctic Circle, 

Alaska. 

Other Funding Sources – Operations funding is supplemented, to a certain extent, through the 

collection of fees for the use and entrance at approximately 400 recreation sites. 

• It is estimated that $350,000 is used in support of operations from fees collected at 

recreation sites. 

• Fees can only be used in support of each specific site, hence the need for funding 

from the Operation program.

Strategic Plan – The Operations program supports the four mission areas of the Department’s 

Strategic Plan, which include: Resource Protection, Resource Use, Recreation, and Serving 

Communities. The Operations program also supports the BLM’s mission, with particular 

emphasis on Recreation by providing a satisfying recreation experience to the public. 

2009 PROGRAM PERFORMANCE

2007 Accomplishments - 

• Allocation of funding to the States was redistributed to better support the Operations 

activities at BLM recreation facilities. 

• The BLM maintained over 93 percent of its recreation facilities in adequate condition 

for which Operation Maintenance is a major component. 

Use of Cost and Performance Information in the Operations Maintenance 

Program 

In 2008, the BLM redistributed available funding for facility operations to better meet operations needs 

at recreation sites. This was accomplished by analyzing performance information in conjunction with 

anticipated needs data and redirecting funds accordingly. Approximately five percent of the 

Operation’s program funding was redistributed to six states, with a corresponding reduction of funding 

to the remaining states. 

In 2009, a similar redistribution funding of about five percent will be made. The redistribution will 

continue in out-years until the BLM attains equilibrium in funding based on the overall needs. The BLM 

anticipates an increase in overall performance as a direct result of redistribution of funds. 
Bureau of Land Management 2009 Budget Justifications 

Section III - Management of Lands and Resources Page III-304

2008 Planned Program Performance – In 2008, the planned accomplishments in the 

Operations program include providing operational maintenance on over 2,500 recreation sites. 

The BLM will continue to redistribute 2008 funds to recreation facilities based on funding needs 

and performance to meet the program emphasis and objectives. During 2008, BLM will 

continue to comply with Executive Order 13327, “Federal Real Property Asset Management”, 

which requires all federal agencies to critically examine there constructed assets and make 

sound management decisions to “right size” their portfolio of assets. BLM focuses its operations 

funds to its highest priority recreations facilities. 

2009 Planned Program Performance – In 2009, the Operations program will continue to 

maintain constructed assets supporting BLM recreational needs, and emphasize areas under 

the greatest pressure from community growth. In 2007 approximately 2,500 recreation sites 

and over 20,000 constructed assets were reported as Federal Real Property Assets. Many of 

these sites require janitorial services to meet visitor expectations with respect to health and 

safety. While the responsibility for several National Monument and National Conservation 

Areas has shifted, the requirement to meet visitor expectations will be similarly emphasized. 

Over 90 percent of these constructed assets will be maintained in adequate condition (i.e., good 

or fair) in 2008, and this will continue in 2009.
Bureau of Land Management 2009 

OPERATIONS PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Planned 2007 Actual 2008 Plan 2009 President's Budget Chang

from 20

Plan to 2

Maintenance: Number of square feet of buildings maintained in adequate condition, determined by FCI<0.15, at recreation sites. (Bur) 

new 

measure 

new 

measure 

new 

measure 

93% 

706,285/ 

761,903 

90% 

723,280/ 

799,420 

90% 

723,280/ 

799,420 

90% 

723,280/ 

799,420 

0% 

Total Actual/Projected Cost ($000) $0 $0 $0 $0 $23,466 $28,781 $26,429 -$2,35Actual/Projected Cost per Square Foot (in dollars) $0 $0 $0 $0 $32 $40 $37 -$3 

This measure includes funding from Recreation Management, Maintenance Operations, Annual MaintenaDeferred Maintenance accounts. The performance results are derived from Annual Maintenance and MaOperations, and do not include Deferred Maintenance which would be represented by the 10% of square that do not meet adequate condition. The 2009 decline in funding for deferred maintenance does not affeperformance of the measure in the short term. Since deferred maintenance is more costly than annual mremaining annual maintenance reflects a lower cost. 

Comment: Recreation Site Annual Maintenance (square feet) UNK *530 184,737 211,908 209,854 214,754 **188,054 -26,70Recreation Site Non-Building Annual Maintenance (rec sites maintained) 

UNK UNK 1,985 2,580 2,875 2,580 2,600 +20 

* Numbers reported for 2005 Actual are number of sites. In 2006 the definition changed from sites to square feet, which results in much large**The 2009 column reflects a decrease to performance of 4,900 square feet of recreation site annual maintenance for the 2008 unrequested 

not be carried forward, and a shift of performance to the new National Monuments and National Conservation Areas subactivity which include

feet of recreation site annual maintenance. 

Section III - Management of Lands and Resources 
 2009 

Section III - Management of Lands and Resources 

This page intentionally left blank. 

Bureau of Land Management 
Bureau of Land Management 2009 Budget Justifications 

Section III - Management of Lands and Resources Page III-307

Activity: Transportation and Facilities Management 

Subactivity: Annual Maintenance

Activity: Transportation and Facilities Maintenance 

Subactivity: Annual Maintenance 

 2009 

 Change 

 2007 2008 

Fixed Costs & 

Related Changes

Program 

Changes Budget 

from 

2008 

 Actual Enacted (+/ -) (+/ -) Request (+/-) 

Annual Maintenance ($000) 30,969 31,913 +479 -2,498 29,894 -2,019

 

FTE 240 244 0 -17 227 -17

Other Major Resources: 

Road Maintenance 304 310 0 0 310 0

Quarters Maintenance 522 326 0 0 326 0

Major Program IT Investments: 

 

 

Summary of 2009 Program Changes for Annual Maintenance 

Request Component ($000) FTE

Program Changes: 

• Restoration of NLCS funding to 2008 Request level -345

• Restoration of Program funding to 2008 Request level -492 -2

• Organizational & Administrative Streamlining -277 -1

• Travel & Relocation Expenses -88

• Performance Contracting savings -36

• Nat'l Monument & Nat'l Conservation Area funding (new subactivity created) -1,260 -14

TOTAL, Program Changes -2,498 -17

JUSTIFICATION OF FY 2009 PROGRAM CHANGES

The 2009 budget request for the Annual Maintenance program is $29,894,000 and 227 FTE, a 

program change of -$2,498,000 and -17 FTE from the 2008 Enacted level. 

Restoration of NLCS funding to 2008 Request level (-$345,000) - In 2008, the Congress 

provided an additional $345,000 in the Annual Maintenance program for annual maintenance 

projects in the National Landscape Conservation System. This budget proposes reducing the 

Annual Maintenance subactivity by $345,000 in order to address higher priorities within BLM. 

Restoration of Program funding to 2008 Request level (-$492,000 / -2 FTE Positions) - In 

2008, Congress provided additional funding in the Annual Maintenance program to be used for 

core functions, including NLCS activities. This budget proposes reducing the Annual 

Maintenance subactivity by $492,000 to address higher priorities. The BLM will continue to 

maintain core functions in the Annual Maintenance program by focusing on highest priority 

projects and promoting efficiencies where possible. 

 
Bureau of Land Management 2009 Budget Justifications 

Section III - Management of Lands and Resources Page III-308

National Monuments and National Conservation Area Funding (new subactivity created) 

(-$1,260,000 / -14 FTE Positions) - The BLM is proposing a new subactivity to fund base 

operations at National Monuments and National Conservation Areas. As a result, $1,260,000 is 

shifted from the Annual Maintenance subactivity to the new subactivity in MLR. The funding 

shifted from the Annual Maintenance subactivity is funding currently spent in the National 

Monuments and National Conservation Areas to meet the goals of the Annual Maintenance 

program. The funding will continue to be spent on Annual Maintenance priorities but will be 

managed through the NLCS-National Monuments and National Conservation Areas subactivity. 

Performance in the Annual Maintenance subactivity will decrease due to the funding shift; 

however, this performance will be shifted to the NLCS-National Monuments and National 

Conservation Areas subactivity and is shown in the performance goals for that subactivity. 

Program Performance Change Table 

2005 

Actual 

2006 

Actual 

2007 

Actual 2008 Plan 

2009 Base 

Budget 

(2008 PB + 

Fixed Costs) 

2009 Plan 

Program 

Change 

Accruing 

in 2009 

Program 

Change 

Accruing in 

Out-years 

A B=A+C C D 

IA - Recreation Site 

Annual Maintenance 

(square feet)

UNK 389,825 279,499 315,890 315,890 279,499 -36,391 0 

Total Actual/Projected 

Cost ($000) $8,486 $7,345 $6,318 $6,663 $6,663 $5,826 $837 0 

Actual/Projected Cost $9,086 $19 $23 $23 $23 $23 $23 0 

Comments The 2009 change column shows a reduction of $837 for the 2008 unrequested increases that will not be carried 

forward. 

Note: Projected costs may not equal program change as these are full costs, which may include funds from other sources and (or) use 

averages. 

Column A: The level of performance and costs expected in 2009 at the 2008 level plus funded fixed costs. Reflects the impact of prior year 

funding changes, management efficiencies, absorption of prior year fixed costs, and trend impacts, but does not reflect the proposed program 

change. 

Column D: Outyear performance beyond 2009 addresses lagging performance — those changes occurring as a result of the program change 

(not total budget) requested in 2009. It does not include the impact of receiving the program change again in a subsequent out-year. 

PROGRAM OVERVIEW

Program Components – The Annual Maintenance program is a critical investment in 

maintaining the functionality of the BLM’s infrastructure, which provides visitor safety on public 

lands and ensures proper facilities management. 

• Other functions include emergency, preventive and cyclic maintenance at all BLM 

facilities including: recreation sites, administrative sites, roads, bridges, dams, and 

trails. 

• The BLM manages and maintains over 2,500 recreation and 700 non-recreation 

sites. 

Long-Term Vision – The Annual Maintenance program aims to perform sufficient annual 

maintenance on its constructed assets so no new deferred maintenance needs will accrue. 

Critical Factors – The BLM’s constructed assets are disbursed throughout BLM administered 

lands. Critical factors that impact BLM’s capability to maintain these assets include: 

• The climatic condition (particularly for road and bridge maintenance.) 

• An increase in costs across the board as a result of fuel and material cost increases. 

• An increase in the construction and maintenance costs of new facilities. 
Bureau of Land Management 2009 Budget Justifications 

Section III - Management of Lands and Resources Page III-309

Means and Strategies – The Annual Maintenance program needs are driven by visitation 

ses on public lands, the usage of constructed assets, such 

• g program work, the program adheres to the requirements of Executive 

• easures of the Federal Real Property Profile, the Asset 

Funding from 

trategic Plan – The Annual 

Key intermediate outcome

x, which can be used to 

•

009 PROGRAM PERFORMANCE

007 Accomplishments – 

ed to maintain over 90% of its constructed assets in adequate 

patterns, following Executive Order requirements, and maintaining assets through measures of 

the Federal Real Property Profile. 

• As public visitation increa

as recreation facilities, trails, and roads also increase, resulting in increased needs 

for additional maintenance, adequate restroom facilities, signing, and hazard 

removals. 

In conductin

Order 13327, "Federal Real Property Asset Management," signed February 4, 2005, 

which 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 program uses two m

Priority Index, and the Facilities Condition Index, for identifying the condition of 

constructed assets and target assets that can be disposed or require additional 

annual maintenance or supplemental funding from deferred maintenance. 

 Other Funding Sources – 

Fee Collection sites augment the annual 

maintenance of those sites. However, 

these fees reduce but do not eliminate the 

need for annual maintenance funding at 

these most visible BLM sites.

S

Maintenance program supports the 

Recreation mission goal from the DOI’s 

Strategic Plan by providing for facility 

condition assessments, professional 

engineering services, and management of 

environmental and structural risks at 

facilities. 

• BLM Seasonal Housing Facilities at the Marion Creek 

measures of performance will 

be based on the industry standard

measure the change of condition of facilities, and the percentage of facilities which 

can be brought to or fully maintained at an acceptable condition standard. 

Performance in the Annual Maintenance program is also measured by the 

Administrative Site, Alaska

Facilities Condition Inde

percentage of organizations units rated in good safety, health, and environmental 

condition and the percentage of roads, dams, and bridges in fair to good condition. 

2

2

• The BLM continu

condition as measured by a facility condition index (FCI) of less than 0.15. 

• The BLM continued the base line condition assessment of its constructed assets 

concentrating on roads. 
Bureau of Land Management 2009 Budget Justifications 

Section III - Management of Lands and Resources Page III-310

• Initiated follow-up condition assessments on recreation and administrative site as 

called for by Department of Interior guidance. 

2008 Planned Program Performance – In 2008, the BLM will maintain its constructed assets 

on recreation and non-recreation facilities and over 11,000 miles of roads in adequate condition. 

Maintenance is directed to those sites and associated assets based on an asset prioritization 

basis with particular emphasis on those identified as mission critical assets. 

2009 Program Performance – In 2009, the Annual Maintenance program will continue to 

maintain constructed assets supporting BLM administrative, recreational, and infrastructure 

needs, and emphasize areas under the greatest pressure from community growth. In 2007 

approximately 4,600 buildings and over 30,000 structures were reported in the Federal Real 

Property Profile. These structures consist of dams, bridges, communication and electrical and 

communication system, trails, and roads. Over 90 percent of these constructed assets are 

maintained in adequate condition (i.e., good or fair) in 2007. While the responsibility to perform 

maintenance for several National Monument and National Conservation Areas has shifted, the 

requirement to meet visitor expectations at these recreation sites will be similarly emphasized. 

Over 90 percent of these constructed assets are maintained in adequate condition (i.e., good or 

fair) in 2008, and this will continue in 2009. 

In 2008, BLM continued the utilization of the Asset Business Plan (ABP) to make management 

decisions on the maintenance of their critical assets. Utilizing cost and performance information at 

the asset level, field personnel have an objective methodology to manage BLM constructed assets. 

Improved tracking of actual Operations and Maintenance (O&M) cost coupled with the 

Implementation of the Facility Condition Index (FCI) and the Asset Priority Index (API) allows field 

managers to disburse annual maintenance funds in the most optimal manner. 

Use of Cost and Performance Information with the Asset Business Plan in the 

Annual Maintenance Program 

In 2009, BLM will continue to improve its capability to track O&M cost tracking to those constructed 

assets that are most critical to the BLM mission. This tracking process will ultimately assist in 

optimizing the distribution of BLM’s annual maintenance budget. 
Bureau of Land Management 2009 

ANNUAL MAINTENANCE PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Planned 2007 Actual 2008 Plan 2009 President's Budget Chang

from 20

Plan t

2009 

Maintenance: Number of square feet of buildings maintained in adequate condition, determined by FCI<0.15, at recreation sites (Bur) 

new 

measure 

new 

measure 

new 

measure 

93% 

706,285/ 

761,903 

90% 

723,280/ 

799,420 

90% 

723,280/ 

799,420 

90% 

723,280/ 

799,420 

0% 

Total Actual/Projected Cost ($000) $0 $0 $0 $0 $23,466 $28,781 $26,429 -$2,35Actual/Projected Cost per Square Foot (in dollars) $0 $0 $0 $0 $32 $40 $37 -$3 Comment: 

This measure includes funding from Recreation Management, Maintenance Operations, Annual MaintenancMaintenance accounts. The performance results are derived from Annual Maintenance and Maintenance Onot include Deferred Maintenance which would be represented by the 10% of square feet of buildings that dadequate condition. The 2009 decline in funding for deferred maintenance does not affect the performance the short term. Since deferred maintenance is more costly than annual maintenance, the remaining annual reflects a lower cost. 

Maintenance: Number of non-building assets maintained in adequate condition, determined by FCI<0.15, at recreation sites (Bur) 

new 

measure 

new 

measure 

new 

measure 

88% 

11,883/ 

13,479 

88% 

14,670/ 

16,724 

88% 

14,670/ 

16,724 

88% 

14,670/ 

16,724 

0% 

Total Actual/Projected Cost ($000) $0 $0 $0 $0 $23,440 $15,541 $13,610 -$1,93Actual/Projected Cost per Asset (in dollars) $0 $0 $0 $0 $1,598 $1,059 $928 -$13Comment: 

This measure includes funding from Recreation Management, Maintenance Operations, Annual MaintenancMaintenance accounts. The performance results are derived from Annual Maintenance and Maintenance Onot include Deferred Maintenance which would be represented by the 12% of non-building assets that do nocondition. The 2009 decline in funding for deferred maintenance does not affect the performance of the meaterm. Since deferred maintenance is more costly than annual maintenance, the remaining annual maintena

lower cost. 

Section III - Management of Lands and Resources 
Bureau of Land Management 2009 

ANNUAL MAINTENANCE PERFORMANCE Overview 

Chang

from 20

Plan t

2009 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Planned 2007 Actual 2008 Plan 2009 President's Budget 

Maintenance: Number of square feet of building maintained in adequate condition, determined by FCI<0.15, at non-recreation sites (Bur) 

new 

measure 

new 

measure 

new 

measure 

95% 

2,459,990/ 

2,602,380 

97% 

3,000,073/ 

3,085,585 

97% 

3,000,073/ 

3,085,585 

97% 

3,000,073/ 

3,085,585 

0% 

Total Actual/Projected Cost ($000) $0 $0 $0 $0 $24,295 $26,064 $22,025 -$4,03Actual/Projected Cost per Square Feet (in dollars) $0 $0 $0 $0 $8 $9 $7 -$2 Comment: 

This measure includes funding from Maintenance Operations, Annual Maintenance, and Deferred MaintenaThe performance results are derived from Annual Maintenance and Maintenance Operations, and do not incmaintenance which is represented by the 3% of square feet of buildings that do not meet adequate conditiondecline in funding for deferred maintenance does not affect the performance of the measure in the short termdeferred maintenance is more costly than annual maintenance, the remaining annual maintenance reflects a 

Maintenance: Number of non-building assets maintained in adequate condition, determined by FCI<0.15, at non-recreation sites (Bur) 

new 

measure 

new 

measure 

new 

measure 

94% 

11,407/ 

12,131 

95% 

14,174/ 

14,970 

95% 

14,174/ 

14,970 

95% 

14,174/ 

14,970 

0% 

Total Actual/Projected Cost ($000) $0 $0 $0 $0 $15,857 $10,192 $7,939 -$2,25Actual/Projected Cost per Asset (in dollars) $0 $0 $0 $0 $1,119 $719 $560 -$159 Comment: 

This measure includes funding from Maintenance Operations, Annual Maintenance, and Deferred MaintenaThe performance results are derived from Annual Maintenance and Maintenance Operations, and do not incmaintenance which is represented by the 5% of non-building assets that do not meet adequate condition. Thin funding for deferred maintenance does not affect the performance of the measure in the short term. Sincmaintenance is more costly than annual maintenance, the remaining annual maintenance reflects a lower co

Maintenance: Number of lane miles of roads maintained in adequate condition (Bur) 

new 

measure 

new 

measure 

new 

measure 

Establish 

Baseline 29,500 29,500 29,500 0% 

Section III - Management of Lands and Resources 
Bureau of Land Management 2009 

ANNUAL MAINTENANCE PERFORMANCE Overview 

Chang

from 20

Plan t

2009 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Planned 2007 Actual 2008 Plan 2009 President's Budget 

Total Actual/Projected Cost ($000) $0 $0 $0 $0 $28,215 $27,083 $24,819 -$2,26Actual/Projected Cost per Mile (in dollars) $0 $0 $0 $0 $956 $918 $841 -$77 Comment: 

This measure includes funding from Maintenance Operations, Annual Maintenance, and Deferred MaintenaThe performance results are derived from Annual Maintenance and Maintenance Operations, and do not incmaintenance which would be represented by the lane miles that do not meet adequate condition. The 2009 funding for deferred maintenance does not affect the performance of the measure in the short term. Since dmaintenance is more costly than annual maintenance, the remaining annual maintenance reflects a lower co

Administrative Site NonBuilding Condition Assessment (number assessed) 

UNK UNK 73 475 481 475 475 0 

Recreation Site Non-Building Condition Assessment (recreation sites assessed) 

UNK UNK 291 1,100 1,890 1,100 1,100 0 

Road Condition Assessment (lane miles) UNK UNK 2,405 3,100 774 3,100 3,100 0 Administrative Site Building Condition Assessment (square feet) 

UNK UNK 280,273 275,000 280,264 275,000 275,000 0 

Dam Condition Assessment (dams assessed) UNK UNK 33 40 36 40 40 0 Bridge Condition Assessment (bridges assessed) UNK UNK 67 90 87 90 90 0 Trail Condition Assessment (miles) UNK UNK 153 350 273 350 350 0 Recreation Site Building Condition Assessment (square feet) 

UNK UNK 52,879 70,000 72,705 70,000 70,000 0 

Recreation Site Annual Maintenance (square feet) UNK UNK 389,825 280,000 279,499 315,890 **244,716 -36,39

Section III - Management of Lands and Resources 
 2009 

Section III - Management of Lands and Resources 

ANNUAL MAINTENANCE PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Planned 2007 Actual 2008 Plan 2009 President's Budget Chang

from 20

Plan t

2009 

Trails Annual Maintenance (miles) UNK 2,170 2,948 2,600 2,889 2,600 2,600 0 Bridge Annual Maintenance (bridges maintained) UNK 152 *85 80 77 80 80 0 Dam Annual Maintenance (dams maintained) UNK 126 *22 9 11 9 9 0 Administrative Site Annual Maintenance (square feet) UNK UNK *2,576,302 1,500,000 1,461,940 1,500,000 1,500,000 0 Road Annual Maintenance (lane miles) UNK 7,587 9,246 8,500 9,622 8,500 8,500 0 Recreation Site Non-Building Annual Maintenance (assets maintained) 

UNK UNK *1985 5,800 5,919 5,800 5,800 0 

Administrative Site NonBuilding Annual Maintenance (assets maintained) 

UNK UNK *319 1,800 1,788 1,800 1,800 0 

* Program Element definition changed between years. **The 2009 column reflects a decrease to performance of 36,391 square feet of recreation site annual maintenance for the 2008 unrequested 

will not be carried forward, and a shift of performance to the new National Monuments and National Conservation Areas subactivity of 54,783 

recreation site annual maintenance. 

Additional workload units are accomplished by other programs including Recreation Management, Challenge Cost Share, O&C Recreation, OMaintenance, and O&C Operations Maintenance. 

Bureau of Land Management 
Bureau of Land Management 2009 Budget Justifications 

Section III - Management of Lands and Resources Page III-315

Activity: Transportation and Facilities Maintenance 

Activity: Transportation and Facilities Management 

Subactivity: Deferred Maintenance

Subactivity: Deferred Maintenance 

 2009 

 Fixed Costs & Change 

 2007 2008 

Related 

Changes 

Program 

Changes Budget 

from 

2008 

 Enacted Enacted (+/ -) (+/ -) Request (+/-) 

Deferred Maintenance ($000) 33,157 36,485 0 -10,155 26,330 -10,155

 

FTE 88 99 0 -11 88 -11

Other Major Resources: 

Transfer: FHWA funding 3,964 4,000 0 0 4,000 0

Major Program IT Investments: 

FMS: 010-04-01-07-03-0031-00 1,489 1,489 -479 1,010 -479

ADMS: 010-04-01-07-03-1044-00 60 60 0 60 0

Summary of 2009 Program Changes for Deferred Maintenance 

Request Component $0 FTE

Program Changes: 

• Travel & Relocation expenses -79 

• Performance Contracting savings -100 

• Deferred Maintenance Projects Reduction -9,976 -11

TOTAL, Program Changes -10,155 -11

 

JUSTIFICATION OF FY 2009 PROGRAM CHANGES

The 2009 budget request for the Deferred Maintenance program is $26,330,000 and 88 FTE, a 

program change of -$10,155,000 and -11 FTE from the 2008 Enacted level. 

 

Deferred Maintenance Projects Reduction (-$9,976,000 / -11 FTE Positions) – In 2008, 

Congress provided $3,217,000 in additional funding in the Deferred Maintenance program, to be 

used for core functions, including NLCS activities. The BLM proposes a reduction of this 

amount. Additionally, the BLM proposes a program decrease of $6,759,000 in 2009 in the 

Deferred Maintenance program. The BLM will continue to restore and maintain core functions 

in the Deferred Maintenance program by focusing on highest priority deferred maintenance 

projects and efficiencies where possible. The Deferred Maintenance program will continue 

focus on facilities condition assessments, engineering services, database management, 

management of environmental and structural risks of facilities, and dam and bridge inspections 

with this funding. 
Bureau of Land Management 2009 Budget Justifications 

Section III - Management of Lands and Resources Page III-316

Program Performance Change Table 

2005 

Actual 

2006 

Actual 

2007 

Actual 2008 Plan 

2009 Base 

Budget 

(2008 PB 

+ Fixed 

Costs) 

2009 Plan 

Progra

m 

Change 

Accrui

ng in 

2009 

Program 

Change 

Accruing in 

Out-years 

A B=A+C C D 

IN - Administrative 

Site Deferred 

Maintenance (square 

feet) 

*51 560,824 29,291 137,555 137,555 96,332 -41,223 96,332 

Total Actual/Projected 

Cost ($000) $11,876 $11,578 $7,092 $44,136 $44,136 $34,160 -$9,976 34,160 

Actual/Projected Cost $232 $23 $242 $242 $242 $242 $242 $242 

Comments 

*Numbers reported for 2005 Actual are number of sites. In 2006 the definition changed from sites to square feet, 

which results in much larger numbers. 

The 2009 change column shows a program reduction of $3,217 for specific adds in 2008 that will not be carried 

forward and a reduction of $6,217 in 2009 for deferred maintenance projects. 

Note: Projected costs may not equal program change as these are full costs, which may include funds from other sources and (or) use 

averages. 

Column A: The level of performance and costs expected in 2009 at the 2008 level plus funded fixed costs. Reflects the impact of prior year 

funding changes, management efficiencies, absorption of prior year fixed costs, and trend impacts, but does not reflect the proposed program 

change. 

Column D: Outyear performance beyond 2009 addresses lagging performance — those changes occurring as a result of the program change 

(not total budget) requested in 2009. It does not include the impact of receiving the program change again in a subsequent out-year. 

PROGRAM OVERVIEW

Program Components – The main objectives of the Deferred Maintenance program are to 

reduce the accumulated maintenance backlog and improve the overall physical and functional 

condition of BLM-owned facilities for public safety. Other related efforts on the Deferred 

Maintenance program include: 

• Facility condition assessments; 

• Professional engineering services; 

• Program oversight; 

• Database management; 

• Management of environmental and structural risks of facilities, and; 

• Dam and bridge inspections. 

Long-Term Vision – Through the asset management planning process, the BLM is identifying 

real property assets that are candidates for disposition. Any asset that is no longer critical to the 

mission, or that is in such poor condition that it is no longer cost effective to maintain, will be 

identified for possible disposal. 

The long-term goal is to attain a portfolio of constructed assets that are in good physical and 

functional condition and that are aligned with current maintenance resources. 

Critical Factors – The Deferred Maintenance program’s capability to achieve outcomes is 

directly affected by external factors. 

• Population growth in the American West is placing heavy demands on BLM facilities 

and resources. In the lower 48 states, nearly two-thirds of BLM-managed lands are 

within a one-hour drive of urban areas. An example of the stresses increased use 

places on BLM-managed facilities can be seen in BLM-managed roads. 
Bureau of Land Management 2009 Budget Justifications 

Section III - Management of Lands and Resources Page III-317

•

 by the public. With

•

Means an

assessmen

administrative sites, including on-site buildings 5. 

Baseline condition assessments of Maintenance L eted in 

rocess identifies deferred maintenance needs and 

nance needs identified in condition assessments and other 

spections are developed into specific projects and proposed in the Five-Year Deferred 

 9

) 

i) 

Many BLM roads that were 

originally built for managing the 

public lands are now used 

regularly

changing demographics and trip 

patterns, the public is using BLM 

roads for everyday life activities. 

These roads were not designed 

and constructed for the current 

traffic volume and mix of vehicles. 

Increased usage is causing BLM 

roads to deteriorate at a faster 

rate, making deferred 

maintenance essential for public 

safety. 

d Strategies – Baseline condition 

ts of recreation sites and 

“Depression Detention Dam Repairs”, Billings, 

Montana (MLR-DM Project No. 1653-EG2M). 

The project reshaped the existing spillway 

profile and installed rip-rap to eroded areas. 

and structures, were completed in 200

evel 3, 4, and 5 roads were compl

2007. Condition assessments of bridges and dams and assessments of major trails were 

completed in 2007. 

Assessment Process: The condition assessment Deferred Maintenance Partnership 

Success Story 

200

Bureau-wide ment (CA) 

p

determines the current replacement value of constructed 

assets. Knowing the estimated cost of deferred 

maintenance and the replacement value of recreation 

sites and administrative allowed the BLM to use the 

industry standard Facilities Condition Index (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 (Facilities Condition Index = Deferred 

Maintenance/Current Replacement Value). It is an 

indicator of the depleted value of capital assets. The 

general rule is that FCI should be below 0.10 for a facility 

to be considered in good condition. 

Project Proposals: Deferred mainte

7 marked the end of a comprehensive

 Condition Assess

program that spanned over 5 years with an 

investment cost of nearly $10 million. With 

the completion of the CA program coming 

to an end, the BLM will be able to make 

more accurate assessments of the nearly 

35,000 assets in its entire portfolio which 

will direct deferred maintenance funds to 

those assets that require immediate 

attention in order to keep them in the good 

physical and functional condition. 

in

Maintenance and Capital Improvement Plan. The 2009 – 2013 Deferred Maintenance and 

Capital Improvement Plan is being submitted concurrently with this budget request. Projects 

are ranked using a weighting process based on the percentage of the work (total project 

amount) that falls in each of the categories and the corresponding rank listed below: 

o Critical Health and Safety Deferred Maintenance (CHSdm) 10

o Critical Health and Safety Capital Improvement (CHSci) 

o Critical Resource Protection Deferred Maintenance (CRPdm 7

o Critical Resource Protection Capital Improvement (CRPc 6

o Energy Policy, High Performance, Sustainable Buildings CI (EPHPBSci) 5

o Critical Mission Deferred Maintenance (CMdm) 4
Bureau of Land Management 2009 Budget Justifications 

Section III - Management of Lands and Resources Page III-318

o Other Deferred Maintenance (Odm) 3

o Code Compliance Capital Improvement (CCci) 3 

 are nked ing th following calculation: 

x 5) + 

CMdm x 4) + (%Odm x 3) + (%CCci x 3) + (%Oci x 1) = Total Project Score

-related 

ritical Health and Safety and Critical Resource Protection deferred maintenance needs. 

Other 

artnership funds, which are used to complete small projects or augment funding for scheduled 

 the 

epartment’s four mission areas as illustrated in the following table. 

o Other Capital Improvements (Oci) 1

Based on these weight factors, projects ra us e

(%CHSdm x 10) + (%CHSci x 9) + (%CRPdm x 7) + (%CRPci x 6) + (%EPHPBSci 

(%

The percentages must add to 100%. It places the highest priority on facility

C

Funding Sources – Additional funding sources for Deferred Maintenance are from 

p

Table 1 projects from the Five Year Deferred Maintenance and Capital Improvement Plan. 

Strategic Plan – The Deferred Maintenance program directly supports all four of

D

DOI Example -- State and Mission Outcome Goal Explanation Project Name Area 

R

Pro 

Prote

Natural Heritage Heri C) 

The AHC

approximately 3.4 million 

 linear feet 

esource 

tection

ct Cultural and Colorado – Anasazi 

tage Center (AH

Automatic Fire 

Sprinkler System 

Replacement 

 houses 

artifacts and 2,000

of original associated 

documentation. All are oneof-a-kind, irreplaceable

resources. 

Resources 

Resource 

Use 

Manage or Influence 

Resource Use to Enhance 

te 

Alaska – Tangle Lakes 

Archeological District e access to lands 

(TLAD)Trail Repair and 

Restoration Phase V 

These off-highway vehicle 

trails provid

open to federal subsistence

hunting. More than half of the

federal subsistence hunting in

Alaska is within the TLAD. 

Public Benefit, Promo

Responsible Use, and 

Ensure Optimal Value 

Recreation 

Recreation Experience, 

Montana – Holter Lake 

Campground Docks 

he 

y 

Provide for a Quality 

and Boat Ramp Phase 

II and Log Gulch 

Campground Docks 

and Boat Ramp Phase 

II 

The replacement boat ramps 

and docks and additional boat 

slips will accommodate 

increasing visitation and 

improve public safety. T

facilities meet accessibilit

standards. 

Including Access and 

Enjoyment of Natural and

Cultural Resources on 

DOI-Managed and 

Partnered Lands and 

Waters 

Serving 

Communities 

es, ho – Correct 

Deficiencies at Five 

 facilities provide 

daily communications for 

and 

Protect Lives, Resourc

and Property

Ida These radio

Rohn Towers BLM offices, law 

enforcement, fire fighters, 

other federal and state 

agencies. 
Bureau of Land Management 2009 Budget Justifications 

Section III - Management of Lands and Resources Page III-319

2009 PROGRAM PERFORMANCE

al Award for Energy Savings Performance Contracts 

2008 Plan

ith this a funding the Deferred Maintenance program plans to accomplish the 

llion dollars in 2008. 

2007 Accomplishments – 

• Received the Presidenti

(ESPC). 

• Incorporated sustainability and energy conservation requirements in all 2007 

projects. 

• New project management initiatives were base-lined with emphasis on reporting and 

accountability with new PM training/certification requirements for project over $2.0 

million. 

ned Program Performance – 

W dditional 

following 78 projects for a total of $36.5 mi

FY 2008 Planned Deferred Maintenance Projects

Number of Funding State Office Projects ($000) 

Alaska 10 3,217 

Arizona 5 960 

California 11 3546 

Colorado 8 2987 

Eastern States 3 297 

Idaho 6 3179 

Montana 3 2114 

National Business Center 1 200 

National Interagency Fire Ctr. 1 50 

National Science & Tech. Ctr. 4 868 

Nevada 1 405 

New Mexico 3 8541 

Oregon 10 3168 

Utah 5 1150 

Washington Office 3 4,844 

Wyoming 4 959 

BLM Total 78 Projects $36,485 

2009 Planned P rformance – 

 2009, the planned accomplishments in the Def

rogram Pe

In erred Maintenance program include 72 

projects for a total of $26.3 million dollars. 

Priority/ 

Score 

State Office Project Name Funding 

($000) 

5/685 Alaska Tangle Lakes Archeological District Trail Repair and Restoration, 

Phase V 

420 

6/600 Alaska Denali Highway Area Trail Rehabilitation, Phase II 101 

10/1000 Alaska Fort Wainwright Tower Replacement 97 

11/1000 Alaska Galena Tower Replacement 276 

12/1000 Alaska Totson Mountain Tower Replacement, Phase II 189 
Bureau of Land Management 2009 Budget Justifications 

Section III - Management of Lands and Resources Page III-320

Priority/ State Office Project Name Score Funding 

($000) 

23/895 Alaska Tanana Tower Replacement, Phase II 295 

24/865 Alaska Fort Yukon Tower Replacement 318 

43/400 Alaska Project and Contract Management 89 

44/400 Alaska Facility Asset Management System and Condition Assessment 

Support 

78 

Alaska Total 1,863 

7/590 Arizona Empire Ranch Historic Buildings Complex Preservation, Phase II 360 

8/570 Arizona anford Ranch Stabilization Phase II S 25 

43/400 Arizona Project and Contract Management 89 

44/400 Arizona Facility Asset Management System and Condition Assessment 

Support 

78 

Arizona Total 552 

1/1000 California Bizz Johnson Trail Tunnels Repair Phase II 466 

13/1000 California Water Tank Replacement - Wiley Well & Coon Hollow 95 

14/1000 California South Park Canyon Bridge 90

38/700 California Plank Road Fence DM 92 

39/685 California Kaluna Cabin Rehabilitation (NLCS) 164 

40/670 California Lacks Creek Watershed Restoration and Stream Crossing 1,3

Removal 

55 

43/400 California Project and Contract Management 89 

44/400 California Facility Asset Management System and Condition Assessment 78 

Support 

California Total 2,429 

15/1000 Colorado Piney River Bridge Replacement 454 

26/850 Colorado te Toilet Vault U 49 

43/400 Colorado Project and Contract Management 89 

44/400 Colorado Facility Asset Management System and Condition Assessment 

Support 

94 

Colorado Total 686 

43/400 Eastern States Project and Contract Management 40 

44/400 Eastern States acility Asset Manage F ment System and Condition Assessment 

Support 

22 

Eastern States Total 62 

4/700 Idaho Building Seismic Safety Program Phase V – Warehouse 215 1,452 

16/1000 Idaho Cottonwood Communication Tower Safety Replacement 114 

27/810 Idaho Kimama Butte Lookout Safety Replacement/Security Upgrade 340 

28/810 Idaho Notch Butte Lookout Safety Replacement/Security Upgrade 340 

29/810 Idaho Ramsey Mtn Comm Site Safety Replacement/Security Upgrade 340 

36/700 Idaho Burley Operations Roof Repair 276 

43/400 Idaho Project and Contract Management 89 

44/400 Idaho Facility Asset Management System and Condition Assessment 

Support 

111 

Idaho Total 3,062 

43/400 Montana Project and Contract Management 89 

44/400 Montana acility Asset Management F System and Condition Assessment 

Support 

100 
Bureau of Land Management 2009 Budget Justifications 

Section III - Management of Lands and Resources Page III-321

Priority/ State Office Project Name Score Funding 

($000) 

Montana Total 189 

43/400 National 

ness 

Project and Contract Management 200 

Busi

Center 

National Bu nter Total siness Ce 200 

42/400 

gy 

National Compliance Audits, Inspections, and Condition Assessments 270 

Science & 

Technolo

Center 

43/400 

 & 

gy 

Architectural and Engineering Services, Project and Contract 

Management, and Government Initiatives 

National 470 

Science

Technolo

Center 

44/400 

 & 

gy 

Facility Asset Management System and Condition Assessment 

Support 

National 100 

Science

Technolo

Center 

National Science and Technology Center Total 840 

17/1000 Nevada Marys River Bridge Reconstruction 568 

35/700 Nevada Roof Replacement 148 

37/700 Nevada Elko Field Office Air Conditioning 118 

43/400 Nevada Project and Contract Management 89 

44/400 Nevada Facility Asset Management System and Condition Assessment 

Support 

78 

Nevada Total 1,001 

3/805 New Mexico e Agreement GDA020006 – San Juan Basin Cost-Shared 

oad Maintenance Phase II 

Cooperativ 334 

R

43/400 New Mexico Project and Contract Management 89 

44/400 New Mexico Facility Asset Management System and Condition Assessment 78 

Support 

New Mexico Total 501 

20/1000 Oregon Luyne Creek Culvert Replacement (New 2009 O&C) 459 

21/1000 Oregon Perry Road Culvert Replacement (New 2009 O&C) 209 

25/865 Oregon Medford District Office Roof Replacement (Adds funding to New 

2009 O&C) 

583 

30/700 Oregon NHOTIC HVAC 521 

31/700 Oregon Gold Creek Asphalt Paving 410 

32/700 Oregon Cape Blanco Lighthouse Repairs 259 

33/700 Oregon Rock Creek Road Fill Failures, Phase I 463 

34/700 Oregon Rand Building Repairs 71 

43/400 Oregon Project and Contract Management 158 

44/400 Oregon Facility Asset Management System and Condition Assessment 1

Support 

00 

Oregon Total 3,233 

22/955 Utah Fillmore Field Office Construction 3,976 

43/400 Utah Project and Contract Management 89 

44/400 Utah Facility Asset Management System and Condition Assessment 

Support 

94 
Bureau of Land Management 2009 Budget Justifications 

Section III - Management of Lands and Resources Page III-322

Priority/ 

Score State Office Project Name Funding ($000) 

Utah Total 4,159 

41/400 Division of 

Engineering 

e 

e Actions – to be distributed to States in AWP 687 

and 

Environmental 

Scienc

Correctiv

42/400 Divisio

ing 

e 

Compliance Audits, Inspections, and Condition Assessments – to 

be distributed to States in AWP

n of 255 

Engineer

and 

Environmental 

Scienc

43/400 Divisio

ing 

e 

Architectural and Engineering Services, Project and Contract 

Management, and Government Initiatives – to be distributed to 

n of 4,022 

Engineer

and 

Environmental 

Scienc

States in AWP

44/400 Divisio

ing 

e 

Facility Asset Management System and Condition Assessment 

Support 

n of 1,704 

Engineer

and 

Environmental 

Scienc

Washington Office Total 6,668 

2/995 Wyoming Sheep's Trail Bridge Replacement Phase II 279 

9/550 Wyoming Hudson-Atlantic City Road Phase II 105 

18/1000 Wyoming Murphy Creek Bridge Demolition 101 

19/1000 Wyoming Whistle Creek Bridge 233 

43/400 Wyoming Project and Contract Management 89 

44/400 Wyoming Facility Asset Management System and Condition Assessment 

Support 

78 

Wyoming Total 885 

BLM Total 26,330 
Bureau of Land Management 2009 

DEFERRED MAINTENANCE PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Planned 2007 Actual 2008 Plan 2009 President's Budget C

fro

P

Facility Compliance: Increase the percentage of BLM organizational units rated in good safety, health, and environmental condition. (BUR) 

87% 

103 / 118 

78% 

94 / 120 

83% 

99/ 120 

80% 

96/ 120 

88% 

105/ 120 

88% 

105/ 120 

88% 

105/ 120 

Comment: * Support Measure - No cost will be shown. Infrastructure improvement results for non-building assets 

recreation sites are based on actual planned projects and will vary each year. 

Number of square feet of buildings maintained in adequate condition, determined by FCI<0.15, at recreation sites. (Bur) 

new 

measure 

new 

measure 

new 

measure 

93% 

706,285/ 

761,903 

90% 

723,280/ 

799,420 

90% 

723,280/ 

799,420 

90% 

723,280/ 

799,420 

Total Actual/Projected Cost ($000) $0 $0 $0 $0 $23,466 $28,781 $26,429 -$Actual/Projected Cost per Square Foot (in dollars) $0 $0 $0 $0 $32 $40 $37 Comment: 

This measure includes funding from Recreation Management, Maintenance Operations, Annual MainteMaintenance accounts. The performance results are derived from Annual Maintenance and Maintenando not include Deferred Maintenance which would be represented by the 10% of square feet of buildingadequate condition. The 2009 decline in funding for deferred maintenance does not affect the performain the short term. Since deferred maintenance is more costly than annual maintenance, the remaining areflects a lower cost. 

Number of non-building assets maintained in adequate condition, determined by FCI<0.15, at recreation sites. (Bur) 

new 

measure 

new 

measure 

new 

measure 

88% 

11,883/ 

13,479 

88% 

14,670/ 

16,724 

88% 

14,670/ 

16,724 

88% 

14,670/ 

16,724 

Total Actual/Projected Cost ($000) $0 $0 $0 $0 $23,440 $15,541 $13,610 -$Actual/Projected Cost per Asset (in dollars) $0 $0 $0 $0 $1,598 $1,059 $928 -Comment: 

This measure includes funding from Recreation Management, Maintenance Operations, Annual MainteMaintenance accounts. The performance results are derived from Annual Maintenance and Maintenando not include Deferred Maintenance which would be represented by the 12% of non-building assets thadequate condition. The 2009 decline in funding for deferred maintenance does not affect the performain the short term. Since deferred maintenance is more costly than annual maintenance, the remaining areflects a lower cost. 

Section III - Management of Lands and Resources 
Bureau of Land Management 2009 

DEFERRED MAINTENANCE PERFORMANCE Overview 

2009 

President's 

Budget 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Planned 2007 Actual 2008 Plan 

C

fro

P

Number of square feet of buildings maintained in adequate condition, determined by FCI<0.15, at nonrecreation sites. (Bur) 

new 

measure 

new 

measure 

new 

measure 

95% 

2,459,990/ 

2,602,380 

97% 

3,000,073/ 

3,085,585 

97% 

3,000,073/ 

3,085,585 

97% 

3,000,073/ 

3,085,585 

Total Actual/Projected Cost ($000) $0 $0 $0 $0 $24,295 $26,064 $22,025 -$Actual/Projected Cost per Square Feet (in dollars) $0 $0 $0 $0 $8 $9 $7 Comment: 

This measure includes funding from Maintenance Operations, Annual Maintenance, and Deferred MainThe performance results are derived from Annual Maintenance and Maintenance Operations, and do nomaintenance which is represented by the 3% of square feet of buildings that do not meet adequate condecline in funding for deferred maintenance does not affect the performance of the measure in the shordeferred maintenance is more costly than annual maintenance, the remaining annual maintenance refle

Number of non-building assets maintained in adequate condition, determined by FCI<0.15, at nonrecreation sites. (Bur) 

new 

measure 

new 

measure 

new 

measure 

94% 

11,407/ 

12,131 

95% 

14,174/ 

14,970 

95% 

14,174/ 

14,970 

95% 

14,174/ 

14,970 

Total Actual/Projected Cost ($000) $0 $0 $0 $0 $15,857 $10,192 $7,939 -$Actual/Projected Cost per Asset (in dollars) $0 $0 $0 $0 $1,119 $719 $560 -Comment: 

This measure includes funding from Maintenance Operations, Annual Maintenance, and Deferred MainThe performance results are derived from Annual Maintenance and Maintenance Operations, and do nomaintenance which is represented by the 5% of non-building assets that do not meet adequate conditioin funding for deferred maintenance does not affect the performance of the measure in the short term. maintenance is more costly than annual maintenance, the remaining annual maintenance reflects a low

Number of lane miles of roads maintained in adequate condition (Bur) 

new 

measure 

new 

measure 

new 

measure 

Establish 

Baseline 29,500 29,500 29,500 

Total Actual/Projected Cost ($000) $0 $0 $0 $0 $28,215 $27,083 $24,819 -$Actual/Projected Cost per Mile (in dollars) $0 $0 $0 $0 $956 $918 $841 

Section III - Management of Lands and Resources 
Bureau of Land Management 2009 

DEFERRED MAINTENANCE PERFORMANCE Overview 

2009 

President's 

Budget 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Planned 2007 Actual 2008 Plan 

C

fro

P

Comment: 

This measure includes funding from Maintenance Operations, Annual Maintenance, and Deferred MainThe performance results are derived from Annual Maintenance and Maintenance Operations, and do nomaintenance which would be represented by the lane miles that do not meet adequate condition. The 2funding for deferred maintenance does not affect the performance of the measure in the short term. Sinmaintenance is more costly than annual maintenance, the remaining annual maintenance reflects a low

Recreation Sites Deferred Maintenance (square feet) UNK 73 *140,103 39,740 12,349 272 5,250 +Trails Deferred Maintenance (miles) UNK 83 138 52 60 351 337 Bridge Deferred Maintenance (bridges maintained) UNK 8 1 2 1 4 6 Dam Deferred Maintenance (dams maintained) 

First Data 

2006 

First Data 

2006 11 0 7 0 0 

Administrative Site Deferred Maintenance (square feet) UNK 51 *560,824 112,298 29,291 **137555 ***96332 -4Road Deferred Maintenance (lane miles) 

First Data 

2006 

First Data 

2006 570 23 21 863 322 

Recreation Site Non-Building Deferred Maintenance (rec sites improved) 

First Data 

2006 

First Data 

2006 57 46 29 14 14 

Administrative Site Non-Building Deferred Maintenance (admin sites improved) 

First Data 

2006 

First Data 

2006 18 18 39 21 10 

* The program element definition changed from sites to square feet between 2005 and 2006. **The Deferred Maintenance Program is project specific and planned performance varies significantly from year to year depending on the scope Internal project priority selection increases the 2008 performance by an additional 94, 971 square feet. ***The 2009 column reflects a performance decrease of 41,233 square feet of administrative site deferred maintenance being performed as a resunrequested increase which will not be carried forward, and the 2009 program reduction. 

Section III - Management of Lands and Resources 
Bureau of Land Management 2009 

This page intentionally left blank. 

Section III - Management of Lands and Resources 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-327 

Activity: Challenge Cost Share 

Activity Summary ($000) 

 2009 

 Fixed Costs & Program Change

 2007 2008 

Related 

Changes 

Changes 

Budget 

from 

2008 

Subactivity Enacted Enacted (+/ -) (+/ -) Request (+/-) 

Challenge Cost Share $ 9,357 9,309 0 -110 9,199 -110

 FTE 33 32 0 0 32 0

Cooperative 

Conservation Initiative $ 0 0 0 0 0 0

 FTE 0 0 0 0 0 0

Total Activity $ 9,357 9,309 0 -110 9,199 -110

 FTE 33 32 0 0 32 0

 

 

Activity: Challenge Cost Share 

Subactivity: Challenge Cost Share 

 2009 

 Fixed Costs & Program Change 

 2007 2008 

Related 

Changes Changes Budget 

from 

2008 

 Actual Enacted (+/ -) (+/ -) Request (+/-) 

Challenge Cost Share ($000) 9,357 9,309 0 -110 9,199 -110

 

FTE 33 32 0 0 32 0

Other Major Resources: 

CCS Partners 

Major Program IT Investments: 

 

 

Summary of 2009 Program Changes for Challenge Cost Share 

Request Component ($000) FTE

Program Changes: 

• Restoration of NLCS funding to 2008 Request level -98

• Travel & Relocation Expenses -12

TOTAL, Program Changes -110 0

JUSTIFICATION OF 2009 PROGRAM CHANGES

The 2009 budget request for the Challenge Cost Share Program is $9,199,000 and 32 FTE, a 

net program change of -$110,000 and 0 FTE from the 2008 Enacted. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-328 

Reduction of Unrequested NLCS Increase (-$98,000) - In 2008, Congress provided an 

additional $98,000 in the Challenge Cost Share program for Challenge Cost Share projects 

within the National Landscape Conservation System (NLCS). This budget proposes to use the 

savings to address higher priorities. 

CHALLENGE COST SHARE PERFORMANCE CHANGE TABLE 

2005 Actual 2006 Actual 2007 Actual 2008 Plan 

2009 Base 

Budget 

(2008 Plan + 

Fixed Costs) 

2009 PB 

Program 

Change 

Accruing 

in 2009 

Program 

Change 

Accruing 

in Outyears 

A B=A+C C D 

Provide Outreach 

Through 

Interpretation 

184 648 789 855 855 800 -55 0 

Total 

Actual/Projected 

Cost ($000) 

$1,207,055 $1,729,138 $1,406,592 $1,524,465 $1,524,465 $1,426,400 -$98,000 0 

Actual/Projected 

Cost $6,560 $2,668 $1,783 $1,783 $1,783 $1,783 $1,783 0 

Comments In 2008, Congress provided an additional $98,000 in CCS for projects within the NLCS. This budget proposes reducing the 

CCS subactivity by $98,000 to address higher priorities. 

Note: Projected costs may not equal program change as these are full costs, which may include funds from other sources and (or) use averages. 

Column A: The level of performance and costs expected in 2009 at the 2008 level plus funded fixed costs. Reflects the impact of prior year funding 

changes, management efficiencies, absorption of prior year fixed costs, and trend impacts, but does not reflect the proposed program change. 

Column D: Outyear performance beyond 2009 addresses lagging performance — those changes occurring as a result of the program change (not total 

budget) requested in 2009. It does not include the impact of receiving the program change again in a subsequent out-year. 

PROGRAM OVERVIEW

Program Components - The BLM Challenge Cost Share (CCS) program works through 

partnerships to accomplish high-priority habitat, recreation and cultural resource work “on-theground.” The BLM leverages CCS funds with partners’ resources and other external funding to: 

survey, monitor and inventory resources; restore public land health; support threatened and 

endangered species management; manage cultural and heritage resources; 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 on-the-ground work. In 2009, the BLM is placing a high priority on CCS projects in the 

National Landscape Conservation System (NLCS) by planning to direct about $3.0 million to 

support projects in NLCS units.

The CCS program’s partnership capacity building efforts provide incentives for communities to 

work with the BLM to achieve citizen stewardship, a major objective of the Cooperative 

Conservation Initiative. Partnership capacity building activities include: 

• Training on community based partnership development. 

• Developing nonprofit organizations. 

• Grant writing. 

• Identifying of alternative funding resources. 

• Developing and implementing long-term sustainable funding strategies. 

• Facilitating partnership meetings. 

• Working with volunteers. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-329 

CCS projects are prioritized and selected by an interdisciplinary group of State and field office 

personnel. Selection criteria include: ability to provide multiple program benefits, ability to 

produce on-the-ground accomplishments which restore or sustain public land health (focusing 

on important habitats), ability to protect cultural and heritage resources, ability to meet public 

demand for diverse recreational opportunities, and ability to sustain valued and beneficial 

partnerships. 

Summary of CCS Program Information 

(Annual Average, 2003 - 2007) 

Number of Projects (Average) 518 

Total BLM funds (Average) $9,000,000 

Total Partner Contributions (Average) $19,000,000 

Matching Ratio 1 : 2.8 

Number of Partners (Average) 556 

Contribution / partner (Average) $34,482 

Mean Partner Contribution $6,000 

Project Amount (Average) $23,000 

Mean Project Amount $19,000 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-330 

Examples of successful, on-going CCS projects include: 

The Colombian Sharp-tailed Grouse Reintroduction Project, House Creek Area, Twin 

Falls County, Idaho - The Idaho Columbian Sharp-tailed grouse translocation program began 

in 1991 with the goal of reestablishing populations of this subspecies in Idaho and other western 

states where suitable habitat exists. During the past 18 years, Columbian sharp-tailed grouse 

populations in southeastern Idaho have increased substantially and expanded their distribution 

as a result of abundant high quality habitat provided by private lands enrolled in the 

Conservation Reserve Program. These healthy, increasing grouse populations are providing a 

convenient source of birds for reintroduction efforts. During 1991 to 2005, 1,014 grouse were 

trapped in southeast Idaho for reintroduction projects in 

Idaho, Oregon, Washington and Nevada. In Idaho 356 

grouse were released in Shoshone Basin and 119 

were released in House Creek. 

The House Creek area has been historically occupied 

by sharp-tailed grouse however none have been 

reported for more than 80 years. The release area was 

chosen due to the suitable habitat and its location near 

Shoshone Basin and the Snake Mountains in Nevada 

where other reintroductions efforts have occurred. 

Randy Smith, Idaho Department of Fish & Game, 

stated that this has been “one of the most rewarding 

rojects in his entire career” of thirty years. With the 

interagency, inter-state cooperation, this pro-active 

approach is exactly what the FWS is looking for to 

keep species from needing to be listed. 

p

Sharp-tailed grouse are successfully 

transplanted and thriving in a CCS 

project to help preclude the need to list 

the species as threatened or 

endangered. 

The Land of the Yankee Fork Interpretive 

Center in Challis, Idaho - This project is an 

example of an on-going CCS project where 

the goals of the work furthered the objectives 

of Executive Order 13287 on Preserve 

America. The interpretive center is adjacent 

to the Challis Bison Jump, a significant 

archaeological site located on BLM lands. In 

the past, CCS funds have been used to 

create an interpretive exhibit within the 

Center; recent CCS funding has been used to 

develop an interpretive walkway, with audio 

walking tour, along with a color brochure. 

The Challis Bison Jump was excavated in 

1977, and a separate CCS project between 

BLM and the University of Nebraska has 

focused on analyzing the animal bones located during the initial excavation, and reinterpreting 

the significance of the finds. All of these CCS projects have increased visitation to the 

Interpretive Center and increased local revenues, thereby fulfilling the community economic 

development objective of Preserve America. 

CCS funds contribute to interpretation at the Challis 

Bison Jump, a significant archeological site in 

Challis, ID. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-331 

Long Term Vision - The long term vision of the CCS program is to support current 

partnerships, develop new partnerships, and implement high priority projects in line with 

Resource Management Plans (RMPs), so that as projects are successfully completed, partners 

become vested in public land management. A committed partner will likely be a long term 

advocate of public land management and thus continue active involvement. 

This vision emphasizes that the BLM state offices target project funding towards high priority 

Resource Management Plan (RMP) actions identified from their 5-year implementation 

priorities. It will be up to the states to select projects that both reflect mission critical needs as 

well as a high leverage rate. Individual project selection and priority balancing will be a state 

responsibility. BLM’s Washington Office sets priority direction and cost targets for each state, 

approves projects selected by states, and conducts cyclical program evaluations to ensure 

states are following policy and direction. 

Critical Factors - Developing and maintaining collaborative partnerships is critical to the 

success of the CCS program and the BLM. The BLM works with over 550 national and 

community based partners. These partners have interests in all aspects of public land 

management including: the health of local communities, recreation and tourism, heritage, 

forestry, oil and gas, mining, livestock grazing, scientific research, wildlife, interpretation, and 

environmental education. 

Leveraging of funds is also critical to the success of the CCS program. Projects leveraged with 

CCS dollars yield many additional benefits for the BLM and its partners by fostering rewarding 

working relationships with partners and organizations, gaining support for the BLM’s land 

management decisions, and producing a product that is beneficial to both the BLM and the 

users of public lands. 

Means and Strategies – The means by which the CCS program will continue and increase 

success is by developing long term partnerships with partners who share high priority BLM 

goals, and who have the financial capacity to increase contributions. The existing CCS program 

is funded slightly over $9 million and it is being leveraged at a rate of 1 federal dollar to 2.8 nonfederal dollars. The strategy of the CCS program is centered on BLM growing the leveraged 

ratio to 1 to 4 such that for every dollar Congress appropriates for CCS, partners will provide 4 

or 5 dollars on-the-ground. Therefore, a $9 million program would grow to about $45 million in 

total value, or about $35 million in contributed funds. 

The CCS Program is an on-the-ground collaborative, cooperative, cost effective investment in 

long term sustainable results. 

Funding Sources - The BLM has been highly successful in using and leveraging resources 

through the CCS program with an average of 550 partners such as State Game and Fish 

organizations, universities, archeological and cultural groups, recreation groups, and species 

specific interest groups and volunteers. 

 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-332 

Strategic Plan - The Department’s Strategic Plan is based upon activities that fit the following 

four strategic themes: Resource Protection, Resource Use, Serving Communities and 

Enhancing Recreation Opportunities. In the CCS program, resources are leveraged with 

partners’ resources to support all four of these themes through on-the-ground accomplishments 

such as: creating habitat conditions for biological communities to flourish, improving visitor and 

community services, improving information and assessments used for decision making, and 

reducing and managing risks to natural resources, heritage resources, and recreation 

resources. The partnerships supported by the CCS Program are outstanding examples of 

BLM’s ability to leverage additional contributions to accomplish high priority on-the-ground work, 

as well as BLM’s ability to instill pride and satisfaction in partners regarding the enhancement of 

public lands. 

The CCS Program supports the NLCS emphasis 

area by funding projects in NLCS units and 

supporting NLCS partners. In 2009, $3.0 million in 

CCS funding will support projects in NLCS units. 

Partners working on trail construction in the 

Deschutes Field Office, Oregon. 

2009 PROGRAM PERFORMANCE

2007 Accomplishments - Through more than 518 

individual and organizational partnerships the CCS 

program has been able to accomplish a wide variety 

of projects. 

• Over 68,500 acres of recreation resources, 8,000 acres of heritage resources, 300,000 

acres of weeds, 1.8 million acres of wildlife habitat, and 1,576 miles of streams and 

riparian areas were inventoried or assessed in 2007.

• Approximately 41% of the miles of trails constructed and 6% of the miles of annual trail 

maintenance for all of BLM were performed through the CCS program.

• Over 60 % of the Heritage Collections that were accessioned, inventoried, or upgraded 

in non-BLM facilities and over 25% of those in BLM facilities were accomplished in 2007 

through the CCS program.

2008 Planned Program Performance - CCS will support approximately 380 projects in 2008. 

There are fewer projects planned in 2008 than in past years due to BLM’s emphasis on larger, 

more significant landscape level projects and to help support the Secretary and the Director’s 

concepts embodied in the Healthy Lands Initiative. While these projects encompass a diverse 

assortment of partners and objectives, they fall into three major categories: cultural projects; 

recreation projects; and wildlife habitat projects. CCS project distribution is shown in the table 

below. 

 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-333 

 CCS Project Distribution in 2008 

Area 

Number 

of 

Projects 

Percent 

of Total 

Cultural 55 14% 

Recreation 74 20% 

Habitat 251 66% 

Total 380 100% 

The CCS subactivity records accomplishments in over 120 program elements bureau wide. The 

following table indicates a few key examples of some significant accomplishments planned for 

2008. 

2008 Challenge Cost Share Planned Performance 

DESCRIPTION *UNITS 

90,610 Invasive Plants and/or Noxious Weeds Inventoried (Acres) 

Stream/Riparian Area Inventoried (Miles) 1,504 

Wildlife/Plan Habitat Inventoried (Acres) 877,805 

190 Non-Section 106 Cultural and Paleo Data Processed (Number) 

Shrub and Grassland Vegetation Treatments Applied (Acres) 5,640 

Weed Treatments Applied (Acres) 10,566 

Recreation Areas Evaluated (Acres) 342,310 

Monitor Terrestrial Habitat (Acres) 1,148,545 

Species Populations Monitored (Number) 6,289 

Shrub and Grassland Vegetation Treatme 17,200 nts Monitored/Evaluated (Acres) 

 *Only CCS units of performance are shown in the above table. 

Because CCS is only one contributor to many different overarching program elements, 

measurement of CCS accomplishments by program element is erratic. Of the program 

elements described above, it is notable that CCS will contribute over 40 percent of the bureauwide accomplishments in stream/riparian areas inventoried and almost 50 percent of all species 

populations monitored. While overall accomplishments within a given program element may be 

steadily increasing, the CCS portion of program element accomplishments will vary drastically 

depending upon the proportions of accomplishments that are tied to other subactivities. A 

thorough review of all contributing and/or benefiting subactivities provides the best possible 

comparison. 

2009 Planned Program Performance - The CCS program will continue to implement the 

Cooperative Conservation Initiative by focusing funding and efforts toward: 

• Continued development of collaborative partnerships with public, private and non-profit 

organizations. 

• Continued selection of projects that reflect the goals of the Department’s Strategic Plan. 

• Continued support for BLM’s partners, in their efforts to increase their ability to leverage 

additional sustainable resources, which in turn supports the goals of cooperative 

conservation and citizen stewardship of public lands. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-334 

CCS program dollars will continue to be matched at a minimum 1:1 (non-Federal to Federal) 

ratio. Projects will focus on the following activities, which support the goals of the DOI Strategic 

Plan: 

• Creating habitat conditions for biological 

communities to flourish. 

• Improving visitor and community services. 

• Improving information and assessments used 

for decision making. 

• Reducing and managing risks to natural 

resources, heritage resources, and recreation 

resources.

• Maximizing the efficiency, effectiveness and 

beneficial results of collaborative projects.

• Ensuring that the NLCS Units receive priority 

to help implement their plans and showcase 

their special and unique purpose. This year an 

additional $3.0 million of the CCS budget total 

will be focused on NLCS units. The $3.0 

million will be further targeted at :

 Implementation of Restoration Projects 

- $1,000,000. 

 Implementation of the National Scenic 

Historic Trail Work Plan & Strategy - 

$500,000. 

 Wilderness, Wilderness Study Areas, 

and Wild & Scenic River Management 

- $750,000. 

 Implementation of Integrated Weed 

Management Projects - $750,000. 

By working with interested organizations in collaborative partnerships, BLM can increase its 

leveraged funding to an average of over a four to one ratio. 

Use of Performance and Cost Data in 

the Challenge Cost Share Program 

An evaluation of the CCS program was 

conducted over the past several years 

focused on 2005 accomplishments. The 

evaluation focused on overall performance 

at the National level. In addition, four 

State evaluations for Arizona, Wyoming, 

Alaska, and Idaho were conducted. 

The findings were as follows: 

- Overall, the CCS program is 

functioning well. 

- Funds are being spent 

appropriately and in a timely 

fashion. 

- Based on a three year average, 

the CCS program is spending 

5.8% on overhead charges. (This 

overhead cost is well below the 

10% cap allotted for the CCS 

program.) 

- There is a need to update program 

policy and guidelines to clarify 

procedures and definitions and to 

improve the reporting procedures. 

- Partners are pleased with the CCS 

program. 

 
Bureau of Land Management 2009 

CHALLENGE COST SHARE PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Planned 2007 Actual 2008 Plan 2009 President's Budget 

Percent of DOI stream/shoreline miles that have achieved desired conditions where condition is known and as specified in management plans. (SP/PART) 

91% 

126,821/ 

140,096 

90% 

128,329/ 

143,209 

90% 

128,829/ 

143,290 

90% 

129,329/ 

143,290 

90% 

128,310/ 

143,290 

90% 

128,810/ 

143,290 

90% 

129,310/ 

143,290 

Total Actual/Projected Cost ($000) 15,104 16,781 14,918 0 13,757 $17,879 $17,315 Actual/Projected Cost per Mile (in dollars) $119 $131 $116 $0 $107 $139 $134 Comments: 

The denominator change in 2005 is based on BLM perfecting the inventory process which resulted in a more prestream/shoreline miles. BLM-Minimum desired condition is achieving proper functioning condition (PFC) and fun

upward trend. 

Percent of DOI acres that have achieved desired conditions where condition is known and as specified in management plans. (SP/PART) 

45% 

115,991,274/ 

258M 

48% 

123,949,644/ 

258M 

48% 

123,952,644/ 

258M 

51% 

131,756,644/ 

258M 

52% 

135,410,846/ 

258M 

56% 

143,414,846/ 

258M 

59% 

151,418,846/ 

258M 

Total Actual/Projected Cost ($000) $44,914 $41,193 $46,987 $0 $56,330 $57,253 $64,302 Actual/Projected Cost per Acre (in dollars) $0.39 $0.33 $0.38 $0 $0.42 $0.40 $0.43 Comments: 

 Two performance measures (wetlands and uplands) were combined to make one measure which counts total a

2006 program assessment, BLM Forest Lands are now included and the denominator has been stabilized to shodata. The new formula is shown beginning in 2004. Land Health Assessments being conducted through 2012 wmillion acres each year to desired condition. This measure includes an increase for the Healthy Lands Initiative 

which will result in 72,079 acres treated, $922,964 in 2008 which will result in 55,114 acres treated, and $7,048,result in 229,417 acres treated. Acres treated do not all reach desired condition in the first year. Treated acres achieving desired condition 25% in the first year and 25% each of the next three years. BLM-Minimum desired c

achieving proper functioning condition (PFC) and functioning at risk with an upward trend. Desired condition for u

Health Standards developed by the BLM State offices and approved by the Secretary in accordance with Title 43 

Outreach Through Interpretation and Environmental Education 699 184 648 801 789 855 800 

Section III- Management of Lands and Resources 
Bureau of Land Management 2009 

CHALLENGE COST SHARE PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Planned 2007 Actual 2008 Plan 2009 President's Budget 

(Number) Invasive Plants and/or Noxious Weeds Inventoried (Acres) 

411,239 767,900 521,618 86,020 299,707 90,610 90,000 

Stream/Riparian Area Inventoried (Miles) 1,565 4,110 1,255 1,504 1,576 1,504 1,500 Wildlife/Plan Habitat Inventoried (Acres) 2,962,566 295,250 652,795 1,972,735 1,767,800 877,805 900,000 Non-Section 106 Cultural and Paleo Data Processed (Number) 

122 158 198 323 322 190 200 

Shrub and Grassland Vegetation Treatments Applied (Acres) 

3,205 5,554 11,903 6,970 5,890 5,640 5,600 

Weed Treatments Applied (Acres) 2,407 9,739 43,422 11,359 15,503 10,566 11,000 Recreation Areas Evaluated (Acres) 20,110 36,888 49,261 68,501 68,501 342,310 342,000 Monitor Terrestrial Habitat (Acres) 1,040,842 1,154,739 804,761 936,940 947,836 1,148,545 950,000 Species Populations Monitored (Number) 4,063 3,746 1,094 2,445 2,755 6,289 5,500 Shrub and Grassland Vegetation Treatments Monitored/Evaluated (Acres) 

1,000 3,100 8,622 14,900 13,900 17,200 15,000 

This table only reflects performance recorded under the Challenge Cost Share subactivity (1770). Challenge Cost Share projects contribute to many other subactivities as well. 

Results for the Challenge Cost Share Program are based on actual planned projects each year, which will change the results between years. 

Section III- Management of Lands and Resources 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-337

Activity: Workforce and Organizational Support

Activity Summary ($000) 

 2009 

 Fixed Costs & Program Change 

 2007 2008 

Related 

Changes Changes Budget 

from 

2008 

Subactivity Enacted Enacted (+/ -) (+/ -) Request (+/-) 

 Information Systems 

Operations $ 18,731 15,047 +157 -305 14,899 -148

 FTE 64 50 0 -2 48 -2

 Administrative 

Support $ 53,107 50,007 +981 -1,441 49,547 -460

 FTE 482 444 0 -7 437 -7

 Bureauwide Fixed 

Costs $ 77,895 82,554 +5,518 0 88,072 +5,518

 FTE 0 0 0 0 0 0

Total Activity $ 149,733 147,608 +6,656 -1,746 152,518 +4,910

 FTE 546 494 0 -9 485 -9

 

 

JUSTIFICATION OF 2009 PROGRAM CHANGES

The 2009 BLM budget proposes to fund the Workforce and Organizational Support activity at a 

total level of $152,518,000 with 485 FTEs, a net program decrease of $1,746,000 and -9 FTEs 

from the 2008 enacted level, offset by a $6,656,000 increase for fixed costs. The budget 

includes a request for $14,899,000 to fund the Information Systems Operations program, 

$49,547,000 to fully fund BLM’s Administrative Support program, and $88,072,000 to maintain 

the Bureau-wide Fixed Costs program. 

ACTIVITY DESCRIPTION

The Workforce and Organizational Support activity funds services related to general-use 

automated systems and specified business practices, such as human resources management, 

equal employment opportunity, financial management, and property and acquisition 

management. It covers managerial and specified administrative support service costs that 

cannot be directly tied to a specific program output. The BLM’s goal is to provide these critical 

support and business services efficiently and effectively in order to support the overall BLM 

mission. In 2009 the BLM is focusing on the following: 

• Consolidating information technology IT systems and software solutions to speed up the 

flow of work, improve accuracy, and share information with customers, the general public, 

and agency partners. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-338

• Molding business practices by integrating and redefining organizational work processes, as 

well as using cost efficiencies, evaluation, and customer satisfaction survey data to improve 

all service areas. 

• Strengthening the composition and skill level of the workforce by enhancing communication, 

providing training, and ensuring that career-enhancing opportunities are available and are 

aligned with the Strategic Plan. 

• Considering ways to consolidate the information available in the existing systems both to 

better understand the condition of the land BLM manages, and to forecast what the impacts 

of certain actions might be. The strategic goal of maintaining the health of the land is greatly 

enhanced by the ability of computer models to forecast how certain activities will impact the 

land and entire ecosystem. 

 

• Improving business processes, through IT technology, by reducing the time it takes to 

procure equipment and supplies and recruit personnel to ensure the resources are there 

when needed. BLM’s strategy is to use best practices, such as the ITIM Maturity Models 

developed by the GAO, to move toward a refined information infrastructure that can assist 

the resource manager in making better decisions and can provide the public with better 

service. 

BUDGETING FOR BLM WORKFORCE AND ORGANIZATION SUPPORT COSTS

(SECTION 405) 

The 2006 Department of the Interior, Environment and Related Agencies Appropriations Act 

includes the following requirement for disclosure of overhead, administrative and other types of 

spending: 

SEC. 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. Changes to such estimates shall be presented to the Committees on 

Appropriations for approval.

BLM funds the costs described in Section 405 through a combination of direct appropriations in 

the Workforce and Organizational Support Budget Activity and program assessments. For 

2009, BLM estimates these requirements will be $268 million. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-339

Workforce & Organizational 

Support 

2007 

Enacted

2008 

Enacted

Budgeted 

Uncontrollables 

Change 

Budgeted 

Program 

Change 

2009 

Request 

Direct Appropriations 149,733 147,608 6,656 -1,746 152,518 

Information Systems Operations 18,731 15,047 157 -305 14,899 

Administrative Support 53,107 50,007 981 -1,441 49,547 

Bureau-wide Fixed Costs 77,895 82,554 5,518 0 88,072 

 

Program Assessments 116,253 115,607 0 0 115,607 

National Program Support (CFI) 32,218 30,607 0 0 30,607 

Regional/State Program Support 

(0777) 84,035 85,000 0 0 85,000 

Total, Workforce & 

Organizational Support 265,986 263,215 6,656 -1,746 268,125 

Direct Appropriations 

In 2009, the BLM requests $152.5 million in direct appropriations for activities described in 

Section 405. Appropriations are requested in three programs: Information Systems Operations, 

Administrative Support, and Bureau-wide Fixed Costs. The annual appropriation for these 

activities provides 57 percent of the actual required administrative costs needed to maintain 

these functions. 

• Information Systems Operations - funds information resources management needs, such 

as computer, data, telecommunication, and support services. This includes providing 

expertise for BLM (IT) initiatives and providing technical assistance and support to field 

office personnel. 

• Administrative Support – funds are used for those indirect functions that support 

management decision making and other direct program outputs. Indirect functions include 

communications, legislative affairs, public affairs, regulatory affairs, environmental education 

and volunteer programs; budget development and execution; enterprise architecture; 

information and financial management; property and acquisition management; management 

systems; personnel and organizational management; safety; and equal employment 

opportunity, functions. 

• Bureau-wide Fixed Costs – The Departmental Working Capital Fund funds fixed costs 

such as GSA rents, the Federal Building Fund, unemployment insurance, workers 

compensation, postage, and telecommunications functions. 

Program Assessments 

In addition to direct appropriations, and in order to provide the level of funding needed for the 

Information Systems, Administrative Support and Bureau-wide Fixed Costs, the BLM assesses 

its programs at both the National and State levels according to a prorated share of prior year 

FTE use. These assessments provide 43 percent of the BLM’s total Section 405 costs. The 

estimated program assessments in 2009 are $116 million. These program assessments are 

under the oversight and administrative management of the BLM’s Budget Strategy Team, 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-340

Information Technology Board, Administrative Assistant Directors, the BLM Director, and the 

Executive Leadership Team. These executives chart the course of the BLM based upon the 

BLM Strategic Plan, the President’s Management Agenda PMA, Congressional directives, and 

the Department of the Interior’s mandates.

National Program Assessments – BLM assesses programs at the national level for 

centrally funded initiatives to pay for administrative support, IT programs, and Bureau-wide 

program activities many of which are mandated and/or uncontrollable assessments to the 

Department through the 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 Pay and Personnel System. The Working 

Capital Fund itemizes costs to BLM for services, provided by the Department, through both 

the Centralized Bill and the Direct Bill; which are displayed in the table in the following pages. 

National program assessments for centrally funded initiatives are based upon historical 

Activity Based Costs, FTE usage of information systems operations, administrative support, 

and Bureau-wide fixed costs to program areas and are pro-rated. These assessments 

include $1.063 million for the Bureau’s Priority Fund, which is used to assist Field Offices and 

Programs with high priority unplanned and unfunded needs which arise during the year. 

Regional/State Program Assessments – 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 assessed on a pro-rata basis using FTE and data from the Management Information 

System. 

Working Capital Fund: The Department of Interior manages a Departmental Working Capital 

Fund (WCF) and provides services to the BLM and other Interior agencies. These services 

include: payroll, personnel, rent, computer systems, lease space, and other specified services 

as needed. The BLM utilizes the Program Assessments assessed to the National, Regional, 

and States to pay the Departmental WCF for services that benefit the entire organization and 

support the DOI Strategic Plan, the BLM focus areas, the President’s Management Agenda, 

and the Department of the Interior’s requirements. Many of these services are standard and 

recur on an annual basis and others are fee-for-service based. The DOI and BLM have 

reimbursable service agreements for these services. The detailed tables that follow show the 

proposed Departmental WCF fees for services, both centrally billed and direct billed, for 2009. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-341

 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-342
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-343
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-344
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-345
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-346
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-347
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-348
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-349

Activity: Workforce and Organizational Support 

Subactivity: Information Systems Operations 

Activity: Workforce and Organizational Support 

Subactivity: Information Systems 

Operations 

 2009 

 Fixed Costs & Program Change

 2007 2008 

Related 

Changes Changes Budget 

from 

2008 

 Enacted Enacted (+/ -) (+/ -) Request (+/-) 

Info. Systems Operations 

($000)\ 18,731 15,047 +157 -305 14,899 -148

 

FTE 64 50 0 -2 48 -2

Other Major Resources: 

 

Major Program IT 

Investments: 

eForms: 010-04-01-07-02-0466-

00-404-139 225 232 +7 239 +7

 

Summary of 2009 Program Changes for Information Systems Operations 

Request Component ($000) FTE

Program Changes: 

• Organizational & Administrative Streamlining -149 -1

• Travel & Relocation Expenses -22 

• Performance Contracting savings -64 

• Nat'l Monument & Nat'l Conservation Area funding (new subactivity created) -70 -1

TOTAL, Program Changes -305 -2

JUSTIFICATION OF 2009 PROGRAM CHANGES

The 2009 budget request for the Information Systems Operations program is $14,899,000 and 

48 FTEs. A net decrease of $305,000 and -2 FTEs from the 2008 enacted level, offset by a 

$157,000 increase for fixed costs. 

National Landscape Conservation System (NLCS) Funding (-$70,000) - The BLM is 

proposing a new subactivity to fund base operations at National Monuments and National 

Conservation Areas. As a result, $70,000 is being shifted from the Information Systems 

Operations subactivity to the new subactivity. The funding shifted from the Information Systems 

Operations subactivity will continue to be spent on Information Systems Operations priorities, 

but will be managed through the National Monuments and National Conservation Areas 

subactivity. For more information about the new NLCS-National Monuments and National 

Conservation Areas subactivity, see section III. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-350

PROGRAM OVERVIEW

Program Components - The Information Systems Operations program maintains the BLM’s 

critical infrastructure and funds a full range of information resource management computer and 

data telecommunication support services, including expertise for Bureau information technology 

initiatives and technical assistance and support to field office personnel. 

The Information Systems Operations program provides Bureau-wide information systems and 

applications to support agency operations nationally. The Bureau will continue to manage 

automation, information resources management, and modernization processes to provide 

efficient, cost-effective, and fully integrated data management systems that support all 

programs. The BLM will also provide resources to explore methods for making existing 

information technology and related resources more effective. 

In order for the BLM to fulfill its responsibilities to manage the public lands and provide accurate 

information to the public, it must maintain an effective Information Resource Management (IRM) 

program. The operations funded through this subactivity enable the BLM to maintain its 

strategic goals through effective management of information and the use of information 

technology to support re-engineered business processes. As a result, IRM directly and 

indirectly supports many resource management programs and the achievement of their goals. 

The role of IRM includes processing the data needed to make decisions involving resources 

valued in the billions of dollars, as well as providing support for administrative and management 

activities so they can operate more effectively. 

Long-Term Vision - The Information Systems Operations program manages the Information 

Technology (IT) Security program, which manages the BLM's IT Security Policy for appropriate 

use of its information systems. The IT Security program plans to accomplish several strategic 

outcomes and long-term targets: 

• Maintain 100% C&A status of the bureau systems – a metric mission supporting the 

GPRA goal, eGov and Information Technology management 

The IT Security program operates under the authority of the Federal Information Security 

Management Act of 2002, Office of Management and Budget (OMB) Circular A-130, and the 

Interior Departmental Manual Part 375 §19.4, which mandates that the BLM maintain an IT 

Security Program to assure that adequate security is provided for all information collected, 

processed, transmitted, stored, or disseminated in its information systems. The Division 

develops and promulgates IT security policies, standards, and procedures that are consistent 

with Government-wide policies, standards, and procedures issued by OMB, the Department of 

Commerce, the General Services Administration, and the Office of Personnel Management. 

The Division provides security awareness training, risk management, policy administration, 

audits and assessments, and tools relating to IT security. The Division operates under a Most 

Efficient Organization (MEO) charter and performance-based contract. 

Critical Factors – There are several legal authorities that govern how the BLM and other 

Federal agencies manage the information technology investments. Information Technology 

Investment Management (ITIM) is a governing critical factor to the Information Systems 

Operations program. The ITIM operates under three governing acts: 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-351

• Information Technology Management Reform Act (ITMRA/Clinger-Cohen Act) 

requires agencies to focus on result-oriented IT investments while streamlining the IT 

acquisition process. 

• Government Performance and Results Act of 1993 (GPRA), which requires agencies 

to set goals, measure performance, and report the accomplishments. 

• Federal Acquisition Streamlining Act of 1994 (FASA), which requires agencies to 

define costs, schedules, and performance goals for Federal acquisitions within 

prescribed tolerances. 

The management of IT investments adheres to several policies as well, including but not limited 

to: 

• President’s Management Agenda; 

• DOI Secretarial Order 3244; 

• OMB Circular A-130; 

• OMB Circular A-11; and 

• Federal Enterprise Architecture. 

Means and Strategies - The BLM Information Systems Operations program has an 

infrastructure of standardized, commercial hardware and software that includes office 

automation and Bureau-wide office-to-office electronic communications connections. In 2009, 

the Information Systems Operations program will continue to support this general-purpose IT 

and provide support to land, resource, and administrative information systems.

 IT Security - The BLM IT Security program is designed to capitalize on providing an enterprise 

wide IT security infrastructure capable of supporting the Bureau’s mission and ensuring 

compliance with federal guidelines. The IT Security program operates under the authority of the 

Federal Information Security Management Act (FISMA) of 2002, Office of Management and 

Budget (OMB) Circular A-130, the Department of Commerce National Institute of Standards 

(NIST), and DOI directives and guidance. These laws, directives, and guidance mandate that 

the BLM maintain an IT Security Program to ensure that adequate security is provided for all 

information collected, processed, transmitted, stored, or disseminated in its information 

systems. The BLM continues to provide security awareness training, risk management, policy 

administration, audits and assessments, and effective tools to safeguard information. The IT 

Security program continues to provide a cost effective IT security solution to establish and 

maintain essential IT security services the Bureau needs to conduct its business and cope with 

technological change. 

Information Technology Investment Management (ITIM) - BLM has reached stage three of IT 

Investment Maturity in advance of the Department of the Interior’s (DOI) requirement to reach 

stage three certification by 2008. This is an important achievement of identifying BLM’s ability 

to manage its IT investment. It indicates that BLM has achieved a comprehensive IT investment 

portfolio that has proper selection and control techniques. The benefits and risks are fully 

integrated and linked to the mission goals and strategies. The BLM has six major investments 

included in the DOI portfolio. 

The BLM’s IT Investment Board (ITIB) is fully engaged in the Capital Planning and Investment 

Control (CPIC) process. The ITIB is in compliance with the Government Accountability Office 

(GAO) ITIM requirements to: 1) institute a chartered board; 2) select investments; 3) provide 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-352

investment oversight; and 4) document and preserve information about investments and the 

process. 

Enterprise Service Network (ESN) - This program supports the Department of Interior (DOI) 

initiative to create a single enterprise network, a single service management structure, and 

delivery of enterprise-wide common services. This activity produces efficiencies though 

consolidation and standardization, which support the Department's strategic goals and BLM’s 

2009 emphasis areas. 

BLM maintains the wide-area network services for remote offices and interoffice data services 

not covered by ESN and local area network services for BLM offices. Although ESN will provide 

external perimeter security services, BLM has been mandated responsibility for overall network 

security through FISMA and will retain oversight functions. BLM also has significant 

commitments to maintain the security and integrity of Indian Trust and other internal financial 

systems. BLM will redirect its operational focus to the larger task of upgrading and maintaining 

BLM’s internal network security including protection of critical web based services to external 

customers and the public and internal IT security monitoring across the Bureau. These are 

areas not currently supported by the Department ESN.

Enterprise Messaging Services (ENTM) - This DOI program supports all Bureaus within DOI to 

move to the Microsoft Exchange environment. ENTM is one of three major DOI initiatives and it 

includes the Enterprise Services Network (ESN) and the Enterprise Active Directory (EAD). 

ENTM supports to integrate and centrally manage the Bureau’s enterprise infrastructure. The 

long-term goal of these three initiatives is to improve Department-wide information technology 

services while reducing overall cost. 

National Help Desk - BLM established a National Help Desk in October, 2007, to provide 

consistent and efficient Tier 1 support for the bureau's IT customers. The National Help Desk 

provides extended hours and after hours support with the same services that is more cost 

effective than the previous de-centralized model. The National Help Desk will evolve through 

projects to support more and more IT services traditionally performed at local offices and other 

help desks. In addition, processes will be refined and new technologies will be implemented in 

which the efficiency gains will multiply across the various consolidated services provided by the 

National Help Desk. 

National IT Life Cycle Management (LCM) Coordination - BLM IT systems and related 

resources will be managed throughout its full life cycle in order to maximize value and assess 

and manage the risks of all IT investments. The IT investment must be acquired as authorized 

by the Clinger-Cohen Act and related legislation. The Life Cycle Management program consists 

of Configuration and Change Management (CM), and the IT Assets Management programs. 

The underlying policies of these programs incorporate major federal legislation and executive 

branch guidance addressing IT and related resources or system investments. The BLM will 

follow the LCM policies when acquiring, implementing, maintaining, and disposing of IT and 

related resources or systems. 

National IT Configuration and Change Management (CM) Program – Configuration 

Management is the process BLM uses to manage, track, and document Information Technology 

(IT) Hardware and Software (HW/SW) changes. Change Management validates and tests IT 

requirements, to ensure information collected about the change is clear, concise and valid. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-353

Change Management is also used to distribute IT SW/HW components and communicate 

changes of IT throughout its life cycle. Configuration Management also provides the following:

• Oversight 

• Training 

• Policy development 

• Change management coordination 

• Technical approval 

• Documenting data repository management 

• HW/SW testing, installation of product(s) and 

• Release management 

IT Asset Management - The Information technology (IT) asset management program provides 

for policies, procedures, and guidelines in support of the lifecycle management of the BLM IT 

assets through (i) Acquisition and purchasing, (ii) Standards technical infrastructure, (iii) 

Equipment Management, (iv) Installations of Software and Hardware and others. 

Other Funding Sources and Partnerships – Information Technology has become essential to 

BLM's day-to-day operations through the use of networked personal computer and Internet 

applications by BLM employees and customers. The costs for information technology and 

related resources that directly support a specific program are funded from those benefiting 

activities and programs, not from the Information Systems Operations subactivity. For example, 

the IT Security Program receives funding from many activities to support the certification & 

accreditation (C&A) of Bureau IT systems. The Enterprise Messaging (ENTM) program 

receives funding to support the Bureau’s transition to a Microsoft Exchange environment. IT 

infrastructure supports bureau-wide IT Acquisitions program. The availability of these 

centralized funds is paramount to continually support and improve the Bureau’s Information 

Systems. 

Strategic Plan – The IT Security program is taking steps to achieve strategic outcomes, 

including: Maintaining qualified and skilled human capital; meeting IT Security Most Efficient 

Organization (MEO) performance standards--resulting in successful maintenance of C&A status 

for all BLM information systems; increasing outreach to business units--resulting in improved IT 

security awareness and training; proactively engaging business units regarding the 

development of new systems to ensure adequate security controls--resulting in reduced costs 

and increased compliance; increasing the frequency and quality of audits and assessments to 

identify weaknesses and vulnerabilities prior to exploitation--resulting in lower security risk. 

Major Information Technology Investments of the BLM 

Documented in the Exhibit 300’s 

The following major IT investments are listed in this subactivity but are funded from multiple 

subactivities within the Bureau. A cross-walk has been provided to show the benefiting 

programs of each investment. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-354

Funding In 

Exhibit 300 

(Million $) 

Project 

Name 

2008 2009 

Project Description 

UPI 

Automated 

Fluid Mineral 

Support 

System 

(AFMSS) 

2.110 1.599 AFMSS is a bureau-wide Fluid Mineral (oil, gas, geothermal and helium) 

authorized use and inspection/enforcement workload support system consisting 

of three primary components – the AFMSS server-based functionality, the tablet 

or notebook based hand-held application, and the Well Information System 

(WIS). 

AFMSS is funded by the Oil and Gas Management subactivitiy within 1109 – 

Management of Land Resources. 

UPI: 010-04-01-03-01-0417-00 

Collections & 

Billing System 

(CBS) 

1.565 2.060 

CBS provides the Bureau with a web-enabled business information, budget, 

financial, and program performance system that permits data analysis to be 

performed that benefits the entire Bureau. 

CBS is funded by multiple subactivities within 1109 – Management of Land and 

Resources; 1116 – O&C Funds; and 1125 – Wildland Fire Management. 

UPI: 010-0401-01-01-0421-00 

Incident 

Qualification 

and 

Certification 

System 

(IQCS) 

.984 1.246 

IQCS tracks incident responder certifications and provides workforce analytics 

for Wildland Firefighters from multiple entities (BLM, USFS, BIA, FWS, NPS, and 

TNC). 

IQCS is funded by 2810 Wildland Fire Preparedness within 1125 – Wildland Fire 

Management. 

UPI: 010-04-01-02-01-0420-00 

Legacy 

Rehost 

(LR2000) 

1.840 1.840 

Eight Legacy Systems re-hosted into the Legacy Rehost 2000 Systems provide 

storage, retrieval and dissemination of abstracted case information describing 

the right, title and interest of a parcel and are necessary for deriving land and 

mineral status and use authorizations that support BLM land, mineral and 

resources programs. 

LR2000 is funded by multiple subactivities within 1109 – Management of Land 

and resources; 1116 – O&C Funds; and 1125 – Wildland Fire Management. 

UPI: 010-04-01-02-01-0401-00 

National 

Integrated 

Land System 

(NILS) 

2.660 2.943 

The National Integrated Land System facilitates the collection, management and 

sharing of survey and title record information. 

NILS is funded by 4550 – Land and Resource Information Systems within 1109 

– Management of Land and Resources. 

UPI: 010-04-01-02-01-0404-00 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-355

Funding In 

Exhibit 300 

(Million $) 

Project 

Name 

2008 2009 

Project Description 

UPI 

E-Planning 2.000 .550 

E-Planning is a mission-critical program that supports BLM by streamlining landuse planning and National Environmental Policy Act (NEPA) procedure 

requirements. To protect the Nation's natural, cultural, and heritage resources, 

ePlanning will provide access to cultural and historic information, allowing easy 

public involvement in federal land-use decisions. To manage resources, promote 

responsible use and sustain a dynamic economy, ePlanning will enable 

systematic updates of land use plans while accelerating and improving the 

quality of plan information, decisions, published products, and public review 

process. To promote the provision of recreation opportunities for America, 

ePlanning will allow recreation uses to be analyzed by both decision makers and 

the public, thereby allowing for effective allocation of public lands under multiple 

or constrained uses. In 2009, ePlanning went to O&M, resulting in a decrease 

for required funding. 

E-Planning is funded by multiple subactivities within 1109 – Management of 

Land and Resources; and 1116 – O&C Funds. 

UPI: 010-04-01-07-01-0409-00 

2009 PROGRAM PERFORMANCE

2007 Program Accomplishments 

IT Security 

• Developed new Bureau Policies based on the National Institute of Standards and 

Technology (NIST) Special Publication 800-53 rev. 1. 

• Successfully certified and facilitated the accreditation (authorization to operate) of six 

BLM information systems. 

• Successfully performed continuous monitoring and auditing activities: addressing 

thousands of potential intrusions or attacks each month, monitored and reported on 

thousands of potential malware events, and received and responded to an average of 

1200 potential patches each month. 

Enterprise Service Network ESN - ESN is one of three major DOI initiatives, which also include 

Enterprise Active Directory (EAD), and Enterprise Messaging Services (EMS). 

• Completed the Phase II transition, in which all Bureau offices on the MCI/Verizon 

VBNS+ backbone were to convert to ESN managed services.

Enterprise Messaging Services - A bureau Microsoft Exchange migration strategy and 

investment proposal was created to support the DOI Enterprise Messaging Services (ENTM) 

initiative. This strategy outlined the milestones to complete the transition to the Exchange 

environment and the integration of other collaboration tools and services to achieve a more 

efficient use of these messaging services. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-356

National Help Desk - An OMB Circular A-76 Competitive Sourcing Study was conducted on Tier 

1 IT Help Desk Services to determine whether it was more cost effective for certain functions to 

be performed by the government or the private sector. In the competition, the government won 

and a new Most Efficient Organization (MEO) is to be created in 2008 to provide the best value 

to the Government for Tier 1 IT Help Desk Services. This decision moved from 15 plus decentralized Tier 1 Help Desks across the bureau using over 30 FTEs to a Centralized Tier 1 

Help Desk for all of BLM with 9 FTEs. 

2008 Planned Program Performance 

Operations and Maintenance - In 2008, BLM expects clear roles and responsibilities will be 

established based on new organizational roles that will integrate architecture planning, funding, 

and implementation costs for maintaining and upgrading the IT infrastructure. 

IT Security – In 2008, the BLM's IT Security Program will be operating under a Most Efficient 

Organization (MEO) performance contract. The increased performance standards, oversight 

and accountability will provide a higher level of efficiency and performance for the BLM. The 

program will deliver updated IT security policies and procedures, increase its IT security 

awareness and training, improve quality of certification and accreditation documents, and IT 

security standard operating procedures across the Bureau. Additionally, The IT Security 

Program will implement the Cyber Security Assessment Management (CSAM) tool. This is a 

Department initiative to streamline and integrate the certification and accreditation (C&A) and 

POA&M processes into a single application. This tool is expected to reduce the documentation 

and reporting burden of the C&A and POA&M process freeing up time to focus on important 

security issues. The Division of IT Security will work with the Department to implement this tool 

in 2008 and fully integrate the Bureau’s C&A and POA&M processes into CSAM in 2009. 

National IT Life Cycle Management – In 2008, the BLM will refine and improve the IT Life Cycle 

Management process to ensure project management techniques are integrated into all IT 

investments by: 

• Developing a Bureau-wide Configuration Management Training for IT Users and CM 

Managers. This mandatory training will be on-line starting September 2007. 

• Meeting the Bureau’s Internal Review goals by completing Configuration Management 

Annual Internal Control Reviews. 

• Ensuring Configuration Management AICR Performance Score Cards are used 

throughout the Bureau. 

• Design and implement an Electronic Form initiative for Change Management to be used 

throughout the Bureau’s States and Centers.

Information Technology Investment Management – In 2008 and 2009, the program will continue 

to improve the alignment of the Capital Planning and Investment Control (CPIC) process to the 

BLM’s budget development and execution processes. The program will validate CPIC 

processes and prepare for the next stage of the ITIM model. In 2008, the BLM will continue to 

ensure the ITIB has high quality information to make executive decisions. 

Enterprise Service Network (ESN) – In 2008, the BLM will revise its plan for the transition to the 

Department’s Enterprise Service Network ESN. For 2008, BLM will complete the last part of 

Phase II, in which all remote access services will be transitioned to and managed by the ESN. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-357

BLM will also complete the Enterprise Active Directory (EAD) project in which the ESN and 

bureau Directory structures will be united. 

Enterprise Messaging (ENTM) – In 2008, BLM will begin executing its Microsoft Exchange 

migration strategy by consolidating those electronic mail servers that are distributed around the 

bureau and centralizing them at the National Operations Center. The administration and 

standardization of all electronic mail accounts will be included in this effort in preparation for the 

migration to the Microsoft Exchange environment. 

National Help Desk - In the first quarter of 2008, the National Help Desk was established and it 

assumed all Tier 1 duties of the de-centralized Help Desks. In addition, as part of the Bureau's 

Management for Excellence (MEO) initiative, the National Help Desk will be combined with the 

other IT Help Desks located at the National Operations Center to gain further efficiencies and 

cost savings. 

Use of Performance and Cost Management Data in the 

Information Systems Operations Program 

Reduction of redundant IT systems and consolidation of major IT purchases are 

critical priorities in the Information Systems Operation program. The use of cost 

management data has provided a basis for redirecting existing funds toward 

supporting the Bureau’s Strategic mission goals. 

 

In 2007, the Information Systems Operations program used Activity Based Cost 

data from program elements codes and budget object classes for determining the 

actual costs of procurements of information systems support, IT costs, and budget 

formulation. The BLM continues to measure these costs to determine the 

effectiveness of its information technology system consolidation initiatives, and also 

to perform analysis for making adjustments where necessary. BLM is analyzing the 

costs and benefits of providing IT support services in terms of requirements, 

available funding and risk. The analysis will provide information needed to focus on 

opportunities to reduce overall operational funding. This information will include 

data on infrastructure cost, centralization initiatives and potential business 

improvements. 

2009 Planned Program Performance - During 2009, the IT Information Systems Operations 

program will focus on the following activities:

IT Security 

• Review and update established IT security policies, procedures, and standards to keep up 

with changing technologies, security requirements, and business processes. 

• Develop a sound strategy for meeting data encryption requirements mandated by OMB M06-16. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-358

• HSPD 12 – Implement necessary IT Security controls to comply with Homeland Security 

Presidential Directive 12 (HSPD-12) which requires all federal employees and authorized 

contractors to use standards-based ICC badges to access all federal facilities and systems 

• Fully integrate the Bureau’s certification and accreditation (C&A) and POA&M processes 

into a single application. 

• Continue to monitor and coordinate compliance with security awareness training required of 

every BLM computer user and the role based training for those with significant IT security 

responsibilities 

Enterprise Service Network ESN - The bureau will continue to support the ESN initiative by 

implementing process changes, consolidation projects and network architecture changes in 

order to further efficiencies and cost savings. 

Enterprise Messaging Services - The bureau will continue executing its Microsoft Exchange 

migration strategy by transitioning its existing electronic mail services to the Microsoft Exchange 

environment, making the Bureau ready for transition to ESN managed EMS. 

National Help Desk - The first of two projects will be an assessment of current processes and 

procedures in order to find efficiencies through automation and remote assistance services. 

Once found, those efficiencies will be implemented. A second project will evaluate all other 

bureau Tier 1 IT support requirements to determine if efforts will be combined with the National 

Help Desk and create a transition plan for those services. 

National Monument and National Conservation Area Funding – The shift of $70,000 in funding 

to the National Land Conservation program, in 2009, will be directed to the Grand Escalante 

Staircase Monument in Utah. The funding will aid in maintaining the IT infrastructure for BLM’s 

largest monument and will ensure the continuity of operations and communications at the 

monument. It will support all program areas associated with Information Systems Operations at 

the monument site. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-359

Activity: Workforce and Organizational Support 

Subactivity: Administrative Support

Activity: Workforce and Organizational Support 

Subactivity: Administrative Support 

 2009 

 

Fixed Costs 

& Program Change

 2007 2008 

Related 

Changes Changes Budget 

from 

2008 

 Enacted Enacted (+/ -) (+/ -) Request (+/-) 

Administrative Support ($000) 53,107 50,007 +981 -1,441 49,547 -460

 

FTE 482 444 0 -7 437 -7

Other Major Resources: 

 

Major Program IT Investments: 

Auto Direct. Mgt.: 010-04-01-07-02-0000-

00 79 47 0 47 0

Auto Fleet Mgt.: 010-04-01-07-02-0405-

00 20 20 0 20 0

 

Summary of 2009 Program Changes for Administrative Support 

Request Component ($000) FTE

Program Changes: 

• Organizational & Administrative Streamlining -996 -6

• Travel & Relocation Expenses -282

• Performance Contracting savings -50

• Nat'l Monument & Nat'l Conservation Area funding (new subactivity created) -113 -1

TOTAL, Program Changes -1,441 -7

JUSTIFICATION OF 2009 PROGRAM CHANGES

The 2009 budget request for the Administrative Support program is $49,547,000 and 437 FTEs, 

a net program decrease of $1,441,000 and -7 FTEs from the 2008 enacted level, offset by a 

$981,000 increase in fixed costs. 

National Landscape Conservation System (NLCS) Funding (-$113,000) - The BLM is 

proposing a new subactivity to fund base operations at National Monuments and National 

Conservation Areas. As a result, $113,000 is being shifted from the Administrative Support 

subactivity to the new subactivity. The funding shifted from the Administrative Support 

subactivity will continue to be spent on Administrative Support priorities, but will be managed 

through the National Monuments and National Conservation Areas subactivity. For more 

information about the new NLCS-National Monuments and National Conservation Areas 

subactivity, see section III. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-360

PROGRAM OVERVIEW

Program Components - The BLM’s Administrative Support Program supports the following 

functions: executive and management decisions; communications; including Legislative Affairs; 

Public affairs; Regulatory affairs; Service First; Environmental Education; Volunteers; budget 

development and execution; Freedom of Information; Privacy; financial management; property 

and acquisition management; management systems; personnel and organizational 

management; safety; and Equal Employment Opportunity.

Long Term Vision – The Administrative Support program supports the Department’s Plan for 

Citizen-Centered Governance and the five Presidential management reform initiatives described 

in the General Statement. The BLM will continue active implementation of the President’s 

Management Agenda in 2009 for improving management and performance and practicing the 

Secretary’s vision for citizen-centered management excellence. The bureau is engaged in 

continuous workforce planning that uses a blend of skills acquisition and developmental 

approaches to ensure the continued availability of skills and knowledge to meet BLM’s mission 

responsibilities. 

Means and Strategies – The Administrative Support program utilizes competitive sourcing as a 

strategy to aid in achieving program performance goals. Competitive sourcing, one of the five 

elements of the President’s Management Agenda, is the process by which commercial-type 

activities that are currently performed by governmental agencies are evaluated, re-engineered 

for efficiency, and where appropriate are offered to the private sector for bidding on a 

competitive basis in order to ensure that customers, stakeholders, and citizens are provided 

services at the best possible value. The Administrative Support program uses competitive 

sourcing as a mean and strategy to improve and accomplish customer service and 

effectiveness across the BLM. 

Other Funding Sources – The Bureau records program is supported by funds from various 

programs to support the management of BLM records in the National Archives and Records 

Administration’s (NARA) Federal Records Centers (FRC). Funds are also provided from 

benefiting subactivities for a department-wide FOIA tracking application. 

Strategic Plan – To successfully achieve its strategic goals, the BLM must maintain strong 

internal business and administrative support functions. In 2009, the BLM will continue to 

improve its ability to provide timely and accurate information and quality business services to 

the organization and will continue to provide business and administrative tools to our employees 

that add value and help them “get the job done.” In 2009, performance and cost management 

information will be used to a greater extent in developing funding allocations within the bureau 

to maximize performance and efficiency of programs and organizations. In addition, the BLM will 

continue to emphasize improving customer service and implementing best business practices, 

as well as ensuring sound financial systems and accountability. 

2009 PROGRAM PERFORMANCE

2007 Program Accomplishments - The 2007 accomplishments for the Administrative Support 

program include: 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-361

IRM Governance - The Information Resources Management (IRM) Governance program 

implements and manages Bureau-wide policies, procedures, and standards for data, records, 

telecommunications, configuration management, the Freedom of Information Act (FOIA), and 

the Privacy Act. In 2007, the program: 

• Issued and analyzed the results of a survey of the program to streamline processes, 

develop efficiencies and distribute resources more proficiently to answer the requirements of 

the FOIA. 

• Examined the backlog of bureau-wide requests to determine reasons for the backlog and 

have developed recommendations for streamlining future processes. 

• Evaluated public outreach capabilities and effectiveness of the E-FOIA website. The 

findings revealed that the web-site required updates to comply with E-FOIA and with the 

Executive Order 13392. 

2008 Planned Program Performance - The 2008 planned Administrative Support program 

performance includes: 

Financial Management – In 2008, the BLM, will continue to manage through its National 

Operations Center, a variety of critical support services, including fire support, uniforms, 

property, accounting, contracting, acquisition, space leasing, treasury investments, and the 

development and operation of financial, procurement, and property systems. Additionally, the 

BLM will deploy the Financial Business Management System (FBMS) in early November 2009. 

In preparation for the implementation of Core Financials, Acquisition, Property, Financial 

Assistance, and the Business Warehouse, many activities have commenced, including 

blueprinting workshops and conversion strategies. 

The implementation of an integrated system will be a primary focus for BLM’s deployment. The 

new functionality will help to streamline and integrate the procurement and property processes 

with the financial process. This integration will provide support for a full range of business 

activities. Collections and Billings will be built to interface with parts of FBMS that have already 

been deployed in other bureaus, including the Core Financials components. 

Improved Financial Performance – In 2008, BLM will continue its outstanding record of financial 

management by maintaining unqualified (clean) financial audit opinions. Key to the BLM’s 

success has been the availability of timely and accurate financial information made available to 

all employees through the Bureau’s Management Information System. The ability to link budget 

and performance through cost management, and to access financial data in real time has 

fostered a BLM-wide ethic of fiscal accountability. The BLM has also met or exceeded its goals 

under the Prompt Payment Act, as well as its goals to reduce or eliminate erroneous payments. 

In 2008, the BLM will emphasize and assure: 

• Adequate internal controls on BLM financial systems 

• Compliance with accounting standards (Federal Accounting Standards Advisory Board) 

• 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 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-362

• Improved electronic data processing 

• Financial accountability at all levels of the organization 

Cost Management and Management Information Systems - In 2008, the BLM will continue to 

refine and improve the Management Information System that provides all BLM employees with 

easy access to financial and performance data. Continued development of the Collections and 

Billing System will continue in 2008. This system includes electronic links to other systems to 

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 users to access and use. 

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. In addition, the BLM will continue to refine its Cost Management System, which 

provides important information for tracking BLM’s spending. 

Performance and Budget Integration – In 2008, the BLM will continue to use the cost 

management information system along with other management information tools to evaluate 

program effectiveness, and help allocate budgetary resources across the organization to 

maximize performance and cost effectiveness. 

Road Maintenance - In 2008, the BLM will use cost management tools to evaluate equipment 

utilization and equipment replacement to determine if contracting out these activities would be 

more cost effective.

Disposal of Personal Property - In 2008, the BLM will continue to dispose of excess personal 

property to other Federal agencies and State agencies for acquisition in lieu of new 

procurement. If there is no Federal or State need, personal property items are then offered to 

the public for sale. BLM has begun selling working capital fund vehicles and heavy equipment 

on EBay’s auction web site. This has brought greater visibility, greater return and faster sales. 

The proceeds from the vehicles sold are returned to the working capital fund for the purchase of 

replacement vehicles. 

 

Service First initiative – In 2008, the BLM will continue its partnership with the U.S. Forest 

Service. This action is the result of successful pilot studies in Oregon and Southern Colorado 

that utilized a “seamless one-government” approach to natural resource management. The 

BLM will continue to expand Service First concepts Bureau-wide to improve customer service 

and seek additional cost savings avoidance and productivity improvements. The BLM is 

currently sharing 61 sites with other agencies. The BLM and USFS continue to combine budget 

funding allocations to field offices for the sharing of operations and services. This includes staff 

and services provided by the BLM and USFS to customers and the community. There will not 

be any field offices under separate budget funding allocations in 2008. 

IRM Governance - In 2008, the IRM Governance program will continue to improve its program 

to protect Federal records, especially those containing personally identifiable information. The 

Configuration Management (CM) program will continue to manage, track, document changes, 

validate and test requirements, ensure information is clear, concise, valid, and to distribute and 

communicate changes to an IT asset throughout its life cycle. 

Workforce Planning – In 2008, the BLM will re-define its workforce planning process to ensure 

that the agency has the right skills at the right time in the right place. As a result of workforce 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-363

planning, the BLM will place more emphasis on entry-level recruiting and diversifying its 

workforce. For example, the BLM is utilizing the Student Career Employment Program (SCEP) 

as a primary source of recruitment for entry-level positions and for meeting its future skill 

requirements. 

2009 Planned Program Performance - In 2009, the BLM will continue to support executive 

and management decisions; communications, including Legislative affairs, Public affairs, 

Regulatory affairs, and Environmental Education and Volunteer programs; budget development 

and execution; Enterprise Architecture; information and financial management; property and 

acquisition management; management systems; personnel and organizational management; 

safety; and Equal Employment Opportunity.

IRM Governance will continue to improve customer relations and provide timely, accurate, and 

user-friendly information via the FOIA website. This will reduce the administrative burden, 

which will focus on other important program responsibilities. The IRM Governance will also 

continue to improve reading room management and search capabilities through innovative 

technology. This includes categorization of information to make it more easily searchable. In 

addition, IRM Governance will continue to apply CM policies, processes, and procedures for all 

software, software documentation, program documentation, create a database used to store 

Configuration Records throughout their Lifecycle, and continue to conduct Alternative Internal 

Control Reviews (AICRs) for states. 

National Monument and National Conservation Area Funding – The shift of $113,000 in funding 

to the National Land Conservation program, in 2009, will be directed to National monuments 

and National Conservation Areas. The Grand Escalante Staircase Monument in Utah will 

receive $64,000. The Grand Canyon Parashant Monument in Arizona will receive $24,000. 

The Headwaters Forest Reserve in California will receive $20,000. The Kasha Katuwe Tent 

Rocks Monument in New Mexico will receive $5,000. The funding will aid in maintaining 

Administrative Support functions and will ensure the continuity of operations and 

communications at the monument. It will support the entire program areas associated with 

Administrative Support at the monument sites. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-364

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Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-365

Activity: Workforce and Organizational Support 

Subactivity: Bureau-wide Fixed Costs

Activity: Workforce and Organizational Support 

Subactivity: Bureauwide Fixed Costs 

 2009 

 Fixed Costs & Program Change 

 2007 2008 

Related 

Changes 

Change

s Budget 

from 

2008 

 

Enacte

d 

Enacte

d (+/ -) (+/ -) 

Reques

t (+/-) 

Bureauwide Fixed Costs ($000) 77,895 82,554 +5,518 0 88,072 +5,518

 

FTE 0 0 0 0 0 0

Other Major Resources: 

 

Major Program IT Investments: 

 

 

Summary of 2009 Program Changes for Bureauwide Fixed Costs 

Request Component ($000) FTE

Program Changes: 

 

TOTAL, Program Changes 0 0

JUSTIFICATION OF 2009 PROGRAM CHANGES

The 2009 budget request for Bureau-wide Fixed Costs is $88,072,000 including a $5,518,000 

increase over the 2008 enacted level for fixed costs. 

PROGRAM OVERVIEW

Program Components - This subactivity pays for Bureau-wide and Departmental Working 

Capital Fund (WCF) fixed costs, including space rental, telecommunications, federal payroll and 

personnel systems, mail and postal costs, unemployment insurance, workers compensation, 

and systems funded through the Departmental Working Capital Fund. Some of these funds are 

explicitly provided in the Congressional appropriation as uncontrollable costs. 

Working Capital Fund (WCF) - The BLM has been receiving services and paying for services 

from the WCF for many years now. This is a bill from the Department of Interior’s (DOI) Office of 

the Secretary and the DOI’s National Business Center. The WCF is also categorized as two 

separate bills – centralized and direct. The centralized bill consists of mandatory services 

provided by the Department of Interior (DOI) Office of the Secretary and the DOI National 

Business Center. The direct bill is primarily a fee for service bill. These are services provided 

under reimbursable agreements between the BLM and DOI. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-366

Space Management - This component of the Bureau-wide fixed costs program primarily focuses 

on general purpose and warehouse space acquired through purchase, lease, and construction, 

GSA-provided space in federally owned or leased buildings, donations, exchanges, excess, 

agreements, and transfers. BLM manages, owns, and maintains approximately 4,300 facilities 

such as administrative offices, recreational sites, visitor centers, fire facilities, and stations. 

The BLM created the National Land Radio (LMR) program, in 2008, and placed this division 

under the direction of the Fire and Aviation Directorate. This radio program is exclusive from 

the DOI radio program, but a portion is funded by Bureau-wide Fixed Costs. BLM’s LMR 

program, described in detail in the cross-cutting section, provides two-way radio voice services 

in the 13 western states, including Alaska and the Eastern States. 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. 

Long Term Vision – The Bureau-wide fixed costs program supports the Resource Protection, 

Resource Use, Recreation, and Serving Communities mission goals from the Department’s 

Strategic Plan by providing management administrative support functions and Bureau-wide 

fixed costs to all other activities. The primary output for the Bureau-wide Fixed Costs program 

is providing personal property, vehicle fleet management services, and other management 

support services, through the Departmental Working Capital Find. 

Space Management’s goal is to share BLM offices with other DOI Bureaus and other Federal 

land management agencies; and consolidate space geographically, whenever possible. This 

ongoing strategy will not only achieve space reduction but achieve a reduction in escalation of 

our real estate cost, improve delivery of service to our customers, increase employee 

productivity, and attain a healthy, safe, and integrated workplace environment. 

Critical Factors – With the Space Management program, there are increasing demands to 

promote and encourage sustainability. BLM managers must ensure that sustainable 

developments, part of new construction and major renovations to existing facilities, occur on 

public lands. The future success of the Space Management program is dependent on the 

ability to ensure that BLM’s space portfolio investments support BLM’s mission. BLM is 

acquiring sustainable facilities in a cost effective manner while addressing current and emerging 

needs. BLM is also cautious about the long term cost of the Space Leasing program. 

Means and Strategies – BLM developed a utilization strategy that requires constructed, leased, 

and owned assets to have space allocations based on: 

• 180 useable square feet per person for each field office 

• 200 useable square feet for each headquarters and center office space 

• No less than 50 percent of unoccupied space, for warehouse space, to be determined 

fully utilized 

Additional metrics such as condition index, mission dependency, annual operating costs, tenant 

improvement index, and location sharing have been established for BLM managers to track 

performance at the portfolio-level or by individual assets. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-367

Typically, State Asset Managers are responsible for identifying space leasing requirements and 

for developing a multi-year space leasing plan as part of the Asset Business Plan (ABP) and 

Asset Management Plan (AMP) requirements. The ABP enables BLM managers to make 

investment decisions on how their space portfolio contributes to achieving BLM’s mission, 

strategic goals, and how the acquisition, assignment, allocation, and utilization of those 

constructed leased and owned facilities will occur at the District/Field/Sate/Center levels. The 

multi-year plans are consolidated into a Five-Year Space Management Plan and submitted to 

DOI with the Exhibit 54, Space Budget Justification for funding space allocation. 

Strategic Plan – By providing management administrative support functions and Bureau-wide 

fixed costs to all other activities, the Bureau-wide fixed costs program will continue to support 

the Resource Protection, Resource Use, Recreation, and Serving Communities mission goals 

from the Department’s Strategic Plan. Through the Departmental Working Capital Fund, the 

program will accomplish their primary goal by providing personal property, vehicle fleet 

management services, and other management support services. 

BUREAUWIDE FIXED COSTS TABLE (1830) 

 2008 2008 

 Planned Planned 2009 

 Budget Revised 2009 Change

 Justifications Final Planned (+/-) 

Total Funding 86,885 82,555 88,072 5,518

Space rental - GSA 19,194 18,895 23,204 4,309

Space rental - BLM 28,255 27,329 27,329 

General Purpose Telecommunications 5,900 5,808 5,808 

Mail & Postal Services 2,000 1,969 1,969 

Injured Employee Compensation 8,518 8,385 8,556 171

Unemployment Compensation 7,717 7,597 7,513 -84

GSA Consumer Information 15 15 15 

Subtotal, Dept WCF (1830 only) 15,286 12,557 13,679 1,122

Dept WCF FPPS 671 661 661 

Dept WCF - FBMS 2,530 0 0 0

Dept WCF - General 12,085 11,896 13,018 1,122
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-368

2009 PROGRAM PERFORMANCE

2007 Program Accomplishments - Asset Management accomplishments for 2007 included: 

• Developed of the Bureau-wide Five-Year Space Management Plan. 

• Aligned of BLM’s Asset Business Plan (ABP) with the President’s Management Agenda 

Scorecard for Real Property and improved upon the metrics and performance of the 

Space Management program. 

• Performed on-site inspection of State/Center space portfolio as part of the Asset 

Management Plan requirement. Asset Management Reviews were completed at the 

Eastern States Office, Washington Office, Idaho State Office, and the National Business 

Center. 

2008 Planned Program Performance - In 2008, the BLM will continue to manage office space 

leasing, which is the largest of BLM’s fixed costs. The rental of general-purpose office space 

and associated facilities is classified in two ways. GSA Rental Space includes the GSA's rent, 

including associated utility and security charges for rental of office, warehouse, storage, and 

other facilities occupied by the BLM. Space controlled by the BLM includes rental costs for 

space leases that were transferred from the GSA to the BLM on October 1, 1987, plus the 

transfer of new leases every year from the GSA. These leases are for facilities occupied by 

BLM personnel as well as Forest Service and other Interior Department personnel. BLM leased 

space also includes utility costs that have been systematically removed from leases to reduce 

energy consumption. Department of the Interior controlled space funding is included under the 

Departmental Working Capital Fund. Location sharing with the Department of Interior and other 

Federal agencies, such as the Forest Service, will be regarded by field office managers as the 

first option to consider for new space requests. The BLM will continue conserving space in this 

manner to reduce space costs and improve service to customers by joining with other land 

management agencies to provide more efficient and effective services. 

General Purpose Telecommunications – In 2008, the BLM will continue to manage the FTS 

2001 Intercity Service costs including long distance voice circuit, interoffice data service, video, 

and electronic mail service. These costs are based on the type of service, bandwidth, volume, 

and length of each call. FTS 2001, provided by the MCI Corporation, is the inter-city carrier for 

the BLM. Data communications service is based upon the number of connections, type of 

service, bandwidth, and carrier point of presence and length of circuits. Local carriers, other 

than MCI’s FTS 2001, are used for intra-late data communications service in many locations as 

a cost savings measure. These costs are designated as Non-FTS costs and services and are 

provided by the local tariff service provider. All other telecommunication services, including 

local basic commercial telephone, GSA consolidated services, cellular services (which are 

funded from individual State/national center operating funds), and ESN, are included in the 

Department’s Working Capital Fund. 

Land Mobile Radio – The BLM’s National Radio Communications Division will manage all 

related cost associated to the LMR program. Charges for the National Telecommunication 

Information Agency’s management of the BLM’s radio frequency/spectrum, Narrowband radios, 

baseline radio facility site condition assessments, Wildlife Telemetry frequency license fees, 

Joint DOI radio systems and related contracts, and other National LMR fixed costs are funded 

here. The LMR program is designed to provide BLM with two-way radio voice services in 13 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-369

western states including, Alaska and the Eastern States. In 2008, the LMR program will take on 

a number of steps to develop and strengthen BLM’s radio program: 

• Develop a radio site checklist to measure facilities compliance as compared to the 

Motorola R-56 Site standard and other related governance to ensure the safety of the 

public and our workforce. 

• Conduct baseline site condition assessments of existing facilities and initiate corrective 

measures as needed. 

• Provide improved end user support, to include training and continue trouble ticket 

tracking. 

• Improve interoperability by educating all radio users in the capabilities of radio 

equipment. 

• Improve relationships with other governmental organizations and cooperators by better 

defining sharing/working agreements 

Federal Payroll/Personnel System – In 2008, the BLM will continue to monitor the costs of using 

and maintaining BLM’s personnel management systems. 

Mail and Postal Service – In 2008, BLM will continue to assess and monitor BLM’s mail and 

postal service utilization based upon benefiting subactivities. This includes base metered 

postage machines, next day postage, and other express mail services. 

Injured Employee Compensation – In 2008, the BLM will continue to monitor the amount 

requested for 2008 covered costs for the 12- month period ending June 30, 2007, 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. 

Unemployment Compensation – In 2008, the BLM will monitor cost, 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.

Departmental Services – In 2008, the BLM will continue to share the costs of common services 

provided in Washington and in the Main Interior Building by the Department, such as the cost of 

Department controlled space, central support management services, building security, OAS 

aircraft services, DOINET, telecommunication management, and safety and health training. 

GSA Consumer Information – In 2008, the BLM will continue to share the cost with DOI for 

stockpiling and distributing publications by GSA's Consumer Information Center in Pueblo, 

Colorado. 

2009 Planned Program Performance 

Washington Office Relocation – In 2009, the BLM Washington Office L Street staff will be 

anticipating to relocate, incurring increased costs for leased office space and the cost of moving 

to new office space. The BLM has aggressively worked to streamline requirements to avoid 

significantly increasing the overall cost of the space in 2009 without diminishing the quality of 

the space provided for its employees. Through the Managing for Excellence initiative the 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-370

Bureau will streamline the number of employees at the Washington Office and other BLM 

offices to increase overall efficiency and alignment with the mission of each office. The 

Washington Office relocation is explained in more detail in the Cross Cutting section. 

BLM Land Radio Program – The LMR program will continue to provide BLM with two-way radio 

voice services in 13 western states including, Alaska and the Eastern States. In 2009, the LMR 

program will take on a number of steps to develop and strengthen BLM’s radio program: 

• Continue to develop radio site checklists to measure facilities compliance as compared 

to the Motorola R-56 Site standard and other related governance to ensure the safety of 

the public and our workforce. 

• Complete the narrowband radio equipment transition by converging radio technologies 

advances with other information technology trends. 

• Continue to provide improved end user support, to include training and continue trouble 

ticket tracking. 

• Continue to improve interoperability by educating all radio users in the capabilities of 

radio equipment.

• Continue to improve relationships with other governmental organizations and partners by 

improving significant shared work agreements
Bureau of Land Management 2009 Budget Justifications 

Activity: Mining Law Administration 

Activity: Mining Law Administration 

Subactivity: Mining Law Administration 

 2009 

 Fixed Costs & Program Change 

 2007 2008 

Related 

Changes Changes Budget 

from 

2008 

 Enacted Enacted (+/ -) (+/ -) Request (+/-) 

Mining Law Administration ($000) 32,696 34,696 0 0 34,696 0

Mining Law Admin. Offset ($000) -32,696 -34,696 0 0 -34,696 0

 

FTE 280 291 0 0 291 0

JUSTIFICATION OF 2009 PROGRAM CHANGES

The 2009 budget request for the Mining Law Administration program (MLAP) is $34,696,000 

and 291 FTE, no change from the 2008 enacted level. The program’s operating cost in 2009 is 

fully offset by estimated revenue from mining claim maintenance and location fees, which 

totaled $54,652,000 in 2007. 

PROGRAM OVERVIEW

The Mining Law Administration program is responsible for managing exploration and 

development of locatable minerals available on public lands under the General Mining Law of 

1872, as amended, and the Federal Land Policy and Management Act of 1976. As part of the 

Mining Law Administration program, the BLM determines the validity of unpatented mining 

claims; prepares mineral patent applications for review by the Secretary of the Interior; initiates 

mineral contest actions; enforces surface management and environmental requirements; 

enforces bonding requirements to assure that proper reclamation occurs after a site has been 

mined; records new mining claim locations; collects mining claim location and annual 

maintenance fees; and processes small miner waiver documents. 

Program Components 

Mining Law Administration Fees (Location and Annual Maintenance Fees) - Since 1993, 

claimants have been required to pay an annual maintenance fee for each mining claim and site 

in lieu of performing $100 of assessment work as previously required under the General Mining 

Law of 1872, as amended, and filing the annual affidavit of assessment work required under 

FLPMA. Congress also added a one-time $25 location fee in 1993. On September 1, 2004, the 

maintenance fee was increased from $100 to $125 per claim and the location fee was increased 

to $30 per claim, in accordance with the statutory requirement that they be adjusted to reflect 

changes in the Consumer Price Index (30 U.S.C. Chapter 2, section 28(f) (g). BLM will publish 

another update to these fees in 2009. 

Section III- Management of Lands and Resources Page III-371 
Bureau of Land Management 2009 Budget Justifications 

In the Consolidated Appropriations Act, 2008 (PL 110-161, Division F, Title I), the maintenance 

and location fees became permanent. Congress has directed that the fees be used to offset 

appropriations for this activity. 

Surface Management on Unpatented Mining Claims - Under sections 302(b) and 603 of 

FLPMA, the BLM administers surface management regulations (43 CFR 3802 and 3809) 

designed to prevent unnecessary or undue degradation of the public lands resulting from 

operations conducted under the mining laws. These regulations were first promulgated in 1980 

and revised in November 2000. The revised regulations retain the 1980 rule’s provisions for 

three levels of activity: Casual Use, Notice, and Plan of Operations. However, the revised rule 

modifies the thresholds defining the three levels: 

• Casual Use level is the least surface disturbing category. It involves the use of hand 

tools only; no mechanized earth-moving equipment or explosives. These activities 

result in negligible disturbance. 

• Notice level activities have been restricted by the revised rule to exploration 

operations that disturb five acres or less and remove less than 1,000 tons of 

presumed ore for testing. These activities do not require approval but the operator 

must provide BLM with an estimate to reclaim the operations as if BLM were hiring a 

third–party contractor to perform reclamation. The BLM reviews the estimate and, if 

the amount is correct, will approve the bond amount that must be provided before 

operations can proceed. 

• Plan of Operations level activities include all mining and milling regardless of the 

acreage involved and exploration activities in excess of 5 acres, as well as 

operations on split estate lands and Stock Raising Homestead Act lands where the 

operator and the claimant have failed to agree on a private mining plan. Plans are 

reviewed using the National Environmental Policy Act process and formally approved 

by the BLM. The operator must provide BLM with an estimate to reclaim the 

operations as if BLM were hiring a third–party contractor to perform reclamation after 

the project area has been vacated. The BLM reviews the estimate and, if the 

amount is correct, will approve the bond amount that must be provided before 

operations can proceed. 

Inspection and Enforcement - Operations administered under a notice and/or plan of 

operations require inspections to ensure that unnecessary or undue degradation is not 

occurring. The Surface Management Regulations require the BLM to inspect mining 

activities under each approved plan of operation at least four times per year if the operation 

will use cyanide, or other leachates, or has the potential for acid rock drainage. All other 

operations are inspected on a twice-per-year basis. Inspections and enforcement are not 

cost recoverable under current BLM regulations. 

Bonding and Reclamation - The BLM’s regulations require all notices and plans of 

operations to satisfy requirements for financial guarantees designed to ensure adequate 

reclamation of exploration and mining operations. 

Mining Claim Occupancy - The Use and Occupancy Management program (43 CFR 3715) 

concerns the proper occupation (residency or seasonal occupation) of public land by mining 

operators. It provides that if an operator proposes occupancy exceeding casual use, the 

Section III- Management of Lands and Resources Page III-372 
Bureau of Land Management 2009 Budget Justifications 

occupation must be justified as reasonably incident to mining and exploration. 

Implementation of this program has led to the successful remediation of illegal occupancies 

resulting in several favorable Interior Board of Land Appeals decisions. Remediation may 

also involve working with the BLM Solicitor and Assistant U.S. Attorney to seek court 

injunctions after the IBLA has affirmed a BLM decision(s) and the operator fails to comply 

with the enforcement order/IBLA decision. 

Mineral Examinations – The Surface Management Regulations require the BLM to 

determine valid existing rights (validity examinations) prior to processing plans of operations 

within withdrawn lands. BLM may require a validity examination and report prior to 

approving a plan of operations or allowing notice-level operations to proceed on segregated 

lands. A mineral examination (common variety examination) may be conducted on mining 

operations for materials that are suspected of being of a common variety nature. 

Uranium Mining – The BLM is implementing new training (regulatory, safety, mining, 

milling and reclamation methods) needed to manage uranium exploration and mining 

operations and support necessary coordination with the Nuclear Regulatory Commission. 

Since 2005 BLM has received 160 uranium exploration Notices and 12 Plans of Operations. 

A few of the mines that have been on a “care and maintenance” status since the price of 

uranium fell in the early 1960’s may re-open in 2008 and 2009. 

Processing Patent Applications - The 1995 Interior and Related Agencies Appropriations 

Act included a one-year moratorium on the receipt and processing of certain patent 

applications. This moratorium has been continued by all subsequent appropriations acts. 

The moratorium does not affect the 20 remaining applications being processed by the field 

offices. This backlog of grandfathered patent applications will be completed by the end of 

2008. 

A full status report on the processing of grandfathered patent applications is sent to 

Congress each fiscal year. 

Long-Term Vision – the Mining Law Administration Program is focusing available resources on 

processing plans and notices, completing required inspections and ensuring that adequate 

financial guarantees are in place.

Critical Factors – Performance of this program requires qualified geologists, mining engineers, 

mineral examiners and surface protection specialists in order to thoroughly review plans and 

notices and to monitor mining operations. In addition, in order to receive and process the annual 

maintenance and location fees, trained adjudicators (land law examiners and legal assistants) 

are needed in each State. 

Using the program’s base increase of $2.0 million in 2008, BLM will hire an additional 12 

mineral specialists to more effectively manage the program and ensure compliance with 

Program Assessment Rating Tool (PART) measures such as bond adequacy and improved 

processing times for notices and plans. 

Section III- Management of Lands and Resources Page III-373 
Bureau of Land Management 2009 Budget Justifications 

Demands, Trends, and Resources. - Demand for new mining claims is largely a reflection of 

recent increases in gold, copper and uranium prices. The number of new claims recorded has 

increased over the past few years. The most recent low point was in 2001 when 13,561 new 

mining claims were filed. In 2007, 92,372 new mining claims were filed due to the increase in 

gold and copper prices and a renewed interest in uranium deposits on BLM land. The majority 

of new uranium claims in CO and WY lie under private surface with federal minerals. These 

lands were previously conveyed in part under the Stockraising Homestead and Taylor Grazing 

Acts. 

Mining Claim Fee Revenues

 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 

est 

2009 

est 

New 

Mining 

Claims 

/Sites 

24,483 22,123 13,561 15,407 32,134 44,350 57,494 89,049 92,372 80,000 80,000 

Total 

Claims 

/Sites 

249,371 235,948 203,232 198,029 220,501 249,556 220,281 332,393 338,290 300,000 300,000

Total 

Revenues 

($000) 

$24,538 $23,910 $19,436 $19,410 $26,963 $26,843* $38,449* $52,700 $54,652 $39,000 $42,900

* Approximately $9,000,000 from 2004 was not credited until 2005 due to the length of time required to validate 

claims. The actual collections credited to Treasury were $17,843,000 and $47,449,000 for 2004 and 2005, 

respectively. 

New uranium mining claim locations have dramatically increased over the past few years due to 

the increase in the price of uranium oxide (yellow cake). The graph below shows BLM estimated 

uranium mining claim filing activity compared to the price of yellowcake from 2001 thru 2006. 

The price of yellowcake in 2007 ranged from $92 to $132 per pound. 

Section III- Management of Lands and Resources Page III-374 
Bureau of Land Management 2009 Budget Justifications 

Uranium (U) Mining Claims vs $U 

2001- 2007

0

5,000

10,000

15,000

20,000

25,000

30,000

35,000

40,000

2001 2002 2003 2004 2005 2006 2007

Year

New U Mining Claims

$0

$20

$40

$60

$80

$100

$120

Mining Claims $U

Note: the number of claims where uranium is the locatable mineral is estimated because claimants are not 

required to state the mineral of interest. 

Processed uranium is used for the production of electrical energy in nuclear power plants in the 

U.S. and overseas. The renewed interest in uranium exploration and eventual production from 

domestic sources began in fiscal year 2003. Many of Canada’s formerly rich uranium deposits 

have reached the end of their reserves and have been closing down. Canada currently 

produces 29% of the world’s uranium. Because of this, BLM is experiencing a substantial 

increase in mining claim locations in the states of Colorado, New Mexico, Utah, and Wyoming. 

These states contain the known uranium districts from which production has previously 

occurred. 

Uranium (U) Mining Claims By State 

2005 - 2007

0

2,000

4,000

6,000

8,000

10,000

12,000

14,000

16,000

AZ CO NM UT WY

State

New U Mining Claim

s

2005 2006 2007 

Note: The number of claims where uranium is the locatable mineral is estimated 

because claimants are not required to state the mineral of interest. 

Section III- Management of Lands and Resources Page III-375 
Bureau of Land Management 2009 Budget Justifications 

Means and Strategies – The Mining Law program is a regulatory program and is customer 

driven. Projects may be considered as the processing of notices and plans of operations, 

adjudicating mining claim filings, conducting field inspections, conducting validity mineral 

examinations, and processing unauthorized occupancies associated with mining claims. 

Performance Measures – The 2005 Mining Law Program Assessment Rating Tool (PART) 

review recommended improved measures in order to gauge the effectiveness of the program, 

the objectives of which are to ensure that mining operations take place in an environmentally 

responsible manner and that operators meet their obligations to reclaim mine sites when 

operations cease. The following four measures have been implemented: 

• Percent of Reclamation Bond Adequacy - The measure is the ratio of the total bond 

amount obligated by BLM to the required reclamation bond amounts for specific mining 

operations for the current reporting time period. The basis of this measure is the 

LR2000 “Fiscal Year Bond Report”, developed in response to GAO's June 2005 

recommendation. (Final Report, Hardrock Mining - BLM Needs to Better Manage 

Financial Assurances to Guarantee Coverage of Reclamation Costs GAO-05-377). The 

GAO recommended that “.... the Secretary of the Interior direct the Director of BLM to: 

(1) Require the BLM State Office Directors to establish an action plan for ensuring that 

operators of hardrock operations have required financial assurances, and that the 

financial assurances are based on sound reclamation plans and current cost estimates 

so they are adequate to pay all of the estimated costs of required reclamation if 

operators fail to complete the reclamation; and (2) Modify LR2000 to ensure that it tracks 

critical information on hardrock operations and associated financial assurances so that 

BLM headquarters and state offices can effectively manage financial assurances 

nationwide to ensure regulatory requirements are met.” 

• Average Time to Approve Plans of Operations - This measure is derived from the 

Legacy Rehost 2000 (LR2000) Duration of Plans Report. All mining operations require 

approval from BLM before commencing operations. This measure reports on the number 

of months required from submission of a plan of operation to approval. Depending on 

the complexity of the proposal, BLM actions to process a plan can require a significant 

amount of time. After a mining operator files the initial plan of operation, the plan is 

reviewed for adequacy. BLM may request modification to the plan or may require the 

operator to provide additional information. The NEPA process is then initiated, and in the 

case of major plans, may lead to the determination that an EIS is required along with a 

public review period. 

• Percent of Notices and Plans of Operations Inspected - This measure is the ratio of 

the number of pending/authorized notices and plans of operations inspected at least 

once over the number of pending/authorized notices and plans of operations for the 

reporting year. Based on LR2000 data, in 2007, BLM inspected 1,158 of the 2,841 

notices and plans of operations for a total of 41%. BLM conducts inspections in order 

to determine an operator’s compliance with an accepted notice or approved plan of 

operations and reclamation plans to insure compliance with applicable regulations to 

prevent unnecessary or undue degradation as mandated in Sec. 302 (b) of FLPMA. 

• Percent of Incidents of Non-Compliance Corrected with First Notice - This measure 

is the ratio of the number of Incidents of Non-Compliance Corrected with first notice for 

the reporting year over the number of Incidents of Non-Compliance issued under the 

Section III- Management of Lands and Resources Page III-376 
Bureau of Land Management 2009 Budget Justifications 

3715 and/or 3809 regulations for the reporting year. Non-compliance, Suspension and 

Cessation Orders are typically issued following an inspection if an operator has 

constructed facilities, expanded the exploration/mining operation beyond the accepted 

notice or approved plan of operations area or taken any unauthorized actions. The 

operator by regulation is required to begin corrective action(s) within 30-days of notice. 

The time frame to complete the corrective action(s) is determined by the District/Field 

Manager. 

Use of Cost and Performance Information in the Mining Law Administration Program 

BLM is managing mine reclamation costs through a Bond Review Report, which was developed to comply with the 

Government Accountability Office’s (GAO) recommendations addressing the BLM’s Hardrock Mining program 

(GAO-05-377, June 2005) and which was addressed in the 2005 PART review. The BLM State Directors use this 

report on a Fiscal Year basis to certify to the BLM Director that reclamation cost estimates have been reviewed 

within regulatory and policy time frames and are adequate to cover the cost of reclamation. 

Other Funding Sources – 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 new fee schedule was 

promulgated in November 2005. The processing fees for recording a new mining claim, annual 

filings, transfers of interest, amendments to previously recorded documents, deferments of 

assessment, and protests were increased. Mineral patent applicants (if the moratorium is 

rescinded) will pay a fixed processing fee of $2,520 (>10 claims) or $1,260 (10 or fewer claims). 

In addition, proposed mining Plans of Operation requiring an EIS are charged a processing fee 

on a case-by case basis. 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. 

BLM uses cost recovery revenue to process documents related to Mining Law Administration. 

BLM has received increased revenue from cost recoveries during each of the last three years, 

as shown in the table below. This income fluctuates with the demands of the mineral industry. 

Mining Law Administration Cost Recoveries ($000) 

Cost Recovery Category 2004 2005 2006 2007 

Fixed fees for document processing $570 $779 $1,400 $2,045

Case-by-case fees 0 0 $55 $431

Total Mining Law Cost Recoveries $570 $779 $1,455 $2,476

Strategic Plan - The Mining Law Administration program supports the Resource Use mission 

goal from the Department’s Strategic Plan by managing Federal mineral resources to enhance 

public benefit, and promote responsible use. The program’s success is measured by several 

key outcomes including the length of time required to process plans of operations and the 

adequacy of reclamation bonding. 

Section III- Management of Lands and Resources Page III-377 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-378 

2009 PROGRAM PERFORMANCE

2009 Planned Program Performance - Program priorities in 2009 include: 

• Managing an estimated 338,000 actively maintained claims on public lands 

• Collection of annual maintenance fees 

• Timely processing of surface management authorizations for exploration notices and 

mining plans of operations 

• Timely processing of surface management inspections 

• Pursuing current and new unauthorized occupancy cases to final resolution (43 CFR 

3715) 

• Implementation of bonding and other requirements under the Surface Management 

Regulations (43 CFR 3809 (2001) 

• LR2000 data input to be completed within 5-days of the reportable action. 
Bureau of Land Management 2009 Bu

MINING LAW ADMINISTRATION PERFORMANCE Overview 

 Measures: 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 President's Budget Chan

from 2

Plan 

200

Average time for processing plans of operation for locatable minerals.(SP/PART) 

 18 mo 18 mo 17 mo 17 mo 14 mo 14 mo 14 mo 0% 

Total Actual/Projected Cost ($000) $6,996 $7,186 $7,906 $0 $7,352 $9,740 $9,740 $0 Actual/Projected Cost per plan (in dollars) $388,677 $399,204 $465,073 $0 $525,125 $695,735 $695,728 -$7 

Although plans of operation are completed in less time, the continuous start of new plans keeps the funding leMining Law Administration received a $2,000,000 million increase in 2008. Comment: 

Percent of Reclamation Bond Adequacy (Bur/PART) 

new 

measure 

new 

measure 

new 

measure 

85% 

95% 

958,808,534/ 

1,010,130,079 

95% 96% +1% 

Comment: * Support Measure - No cost will be shown. The Bond adequacy reporting system was implemented mid 200Percent of Mining Law incidents of Non-compliance corrected with first notice. (Bur/PART) 

22% 

8/ 37 

9% 

3/ 34 

17% 

13/ 76 

16% 

12/ 75 

9% 

3/ 32 

16% 

12/ 75 

17% 

13/ 75 +1% 

Comment: * Support Measure - No cost will be shown. Percent of Notices and Plans of Operations Inspected (Bur/PART) 

40% 

1,358/ 

3,383 

31% 

1,187/ 

3,813 

27% 

1185/ 4,403 

47% 

1,196/ 

2,554 

41% 

1,158/ 2,841 

41% 

1,158/ 

2,842 

47% 

1,196/ 

2,554 

+6% 

* Support Measure - No cost will be shown. In 2007, the denominator changes because a significant numbe

Notices were eliminated in 2006. Comment: 

Number of mining claim adjudication and fee collection actions (Bur) 536,840 645,342 833,420 565,722 907,463 800,000 800,000 +0% Total Actual/Projected Cost ($000) $6,349 $5,902 $6,264 $0 $6,253 $8,424 $8,424 $0 Actual/Projected Cost per action (in dollars) $12 $9 $8 $0 $7 $11 $11 $0 

Section III- Management of Lands and Resources 
Bureau of Land Management 2009 Bu

MINING LAW ADMINISTRATION PERFORMANCE Overview 

 Measures: 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 President's Budget Chan

from 2

Plan 

200

Comment: The 2006 and 2007 results show an unusually high increase in demand which is not anticipated to continue in Number of validity and mineral patent examinations completed (Bur) 33 21 14 27 14 14 14 0% Total Actual/Projected Cost ($000) $4,069 $4,560 $4,127 $0 $4,260 $5,675 $5,675 $0 Actual/Projected Cost per examination (in dollars) $123,299 $217,118 $294,791 $0 $304,268 $405,327 $405,327 $0 Comment: Number of mining notices processed (Bur) 482 488 543 543 827 524 545 +4% Total Actual/Projected Cost ($000) $2,563 $2,514 $2,466 $0 $2,560 $3,286 $3,286 $0 Actual/Projected Cost per notice (in dollars) $5,317 $5,151 $4,541 $0 $3,096 $6,271 $6,029 -$24Comment: Process Mining Plans of Operation (#). 252 155 139 150 122 161 168 +4% Process Mining Notices (#) 177 459 720 562 837 545 704 +29% Inspect Locatable Mineral Sites for Surface Management Compliance (#). 3,918 3,441 3,351 3,086 3,344 3,300 3,600 +9% 

Section III- Management of Lands and Resources 
Bureau of Land Management 2009 Budget Justifications 

Activity: Land and Resource Information Systems 

Subactivity: Land and Resource Information Systems

Activity: Land and Resources Information Systems 

Subactivity: Land and Resources Information Systems 

 2009 

 Fixed Costs & Program Change

 2007 2008 

Related 

Changes 

Change

s Budget 

from 

2008 

 Actual 

Enacte

d (+/ -) (+/ -) 

Reques

t (+/-) 

Land & Res. Info. Systems ($000) 

17,08

4 16,447 +134 -134 16,447 0

 

FTE 57 54 0 0 54 0

Other Major Resources: 

 

Major Program IT Investments: 

 

 

Summary of 2009 Program Changes for Land and Resources Information Systems 

Request Component ($000) FTE

Program Changes: 

• Organizational & Administrative Streamlining -22

• Travel & Relocation Expenses -55

• Performance Contracting savings -57

TOTAL, Program Changes -134 0

JUSTIFICATION OF 2009 PROGRAM CHANGES

The 2009 budget request for the Land and Resource Information Systems program is 

$16,447,000 and 54 FTE, a net program decrease of $134,000 from the 2008 Enacted level, 

offset by a $134,000 increase for fixed costs. 

PROGRAM OVERVIEW

The Bureau has implemented strategic goals which are designed to implement the 

Department’s strategic goals and the President’s Management Agenda. As the manager of the 

largest amount of land and mineral resources in the nation, BLM has identified key areas to 

concentrate on to further the Administration’s goals. They include a commitment to increase 

domestic energy supply, respond to threats to rangeland and forests, improve dispersed 

recreational opportunities, and protect and preserve heritage resources. To achieve these 

goals, BLM is improving its business systems, program accountability and performance, and 

improving the quality of services delivered to its customers. 

The scope of the information needed to support the Department’s and BLM’s mission is vast 

and the systems to manage this information have grown increasingly more complex. BLM 

information systems collect data on land health, water quality, restored ecosystems (after 

Section III- Management of Lands and Resources Page III-381 
Bureau of Land Management 2009 Budget Justifications 

wildland fires), hazardous fuels reduction, land contamination, habitat protection, cultural and 

natural heritage resources, oil and gas leases and permits, lease applications, minerals, grazing 

permits, timber sales, recreation, and financial transactions. BLM information systems also 

benefit the taxpayer by providing reliable information in a timely manner, such as allowing 

commercial transactions to be made online instead of at BLM office locations. Examples 

include: 

• BLM is using Geographic Information Systems (GIS) and linking them to a national mapping 

network to help identify ecological sites that may be threatened in order to ensure that steps 

can be taken to reduce the threats to these lands. 

• BLM is a participant in Recreation.gov to provide customer service to those who want to 

enjoy the beauty and recreational opportunities on the public lands. 

• BLM is also using information technology to identify and catalogue heritage sites in order to 

better monitor activities that might impact those sites. 

 

Program Components- Funding provided through the Land and Resource Information 

Systems program also supports the following efforts: 

• Bureau Enterprise Architecture (BEA) – The BEA effort documents BLM’s business 

processes and related Information Technology (IT) projects to create a cost-effective, 

customer-oriented business enterprise to support BLM’s strategic mission. This has required 

improving business processes and designing technological solutions to maximize the return 

on investments. As the BEA continues to follow Department direction for continued 

consolidation of applications, business areas and technology, BLM will continue to be more 

involved in the creation and implementation of blueprints. BLM will continue to participate in 

all blueprints involving BLM lines of business. These include, but are not limited to, 

Recreation, Trust Management, Financial Management, Law Enforcement, Geospatial 

Biological Resources and Management Planning and National Environmental Policy Act 

(NEPA). 

• BLM is the managing partner with the Department for the Management Planning and NEPA 

blueprint. BEA will provide support through the blueprint implementation phase and in 

moving ePlanning forward as the Department’s single Land Use Planning system.

• Data Management and Administration – The bureau-wide Data Resources Management 

and Administration programs are critically important to ensure that the information BLM uses 

in decision making is accurate, timely, useful, and free of bias. BLM is continuing its 

implementation of the data quality obligations under the Paperwork Reduction Act, the 

Government Performance and Results Act, and the Data Quality Act by implementing 

performance measures and monitoring and assessing the quality of its data. BLM’s Data 

Management program is working with the business community to ensure that BLM collects 

and manages data using a standard format that can be accessed and shared with other 

Federal, Tribal, State and local governments and disseminated to the public. It is actively 

collaborating with BLM’s resources and lands and minerals program to standardize and 

define the data needed and to use the appropriate tools to document the quality of their 

data.

• National Applications – The National Applications program manages BLM’s national 

applications/systems throughout the life cycle of the investment and ensures successful 

Section III- Management of Lands and Resources Page III-382 
Bureau of Land Management 2009 Budget Justifications 

service delivery through all phases - concept, design, construction, data management, 

operation, support and maintenance in order to meet the business owner/program needs 

while ensuring system data integrity. The goal of this program is to meet BLM’s 

commitments on service delivery relating to the following: The Office of Management and 

Budget (OMB) Circular A-16 lead agency designation for three GIS data themes, the Energy 

Act of 2005 requirements including one GIS, and Memorandum of Understanding (MOU) 

with Tribes and other agencies (MMS, USFS, and USGS) 

• IT Security – The IT Security program provides a number of necessary services to meet the 

Bureau’s Land and Resource strategic goals. These services focus on meeting information 

assurance requirements under the authority of the Federal Information Security 

Management Act of 2002, the OMB Circular A-130, and Department Manual Part 375 §19.4. 

Direct support to the Land and Resource information system program is provided by 

performing system certification activities, security control review and testing, and Plan of 

Action and milestone coordination, management and reporting. 

The IT Security program is responsible for developing risk based strategic solutions to 

security issues which mitigate the likelihood and impact of reported weaknesses while 

supporting the Land and Resource mission. Examples of deficiencies include: 

o Developing and implementing more consistent Contingency Plan training tests 

and exercises for the Bureau's information systems; 

o Reviewing IT systems and access to information for least functionality and least 

privilege and taking steps to put in place the appropriate restrictions and 

functionality; and 

o Increasing participation in role base security training for those with significant 

security responsibilities. 

Means and Strategies – Business projects for the BEA will be ongoing. Streamlining and 

centralization of the National Operations Center’s IT Infrastructure will be ongoing and will be 

making major progress in 2009. National Applications and comprehensive evaluations will be 

ongoing by the CIO, the BEA and other team members to look at resource allocation and 

workload prioritization and to implement corrective action. 

• National Applications – The Land Resource Information System program has five key 

performance measures that it tracks. They are based upon industry standards and 

compared against the Land and Resource Information System targets. The measures are 

produced during the annual Operation Analysis. 

• The Department‘s Capital Planning and Investment Control Scorecard also has a number of 

statistical metrics related to managing investments that are commonly requested. They are: 

o Scoring of the Exhibit 300/300-1 by the BLM/DOI on major applications 

o Performance Baseline for Major Investments (submitted to Department quarterly) 

o Quarterly Reports to the BLM/DOI on major applications 

o System Budget Requests for the Exhibit 53 

o Security Certification and Accreditation on 3 year cycle. Major Applications have 

to score 4 or better. 

o Independent Verification and Validation (system and life cycle document reviews) 

o Post Deployment Reviews including Post Deployment Return on Investment 

(ROI) calculation. 

o Earned Value Management (EVM). 

Section III- Management of Lands and Resources Page III-383 
Bureau of Land Management 2009 Budget Justifications 

• IT Security – The IT Security program is taking several steps to achieve strategic outcomes: 

o Maintaining qualified and skilled human capital; 

o Meeting IT Security Most Efficient Organization (ME) performance standards – 

resulting in successful maintenance of Certification and Accreditation (C&A) 

status for all BLM information systems; 

o Increasing outreach to business units – resulting in improved IT Security 

awareness and training; 

o Proactively engaging business units regarding the development of new systems 

to ensure adequate security controls – resulting in reduced costs and increased 

compliance; and 

o Increasing the frequency and quality of audits and assessments to identify 

weaknesses and vulnerabilities prior to exploitation – resulting in lower risk. 

Critical Factors - Critical factors that impact performance for the IT Security program are: 

• The ability to attract and retain qualified and skilled human resources; 

• Adequate funding for program costs including human capital, contracts, and operations – in 

accordance with the IT Security Most Efficient Organization (MEO) Performance Decision; 

and 

• Continuing program support from the senior leadership - pursuant to the Federal Information 

Security Management Act (FISMA) of 2002 and Departmental Policy. 

Long Term Vision – The Long-term goals for this program include continuous improvement in 

the areas of portfolio and investment management to achieve Stage 4 of the GAO’s IT 

Investment Management maturity model. A well-managed process is the basis for attaining 

Stage 4 of GAO’s model that is improving the Investment Process. BLM will continue to monitor 

progress in the areas of portfolio and investment management. The BLM will continue to 

update IT system processes and the Capital Planning & Investment Control Guide as lessons 

learned are documented and improvements are instituted. Through these improvements, BLM 

will continue to realize savings by streamlining infrastructure, reducing redundancies, sharing 

data with other systems, improving business processes to improve performance, and adhering 

to standard ways of collecting information. 

• National Applications – BLM will continue to satisfy the OMB Circular A-16 lead agency 

responsibilities by facilitating the collections, management and sharing of survey, public 

conveyance and title record information across all levels of government and the private 

sector while protecting and enhancing current investments in cadastral data. 

• IT Security – The long term goal of the IT Security Program is to be recognized as a 

business enabler by delivering successful IT security risk management for BLM. 

Other Funding Sources – Funding for BEA and Data Administration programs are 

supplemented from central funds and Service Level Agreements from benefiting activities within 

BLM. 

A portion of the annual funding received to support national applications comes directly from the 

Bureau programs which support specific national applications. Examples are the Automated 

Fluid Minerals Support System (AFMSS) and the Facility Asset Management System (FAMS). 

Section III- Management of Lands and Resources Page III-384 
Bureau of Land Management 2009 Budget Justifications 

The IT Security Program receives funding to support the C&A of all Bureau IT systems, 

including Land and Resource Management systems. 

Strategic Plan – Enterprise architecture provides an overall framework for integrating business 

needs and IT, promoting bureau cooperation, and improving data sharing capabilities across 

business lines. Strategic end outcomes for BEA and Data Administration programs will be to 

identify opportunities for integration, to eliminate or reduce redundancies, and to more 

effectively apply resources. 

• IT Security - The IT Security Division operates under several strategic outcomes and longterm targets: 

• Goal: To achieve full compliance on the 2008 E-GOV Scorecard for IT Security by scoring 

94 or higher (out of 100). 

• GPRA Goal: Management Excellence; Mission Supporting 

• Goal: Advance Modernization/Integration--Metric: Percent of IT systems that have 

Certification and Accreditation (C&A) and are maintaining C&A status [2012: 100 percent]; 

Intermediate Outcomes and Performance Measures -1: E-Government and Information 

Technology Management--Metric: (12) Score achieved on the National Institute of 

Standards and Technology (NIST) Federal IT Security Assessment Framework [2012: 4.50]. 

2009 PROGRAM PERFORMANCE 

2007 Accomplishments 

Bureau Enterprise Architecture 

• Completed (approved) Management Planning and NEPA Blueprint (MPN Blueprint) 

• Provided BEA support (repository, Methodology for Business Transformation (MBT), 

data modeling) to National Wildland Fire Enterprise Architecture NWFEA (fire)

• Completed IT Baseline Study/Recommendations to the Minerals, Realty and Resource 

Protection Directorate

• Initiated IT Infrastructure baseline for WO-500 and Managing for Excellence initiative

• Provided data quality profiling for Recreation Management Information System (RMIS), 

Wild Horse and Burro Program System (WHB), Emergency Stabilization and 

Rehabilitation (ESRS), and Oregon Landlines GCDB Project.

National Applications 

• Completed the consolidated Land and Resources Project Office (L&RPO) Major 

Application (MA) Certification and Accreditation (C&A) boundary 

• Completed an Operational Analysis and Post Implementation Review for each national 

application. 

• Incorporated the US Forest Service lands requirements into the National Integrated 

Lands System (NILS) partially satisfying the requirements of the National Energy Policy 

Act of 2005. 

• Created a new spatial viewer available to the public that combines all of the energy 

related cases, including oil & gas, oil & gas density, geothermal, coal, oil shale, wind 

Section III- Management of Lands and Resources Page III-385 
Bureau of Land Management 2009 Budget Justifications 

Rights–of-Way (ROW), and solar ROW. The viewer also includes references maps, 

imagery, surface management agency boundaries, PLSS, and much more. 

• NILS provided the public the capability to obtain GeoRSS web services (Geographic 

Really Simple Syndication web feed) to view land descriptions within other applications 

such as Google Maps. 

• Implemented minor modifications to maintain currency with changing business 

processes. 

IT Security 

• Provided certification and accreditation for two Land systems. The NILS and AFMSS 

systems were successfully created and accredited in 2007.

2008 Planned Program Performance- BEA – In 2008, the BEA program will continue to 

maintain the efficient business processes of better quality and shared data, fewer applications 

and more efficient technology. This a major focus of the Department’s Enterprise Architecture 

and one of the major benefits of implementing architecture (through IT baseline and blueprint 

baseline studies) is that of improving business performance against the goals and performance 

measures set for the business focus areas we are trying to improve. 

• Data Management and Administration - In 2008, BLM will continue to incorporate data 

management quality metrics and data standards into the systems it develops and manages. 

The Data Management program will use the alternative internal control review process to 

monitor the BLM’s progress in improving data quality. 

• Begin implementation of the MPN Blueprint

• Continue HR centralization business process improvement

• Continue data work with Assessment, Inventory, Monitoring Strategy

• Continue IT Infrastructure baseline implementation

• Continue data standardization work

• Continue data quality work

National Applications 

• BLM will continue to expand systems as the Energy Policy Act of 2005 and the 

President’s National Energy Policy implementation expands to accommodate larger 

production levels in terms of applications for permits to drill, completion of 

environmental impact studies (EIS), resource management plans (RMPs) and critical 

maintenance of stipulation, ownership, and production level data and information. 

• BLM has implemented effective project management disciplines through training, 

organizational reforms, and mentoring. Additionally, BLM has developed a rigorous 

Information Technology Investment process that requires project documentation and 

tracking of all life cycle activities from project inception to implementation, operation and 

maintenance, and archival. This has allowed BLM to make rapid improvements and/or 

to develop new state of the art practice software systems for the Intranet and Internet 

thus better supporting multiple energy initiatives throughout BLM’s jurisdiction.

• BLM will reduce duplicate and redundant systems in the Bureau. 

Section III- Management of Lands and Resources Page III-386 
Bureau of Land Management 2009 Budget Justifications 

• IT Security – In 2008 the IT Security program will focus on weaknesses related to the 

contingency plan development, testing, and training, and the physical security 

requirements for the Bureau's information and information systems. 

2009 Planned Program Performance- Data Management and Administration – In 2009, BLM 

will continue to assist business owners and data stewards to reach their established acceptable 

quality levels. Data achievement goals for 2009 will be established under BLM’s Management 

for Excellence priorities. 

• IT Security – In 2009, four of the Bureau’s information systems must be reaccredited. This 

includes the Land & Resource Program Office Major Applications which encompasses 

National Integrated Land System (NILS), Legacy Rehost (LR2000), Protection and 

Response Information System (PRIS), Automated Fluid Mineral Support System (AFMSS), 

Rangeland Administration System (RAS), and General Land Office Records System (GLO). 

Certification and accreditation includes the activities necessary to document the information 

system and its applicable security controls; test those controls to ensure they are operating 

as intended and produce the desired results; and receive management approval to operate 

the system based on the test results. Certification and accreditation gives the Bureau 

reasonable assurance its information systems meets security requirements and reduces the 

likelihood of a security breach that could negatively affect the mission. In addition to testing 

all applicable security controls for information systems requiring re-accreditation, the 

Division of IT Security will also test one-third of the applicable security controls for all 

systems not undergoing certification and accreditation as required by Federal and DOI 

policy. This includes information systems directly supporting the Land and Resource 

mission. 

Section III- Management of Lands and Resources Page III-387 
Bureau of Land Management 2009 Budget Justifications 

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Section III- Management of Lands and Resources Page III-388 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-389 

Activity: National Landscape Conservation System 

Subactivity: National Monuments and National 

Conservation Areas 

Activity: National Landscape Conservation System 

Subactivity: National Monuments & National Conservation Areas 

 2009 

 Fixed Costs & Program Change 

 2007 2008 

Related 

Changes 

Changes 

Budget 

from 

2008 

 Actual Enacted (+/ -) (+/ -) Request (+/-) 

Nat'l Landscape Cons. Sys. ($000) 0 0 0 +21,825 21,825 +21,825

 

FTE 0 0 0 +200 200 +200

Other Major Resources: 

 

Major Program IT Investments: 

 

 

Summary of 2009 Program Changes for National Landscape Conservation System 

Request Component ($000) FTE

Program Changes: 

• Creation of new subactivity +18,825 +200

• Program Increase +3,000 

TOTAL, Program Changes +21,825 +200

NOTE: 200 FTE allocated to NLCS-National Monuments and National Conservation Areas subactivity and 6 FTE allocated to 

Western Oregon NLCS-National Monuments and National Conservation Areas subactivity for a total of 206 FTE. 

The 2008 appropriation bill included a total unrequested increase of $4.922 million for the National Landscape 

Conservation System spread among numerous subactivities. The 2009 BLM budget request retains $3.0 million of the 

increase, but moves it to a new NLCS budget activity. While this represents a net decrease of $1.922 million in order to 

conform to the new budget structure, it is necessary to show that all $4.922 million of the 2008 NLCS funding increases 

are being eliminated, and that a different $3.0 million increase is being proposed for 2009. 

JUSTIFICATION OF 2009 PROGRAM CHANGES

The 2009 budget request proposes a new subactivity, National Monuments and National 

Conservation Areas, funded at $21,825,000 and 200 FTE. This is an initial estimate of the base 

budget (see detailed tables at the end of this section). Of the total, $3,000,000 represents an 

increase to base funding (see explanatory note above). The $3 million will be used in 2009 

program performance areas including Critical Inventories and Monitoring ($1,150,000), 

Resource Management and Uses ($1,550,000), and Cooperative Conservation ($300,000). 

Further detail is provided in the 2009 Program Performance section. 

The National Monuments and National Conservation Areas budget is a portion of the budget 

request for the National Landscape Conservation System (NLCS) which totals $51,837,000 (see 

NLCS Emphasis Area, Section I – General Statement). 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-390 

PROGRAM OVERVIEW

Program Components - The components of the National Monuments and National 

Conservation Areas program are National Monuments, National Conservation Areas, and other 

Congressional conservation designations. The National Monuments and National Conservation 

Areas are components of the BLM’s National Landscape Conservation System (NLCS). The 

other three components of the NLCS are Wilderness (see Recreation Activity, Section III), 

National Scenic and Historic Trails, and Wild and Scenic Rivers (see NLCS Emphasis Area, 

Section I – General Statement). 

In 2009, two new subactivities, this one in the Management of Lands and Resources (MLR) 

account and the other one in the Oregon and California Grant Lands account (see Section VI for 

the new O&C NLCS subactivity), will be established to manage the National Monuments, 

National Conservation Areas, and other similar congressionally designated areas. Initial funding 

for these two subactivities will be transferred from those programs that include annually 

recurring costs for managing these areas. The base funding identified for each National 

Monument and National Conservation Area in the NLCS budget tables is an initial estimate (see 

detailed tables at the end of this section). The BLM is conducting a thorough analysis of base 

funding for the NLCS units that will inform this process. This includes specifying the 2008 and 

2009 base amounts by NLCS units that will be funded through the new subactivity and the 

remaining amounts that will be funded through supporting activities. The base funding amounts 

shown in the budget for 2008 and 2009 are currently derived from 2007 actuals, but BLM will 

provide more accurate estimates once they are available. 

BLM manages 15 National Monuments, which protect objects of historic and scientific interest 

and 12 National Conservation Areas which are designated by Congress to conserve, protect, 

and enhance public land areas for the benefit and enjoyment of present and future generations. 

In addition, BLM administers five other Congressional conservation designations as part of the 

program which will be included in the new subactivity. This subactivity includes MLR funds 

which are used to support all of the above areas. The Oregon and California Grant Lands 

appropriation provides funding (in addition to the MLR funding) for the Cascade Siskiyou 

National Monument in Oregon (see Section VI). 

National Monuments – The BLM administers 15 national monuments in eight Western States, 

the first of which was the Grand Staircase-Escalante National Monument created in 1996. The 

national monument conservation designation is an integral part of the agency’s multiple-use 

mandate. Congress granted the President authority to designate national monuments in the 

Antiquities Act of 1906, which specifies that the law’s purpose is to protect “objects of historic or 

scientific interest.” In addition to national monuments created by the President, Congress has 

also established national monuments to protect natural or historic features such as the Santa 

Rosa and San Jacinto Mountains National Monument in California. 

National Conservation Areas – National Conservation Areas (NCAs) are designated by 

Congress to conserve, protect, enhance, and manage public land areas for the benefit and 

enjoyment of present and future generations. NCAs, such as the San Pedro Riparian National 

Conservation Area in Arizona, feature exceptional natural, recreational, cultural, wildlife, aquatic, 

archeological, paleontological, historical, educational or scientific resources. 

Outstanding Natural Areas – The Outstanding Natural Area designation was established by 

Congress primarily to protect unique scenic, scientific, educational, and recreational values for 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-391 

the enjoyment of current and future generations. Recreation activities center on those that foster 

education and interpretation of the Outstanding Natural Area’s unique resources. In 1980, 

Congress established the BLM’s first and only Outstanding Natural Area along Oregon’s coast 

at Yaquina Head. 

Congressionally Designated Conservation Areas – Examples of other areas designated by 

Congress to be administered for conservation purposes include the Steens Mountain 

Cooperative Management and Protection Area, and the Headwaters Forest Reserve. In the 

future, Congress may designate other areas that have different titles but have similar 

conservation purposes as the basis for their designation and would then be included in this 

subactivity. 

o The Cooperative Management and Protection Area designation was established by 

Congress to conserve, protect, and manage the long-term ecological integrity of special 

landscapes for future and present generations. This designation seeks to maintain and 

enhance cooperative and innovative management projects, programs and agreements 

between tribal, public and private interests. In addition, the area is managed to ensure 

the conservation, protection, and improved management of ecological, social and 

economic resources. 

o The Forest Reserve designation was established primarily to protect and help recover 

populations of threatened and endangered species as well as additional species of oldgrowth ecosystems that may be listed in the future. Scientific research is promoted to 

expand the current knowledge of Forest Reserve resources. Recreation activities center 

on those that foster education and interpretation of a Forest Reserve’s unique resources. 

In 1999, Congress established the BLM’s first and only Forest Reserve. The Headwaters 

Forest Reserve is managed in cooperation with the State of California and includes oldgrowth redwood forests. 

Long Term Vision - The long term vision for National Monuments and National Conservation 

Areas is to provide 1) active and effective conservation, protection and restoration to meet 

resource condition objectives; 2) support for vibrant communities and mutually beneficial 

partnerships; 3) rigorous science; and 4) high quality outdoor recreation, education and visitor 

services in these areas. 

 

Critical Factors - The National Monuments and National Conservation Areas program’s ability 

to achieve outcomes is directly affected by external factors including: 

• Climatic conditions such as the direct impacts from prolonged drought, wildland fires. 

• Availability of commercial (outfitters and guides) and community services (food and 

lodging). 

• Variability in the number of visitors and the types of recreation opportunities in which 

they participate. 

Means and Strategies - The National Monuments and National Conservation Areas program 

addresses the priorities of the program through: 

• Conservation, Protection & Restoration - Presidential proclamation and legislative 

objectives for national monuments and national conservation areas are achieved 

through active and effective stewardship of these lands. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-392 

• Communities & Partnerships - Emphasize the value of being a good neighbor and 

extending the capacity of the NLCS to accomplish critical work through enhanced 

partnership opportunities and community involvement. 

• Science - Work with partners to gain scientific 

understanding of NLCS resources and landscapes and 

the benefits they provide. This knowledge can be 

applied to improve management, education, and 

outreach, supporting the conservation and protection 

goals of the System. 

• Recreation, Education and Visitor Services - Provide 

recreation management and visitor services that 

support sustainable forms of recreation and help 

visitors realize opportunities for enjoyment, learning, 

exploration and discovery. 

Funding Sources - In 2009, a new subactivity is established 

for National Monuments and National Conservation Areas. 

Beginning in 2009, base funding for all National Monuments 

and National Conservation Areas will be tracked using the new 

subactivity. Base funding is defined as the annually recurring 

costs for personnel and operations at each unit. Tables at the 

end of this narrative contain the details on which subactivities 

have shifted funding into the new subativity. Additional 

funding through other existing BLM program subactivities will 

continue to support the monuments and conservation areas, 

as in the past. 

In addition, the BLM has been highly successful in using and leveraging resources. The BLM 

has built a history of innovation, creativity, and partnership success – these partnerships can 

serve as a tool to meet community growth demands placed on public lands. The program 

engages corporate and local support from surrounding communities to collaboratively manage 

resources. 

 

Strategic Plan - The National Monuments and National Conservation Areas program 

contributes to the Department’s Strategic Plan by protecting the Nation’s natural, cultural and 

heritage resources, one of the plan’s mission goals. The program protects and restores the 

overall health of landscapes and watersheds on the public lands while providing opportunities 

to improve scientific understanding of these ecosystems. The National Monuments and 

National Conservation Areas program also supports the Recreation mission goal by providing 

outstanding recreational opportunities. 

The Gunnison Gorge “Tammy 

Whackers,” a Gunnison Gorge 

National Conservation Area 

friends group supported by 

wilderness user fees, have 

assisted BLM river rangers in 

controlling tamarisk (aka 

“tammies”) in the Gorge.
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-393 

2009 PROGRAM PERFORMANCE

2007 Accomplishments - 

• Headwaters Forest Reserve - The watershed restoration program completed road 

decommissioning activities in the Salmon Creek watershed. This work was conducted in 

partnership with Pacific Fish Wildlife and Wetlands 

Restoration Association and funded by the California 

Department of Fish and Game. 

• The Yaquina Head Outstanding Natural Area in 

Oregon was used this year by a partnership of 

researchers from Oregon State University/Hatfield 

Marine Science Center, US Fish & Wildlife Service, 

and Oregon Department of Fish and Wildlife to 

monitor the murre colony. The murre colony at 

Yaquina Head Outstanding Natural Area is the largest 

in Oregon and one of the largest on the entire West 

coast. Observations focused on the reproductive 

success of the colonies, the impacts of bald eagles 

and other predators and disturbances, the diet of 

seabirds and foraging conditions. 

• The Carrizo Plain National Monument continues a 16 

year-old stewardship partnership between BLM and 

the South Sierra Archaeological Society (SSAS) for 

monitoring cultural sites. The volunteer group 

consists of 15 active site stewards ranging in age from 

18 to 70. The SSAS provides BLM an on-going 

monitoring record of significant rock art sites. This year SSAS contributed about 225 

hours of field monitoring and workshop training. A total of 31 cultural sites were 

monitored, revealing no sites being vandalized or impacted by human activity in FY2007. 

• The Canyons of the Ancients National Monument Cultural Site Stewardship Program 

volunteers monitored 59 sites on the Monument with 291 site visits, and 1,902 volunteer 

hours. This represents a value of approximately $35k in donated labor. Volunteers 

found 10 minor incidents of vandalism or other impacts. The Monument Archaeologist 

monitored 56 sites with 76 visits during the year. 

2008 Planned Program Performance - 

• Cooperative science efforts continue in 2008. The GeoCorps summer intern program with 

the Geological Society of America provides professional geologists to provide support for 

field offices. The interagency National Phenology Network studies plant and animal life 

cycle events that are influenced by environmental changes. 

• In 2008, land use plans for the Agua Fria National Monument, the Birds of Prey NCA, and 

the Upper Missouri River Breaks National Monument will be completed. Work on land use 

plans for the Ironwood Forest National Monument, the Carrizo Plain National Monument, 

and Canyons of the Ancients National Monument will continue throughout 2008. 

An ecologist examines a slab of 

redwood cut from a stump for 

evidence of fire scars. Fire history 

research is being conducted by 

Headwaters Forest Reserve 

personnel in cooperation with the 

USDA Forest Service Pacific 

Southwest Research Station.
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-394 

• The Headwaters Forest Reserve in Northern California encompasses the Falk historic town 

and mill site. To protect the existing train barn a project is currently underway to physically 

move it to an area adjacent to the Elk River Trail. It will become a future interpretative exhibit 

and education facility. A Memorandum of Agreement was developed and completed with the 

State Historical Preservation Office along with an Assistance Agreement with the United 

States Forest Service to physically move the structure. The goal is to preserve as much of 

the historic barn as possible. The barn is a post and beam redwood timber frame sheathed 

with redwood board and batten siding. Documentation of the current structure was captured 

through drawings and photographs for preservation purposes. 

2009 Program Performance - The creation of a new subactivity for National Monuments and 

National Conservation Areas in 2009 demonstrates the growing importance of these lands. 

They provide overall public land value, quality watersheds, and integral large land blocks of 

minimal habitat fragmentation. In 2009, the National Monument and National Conservation Area 

Management program will focus on the following areas to build on past successes, meet 

emerging needs and integrate Bureau priorities: 

• Plan Development and Implementation 

• Critical Inventories and Area-wide Monitoring Programs 

• Resources Management and Use 

• Cooperative Conservation 

Plan Development and Implementation 

A top priority for the NLCS is to implement its land use plans. Doing so will provide consistent 

management, offer clarity to stakeholders, and enable National Monuments and National 

Conservation Areas to set workload priorities. The NLCS and BLM’s planning division have 

developed a four-step process to identify priority workloads associated with implementing 

recently completed Resource Management Plans. The result is a user-friendly version of the 

Resource Management Plan with clear links between desired outcomes, tasks, 

accomplishments, funding, and performance. 

Critical Inventories and Monitoring Programs

The NLCS is developing innovative approaches to reach resource objectives through a strategic 

monitoring and adaptive management program. Inventories for baseline information define the 

critical resource values representative of the uniqueness for each National Monument and 

National Conservation Area. The NLCS also helps provide the public a better understanding of 

the BLM’s natural and prehistoric world by supporting an array of educational programs and 

serving as outdoor laboratories and classrooms. 

Manage Resources and Uses 

National Monuments and National Conservation Areas increasingly play an important role in 

supporting the diversity and health of local economies by maintaining undeveloped open 

spaces, promoting livability by preserving air and water quality, and offering unparalleled 

opportunities for outdoor recreation. The suite of visitor services provided by the National 

Monuments and National Conservation Areas includes environmental education and 

interpretation, operating visitor centers, providing law enforcement and park rangers, 

maintaining a variety of facilities, and mitigating physical safety hazards such as open mine 

shafts and tunnels. The increased attention and visitation to NLCS units brings with it a growing 

demand for visitor services. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-395 

Cooperative Conservation 

In the last six years, National Monuments and National Conservation Areas have established 

successful, collaborative relationships with many local communities, states, tribes, nonprofits, 

and supportive citizens. These partner relationships perform critical planning activities, site- and 

project-specific work, and leverage federal resources. Partnerships supporting National 

Monuments and National Conservation Areas vary considerably in scope, number of parties 

involved, resources leveraged, and their mission; each one is unique. The NLCS assists 

partners in increasing the effectiveness of board governance, improving long-range and 

sustainable fundraising skills of their board members, and training in conflict management and 

collaboration. 

In 2008, Congress appropriated an additional $4.9 million over the BLM budget request for 

NLCS. Of that, $1.6 million was distributed to National Monuments and National Conservation 

areas to accomplish the following: increase law enforcement officers and capability, conduct 

cultural baseline inventory and cultural clearances, noxious weed control, complete two 

comprehensive travel management plans, and support for visitor center programs and 

operations (for the distribution of the remainder of the $4.9 million see the NLCS Emphasis 

Area, Section I – General Statement). 

The 2009 budget retains $3.0 million of the $4.9 million 2008 unrequested increase for the 

National Monuments and National Conservation Areas subactivity. 

The $3 Million NLCS 2008 Unrequested Increase Retained in the Base 2009 Budget for 

National Monuments and National Conservation Areas will support the following 

activities: 

Ecological Monitoring Pilots: ($200,000) The NLCS will continue ecological monitoring pilots in 

high-priority National Monuments and National Conservation Areas. The NLCS has piloted a 

process for ecological monitoring and adaptive management. Working with The Nature 

Conservancy, the BLM evaluated the current condition of natural resources in Las Cienegas 

National Conservation Area. The pilot undertook analyses of monitoring data, development of 

an ecological model, assessment of current monitoring protocols, and initiated new 

investigations directly applicable to management needs. In 2009, this model will continue in Las 

Cienegas National Conservation Area and will be expanded to other National Monuments and 

National Conservation Areas. 

Inventory and Monitoring Cost-Share Grants: ($500,000) In 2009 the subactivity will continue a 

project to provide grants to assemble baseline inventory and monitoring information for priority 

areas. The program will build scientific knowledge of natural and social resources, increase the 

effectiveness of resource management, foster conservation, and encourage public interest and 

ownership in the conservation of America’s landscapes. Grants will range in size from $5,000 to 

$30,000 and will fund approximately 20 scientific investigations. 

Comprehensive Travel and Transportation Management: ($450,000) Public access, OHV, and 

transportation management are a priority for the BLM. Increases in unmanaged recreation use 

has resulted in increased impacts to resources in NLCS units, damage to cultural sites, 

increased erosion, vegetative damage, increased spread of weeds and invasive plants, and 

impacts to wildlife habitat. Travel Management Plans designate routes and address 

maintenance, signing, trails, monitoring protocols, and rehabilitation. The subactivity will 

complete travel management plans in five states. 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-396 

Increase Law Enforcement Presence and Visibility in National Monuments and National 

Conservation Areas: ($450,000) In many areas, law enforcement is a key factor in ensuring 

visitor safety and protecting fragile geologic, archeological, paleontological, and biological 

treasures. Threats include vandalism of natural features, archeological sites, and facilities, theft 

of priceless archeological and paleontological resources, and increasing violence in borderland 

NLCS units. In addition to law enforcement officers, non-law enforcement park ranger positions 

would be added to improve visitor safety and resource protection. 

Archeological Inventory of Canyon of the 

Ancients National Monument: ($450,000) The 

inventory will focus on documenting sites, 

recording the condition of sites and the 

source of impacts. 

Maintenance and Operations of Recreation 

Facilities: ($700,000) Increased attention and 

visitation to National Monuments and 

National Conservation Areas creates a 

growing need to operate and maintain 

facilities and to address critical visitor health, 

safety and resource management issues. By 

ensuring accessibility and quality of facilities 

and services, NLCS units can continue to 

play a vital role in supporting the diversity 

and health of regional and local economies. 

The subactivity supports a number of 

education and visitor centers along with 

other, more rustic facilities to enhance the 

visitor experience in the natural setting. The NLCS supports a built environment that considers 

setting and place and uses long-lasting and environmentally appropriate materials. Support will 

be provided for 2-3 built environment projects and operation of up to 8 existing visitor centers. 

BLM’s Working Landscapes: ($100,000) Interpretation and environmental education improve 

our visitors’ experience by providing information about the cultural, ecological, and scientific 

values of National Monuments and National Conservation Areas. Each area is a window into 

the wonders of nature. Interpretation and environmental education in all its forms helps people 

discover their own relationships with, and understandings of, these incredible landscapes. The 

result is a greater connection with the public, a heightened sensitivity for conservation of these 

areas, and fostering of citizen stewardship. These funds will be used to develop environmental 

education curriculum, materials, and interpretive programs at four areas. 

Friends Groups: ($150,000) National Monuments and National Conservation Areas utilize 

community-based partners to help achieve mission-related work and foster citizen engagement. 

BLM is working to establish of a nonprofit support group for every National Monument and 

National Conservation Area. The NLCS manages a grant program that provides funding to 

partnerships to build their organizational capacity. 

The National Monument & National Conservation Area Management Performance Overview 

table displayed below shows the workloads associated with National Monuments and National 

School children participate in Mojave Max 

interpretive program at Red Rock Canyon Visitor 

Center.
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-397 

Conservation Areas that have been transferred to this subactivity from other BLM subactivities 

in FY 2009. 
Bureau of Land Management 2009 B

Section III- Management of Lands and Resources 

NATIONAL MONUMENTS & NATIONAL CONSERVATION AREAS PERFORMANCE Overview 

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Percent of National Monuments and National Conservation Areas meeting resource condition objectives. (Bur) 

84% 

27 / 32 

78% 

25 / 32 

100% 

32/ 32 

100% 

32/ 32 

100% 

32/ 32 

100% 

32/ 32 

100% 

32/ 32 +0

Comments: * Support Measure - No cost will be shown. Heritage Resources Education and Outreach (Products Delivered) N/A N/A N/A N/A N/A N/A 218 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 240 N/Actual/Projected Cost per Product Delivered (in dollars) N/A N/A N/A N/A N/A N/A 1101 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Cultural Resouces ManagemConsultations with Indian Tribes and Alaska Native Corp (Number of Consultations) 

N/A N/A N/A N/A N/A N/A 47 N/

Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 46 N/Actual/Projected Cost per Consultation (in dollars) N/A N/A N/A N/A N/A N/A 989 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Cultural Resources ManageInventory, Repatriate and Transfer Custody of NAGPRA Items (Number) 

N/A N/A N/A N/A N/A N/A 1 N/

Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 30 N/Actual/Projected Cost per Item (in dollars) N/A N/A N/A N/A N/A N/A 29,765 N/Comments: This is a new subactivity in 2009. Results for prior years were shown Cultural Resources ManagemPublic Outreach Through Interpretation & Envir Educ (Programs/Events Deliv) 

N/A N/A N/A N/A N/A N/A 554 N/
Bureau of Land Management 2009 B

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Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 1,089 N/Actual/Projected Cost per Program/ Event Delivered (in dollars) N/A N/A N/A N/A N/A N/A 1,966 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Riparian Management, Rec

Management and Oil & Gas Management 

Recreation Resources Inventoried/Assessed (Acres) N/A N/A N/A N/A N/A N/A 1,600,000 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 400 N/Actual/Projected Cost per acre (in dollars rounded up to nearest dollar) N/A N/A N/A N/A N/A N/A 1 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Recreation Resources ManaAcres of Heritage Resource Inventories (Acres) N/A N/A N/A N/A N/A N/A 21,121 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 929 N/Actual/Projected Cost per Acre (in dollars) N/A N/A N/A N/A N/A N/A 44 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Cultural Resources ManageHeritage Collections, Accessioned, Inventoried or Upgraded in non-BLM Facil (Accessions Catalogued) N/A N/A N/A N/A N/A N/A 5 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 64 N/Actual/Projected Cost per Accession Catalogued (in dollars) N/A N/A N/A N/A N/A N/A 12,720 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Cultural Resources ManageInventory Water Resources (Number of Invent Stations) N/A N/A N/A N/A N/A N/A 1,283 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 310 N/Actual/Projected Cost per Invent Station (in dollars) N/A N/A N/A N/A N/A N/A 242 N/
Bureau of Land Management 2009 B

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Comments: This is a new subactivity in 2009. Results for prior years were shown in Soil, Water, Air ManagemenWatersheds Assessed (Acres) N/A N/A N/A N/A N/A N/A 98,485 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 75 N/Actual/Projected Cost per Acre (in dollars rounded to nearest dollar) N/A N/A N/A N/A N/A N/A 1 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Soil, Water, Air Managem

Management 

Inventory Shrub, Grassland/ PJ Vegetation (Acres) N/A N/A N/A N/A N/A N/A 15,500 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 17 N/Actual/Projected Cost per Acre (in dollars-rounded to nearest dollar) N/A N/A N/A N/A N/A N/A 1 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Soil, Water, Air Managem

Management 

Inventory for Presence Invasive Plants and/or Noxious Weed (Acres) N/A N/A N/A N/A N/A N/A 188,114 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 81 N/Actual/Projected Cost per Acre (in dollars-rounded to nearest dollar) N/A N/A N/A N/A N/A N/A 1 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Rangeland Manage

Management 

Inventory Forest/Woodland Vegetation (Acres) N/A N/A N/A N/A N/A N/A 13,500 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 75 N/Actual/Projected Cost per Acre (in dollars) N/A N/A N/A N/A N/A N/A 6 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Forestry Management 
Bureau of Land Management 2009 B

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Inventory Lakes/Wetland Areas (Acres) N/A N/A N/A N/A N/A N/A 5 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 1 N/Actual/Projected Cost per Acre (in dollars) N/A N/A N/A N/A N/A N/A 200 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Soil, Water, Air ManagemenInventory Streams/Riparian Areas (Miles) N/A N/A N/A N/A N/A N/A 97 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 95 N/Actual/Projected Cost per Mile (in dollars) N/A N/A N/A N/A N/A N/A 979 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Soil, Water, Air Man

Management, Threatened & Endangered Species 

Museum Collections Accessioned, Inventoried or Upgraded in BLM Faci (Number) 

N/A N/A N/A N/A N/A N/A 10 N/

Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 87 N/Actual/Projected Cost per Upgraded or Inventoried Facility (in dollars) N/A N/A N/A N/A N/A N/A 8,748 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Cultural Resources ManageAssess Linear Recreation Resources (Miles) N/A N/A N/A N/A N/A N/A 2,679 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 300 N/Actual/Projected Cost per Mile (in dollars) N/A N/A N/A N/A N/A N/A 112 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Recreation Resources Mana
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Inventory Wildlife/Plan Habitat (Acres) N/A N/A N/A N/A N/A N/A 116,550 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 66 N/Actual/Projected Cost per Acre (in dollars) N/A N/A N/A N/A N/A N/A 1 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Soil, Water, Air Manag

Management 

Prepare and Revise Recreation Activity Plans (Number) N/A N/A N/A N/A N/A N/A 18 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 400 N/Actual/Projected Cost per Activity Plan (in dollars) N/A N/A N/A N/A N/A N/A 22,222 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Recreation Resources Plan for Commercial Activities (Number) N/A N/A N/A N/A N/A N/A 2 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 145 N/Actual/Projected Cost per Plan (in dollars) N/A N/A N/A N/A N/A N/A 72,500 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Rangeland Management Plan for Interdisciplinary Activities (Number) N/A N/A N/A N/A N/A N/A 14 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 349 N/Actual/Projected Cost per Plan (in dollars) N/A N/A N/A N/A N/A N/A 24,928 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Soil, Water, Air Manag

Management, Riparian Management and Threatened & Endangered Species 
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Plan for Threatened & Endangered Recovery (Number) N/A N/A N/A N/A N/A N/A 2 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 25 N/Actual/Projected Cost per Plan (in dollars) N/A N/A N/A N/A N/A N/A 12,500 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Threatened & Endangered SIssue & Manage Recreation Use Permits (Number Issued) N/A N/A N/A N/A N/A N/A 133,511 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 624 N/Actual/Projected Cost per Perimit (in dollars) N/A N/A N/A N/A N/A N/A 5 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Recreation Resources Ma

Enforcement 

Process Water Rights Actions (Number) N/A N/A N/A N/A N/A N/A 9 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 2 N/Actual/Projected Cost per Water Rights Action (in dollars) N/A N/A N/A N/A N/A N/A 256 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Soil, Water, Air ManagemenTransfer Grazing Preferences (Number) N/A N/A N/A N/A N/A N/A 33 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 57 N/Actual/Projected Cost per Transfer (in dollars) N/A N/A N/A N/A N/A N/A 1,727 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Rangeland Management 
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Issue Grazing Permits/Leases (Number) N/A N/A N/A N/A N/A N/A 47 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 243 N/Actual/Projected Cost per Permit/Lease (in dollars) N/A N/A N/A N/A N/A N/A 5,170 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Rangeland Management Issue Grazing Use Authorizations (Number) N/A N/A N/A N/A N/A N/A 543 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 127 N/Actual/Projected Cost per Authorization (in dollars) N/A N/A N/A N/A N/A N/A 234 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Rangeland Management Prepare Vegetative Permits/Contracts (Number) N/A N/A N/A N/A N/A N/A 600 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 5 N/Actual/Projected Cost per Permit/Contract (in dollars) N/A N/A N/A N/A N/A N/A 8 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Forestry Management Process Rights-of-Way Grants (Number of Actions) N/A N/A N/A N/A N/A N/A 26 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 100 N/Actual/Projected Cost per Action (in dollars) N/A N/A N/A N/A N/A N/A 3,846 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Lands & Realty Managemen
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Process Recreation & Public Purpose Leases (Acres Leased) N/A N/A N/A N/A N/A N/A 138 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 58 N/Actual/Projected Cost per Acre Leased (in dollars) N/A N/A N/A N/A N/A N/A 420 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Lands & Realty ManagemenProcess Land Sales (Acres Disposed Of) N/A N/A N/A N/A N/A N/A 943 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 100 N/Actual/Projected Cost per Acre Disposed Of (in dollars) N/A N/A N/A N/A N/A N/A 106 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Lands & Realty ManagemenHeritage Resources Intensively Recorded, Evaluated and Studied (Number) 

N/A N/A N/A N/A N/A N/A 79 N/

Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 141 N/Actual/Projected Cost per Record, Evaluation, and Study (in dollars) N/A N/A N/A N/A N/A N/A 1,784 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Cultural Resources ManageProcess Land Disposals Other than Sales (Acres Disposed) N/A N/A N/A N/A N/A N/A 2,564 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 100 N/Actual/Projected Cost per Acre (in dollars) N/A N/A N/A N/A N/A N/A 39 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Lands & Realty Managemen
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Heritage Resources Stabilized, Managed and Protected (Number) N/A N/A N/A N/A N/A N/A 45 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 203 N/Actual/Projected Cost per Resource (in dollars) N/A N/A N/A N/A N/A N/A 4,514 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Cultural Resources ManageRecreation Site Building Annual Maintenance (Square Feet) N/A N/A N/A N/A N/A N/A 92,761 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 2,424 N/Actual/Projected Cost per Square Foot (in dollars) N/A N/A N/A N/A N/A N/A 26 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Recreation Manag

Maintenance, and Annual Maintenance 

Recreation Site Building Construction (Square Feet) N/A N/A N/A N/A N/A N/A 15,386 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 260 N/Actual/Projected Cost per Square Foot (in dollars) N/A N/A N/A N/A N/A N/A 17 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Forestry Manageme

Resources Management 

Trail Annual Maintenance (Miles) N/A N/A N/A N/A N/A N/A 256 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 100 N/Actual/Projected Cost per Miles (in dollars) N/A N/A N/A N/A N/A N/A 391 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Recreation Resources Mana
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Trail Construction (Miles) N/A N/A N/A N/A N/A N/A 9 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 120 N/Actual/Projected Cost per Mile (in dollars) N/A N/A N/A N/A N/A N/A 13,333 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Forestry Manageme

Resources Management 

Recreation Site Non-Building Annual Maintenance (Recreation Sites Maint) N/A N/A N/A N/A N/A N/A 145 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 500 N/Actual/Projected Cost per Site (in dollars) N/A N/A N/A N/A N/A N/A 3,448 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Recreation Resources ManaRecreation Site Non-Building Construction (New Non-Bldg Assets) N/A N/A N/A N/A N/A N/A 10 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 120 N/Actual/Projected Cost per Asset (in dollars) N/A N/A N/A N/A N/A N/A 1,000 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Forestry Manageme

Resources Management 

Apply Shrub/Grass Vegetation Treatments (Acres) N/A N/A N/A N/A N/A N/A 42,238 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 857 N/Actual/Projected Cost per Acres (in dollars) N/A N/A N/A N/A N/A N/A 20 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Soil, Water, Air Manag

Management 
Bureau of Land Management 2009 B

Section III- Management of Lands and Resources 

NATIONAL MONUMENTS & NATIONAL CONSERVATION AREAS PERFORMANCE Overview 

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Construct Shrub/Grass/PJ/Forest Projects (Number) N/A N/A N/A N/A N/A N/A 7 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 43 N/Actual/Projected Cost per Project (in dollars) N/A N/A N/A N/A N/A N/A 6,143 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Soil, Water, Air Managem

Management 

Maintain Shrub/Grass/PJ/Forest Projects (Number) N/A N/A N/A N/A N/A N/A 149 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 127 N/Actual/Projected Cost per Project (in dollars) N/A N/A N/A N/A N/A N/A 852 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Rangeland Ma

Management, and Threatened & Endangered Species 

Apply Weed Treatments (Acres) N/A N/A N/A N/A N/A N/A 5,606 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 354 N/Actual/Projected Cost per Acres (in dollars) N/A N/A N/A N/A N/A N/A 63 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Soil, Water, Air Manag

Management, Forestry Management, and Riparian Management 

Restore Forest and Woodland Through Sales (Acres) N/A N/A N/A N/A N/A N/A 50 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 10 N/Actual/Projected Cost per Acres (in dollars) N/A N/A N/A N/A N/A N/A 200 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Forestry Management 
Bureau of Land Management 2009 B

Section III- Management of Lands and Resources 

NATIONAL MONUMENTS & NATIONAL CONSERVATION AREAS PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 Plan 

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Apply Lake/Wetland Treatments (Acres) N/A N/A N/A N/A N/A N/A 37 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 3 N/Actual/Projected Cost per Acre (in dollars) N/A N/A N/A N/A N/A N/A 81 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Riparian Management Apply Stream/Riparian Treatments (Miles) N/A N/A N/A N/A N/A N/A 12 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 37 N/Actual/Projected Cost per Mile (in dollars) N/A N/A N/A N/A N/A N/A 3,738 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Forestry Managem

Management 

Construct Lake/Wetland/Stream/ Riparian Projects (Number of Projects) N/A N/A N/A N/A N/A N/A 10 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 86 N/Actual/Projected Cost per Projects (in dollars) N/A N/A N/A N/A N/A N/A 8,600 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Riparian Mana

Management, and Threatened & Endangered Species 

Maintain Lake/Wetland/Stream/ Riparian Projects (Number of Projects) N/A N/A N/A N/A N/A N/A 60 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 85 N/Actual/Projected Cost per Project (in dollars) N/A N/A N/A N/A N/A N/A 1,416 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Rangeland Man

Management, and Fisheries Management 
Bureau of Land Management 2009 B

Section III- Management of Lands and Resources 

NATIONAL MONUMENTS & NATIONAL CONSERVATION AREAS PERFORMANCE Overview 

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Restore Forest and Woodlands through Development (Acres) N/A N/A N/A N/A N/A N/A 1,400 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 360 N/Actual/Projected Cost per Acre (in dollars) N/A N/A N/A N/A N/A N/A 257 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Forestry Management Implement Species Recovery/ Conservation Actions (Number) N/A N/A N/A N/A N/A N/A 51 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 70 N/Actual/Projected Cost per Action (in dollars) N/A N/A N/A N/A N/A N/A 1,372 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Wildlife Management 

Endangered Species 

Decommission and Rehabilitate Roads and Trails (Miles) N/A N/A N/A N/A N/A N/A 6 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 740 N/Actual/Projected Cost per Mile (in dollars) N/A N/A N/A N/A N/A N/A 123,000 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Forestry Managem

Management 

Evaluate Recreation Areas (Acres) N/A N/A N/A N/A N/A N/A 1,212,121 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 400 N/Actual/Projected Cost per Acre (in dollars rounded up to nearest dollar) N/A N/A N/A N/A N/A N/A 1 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Recreation Management 
Bureau of Land Management 2009 B

Section III- Management of Lands and Resources 

NATIONAL MONUMENTS & NATIONAL CONSERVATION AREAS PERFORMANCE Overview 

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Evaluate Forest/Woodland Treatments (Acres) N/A N/A N/A N/A N/A N/A 2,000 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 30 N/Actual/Projected Cost per Acre (in dollars) N/A N/A N/A N/A N/A N/A 15 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Forerstry Management Evalute Designated Rivers and Trails (Miles) N/A N/A N/A N/A N/A N/A 883 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 400 N/Actual/Projected Cost per Mile (in dollars) N/A N/A N/A N/A N/A N/A 435 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Recreation Management Monitor Air Quality and Climatic Conditions (Parameters Collected) N/A N/A N/A N/A N/A N/A 20 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 53 N/Actual/Projected Cost per Parameter (in dollars) N/A N/A N/A N/A N/A N/A 2,650 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Soil, Water, Air ManagemenEvaluate Rangeland Health (Allotments Evaluated) N/A N/A N/A N/A N/A N/A 16 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 142 N/Actual/Projected Cost per Allotment (in dollars) N/A N/A N/A N/A N/A N/A 8,875 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Rangeland Management 
Bureau of Land Management 2009 B

Section III- Management of Lands and Resources 

NATIONAL MONUMENTS & NATIONAL CONSERVATION AREAS PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 Plan 

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Evaluate Weed Treatments (Acres) N/A N/A N/A N/A N/A N/A 4,203 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 33 N/Actual/Projected Cost per Acre (in dollars) N/A N/A N/A N/A N/A N/A 8 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Soil, Water, Air Manag

Management, and Riparian Management 

Monitor Grazing Allotments (Number) N/A N/A N/A N/A N/A N/A 115 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 505 N/Actual/Projected Cost per Allotment (in dollars) N/A N/A N/A N/A N/A N/A 4,391 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Rangeland Manage

Management 

Monitor Lake/Wetland Habitat (Acres Evaluated) N/A N/A N/A N/A N/A N/A 155 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 7 N/Actual/Projected Cost per Acre (in dollars) N/A N/A N/A N/A N/A N/A 42 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Riparian Management Monitor Streams/Riparian Habitat (Miles) N/A N/A N/A N/A N/A N/A 456 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 657 N/Actual/Projected Cost per mile (in dollars) N/A N/A N/A N/A N/A N/A 1,441 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Soil, Water, Air Man

Management, Fisheries Management, and Threatened & Endangered Species 
Bureau of Land Management 2009 B

Section III- Management of Lands and Resources 

NATIONAL MONUMENTS & NATIONAL CONSERVATION AREAS PERFORMANCE Overview 

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Monitor Terrestrial Habitat (Acres) N/A N/A N/A N/A N/A N/A 598,888 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 274 N/Actual/Projected Cost per Acre (in dollars) N/A N/A N/A N/A N/A N/A 1 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Forestry Management, Wi

and Threatened & Endangered Species 

Monitor Species Populations (Number) N/A N/A N/A N/A N/A N/A 7,964 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 793 N/Actual/Projected Cost per Population (in dollars) N/A N/A N/A N/A N/A N/A 100 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Forestry Mana

Management, Wildlife Management, and Threatened & Endangered Species 

Monitor Water Resources (Number) N/A N/A N/A N/A N/A N/A 120 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 78 N/Actual/Projected Cost per Water Resource (in dollars) N/A N/A N/A N/A N/A N/A 650 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Soil, Water, Air ManagemenEvaluate Linear Recreation Management Objectives (Miles) N/A N/A N/A N/A N/A N/A 411 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 200 N/Actual/Projected Cost per Mile (in dollars) N/A N/A N/A N/A N/A N/A 487 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Recreation Resources Mana
Bureau of Land Management 2009 B

Section III- Management of Lands and Resources 

NATIONAL MONUMENTS & NATIONAL CONSERVATION AREAS PERFORMANCE Overview 

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Monitor Shrub/Grass Vegetation Treatments (Acres) N/A N/A N/A N/A N/A N/A 15,260 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 145 N/Actual/Projected Cost per Acre (in dollars) N/A N/A N/A N/A N/A N/A 10 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Soil, Water, Air Manag

Management, Wildlife Management, and Threatened & Endangered Species 

Heritage Resources Monitored (Number) N/A N/A N/A N/A N/A N/A 464 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 183 N/Actual/Projected Cost per Heritage Resource (in dollars) N/A N/A N/A N/A N/A N/A 395 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Cultural Resources Inspect Allotments for Grazing Authoriztion Compliance (Number) N/A N/A N/A N/A N/A N/A 161 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 160 N/Actual/Projected Cost per Inspection (in dollars) N/A N/A N/A N/A N/A N/A 994 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Rangeland Management Process Trespass/Unauthorized Occupancy Cases (Cases Processed) N/A N/A N/A N/A N/A N/A 2 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 15 N/Actual/Projected Cost per Case (in dollars) N/A N/A N/A N/A N/A N/A 7,500 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Rangeland Management 
Bureau of Land Management 2009 B

Section III- Management of Lands and Resources 

NATIONAL MONUMENTS & NATIONAL CONSERVATION AREAS PERFORMANCE Overview 

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Inspect Commercial SRP's Compliance (Number of Permits) N/A N/A N/A N/A N/A N/A 765 N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 524 N/Actual/Projected Cost per Permit (in dollars) N/A N/A N/A N/A N/A N/A 685 N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Recreation Man

Enforcement 

Provide Program Support: Restore Health of Public Lands (None) N/A N/A N/A N/A N/A N/A N/A N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 174 N/Actual/Projected Cost per (in dollars) N/A N/A N/A N/A N/A N/A N/A N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Soil, Water, Air ManagemenProvide Program Support: Sustaining Biological Communities (None) N/A N/A N/A N/A N/A N/A N/A N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 8 N/Actual/Projected Cost per (in dollars) N/A N/A N/A N/A N/A N/A N/A N/Comments: This is a new subactivity in 2009. Results for prior years were shown in Riparian Management Provide IT Hardware/Software Installatin, Upgrade, and Training (None) 

N/A N/A N/A N/A N/A N/A N/A N/

Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 7 N/Actual/Projected Cost per (in dollars) N/A N/A N/A N/A N/A N/A N/A N/Comments: This is a new subactivity in 2009. Results for prior years were shown in IRM & Automation Managem
Bureau of Land Management 2009 B

Section III- Management of Lands and Resources 

NATIONAL MONUMENTS & NATIONAL CONSERVATION AREAS PERFORMANCE Overview 

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Implement and Maintain Communication Networks (None) N/A N/A N/A N/A N/A N/A N/A N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 21 N/Actual/Projected Cost per (in dollars) N/A N/A N/A N/A N/A N/A N/A N/Comments: This is a new subactivity in 2009. Results for prior years were shown in IRM & Automation ManagemProvide IT Operations and Maintenance (None) N/A N/A N/A N/A N/A N/A N/A N/Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 7 N/Actual/Projected Cost per (in dollars) N/A N/A N/A N/A N/A N/A N/A N/Comments: This is a new subactivity in 2009. Results for prior years were shown in IRM & Automation Managem
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III-417

(1) Additional one time funds are allocated to each National Monument and National Conservation Area after the BLM receives its 

final appropriations, which will increase the funding amount for each unit. The base funding identified for each National 

Monument and National Conservation Area in this budget table is an initial estimate. The BLM is conducting a thorough 

analysis of base funding for the NLCS units that will inform this process. This includes specifying the 2008 and 2009 base 

amounts by NLCS units that will be funded through the new subactivity and the remaining amounts that will be funded through 

supporting activities. The base funding amounts shown in the budget for 2008 and 2009 are currently derived from 2007 

actuals, but BLM will provide more accurate estimates once they are available.

National Monument (NM) and National Conservation Area (NCA) Funding, FY 2009 President's Budget 

State Unit Name NM and NCA 

Subactivity 

Other 

NonBase 

Funding, 

MLR(1)

NM and 

NCA 

O&C 

Subactivity 

Other 

Non-Base 

Funding, 

O&C(1)

Total 

2009 

Request 

Steese NCA 323 323 

AK 

White Mountains NRA 413 413 

Agua Fria NM 403 403 

Gila Box Riparian NCA 377 377 

Grand Canyon Parashant NM 716 716 

Ironwood Forest NM 253 253 

Las Cienegas NCA 486 486 

San Pedro Riparian NCA 670 670 

Sonoran Desert NM 289 289 

AZ 

Vermilion Cliffs NM 244 244 

California Coastal NM 200 200 

Carrizo Plain NM 955 955 

Headwaters Forest Reserve 1,205 1,205 

King Range NCA 582 582 

CA 

Santa Rosa/San Jacinto Mountains NM 939 939 

Canyons of the Ancients NM 710 710 

CO Gunnison Gorge NCA 354 354 

McInnis Canyons NCA 302 302 

Craters of the Moon NM 566 566 

ID 

Snake River Birds of Prey NCA 444 444 

Pompeys Pillar NM 257 257 

MT 

Upper Missouri River Breaks NM 759 759 

El Malpais NCA 395 395 

NM 

Kasha Katuwe Tent Rocks NM 215 215 

Black Rock Desert High Rock Canyon Emigrant 

Trails NCA 347 347 

Red Rock Canyon NCA 138 138 NV 

Sloan Canyon NCA 10 10 

Cascade-Siskiyou NM 237 486 723 

OR Steens Mountain CMPA 969 969 

Yaquina Head ONA 404 404 

UT Grand Staircase-Escalante NM 4,663 4,663 

TBD Base Funding Increase for NM/NCAs 3,000 3,000 

 NM/NCA Total 18,825 TBD 486 TBD) 22,311 
Bureau of Land Management 2009 B

Section III- Management of Lands and Resources Page National Monuments and National Conservation Areas - Actual Funding for 2007

State 

Unit Name 

Soil, Water, and Air Management 

Rangeland Management 

Forestry Management (PD) 

Riparian Management 

Cultural Resources Management 

Wildlife Management 

Fisheries Management 

Threatened and Endangered Species 

Recreation Resources Management 

Oil and Gas Management 

Coal Management 

Other Mineral Resources 

Alaska Conveyance and Lands 

Lands and Realty Management 

Resource Protection and Law Enforcement 

Hazardous Materials Management 

Operations Maintenance 

Steese NCA 26 20 18 51 16 75 35 9 23 

AK 

White Mountains NRA 30 65 18 45 16 85 35 9 23 1Agua Fria NM 12 60 59 82 24 10 50 80 9 Gila Box Riparian NCA 24 41 64 71 16 30 29 93 Grand Canyon Parashant NM 77 186 152 47 92 37 17 84 Ironwood Forest NM 5 35 27 26 63 50 10 10 2Las Cienegas NCA 18 66 74 48 39 73 20 99 7 11 3San Pedro Riparian NCA 227 27 78 65 37 45 60 79 3 12 3Sonoran Desert NM 14 30 40 40 45 80 5 10 

AZ 

Vermilion Cliffs NM 8 79 2 2 19 72 62 California Coastal NM 50 150 Santa Rosa-San Jacinto Mountains NM 

 50 85 115 45 200 344 50 

Carrizo Plain NM 20 50 10 100 150 190 175 50 10 Headwaters Forest Reserve 30 930 50 60 65 

CA 

King Range NCA 15 65 160 9
Bureau of Land Management 2009 B

Section III- Management of Lands and Resources Page 

State 

Unit Name 

Soil, Water, and Air Management 

Rangeland Management 

Forestry Management (PD) 

Riparian Management 

Cultural Resources Management 

Wildlife Management 

Fisheries Management 

Threatened and Endangered Species 

Recreation Resources Management 

Oil and Gas Management 

Coal Management 

Other Mineral Resources 

Alaska Conveyance and Lands 

Lands and Realty Management 

Resource Protection and Law Enforcement 

Hazardous Materials Management 

Operations Maintenance 

Canyons of the Ancients NM 34 413 4 142 5 10 Gunnison Gorge NCA CO 5 17 20 8 13 195 15 52 McInnis Canyons NCA 1 32 7 59 7 6 152 5 Craters of the Moon NM 

12 128 5 39 94 51 89 25 13 85 

ID 

Snake River Birds of Prey NCA 6 26 10 10 58 97 195 17 Pompeys Pillar NM 

 42 190 3 

MT 

Upper Missouri River Breaks NM 20 119 29 52 44 7 306 14 33 75 El Malpais NCA 

20 6 14 7 7 7 316 12 

NM 

Kasha Katuwe Tent Rocks NM 13 7 182 6 Black Rock Desert High Rock Canyon Emigrant Trails NCA 

10 20 90 20 157 50 

Red Rock Canyon NCA 10 19 21 45 10 

NV 

Sloan Canyon NCA 10 Cascade-Siskiyou NM 70 20 10 10 5 100 22 Steens Mountain CMPA OR 37 251 77 18 90 76 146 235 39 Yaquina Head ONA 212 67 

UT Grand Staircase- Escalante NM 452 684 14 275 508 340 40 315 1,336 25 2 55 136 151 11 57 

NM/NCA Total 1,197 1,906 1,110 965 1,924 1,329 306 1,532 5,533 39 2 55 70 358 448 123 436 
Bureau of Land Management 2009 B

Section III- Management of Lands and Resources Page 

State 

Unit Name 

O&C Operations Maintenance 

O&C Annual Maintenance 

O&C Forest Management 

O&C Reforestation and Forest Development 

O&C Range Management 

O&C Recreation Management 

O&C Sol, Water and Air Management 

O&C Wildlife Habitat Management 

Total of Funding to Be Reprogrammed into the 

NM/NCA Subactivity 

Steese NCA 323 AK White Mountains NRA 413 Agua Fria NM 403 Gila Box Riparian NCA 377 Grand Canyon Parashant NM 716 Ironwood Forest NM 253 Las Cienegas NCA 486 San Pedro Riparian NCA 670 Sonoran Desert NM 289 

AZ 

Vermilion Cliffs NM 244 

California Coastal NM 200 Santa Rosa/San Jacinto NM 

 939 

Carrizo Plain NM 955 Headwaters Forest Reserve 1,205 

CA 

King Range NCA 582 

State 

Unit Name 

O&C Operations Maintenance 

O&C Annual Maintenance 

O&C Forest Management 

O&C Reforestation and Forest 

Development 

O&C Range Management 

O&C Recreation Management 

Canyons of the Ancients NM Gunnison Gorge NCA CO McInnis Canyons NCA Craters of the Moon NM 

 

ID 

Snake River Birds of Prey NCA Pompeys Pillar NM 

 

MT 

Upper Missouri River Breaks NM El Malpais NCA 

 

NM 

Kasha Katuwe Tent Rocks NM 

Black Rock Desert High Rock Canyon Emigrant Trails NCA 

 

Red Rock Canyon NCA 

NV 

Sloan Canyon NCA Cascade-Siskiyou NM 33 25 40 35 107 12 Steens Mountain CMPA OR Yaquina Head ONA 

UT Grand Staircase- Escalante NM 

NM/NCA Total 33 25 40 35 107 12 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III -421

Budget Schedules 

PROGRAM AND FINANCING (P) (MILLIONS $) 

Identification code: 

14-1109 2007 Act 2008 CY 2009 BY 

Obligations by program activity 

0011 Land resources 192 193 195 

0012 Wildlife and fisheries 41 42 43 

0013 Threatened and endangered species 22 22 22 

0014 Recreation management 66 67 67 

0015 Energy and minerals 139 126 131 

0016 Realty and ownership management 84 84 84 

0017 Resource protection 89 89 89 

0018 Transportation and facilities maintenance 70 70 70 

0019 Land and resource information systems 17 17 17 

0020 Workforce and organizational support 152 153 152 

0021 Alaska minerals assessment 1 1 0 

0022 Communication site rental fees 2 2 2 

0024 Mining law administration 34 34 34 

0026 Challenge Cost Share 10 10 10 

0027 Healthy Lands Initiative 3 0 0 

0901 Reimbursable program 57 78 57 

1000 Total new obligations 979 988 973 

Budgetary resources available for obligation 

2140 

Unobligated balance carried forward, start of 

year 41 45 44 

2200 New budget authority (gross) 961 965 950 

2210 

Resources available from recoveries of prior 

year obligations 22 22 22 

2390 

Total budgetary resources available for 

obligation 1024 1032 1016 

2395 Total new obligations -979 -988 -973 

2440 

Unobligated balance carried forward, end of 

year 45 44 43 

New budget authority (gross), detail 

Discretionary 

4000 Appropriation 867 867 856 

4020 Appropriation (LWCF) 0 0 9 

4033 

Appropriation permanently reduced (H.R. 

2764) 0 -13 0 

4300 Appropriation (total discretionary) 867 854 865 

Spending authority from offsetting collections 

5800 

Offsetting collections (Mining law and comm 

sites) 37 36 36 

5800 Offsetting collections (Economy Act) 49 49 49 

5800 Offsetting collections (APD fees) 0 26 0 

5810 

Change in uncollected customer payments 

from Federal sources (unexpired) 8 0 0 

5890 Spending authority from offsetting collections 94 111 85 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III -422

PROGRAM AND FINANCING (P) (MILLIONS $) 

Identification code: 

14-1109 2007 Act 2008 CY 2009 BY 

(total discretionary) 

7000 Total new budget authority (gross) 961 965 950 

Change in obligated balances 

7240 Obligated balance, start of year 206 237 236 

7310 Total new obligations 979 988 973 

7320 Total outlays (gross) -918 -967 -939 

7345 Recoveries of prior year obligations -22 -22 -22 

7400 

Change in uncollected customer payments 

from Federal sources (unexpired) -8 0 0 

7440 Obligated balance, end of year 237 236 248 

Outlays (gross), detail 

8690 Outlays from new discretionary authority 729 773 756 

8693 Outlays from discretionary balances 189 194 183 

8700 Total outlays (gross) 918 967 939 

Offsets 

Against gross budget authority and outlays 

Offsetting collections (cash) from 

8800 Federal sources 49 49 49 

8840 Non-Federal sources 37 62 36 

8890 Total, offsetting collections (cash) 86 111 85 

Against gross budget authority only 

8895 

Change in uncollected customer payments 

from Federal sources (unexpired) 8 0 0 

Net budget authority and outlays 

8900 Budget authority 867 854 865 

9000 Outlays 832 856 854 

9502 Unpaid obligation, end of year 277 0 0 

9602 2006 CR adjusted balances, SOY 0 0 0 

9604 2006 CR adjusted balances, EOY 0 0 0 

OBJECT CLASSIFICATION (O) (MILLIONS $) 

Identification code: 

14-1109 2007 Act 2008 CY 2009 BY 

Direct obligations 

Personnel compensation 

1111 Full-time permanent 357 342 342 

1113 Other than full-time permanent 20 20 18 

1115 Other personnel compensation 15 15 15 

1119 Total personnel compensation 392 377 375 

1121 Civilian personnel benefits 116 116 117 

1210 Travel and transportation of persons 21 22 22 

1220 Transportation of things 9 9 17 

1231 Rental payments to GSA 17 18 19 

1232 Rental payments to others 28 28 29 

1233 

Communications, utilities, and miscellaneous 

charges 16 16 17 

1240 Printing and reproduction 4 4 4 

1251 Advisory and assistance services 29 30 30 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III -423

OBJECT CLASSIFICATION (O) (MILLIONS $) 

Identification code: 

14-1109 2007 Act 2008 CY 2009 BY 

1252 Other services 116 116 118 

1253 

Other purchases of goods and services from 

Government accounts 44 44 45 

1254 Operation and maintenance of facilities 7 7 7 

1255 Research and development contracts 0 0 1 

1257 Operation and maintenance of equipment 10 10 10 

1260 Supplies and materials 36 36 36 

1310 Equipment 24 24 24 

1320 Land and structures 9 9 10 

1410 Grants, subsidies, and contributions 35 35 35 

1990 Subtotal, obligations, Direct obligations 913 901 916 

Reimbursable obligations 

Personnel compensation 

2111 Full-time permanent 12 26 12 

2113 Other than full-time permanent 1 3 1 

2115 Other personnel compensation 1 2 1 

2119 Total personnel compensation 14 31 14 

2121 Civilian personnel benefits 4 4 4 

2210 Travel and transportation of persons 2 2 2 

2220 Transportation of things 0 0 1 

2232 Rental payments to others 2 2 2 

2251 Advisory and assistance services 1 1 1 

2252 Other services 5 5 5 

2253 

Other purchases of goods and services from 

Government accounts 19 23 20 

2260 Supplies and materials 2 2 2 

2310 Equipment 1 1 1 

2320 Land and structures 2 2 2 

2410 Grants, subsidies, and contributions 5 5 3 

2990 

Subtotal, obligations, Reimbursable 

obligations 57 78 57 

Allocation Account - direct 

Personnel compensation 

3111 Full-time permanent 2 2 0 

3252 Other services 6 6 0 

3260 Supplies and materials 1 1 0 

3990 

Subtotal, obligations, Allocation Account - 

direct 9 9 0 

9999 Total new obligations 979 988 973 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III -424

BA, LIMITATIONS, AND OUTLAYS (A) (MILLIONS $) 

Identification code: 

14-1109 2007 Act 2008 CY 2009 BY 

Appropriation (total) [Homeland] 

4300 Discretionary, Appropriations Committee 867 854 864 

4300 

Discretionary, Homeland security, 

Appropriations Committee 0 0 1 

Spending authority from offsetting collections 

(total) [mining, telecomm fees, and permits to 

drill] 

5890 Discretionary, Appropriations Committee 37 62 36 

Spending authority from offsetting collections 

(total) [Economy Act] 

5890 Discretionary, Appropriations Committee 57 49 49 

Offsetting collections, Federal Sources [Text] 

8800 Discretionary, Appropriations Committee 49 49 49 

Offsetting collections, Non-Federal sources 

[Text] 

8840 Discretionary, Appropriations Committee 37 62 36 

Chg in uncollected customer payments from 

Fed sources (unexpired) [Text] 

8895 Discretionary, Appropriations Committee 8 0 0 

Outlays from new authority [Text] 

9111 Discretionary, Appropriations Committee 672 662 670 

9111 

Discretionary, Homeland security, 

Appropriations Committee 0 0 1 

Outlays from balances [Text] 

9121 Discretionary, Appropriations Committee 189 194 183 

9121 

Discretionary, Homeland security, 

Appropriations Committee 0 0 0 

Memo: Outlays frm end of PY balances [Text] 

9122 Discretionary, Appropriations Committee 0 194 25 

9122 

Discretionary, Homeland security, 

Appropriations Committee 0 0 0 

Outlays from new offsetting collections [Text] 

9311 Discretionary, Appropriations Committee 0 62 36 

Outlays from new offsetting collections [Text] 

9311 Discretionary, Appropriations Committee 57 49 49 

Outlays from balances of offsetting collections 

[Text] 

9321 Discretionary, Appropriations Committee 0 0 0 

Outlays from balances of offsetting collections 

[Text] 

9321 Discretionary, Appropriations Committee 0 0 0 

Memo: Outlays from end of PY balance from 

offsetting collections [Text] 

9322 Discretionary, Appropriations Committee 0 0 0 

Memo: Outlays from end of PY bal. from 

offsetting collections [Text] 

9322 Discretionary, Appropriations Committee 0 0 0 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III -425

BA, LIMITATIONS, AND OUTLAYS (S) (MILLIONS $) 

Identification code: 

14-1109 2007 Act 2008 CY 2009 BY 

Appropriation (total) [Homeland] 

Discretionary, Appropriations Committee 

4300 Baseline Non-Pay 0 330 337 

4300 Baseline Civilian Pay 0 524 552 

Spending authority from offsetting collections 

(total) [mining, telecomm fees, and permits to 

drill] 

5890 Discretionary, Appropriations Committee 0 62 63 

Spending authority from offsetting collections 

(total) [Economy Act] 

5890 Discretionary, Appropriations Committee 0 49 50 

Offsetting collections, Federal Sources 

[Economy Act Reimbursements] 

8800 Discretionary, Appropriations Committee 0 49 50 

Offsetting collections, Non-Federal sources 

[Text] 

8840 Discretionary, Appropriations Committee 0 62 63 

Outlays from new authority [Text] 

9111 Discretionary, Appropriations Committee 0 662 689 

Outlays from balances [Text] 

9121 Discretionary, Appropriations Committee 0 194 183 

9121 

Discretionary, Homeland security, 

Appropriations Committee 0 0 0 

Memo: Outlays from end of PY balances 

[Text] 

9122 Discretionary, Appropriations Committee 0 194 25 

Outlays from new offsetting collections [from 

voluntary, public] 

9311 Discretionary, Appropriations Committee 0 62 63 

Outlays from new offsetting collections [Text] 

9311 Discretionary, Appropriations Committee 0 49 50 

Outlays from balances of offsetting collections 

[Text] 

9321 Discretionary, Appropriations Committee 0 0 0 

Outlays from balances of offsetting collections 

[Text] 

9321 Discretionary, Appropriations Committee 0 0 0 
Bureau of Land Management 2009 Budget Justifications 

Section III- Management of Lands and Resources Page III -426

CHARACTER CLASSIFICATION (C) (MILLIONS $) 

Identification code: 

14-1109 2007 Act 2008 CY 2009 BY 

INVESTMENT ACTIVITIES 

Conduct of research and development 

Applied research 

Direct Federal programs 

1422-01 Budget Authority 12 12 12 

1422-02 Outlays 12 12 12 

NON-INVESTMENT ACTIVITIES 

Direct Federal programs 

2004-01 Budget Authority 855 842 853 

2004-02 Outlays 820 843 841 

EMPLOYMENT SUMMARY (Q) 

Identification code: 

14-1109 2007 Act 2008 CY 2009 BY 

Direct 

1001 Civilian full-time equivalent employment 5870 5710 5598 

Reimbursable 

2001 Civilian full-time equivalent employment 249 471 249 

Allocation account 

3001 Civilian full-time equivalent employment 30 30 30 

APPROPRIATIONS REQUESTS IN THOUSANDS OF DOLLARS (T)

Identification code: 

14-1109 2007 Act 2008 CY 2009 BY 

1000 Budget year budgetary resources [14-1109] 0 0 864827 
Bureau of Land Management 2009 Budget Justifications 

Section IV - Construction Page IV-1

Appropriation: Construction 

Appropriation Language Sheet 

For construction of buildings, recreation facilities, roads, trails, and 

appurtenant facilities, [$6,476,000] $4,476,000, to remain available until 

expended. (Department of the Interior, Environment, and Related 

Agencies Appropriations Act, 2008.) 

 
Bureau of Land Management 2009 Budget Justifications 

 

Section IV - Construction Page IV-2

AUTHORIZATIONS

43 U.S.C. 1701 et seq., the Federal Land Policy and Management Act of 1976, 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 lands 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. 

43 U.S.C. 1762 provides for the 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 for utilization of other resources. 
Bureau of Land Management 2009 Budget Justifications 

 

Section IV - Construction Page IV-3

Summary of Requirements ($000) 

 Fixed Costs & Program 2009 Inc(+) 

Comparison 2007 2008 Related Changes Changes Budget Dec(-) 

by Activity/ Enacted Enacted (+/ -) (+/ -) Request from 2008 

Subactivity FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount 

 

 Construction 27 11,751 27 6,375 0 0 0 -1,899 27 4,476 0 -1,899 

 

Section 102 

Repayment 0 2,000 0 0 

2007 repayment returned as carryover funds 

Section 102 

Transfers 0 -2,585 0 2,585 

 

 Construction 27 11,751 27 6,375 0 0 0 -1,899 27 4,476 0 -1,899 
Bureau of Land Management 2009 Budget Justifications 

 

Section IV - Construction Page IV-4

Activity: Construction 

Subactivity: Construction

Activity Summary ($000)

 2009 

 Fixed Costs & Change 

 2007 2008 

Related 

Changes 

Program 

Changes Budget from 2008 

Subactivity Enacted Enacted (+/ -) (+/ -) Request (+/-) 

 Construction $ 11,751 6,375 0 -1,899 4,476 -1,899

 FTE 27 27 0 0 27 0

 

 

Activity: Construction

Subactivity: Construction

 2009 

 Fixed Costs & Change 

 2007 2008 

Related 

Changes 

Program 

Changes Budget 

from 

2008 

 Enacted Enacted (+/ -) (+/ -) Request (+/-) 

Construction ($000) 11,751 6,375 0 -1,899 4,476 -1,899

 

FTE 27 27 0 0 27 0

Other Major Resources: 

 

Major Program IT Investments: 

 

Summary of 2009 Program Changes for Construction 

Request Component $0 FTE

Program Changes: 

• Travel & Relocation expenses -14

• Construction Projects Reduction -1,885

TOTAL, Program Changes -1,899 0

JUSTIFICATION OF 2009 PROGRAM CHANGES

The 2009 budget request for the Construction program is $4,476,000 and 27 FTE, a program 

change of -$1,899,000 and 0 FTE from the 2008 Enacted level. 

Program Decrease (-$1,885,000) – The BLM proposes a program decrease of -$1,885,000 in 

the Construction program in order to focus on higher priorities. The Construction program will 

continue to focus on BLM core work in the areas of developing facilities, replacing or 

reconstructing existing roads, trails, bridges, recreation and administrative facilities, and 

buildings with this funding. 
Bureau of Land Management 2009 Budget Justifications 

 

Section IV - Construction Page IV-5

Program Performance Change Table 

2005 

Actual 

2006 

Actual 

2007 

Actual 2008 Plan 

2009 Base 

Budget 

(2008 PB + 

Fixed 

Costs) 

2009 Plan 

Program 

Change 

Accruing in 

2009 

Program 

Change 

Accruing in 

Out-years 

A B=A+C C D 

IW - Recreation Site 

Non-Building 

Construction (new 

non-bldg assets 

constructed)

N/A 17 9 30 30 8 -22 0 

Total 

Actual/Projected 

Cost ($000) 

N/A $1,429 $1,383 $4,610 $4,610 $2,725 -$1,885 0 

Actual/Projected 

Cost N/A $84,100 $153,680 $153,680 $153,680 $153,680 $153,680 0 

Comments The 2009 change column shows a reduction of 22 assets constructed (-$1,885,000) for Recreation Site Non-Building 

Construction. 

Note: Projected costs may not equal program change as these are full costs, which may include funds from other sources and (or) use averages. 

Column A: The level of performance and costs expected in 2009 at the 2008 level plus funded fixed costs. Reflects the impact of prior year 

funding changes, management efficiencies, absorption of prior year fixed costs, and trend impacts, but does not reflect the proposed program 

change. 

Column D: Outyear performance beyond 2009 addresses lagging performance — those changes occurring as a result of the program change (not 

total budget) requested in 2009. It does not include the impact of receiving the program change again in a subsequent out-year. 

PROGRAM OVERVIEW

Program Components – Funds in the Construction program are used for the development of 

facilities that are essential to BLM’s mission and to replace or reconstruct existing roads, trails, 

bridges, recreation and administrative facilities, and buildings. 

• The public use of BLM public lands, resources, and facilities continues to grow 

substantially as the population grows and expands in the West. 

• Facilities are constructed to help satisfy the needs of the public and to protect both 

the visiting public and the environment during their visits to BLM-managed lands. 

This is accomplished by providing quality infrastructure that meets the needs of a 

variety of resource user groups, including: 

o Outdoor enthusiasts; 

o Livestock permittees; 

o Oil and gas companies and; 

o Timber companies (while protecting the Nation’s natural, historical, and 

cultural resources.) 

Projects for the Construction program are: 

• Developed, planned, and implemented annually and are described within the BLM’s 

Five Year Deferred Maintenance and Capital Improvement Plan.

• Prioritized based on critical health and safety needs, and the needs of resource 

protection. Projects are also ranked using a weighting process based on the 

percentage of the work (total project amount) that falls in each of the categories and 

the corresponding rank listed below:

o Critical Health and Safety Deferred Maintenance (CHSdm) 10

o Critical Health and Safety Capital Improvement (CHSci) 9

o Critical Resource Protection Deferred Maintenance (CRPdm) 7

o Critical Resource Protection Capital Improvement (CRPci) 6

o Energy Policy, High Performance, Sustainable Buildings CI (EPHPBSci) 5
Bureau of Land Management 2009 Budget Justifications 

 

Section IV - Construction Page IV-6

o Critical Mission Deferred Maintenance (CMdm) 4

o Other Deferred Maintenance (Odm) 3

Based on these weight factors, projects are ranked using the following calculation: 

CHSdm x 10) + (%CHSci x 9) + (%CRPdm x 7) + (%CRPci x 6) + (%EPHPBSci x 

he percentages must add to 100%. It places the highest priority on facility-related 

• include capital improvement work, and can include deferred maintenance 

• d to include how much the new project will impact BLM’s total budget, by 

• the disabled. The 

ong-Term Vision – The emphasis on energy conservation and sustainability has become a 

ompleted Construction projects will: 

d energy conservation criteria. 

expensive to operate. 

ritical Fa gram’s capability to achieve outcomes is directly 

•

eans an esses and use existing 

o Code Compliance Capital Improvement (CCci) 3

o Other Capital Improvements (Oci) 1

(%

5) + (%CMdm x 4) + (%Odm x 3) + (%CCci x 3) + (%Oci x 1) = Total Project Score

T

Critical Health and Safety and Critical Resource Protection deferred maintenance 

needs. 

Projects

work, as long as the deferred maintenance work comprises a smaller portion of the 

project.

Expande

including the estimated operation expenses for all new projects.

Built in compliance with Federal accessibility requirements for

needs of the disabled are incorporated into every new project, from accessible camp 

sites and toilets to trails.

L

major area of importance for all new facilities due to the provisions of the Energy Policy Act of 

2005 and Executive Order 13423 – Strengthening Federal Environmental, Energy, and 

Transportation Management signed by the President on January 24, 2007. 

C

• Incorporate sustainability an

• Be facilities that are better for the environment and are less 

• Improve the working environment for the BLM employees. 

• Save the BLM operational funds in the future, allowing the BLM to spend the needed

funds on operational activities. 

C ctors – The Construction pro

affected by external factors including: 

• Construction Industry: The construction industry is under immense pressure to 

increase costs across-the-board to account for fuel and material cost increases. The 

yearly increases have a large impact in the out-year estimated construction costs for 

completing a project. 

Weather: The weather continues to have impacts in many BLM areas, specifically 

Alaska and higher elevation areas leaving a short construction window in which to 

finish projects. The summer fire season has a tremendous impact on construction 

operations in the summer due to a shortage of personnel. 

M d Strategies – The BLM continues to develop proc

requirements to assist in managing an expanding asset inventory. The ongoing development of 

the BLM’s Asset Management Plan (AMP) and State Asset Business Plan (ABP) will help to 

establish a system that will identify Bureau assets, determine how much they will cost to 

operate, and their importance to the Bureau mission. The AMP and ABP will help prioritize the 

distribution of funding to the highest priority assets and assist with planning for the disposal of 
Bureau of Land Management 2009 Budget Justifications 

 

Section IV - Construction Page IV-7

unneeded assets. For more information on managing assets please see the asset management 

section of President’s Management Agenda in Section I. 

• Managing Assets: The program manages assets through measures of the Federal 

Real Property Profile, the Asset Priority Index, and the Facilities Condition Index, for 

• Planning: The BLM continues to update the Five Year Deferred 

Maintenance and Capital Improvement Plan annually. 

 total budget. 

improved Facilities Cost Index 

• Manag ments of Executive Order 13327, "Federal 

Real Property Asset Management," signed February 4, 2004, assist the BLM in 

Other Fun t of its 

nding through regular appropriations. 

program supports the four mission areas of the 

epartment’s Strategic Plan, which includes: Resource Protection, Resource Use, Recreation 

the major accomplishments in the Construction program 

cluded projects in 8 states and totaled $11,751,000. 

ariable nature of the primary outputs 

ssociated with the Construction program. 

racting, implementation, inspection and completion 

ver a variety of time frames. The projects identified in the FY 2007 Budget Justifications will be 

identifying the condition of constructed assets and target assets that can be disposed 

or require additional annual maintenance or supplemental funding from deferred 

maintenance. 

Annual Project 

o Projects are prioritized based on critical health and safety needs and 

resource protection needs. 

o The planning for each project has been expanded to include how much the 

new project will impact BLM’s

o Project submissions will include the estimated operation expenses, energy 

cost saving and sustainability actions, and 

calculation for all new projects. 

ement of Facilities: The require

property and facility asset management. These principles include using public and 

commercial benchmarks and best practices; employing the life-cycle cost-benefit 

analysis; providing appropriate levels of investment; accurately inventorying and 

describing all assets; and providing safe, secure, and healthy workplaces. 

ding Sources – The construction program receives the substantial amoun

fu

Strategic Plan – The Construction 

D

and Serving Communities. The Construction program also supports the Bureau of Land 

Management’s mission by addressing the new demands placed on natural landscapes. 

2009 PROGRAM PERFORMANCE

2007 Accomplishments - In 2007, 

in

The following table provides insight into the highly v

a

Construction projects require planning, cont

o

accomplished, however contracting and implementation timeframes have extended completion 

dates as indicated below. 
Bureau of Land Management 2009 Budget Justifications 

 

Section IV - Construction Page IV-8

FY 2007 Program Performance Accomplishments 

Funding 

($000) 

Project Statu Number of 

Construction s 

(EOY 2007 State ) Projects 

Arizo 2 Pr d 2 projects in planni ctural and 

Engineering (A&E) A&E s na ojects Initiate 433 ng and Archit

tatus 

e

California 1 Project Initiated 2,041 1 project in planning and A&E 

1 project delayed 

Colorado 2 Projects Initiated 385 2 projects of projects in planning and A&E status 

1 project in planning and A&E status 

1 project currently under construction 

1 project delayed due to low bids 

1 project complete

Idaho 4 Projects Initiated 2,267

Montana 2 Projects Initiated 704 2 projects in planning and A&E status

New Mexico 2 Projects Initiated 4,161 1 project in planning and A&E status 

1 project currently under construction

Oregon 1 Project Initiated 633 1 project delayed 

Utah 3 Projects Initiated ction 749 1 project delayed 

2 projects in constru

National 

Science & 

gy 

 200 and engineering 

Technolo services Bureauwide 

Center 

Funds used for pre-design

Division of 

Engineering & 

tal 178 Project Management and CPIC duties 

Environmen Bureauwide 

Science 

Projects completed – 5% 

Projects currently under construction – 24% Bureau-wide 11,751 Projects in planning and A&E status – 47% 

Project Delay – 24%
Bureau of Land Management 2009 Budget Justifications 

 

Section IV - Construction Page IV-9

The new California Trails Center in Elko, Nevada will be 

completed in FY 2008 and will provide an interpretive 

exhibit to highlight the history of the western migration to 

California. The project also includes construction of a 

network of wayside exhibits throughout the region to 

interpret specific historic sites along the trail. 

Other 2007 Accomplishments include: 

• All new construction projects have instituted sustainability into their design to 

incorporate the newest energy and environmental processes into new projects. 

• A new Project Management system has been initiated to improve project 

accomplishments and reporting. 

• The Cleveland-Lloyd Dinosaur Quarry Visitor Center in Utah received the 

Department Environmental Achievement Award for sustainable design innovation. 

2008 Planned Program Performance – In 2008, the planned accomplishments in the 

Construction program include 12 projects in five states for a total of $6,375,000. 

FY 2008 Planned Program Performance

State Number of Construction Projects Funding 

($000) 

California 3 Construction Projects Planned 1,223

Colorado 4 Construction Projects Planned 951

Idaho 2 Construction Projects Planned 2,597

Oregon 1 Construction Projects Planned 111

Utah 2 Construction Projects Planned 1,177

Bureau-wide Architectural and Engineering Services, Project and 

Contract Management, and CPIC management 

responsibilities. 

316

Bureau-wide Total $6,375

Construction projects require planning, contracting, implementation, inspection and completion 

over a variety of time frames. The projects identified in the 2008 Budget Justifications will be 

accomplished. 
Bureau of Land Management 2009 Budget Justifications 

 

Section IV - Construction Page IV-10

2009 Program Performance – In 2009 the planned accomplishments in the Construction 

program include two projects in two states for a total of $4,476,000. The funding for 2009 will 

complete two existing phased projects. No new construction starts will be initiated with the 2009 

budget. Both projects planned for 2009 emphasize critical resource protection. The emphasis 

of the construction program will continue to be the protection of the BLM employees, the visiting 

public and the protection of our nation’s natural resources. 

 

The following table lists the construction projects that will be funded, from prior year initiation, in 

2009 (There will be no “new starts”). 

FY 2009 Planned Program Performance 

Priority

/Score State Project Name 

Requested 

Funding 

($000s) 

1/610 Idaho Lemhi River TMDL Road Maintenance Phase III 2,487

2/600 California 

Headwaters Forest Road Trail System Resource 

Interpretation Phase II 1,579

Bureau-wide 

Architectural and Engineering Services, Project and 

Contract Management, and CPIC management 

responsibilities. 

410

Bureau-wide Total $4,476

A table listing currently proposed construction projects for 2010 through 2013 follows the project 

data sheets. 

The following project data sheets are arranged by project title in ranking order for 2009.
Bureau of Land Management 2009 Budget Justifications 

 

Section IV - Construction Page IV-11

2009 CONSTRUCTION PROJECTS

DEFERRED MAINTENANCE AND CAPITAL IMPROVEMENT PLAN 

FY 2009 – 2013 

Project Ranking: 1 

Planned Funding FY: 2009 

BUREAU OF LAND MANAGEMENT 

Project Data Sheet

Funding Source: construction

Project Identification

Project Title: Lemhi River TMDL Road Maintenance Phase III 

Project Number: Unit/Facility Name: Salmon Field Office 

District/Field Office: Salmon Congressional District: 2 State: ID 

Project Justification

DOI Asset Code Real Property # API: FCI-Before: FCI-Projected: 

40760121 NA 70 NA NA 

Project Description: 

This project will reconstruct and maintain 93 miles of road for public access, sediment reduction for implementation of 

the Total Maximum Daily Load (TMDL) Plan under the Clean Water Act, and protection of threatened or endangered 

species habitat. All roads will have the road prism reshaped and drainage brought up to BMP standards. 

Specific work includes: 

1) Reshape the road prism and improve drainage on 17 miles of road, CRPdm 

2) Develop a gravel source and surface 57 miles of road, CRPci 

3) Install 24 culverts and replace 12 cattleguards, and CRPci 

4) Rehabilitate drainage/stream crossings/fords on 19 miles of road for 4-wheel drive/Off-Highway Vehicle (4x4/OHV0 

use.Crpdm 

Roads included in this project are: 

Geerston-Hixson #30110, Golway Gulch #3034, Mormon Canyon #3022, Upper McDevitt Creek #3008, Muddy Creek 

#3041, Divide Creek #3046, Wildhorse Spring #30120, Slaughterhouse #3076, Pass Creek #3072, West Fork Wimpey 

Creek #30101, Eighteenmile #3073 and #3016, Bohannon Creek #3006, Wimpey Creek #3085, Geertson Creek #3005, 

and Hixon Spring #3036. 

Phase I FY-07- Survey and Design, 1/3 Rock Source Development $1,561,000 

Phase II FY-08 - Construction (1/3 of total project), 1/3 Rock Source Development $2,487,000 

Phase III FY-09 - Construction (1/3 of total project), 1/3 Rock Source Development $2,487,000 

Phase IV FY-10 - Construction (1/3 of total project) $1,512,000 

Justification: 

Project Need/Benefit: 

The Lemhi River Basin encompasses most of the Salmon Field Office. BLM has been unable to adequately maintain its 

transportation system over the years. These are important roads in BLM's transportation plan and they are in desperate 

need of improvements. The roads have been specifically identified as a sediment source to 303d listed waterways (a 

biannual report/list required by EPA, pursuant to Section 303(d) of the Clean Water Act), some of which contain 

threatened or endangered species. This work is needed to protect BLM’s investment in the roads and protect the 

resources that have been jeopardized by a lack of maintenance over the years. 

The Lemhi Subbasin TMDL Plan (1999) identifies certain roads for sediment reduction. In addition, the Lemhi RMP 

Amendment (2001), Lemhi River Subbasin Review (1999), Lemhi River Watershed and Subbasin Assessment (1998), 

and the Salmon District PACFISH Transportation Management Plan (1996) all mention these roads in one context or 

another and their contribution to sediment loading in the Lemhi River, OHV designated route implementation, and public 

health/safety concerns. 

10% CRPdm. Sediment contribution from these roads to critical waterways is documented in the TMDL Plan. 

Maintaining existing roads, drainage, and stream crossings is crucial in reducing and or eliminating this threat to the 

resources. Replacing cattleguards will enable BLM to have continued effective control of grazing Animal Unit Months 

(AUMs) at road/fence intersections, without restricting access to the general public. 
Bureau of Land Management 2009 Budget Justifications 

 

Section IV - Construction Page IV-12

90% CRPci. Sediment contribution from these roads to critical waterways is documented in the TMDL Plan. Improved 

surfacing and drainage control is crucial in reducing and or eliminating the threat to the resources. 

FCI-Before: N/A 

FCI-Projected: N/A 

Provide a brief explanation of any budgetary impacts the project will have on the responsible Field Office.

Intermediate impact during construction, long term benefit due to decreased maintenance problems. 

How will project meet DOI’s and BLM’s Strategic Plan goals and objectives: 

Performing the work identified in this project will provide compliance with the Federal Clean Water Act, to be 

protected for general use domestic water supply, agricultural water supply, cold water biota, salmonid 

spawning, primary (and secondary) contact recreation, and as a special resource water. 

Revision Statement: 

Ranking Categories Identify the percent of the project that is in the following categories of need: 

___ % Critical Health or Safety Deferred Maintenance (10) ____% Energy Policy, High Performance Bldg CI (5) 

__ % Critical Health or Safety Capital Improvement (9) ___ % Critical Mission Deferred Maintenance (4) 

_10 % Critical Resource Protection Deferred Maintenance (7) ___ % Other Deferred Maintenance (3) 

_90 % Critical Resource Protection Capital Improvement (6) ___ % Code Compliance Capital Improvement (3) 

 ___ % Other Capital Improvement (1) 

Capital Asset Planning Exhibit 300 Analysis Required: Yes No Total Project Score: 610 

Project Costs and Status

Project Cost Estimate (this PDS): 

Deferred Maintenance Work: $ _ 248,700 _10%

Capital Improvement Work: $ 2,238,300 _90%

Total: $ 2,487,000 100% 

Class of Estimate (circle one): A B C D

Estimate Good Until (mm/yy): 09/09

Project Funding History: (entire project) 

Partnership Funds: $ __________ 

Appropriated to Date: $ __4,048,000

Requested in FY 09 Budget: $ _ 2,487,000

Planned in FY 10_: $ _ 1,588,000

Future Funding to Complete Project: $ ___________

Total: $ _8,123,000

Dates: Sch’d Actual 

Construction Award/Start: _09/09 ___/___ 

Project Complete: _09/10 ___/___

Project Data Sheet 

Prepared/Last Updated: 

2002/2009

Unchanged Since 

Departmental Approval: 

Yes No 

Annual Operations & Maintenance Costs $ 

Current: $2000 Projected: $800 Net Change: -$1200 
Bureau of Land Management 2009 Budget Justifications 

 

Section IV - Construction Page IV-13

DEFERRED MAINTENANCE AND CAPITAL IMPROVEMENT PLAN 

FY 2009 – 2013 

Project Ranking: 2 

Planned Funding FY: 2009 

BUREAU OF LAND MANAGEMENT 

Project Data Sheet

Funding Source: construction

Project Identification

Project Title: Headwaters Forest Road Trail System Resource Interpretation Phase II 

Project Number: Unit/Facility Name: Headwaters Forest Reserve 

District/Field Office: Arcata Congressional District: 1 State: CA 

Project Justification

DOI Asset Code Real Property # API: FCI-Before: FCI-Projected: 

40760120 NA 70 NA NA 

Project Description:

On March 1, 1999 the US Government and the State of California purchased the Headwaters Forest Reserve 

from private timber companies. The existing roads and trails do not meet the geometric standards for public 

access and will be realigned. Also, at least five existing railroad flatcar bridges are non-compliant with BLM policy. 

These roads will be multiple use serving both recreational users as well as providing commercial access to 

adjacent lands. This work would be accomplished over a 3-year period. 

Phase 1 FY -08 Design 

Phase 2 FY-09 Begin Road Construction

Justification: 

Project Need/Benefit:

A trail system will be developed to provide access into the Headwaters Reserve without compromising the fragile 

forest ecology of the old growth groves. Current level of public use has created routes of trespass into these 

protected areas. Unwanted trail routes will be blocked off and other routes constructed around the protected 

areas will discourage trespass. Roads which were built for heavy equipment access into the Forest Reserve pose 

a significant ecological threat to the watershed. The unstable geology and method of construction has caused 

many road sections to initiate large slides which contribute sediment into the streams. In order to prevent further 

sedimentation in the watershed, roads which are located within the inner stream gorge will be removed. The 

landscape will be re-contoured to allow the return of natural drainage patterns. 

FCI-Before: N/A 

FCI-Projected: N/A

Provide a brief explanation of any budgetary impacts the project will have on the responsible Field Office.

This project will beneficially impact the Arcata Field Office budget by upgrading roads, bridges, and trails, thereby 

reducing the frequency and intensity of road and trail maintenance efforts and reduce the potential for landslides 

on roads in the Reserve. In addition, obliteration of unnecessary roads will reduce future maintenance 

requirements within the Reserve. 

How will project meet DOI’s and BLM’s Strategic Plan goals and objectives: Resource protection –

Upgrading required roads and obliterating unnecessary logging roads and skid trails will reduce or eliminate 

sediment discharges into Elk River and Salmon Creek, both of which support populations of coho and chinook 

salmon and steelhead, which are threatened anadromous fish species. Resource use – Adjacent commercial 

timber operators require and own rights-of-way across BLM-managed roads and bridges for timber production 

purposes and improvements will ensure future ingress and egress to these adjacent properties. Serving 

Communities – Construction of new bridges to replace unsafe railroad flatcar bridges will enhance safety for the 

public, adjacent landowners, and BLM personnel.

Revision Statement: 
Bureau of Land Management 2009 Budget Justifications 

 

Section IV - Construction Page IV-14

Ranking Categories Identify the percent of the project that is in the following categories of need: 

___ % Critical Health or Safety Deferred Maintenance (10) ___ % Energy Policy, High Performance Bldg CI (5) 

__ % Critical Health or Safety Capital Improvement (9) ___ % Critical Mission Deferred Maintenance (4) 

___ % Critical Resource Protection Deferred Maintenance (7) ___ % Other Deferred Maintenance (3) 

100 % Critical Resource Protection Capital Improvement (6) ___ % Code Compliance Capital Improvement (3) 

 ___ % Other Capital Improvement (1) 

Capital Asset Planning Exhibit 300 Analysis Required: Yes No Total Project Score: 600 

Project Costs and Status

Project Cost Estimate (this PDS): 

Deferred Maintenance Work: $ __________ ___%

Capital Improvement Work: $ 1,579,000 100%

Total: $ 1,579,000 100%

Class of Estimate (circle one): A B C D

Estimate Good Until (mm/yy): 08/07

Project Funding History: (entire project) 

Partnership Funds: $ ________ 

Appropriated to Date: $ 659,000

Requested in FY 09 Budget: $ 1,579,000

Planned in FY ___: $ _________ 

Future Funding to Complete Project: $ _________

Total: $ 2,238,000

Dates: Sch’d Actual 

Construction Award/Start: 09/09 ___/___ 

Project Complete: 10/10 ___/___ 

Project Data Sheet 

Prepared/Last Updated: 

08/2007

Unchanged Since 

Departmental Approval: 

Yes No 

Annual Operations & Maintenance Costs $ 

Current: $85,000 Projected: $65,000 Net Change:-$20,000 
Bureau of Land Management 2009 Budget Justifications 

 

Section IV - Construction Page IV-15

DEFERRED MAINTENANCE AND CAPITAL IMPROVEMENT PLAN 

FY 2009 – 2013 

Project Ranking: 3 

Planned Funding FY: 2009 

BUREAU OF LAND MANAGEMENT 

Project Data Sheet

Funding Source: Construction

Project Identification

Project Title: Architectural and Engineering Services FY 2010 

Project Number: Unit/Facility Name: A & E advances for FY 2010 Projects 

District/Field Office: Field Offices Congressional District: State:WO 

Project Justification

DOI Asset Code Real Property # API: FCI-Before: FCI-Projected: 

Project Description: 

Architectural and Engineering (A&E) work is required for most of the construction projects scheduled for funding year 

2010. In general, it takes a year to complete A&E survey and design work, including contract preparation, solicitation, 

business clearances, and construction contract award. If this work is performed the year a project is funded, it will take 

a minimum of two fiscal years to complete the project - the first year for design and the second year for construction. 

A&E funding will also be directed to BLM's A&E Services group at the National Science & Technology Center so that 

specialists can assist the field with project development, cost estimating, and capital asset planning for future 5-Year 

Plan projects. 

Justification: 

Project Need/Benefit: 

Providing advanced funding for engineering and design work will help ensure that construction contracts are awarded 

early in the fiscal year. Funds will be obligated in a timelier manner, there will be less carryover, and projects will be 

completed sooner. Advanced A&E funding is also needed so BLM's in-house architects and engineers can assist the 

field in developing quality projects, accurately estimating costs, and complying with DOI and OMB capital asset planning 

requirements. 

FCI-Before: N/A 

FCI-Projected: N/A 

Provide a brief explanation of any budgetary impacts the project will have on the responsible Field Office.

How will project meet DOI’s and BLM’s Strategic Plan goals and objectives: 

Revision Statement: 

Ranking Categories Identify the percent of the project that is in the following categories of need: 

___ % Critical Health or Safety Deferred Maintenance (10) ____% Energy Policy, High Performance Bldg CI (5) 

__ % Critical Health or Safety Capital Improvement (9) ___ % Critical Mission Deferred Maintenance (4) 

___ % Critical Resource Protection Deferred Maintenance (7) ___ % Other Deferred Maintenance (3) 

___ % Critical Resource Protection Capital Improvement (6) ___ % Code Compliance Capital Improvement (3) 

 ___ % Other Capital Improvement (1)

Capital Asset Planning Exhibit 300 Analysis Required: Yes No Total Project Score: 

Project Costs and Status

Project Cost Estimate (this PDS): 

Deferred Maintenance Work: $ __________ ___%

Capital Improvement Work: $ 410,000 100%

Total: $ 410,000 100%

Project Funding History: (entire project) 

Partnership Funds: $ ________ 

Appropriated to Date: $ ________ 

Requested in FY 09 Budget: $ 410,000 
Bureau of Land Management 2009 Budget Justifications 

 

Section IV - Construction Page IV-16

Class of Estimate (circle one): A B C D

Estimate Good Until (mm/yy): 12/09

Planned in FY ___: $ ________ 

Future Funding to Complete Project: $ ________

Total: $ 410,000

Dates: Sch’d Actual 

Construction Award/Start: ___/___ ___/___ 

Project Complete: ___/___ ___/___

Project Data Sheet 

Prepared/Last Updated: 

__/__ 

Unchanged Since 

Departmental Approval: 

Yes No 

Annual Operations & Maintenance Costs $ 

Current: $ Projected: $ Net Change: 
Bureau of Land Management 2009 Budget Justifications 

 

Section IV - Construction Page IV-17

Proposed Construction Projects for FY 2010 through FY 2013 

Score State Project Name 

Requested 

Funding 

($000s) 

 2010 

1/610 ID Lemhi River TMDL Road Maintenance Phase IV 1,588

2/900 AK Campbell Airstrip Safety Fence 179

3/820 UT Five Mile Pas Recreation Site SST’s 341

4/650 MT Pallisades Campground Improvements 260

5/600 UT Pelican Lake Recreation Site Reconstruction 657

6/600 CA Sawtooth Campground 510

7/600 AZ Empire Ranch Historic Buildings Complex Fire 

Protection System 553

WO Architectural and Engineering Services - FY 2011 

Projects 388

 2010 Total 4,476

2011 

1/600 AZ Fairbank Town Site Historic Building Complex Fire 

Protection System Phase I 63

2/600 CO North Sand Hills SRMA Resource Protection 175

3/600 UT Desilt Pond Improvements Phase I (design) 176

4/600 CO Four Mile Roads and Trails Implementation 166

5/600 CA Ridgecrest Wild Horse and Burro Loading Chute 

Shelter 155

6/600 AZ Murray Springs Clovis Site Erosion Control 226

7/580 ID Lucile Recreation Site Turn Lanes and Infrastructure 

Construction 1,237

8/580 NV Black Rock Playa Access Construction 129

9/575 AZ Browning Ranch House Preservation 120

10/565 CO B South Road Trailhead Improvements 232

11/555 CO Cactus Park Trailheads 279

12/550 CO Colorado Canyons National Conservation Area 

Campground 324

13/550 CA South Spit Development 340

14/540 AZ Bonita Creek Low Water Crossing 186

15/540 AZ Haekel Road Low Water Crossing 186

16/500 NM Wild Rivers Telephone Line 160

 WO Architectural and Engineering Services - FY 2012 

Projects 322

 2011 Total 4,476

2012 

1/600 UT Desilt Pond Improvements Phase II (construction) 958
Bureau of Land Management 2009 Budget Justifications 

 

Section IV - Construction Page IV-18

Score State Project Name 

Requested 

Funding 

($000s) 

2/600 AZ Fairbank Town Site Historic Building Complex Fire 

Protection System Phase II 265

3/550 ID Shorts Bar Recreation Site 845

4/540 MT Upper Big Hole Paving 684

5/525 CO Mancos Shale Research Area Access and Salinity 

Rehabilitation 550

6/505 ID Deadman Hole Recreation Site Hardening and Boat 

Ramp Reconstruction 229

7/500 MT Holter Lake Warehouse 308

8/475 MT Garnet Water System Upgrade 164

WO Architectural and Engineering Services FY 2013 473

 2012 Total 4,476

2013 

1/525 AZ Partners Point Access Road and Seawall 439

2/500 AK Extend Elevator to 3rd Floor - Northern Field Office 655

3/495 AZ CCC Sanchez and Old Lady Gay Historic Sites 174

4/490 MT Beaver Branch Road Retrofit 2,315

5/490 CO Gateway Trailheads 360

6/485 CA Oxbow Recreation Area 197

WO Architectural and Engineering Services FY 2014 336

 2013 Total 4,476

2010-2013 Bureauwide Total $17,904
Bureau of Land Management 2009 Budget Justifications 

 

Section IV - Construction Page IV-19

Budget Schedules 

PROGRAM AND FINANCING (P) (MILLIONS $) 

Identification code: 

14-1110 2007 Act 2008 CY 2009 BY 

Obligations by program activity 

0001 Direct program activity 6 10 9 

1000 Total new obligations 6 10 9 

Budgetary resources available for obligation 

2140 

Unobligated balance carried forward, start of 

year 10 15 14 

2200 New budget authority (gross) 11 9 4 

2390 

Total budgetary resources available for 

obligation 21 24 18 

2395 Total new obligations -6 -10 -9 

2440 

Unobligated balance carried forward, end of 

year 15 14 9 

New budget authority (gross), detail 

Discretionary 

4000 Appropriation 12 6 4 

4100 Transferred to other accounts [14-1125] -3 0 0 

4200 Transferred from other accounts [14-1125] 2 3 0 

4300 Appropriation (total discretionary) 11 9 4 

Change in obligated balances 

7240 Obligated balance, start of year 10 6 5 

7310 Total new obligations 6 10 9 

7320 Total outlays (gross) -10 -11 -12 

7440 Obligated balance, end of year 6 5 2 

Outlays (gross), detail 

8690 Outlays from new discretionary authority 4 3 1 

8693 Outlays from discretionary balances 6 8 11 

8700 Total outlays (gross) 10 11 12 

Net budget authority and outlays 

8900 Budget authority 11 9 4 

9000 Outlays 10 11 12 

9502 Unpaid obligation, end of year 5 0 0 

OBJECT CLASSIFICATION (O) (MILLIONS $)

Identification code: 

14-1110 2007 Act 2008 CY 2009 BY 

Direct obligations 

Personnel compensation 

1111 Full-time permanent 2 2 2 

1121 Civilian personnel benefits 1 1 1 

1252 Other services 1 2 1 

1320 Land and structures 2 5 5 

9999 Total new obligations 6 10 9 
Bureau of Land Management 2009 Budget Justifications 

 

Section IV - Construction Page IV-20

BA, LIMITATIONS, AND OUTLAYS (A) (MILLIONS $)

Identification code: 

14-1110 2007 Act 2008 CY 2009 BY 

Appropriation (total) [Text] 

4300 Discretionary, Appropriations Committee 11 6 4 

Appropriation (total) [transfer repayment] 

4300 

Discretionary, Emergency, Appropriations 

Committee 0 3 0 

Outlays from new authority [Text] 

9111 Discretionary, Appropriations Committee 4 2 1 

Outlays from new authority [Text] 

9111 

Discretionary, Emergency, Appropriations 

Committee 0 1 0 

Transferred to other accounts [14-1109] 

9121 Discretionary, Appropriations Committee 6 8 9 

Outlays from balances [Text] 

9121 

Discretionary, Emergency, Appropriations 

Committee 0 0 2 

Memo: Outlays frm end of PY balances [Text] 

9122 Discretionary, Appropriations Committee 0 8 6 

Memo: Outlays frm end of PY balances [Text] 

9122 

Discretionary, Emergency, Appropriations 

Committee 0 0 0 

BA, LIMITATIONS, AND OUTLAYS (S) (MILLIONS $)

Identification code: 

14-1110-0- 2007 Act 2008 CY 2009 BY 

Appropriation (total) [Text] 

Discretionary, Appropriations Committee 

4300 Baseline Non-Pay 0 5 5 

4300 Baseline Civilian Pay 0 1 1 

Appropriation (total) [transfer repayment] 

Discretionary, Emergency, Appropriations 

Committee 

4300 Baseline Non-Pay 0 3 3 

4300 Baseline Civilian Pay 0 0 0 

Outlays from new authority [Text] 

9111 Discretionary, Appropriations Committee 0 2 2 

Outlays from new authority [Text] 

9111 

Discretionary, Emergency, Appropriations 

Committee 0 1 1 

Outlays from balances [Text] 

9121 Discretionary, Appropriations Committee 0 8 9 

Outlays from balances [Text] 

9121 

Discretionary, Emergency, Appropriations 

Committee 0 0 2 

Memo: Outlays frm end of PY balances [Text] 

9122 Discretionary, Appropriations Committee 0 8 6 
Bureau of Land Management 2009 Budget Justifications 

 

Section IV - Construction Page IV-21

CHARACTER CLASSIFICATION (C) (MILLIONS $) 

Identification code: 

14-1110-0- 2007 Act 2008 CY 2009 BY 

Character Classification (C) 

 INVESTMENT ACTIVITIES 

Physical assets 

Other construction and rehabilitation 

Direct federal programs 

1314-01 Budget Authority 11 9 4 

1314-02 Outlays 11 11 13 

EMPLOYMENT SUMMARY (Q) 

Identification code: 

14-1110-0- 2007 Act 2008 CY 2009 BY 

Direct 

1001 Civilian full-time equivalent employment 27 27 27 

APPROPRIATIONS REQUESTS IN THOUSANDS OF DOLLARS (T) 

Identification code: 

14-1110-0- 2007 Act 2008 CY 2009 BY 

1000 Budget year budgetary resources [14-1110] 0 0 4476 
Bureau of Land Management 2009 

CONSTRUCTION PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Planned 2007 Actual 2008 Plan 2009 President's Budget Change from 200

Plan to 2009 

Infrastructure Improvement: Number of square feet of buildings constructed at recreation sites. (Bur) 

UNK 7,200 5,600 27,000 83,524 37,187 25,000 -33% 

Total Actual/Projected Cost ($000) $0 $617,242 $143,443 $0 $445,013 $482,847 $481,752 -$2,815 Actual/Projected Cost per Square Foot (in dollars) $0 $85,728 $25,615 $0 $5,328 $12,984 $19,270 +6,286 

Infrastructure improvement results for buildings constructed at recreation sites are based on actual square fooplanned projects which will vary each year. 2005 and 2006 actuals show number of buildings rather than squa

Comment: Infrastructure Improvement: Number of non-building assets constructed at recreation sites. (i.e. roads, bridges, etc) (Bur) 

0 8 10 18 30 30 30 0% 

Total Actual/Projected Cost ($000) $0 $1,213 $4,338 $0 $4,869 $2,397 $2,086 -$311 Actual/Projected Cost per Constructed Asset (in dollars) $0 $151,591 $433,768 $0 $162,282 $79,884 $69,525 -$10,359 

Infrastructure improvement results for non-building assets constructed at recreation sites are based on actual 

projects which will vary each year. Comment: 

Infrastructure Improvement: Number of square feet of buildings constructed at non recreation sites. (Bur) 

UNK 10,000 0 0 plnd 23,471 30,000 5,000 -83% 

Total Actual/Projected Cost ($000) $0 $20,572 $9,566 $0 $14,041 $11,148 $10,222 -$926 Actual/Projected Cost per square foot (in dollars) $0 $2,057 $0 $0 $598 $372 $2,044 +$1,672 Comment: 

Infrastructure improvement results for buildings constructed at non-recreation sites are based on actual squar

planned projects which will vary each year. Projects are multi year. Results are counted when construction is finished. 

Section IV - Construction 
Bureau of Land Management 2009 

Infrastructure Improvement: Number of non-building assets constructed at nonrecreation sites. (i.e. roads, bridges) (Bur) 

UNK 4 3 30 20 10 5 -50% 

Total Actual/Projected Cost ($000) $0 $3,465 $7,493 $0 $5,943 $2,555 $2,158 -$397 Actual/Projected Cost per Asset (in dollars) $0 $866,146 $2,497,53 6 $0 $297,173 $255,447 $431,627 +176,180 

Infrastructure improvement results for non-building assets constructed at non-recreation sites are based on acprojects which will vary each year. Comment: 

Recreation Sites Construction (square feet) NA 192 *3,704 35,285 550 26,400 25,900 -500 Trail Construction (miles) N/A N/A 1 2 0 6 5 -1 Bridge Construction (bridges constructed) N/A 0 1 N/A N/A 1 5 4 Administrative Site Building Construction (square feet) N/A 3 *8,800 17,200 13,350 30,000 5,000 -25,000 Road Construction (lane miles) N/A 13 *7 2 1 19 17 -2 Recreation Site Non-Building Construction (new non-bldg assets constructed) 

N/A N/A 17 9 9 30 8 -22 

Administrative Site NonBuilding Construction (nonbldg assets constructed) N/A N/A 4 5 2 18 5 -13 * The program element definition changed between 2005 and 2006. 

Section IV - Construction 
Bureau of Land Management 2009 

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 Section III - Management of Lands and Resources 
Bureau of Land Management 2009 Budget Justifications 

Section V- Land Acquisition Page V-1 

Appropriation: Land Acquisition 

APPROPRIATION LANGUAGE SHEET

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, 

[$9,081,000] $4,475,000, to be derived from the Land and Water Conservation Fund and 

to remain available until expended. (Department of the Interior, Environment, and Related 

Agencies Appropriations Act, 2008.) 
Bureau of Land Management 2009 Budget Justifications 

AUTHORIZATIONS

Federal Land Policy and 

Management Act of 1976 

(FLPMA) (43 U.S.C. 1701 

et seq.) 

Provides authority for acquisition (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 (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 (1748(d)). 

Federal Land Transaction 

Facilitation Act of 2000 

(FLTFA) (Public Law 106-

248) 

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.” 

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 of the 

U. S. 

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.). 

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 of the 

Interior to enter into acquisitions, including purchase, donation, 

land exchange. 

Section V- Land Acquisition Page V-2 
Bureau of Land Management 2009 Budget Justifications 

Summary of Requirements ($000) 

 Fixed Costs & Program 2009 Inc(+) 

Comparison 2007 2008 Related Changes Changes Budget Dec(-) 

by Activity/ Enacted Enacted (+/ -) (+/ -) Request from 2008 

Subactivity FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount 

 

 Land 

Acquisition 14 8,634 14 8,939 0 29 0 -4,493 14 4,475 0 -4,464 

 

Section 102 

Repayment 0 3,000 0 0 

2007 repayment returned as carryover funds 

 

 Land 

Acquisition 0 6,065 0 5,789 0 0 0 -3,789 0 2,000 0 -3,789 

 

 Exchange 

Equalization 

Payments 0 0 0 0 0 0 0 0 0 0 0 0 

 

 Acquisition Mgt. 14 1,569 14 1,673 0 29 0 -171 14 1,531 0 -142 

 

 Emergencies & 

Hardships 0 1,000 0 1,477 0 0 0 -533 0 944 0 -533 

Section V- Land Acquisition Page V-3 
Bureau of Land Management 2009 Budget Justifications 

Justification of Fixed Costs and Related Changes 

(dollars in thousands) 

 

2008 

Budget 

2008 

Revised 

2009 

Fixed 

Costs 

Change 

Additional Operational Costs from 2008 and 2009 January Pay 

Raises 

2008 Pay Raise, 3 Quarters in 2008 Budget +33 +32 NA

Amount of pay raise absorbed through cost savings [7] NA

2008 Pay Raise, 1 Quarter (assumed 3.5%) NA NA +10

Amount of pay raise absorbed through cost savings [2] 

2009 Pay Raise (Assumed 2.9%) NA NA +22

Amount of pay raise absorbed through cost savings [6] 

These adjustments are for an additional amount needed to fund estimated pay raises for Federal employees. 

Line 1 is the 2008 budget estimates based upon an assumed 3.0% pay raise. The Revised shows the absorption for the 3.5% raise 

passed by the House and Senate and the across-the-board rescission of 1.56%. 

 Line 2 is the amount needed in 2009 to fund the estimated 3.5% January 2008 pay raise from October through December 2008. 

 Line 3 is the amount needed in 2009 to fund the estimated 2.9% January 2009 pay raise from January through September 2009. 

 

2008 

Budget 

2008 

Revised 

2009 

Fixed 

Costs 

Change 

Other Fixed Cost Changes

Two More Pay Days 11 11 

This adjustment reflects the increased costs resulting from the fact that there is two more pay days in 2008 than in 2007. 

One Less Pay Day in 2009 -5

This adjustment reflects the decreased costs resulting from the fact that there is 

one day less in 2009 

Employer Share of Federal Health Benefit Plans 2 2 +2

Amount of health benefits absorbed through cost savings 

This adjustment is for changes in the Federal government's share of the cost of health insurance coverage for Federal employees. 

The increase is estimated at 6 percent, the average increase for the past few years. 

Total Fixed Costs Absorbed Through Cost Savings [8]

Total Fixed Costs Funded +29

Section V- Land Acquisition Page V-4 
Bureau of Land Management 2009 Budget Justifications 

Activity: Land Acquisition 

Activity Summary ($000) 

 2009 

 Fixed Costs & Program Change 

 2007 2008 

Related 

Changes 

Changes 

Budget 

from 

2008 

Subactivity Enacted Enacted (+/ -) (+/ -) Request (+/-) 

 Land Acquisition $ 6,065 5,789 0 -3,789 2,000 -3,789

 FTE 0 0 0 0 0 0

 Acquisition Mgt. $ 1,569 1,673 +29 -171 1,531 -142

 FTE 14 14 0 0 14 0

 Emergencies & 

Hardships $ 1,000 1,477 0 -533 944 -533

 FTE 0 0 0 0 0 0

 Exchange 

Equalization 

Payments $ 0 0 0 0 0 0

 FTE 0 0 0 0 0 0

Total Appropriated $ 8,634 8,939 +29 -4,493 4,475 -4,464

 FTE 14 14 0 0 14 0

JUSTIFICATION OF 2009 PROGRAM CHANGES

The 2009 BLM budget proposes to fund BLM’s Land Acquisition program with an appropriation 

from the Land and Water Conservation Fund at a total level of $4,475,000 and 14 FTEs. The 

budget includes a request of $2,000,000 for Land Acquisition, $1,531,000 to fully fund BLM’s 

Acquisition Management costs, and $944,000 for Emergencies & Hardships. 

Activity Description 

Utilizing Land Tenure Adjustment, the BLM consolidates public lands by acquiring intermingled 

non-Federal lands through purchase, exchange, and donation. A component of Land Tenure 

Adjustment is the Land Acquisition program. This program allows the BLM to maintain open 

space, provide opportunities for environmentally responsible recreation, preserve natural and 

cultural heritage resources, restore at-risk botanical, fisheries and wildlife resources, and 

maintain functioning ecosystems. This program promotes these goals, increases management 

efficiency, and creates areas where these goals are emphasized. The Land Acquisition activity 

is composed of three active subactivity programs: 

1. Land Acquisition 

2. Emergencies, Inholding, and Hardship 

3. Acquisition Management 

Section V- Land Acquisition Page V-5 
Bureau of Land Management 2009 Budget Justifications 

The Land Acquisition program provides funds for the purchase of lands. These funds are 

appropriated from the Land and Water Conservation Fund, which was created by Congress 42 

years ago. Funds appropriated to this program are used only for the purchase of land or for 

interests in land. The BLM only purchases land from willing sellers and are required to offer fair 

market value. 

Funds from the Acquisition Management program are used to meet expenses for processing 

actions needed to complete land purchases, including costs associated with title research, 

appraisals, surveys, relocation, coordination with BLM multi-resource programs, and 

coordination with local governments and private parties. BLM also uses funds from the 

Acquisition Management subactivity for administrative costs associated with donations when the 

land acquired through this method is within an approved project area. 

The Emergency, Inholding, and Hardship program provides funds to purchase lands, usually 

small and relatively inexpensive tracts, from an owner whom must sell land quickly. The BLM 

has purchased numerous parcels with this funding source.

BLM’s Partnerships with Conservation Organizations - Dozens of non-profit conservation 

partners annually assist local communities and the BLM in supporting the purchase and 

management of specific properties for recreation values and open space. While the majority of 

these partners support purchase of lands through grassroots political advocacy and long-term 

conservation management, a small number of regional and national partners directly assist the 

BLM by becoming involved in the purchase of fee and conservation easement property 

interests. These partners include The Conservation Fund, The Nature Conservancy, The Trust 

for Public Land, Western Rivers Conservancy, The Archeological Conservancy, Save-theRedwoods League, Rocky Mountain Elk Foundation, The Wildlands Conservancy, and the 

Teton Regional Land Trust. 

Approximately 80 percent of BLM purchase transactions are completed with the assistance of 

these non-profit conservation partners. Through involvement in BLM’s land use planning 

process, neighboring conservation projects, and direct solicitation, these non-profit 

organizations become known to area landowners and are often first approached by in-holders of 

private property entertaining the prospect of a sale. Many owners of private property within 

these unique areas are committed to preserving long-held community values associated with 

these lands, and desire to ensure that long-held practices are preserved for future generations 

through land use restrictions, conservation easements or sale to the federal government or 

other entities who will protect and conserve the lands and traditional uses. Nonprofit partners 

have the option to pre-purchase conservation properties for assignment, sale or resale to the 

BLM. In certain circumstances, a non-profit partner may be able to construct a “phased” 

transaction, where the sale of an expensive property may be completed over a two to three year 

period. 

Strategic Plan - The Land Acquisition program supports the Resource Protection and Serving 

Communities mission goals from the Department’s Strategic Plan. Each mission goal of the 

Strategic Plan has several performance measures to gauge progress towards meeting mission 

goal accomplishments, including end outcome goals and measures, intermediate outcome 

goals and measures and primary outputs. Key intermediate outcome performance measures 

are promoting respect for private property, and reducing degradation and protecting cultural and 

natural heritage resources. Funds for the Land Acquisition activity are derived from the Land 

and Water Conservation Fund. 

Section V- Land Acquisition Page V-6 
Bureau of Land Management 2009 Budget Justifications 

PROTECTING THE LEGACY OF RIVERS

Partnerships are Key to LWCF Success 

The Upper Snake/South Fork Snake River Area of Critical Environmental Concern (ACEC) and Special 

Recreation Management Area (SRMA) are born of snowmelt and springs among the high ridges of Yellowstone 

country. This nationally recognized land conservation project has protected approximately 58 privately owned 

properties through acquisition of 17,723 acres (7,372 acres of fee and 10,351 acres of conservation easement) 

along the South Fork, Henrys Fork, 

and Main Snake Rivers in 

southeastern Idaho’s Greater 

Yellowstone Ecosystem. These 

conservation purchases have 

augmented 22,000 acres of Bureau 

of Land Management (BLM), Forest 

Service, and State of Idaho 

administered river lands. The ACEC 

supports multiple listed species, the 

most unique and biologically diverse 

ecosystem in Idaho, and an active 

water-based recreation program. 

Because of the large geographic 

scope of the project, imminent 

threats of subdivision and resort 

development in multiple areas, and 

the diversity of landowners along the 

river corridors, the BLM’s Idaho Falls 

Field Office formed a partnership in 

1998 with several nonprofit 

conservation groups; The 

Conservation Fund, The Nature 

Conservancy, and the Teton Regional Land Trust to achieve common conservation goals. 

The nonprofit organizations collaborate as a team with the BLM to acquire key properties from willing landowners 

to secure and preserve open space and public recreational access within the ACEC. Periodic partnership 

meetings are held to coordinate and prioritize river conservation efforts and leverage appropriated funds. The 

project involves dedicated landowners, the strong support of the Idaho Congressional delegation, the cooperation 

of nonprofit conservation partners as well as the Idaho Fish and Game Department and the Shoshone-Bannock 

Tribes. 

Partnerships and community support have been key to the following successes: 

 In between 1991-2007, the BLM received $20,854,838 in the Land and Water Conservation Fund 

appropriations, (including $4,629,680 through reprogramming) and a $4,700,000 allocation from the Federal 

Land Transaction Facilitation Act (FLTFA). To date BLM has purchased 20 conservation easements and 19 

fee title properties for $20,719,947 (these properties were actually valued at $23,391,152). Partial donations 

by land owners and nonprofit conservation partners (accounting for the $3,450,450 difference) have allowed 

the BLM to stretch LWCF appropriations. 

 Thus far, the partnership has leveraged approximately $42 million from diverse funding sources including 

BLM LWCF appropriations and BLM FLTFA funds, the Bonneville Power Administration wildlife mitigation 

fund, the National Resource Conservation Service’s Wetland Reserve and Farm / Ranchland Protection 

Programs, the Fish and Wildlife Service’s North American Wetland Conservation Act funds, the Doris Duke 

Charitable Foundation, and landowner donations. 

 Currently the BLM and the nonprofit partners are negotiating for conservation easements with a collective 

estimated value of $3.6 million. Ten other landowners within the ACEC have expressed their desire to 

conserve their river properties with conservation easements. 

Partnerships, community and Congressional support have allowed BLM 

to preserve the wild open space and recreational opportunities of the 

South Fork of the Snake River within the Upper Snake/South Fork 

Snake River ACEC-SRMA. 

Section V- Land Acquisition Page V-7 
Bureau of Land Management 2009 Budget Justifications 

Activity: Land Acquisition 

Subactivity: Land Acquisition

Activity: Land Acquisition 

Subactivity: Land Acquisition 

 2009 

 Fixed Costs & Program Change

 2007 2008 

Related 

Changes 

Changes 

Budget 

from 

2008 

 Enacted Enacted (+/ -) (+/ -) Request (+/-) 

Land Acquisition ($000) 6,065 5,789 0 -3,789 2,000 -3,789

 

FTE 0 0 0 0 0 0

Other Major Resources: 

 

Major Program IT 

Investments: 

 

Summary of 2009 Program Changes for Land Acquisition 

Request Component $0 FTE

Program Changes: 

• Program Reduction -3,789 0

TOTAL, Program Changes -3,789 0

JUSTIFICATION OF 2009 PROGRAM CHANGES

The 2009 budget request for the Land Acquisition program is $2,000,000. This is a program 

decrease of $3,789,000 from the 2008 enacted level. 

Program Reduction (-$3,789,000) 

The Land Acquisition program will be reduced by -$3,789,000; of which -$1,747,000 is from the 

elimination of 2008 earmarks and -$2,042,000 is a program reduction. At this funding level, 

BLM will continue to acquire properties with the requested $2.0 million. BLM will also acquire 

properties with funds from the Federal Lands Transaction Facilitation Act and the Land and 

Water Conservation Fund. 

Section V- Land Acquisition Page V-8 
Bureau of Land Management 2009 Budget Justifications 

Program Performance Change 

2005 

Actual 

2006 

Actual 

2007 

Actual 

2008 

Plan 

2009 Base 

Budget 

(2008 + 

Fixed 

Costs) 

2009 

Pres. 

Budget 

Program 

Change 

Accruing in 

2009 

Program 

Change 

Accruin

g in Outyears 

A B=A+C C D 

Increase the 

number and 

acreage of land 

acquisitions to 

improve land 

tenure 

distribution* 

90,655 72,887 46,560 4,434 4,434 333 -4,101 0 

Total 

Actual/Projected 

Cost ($000)

$193,078 $80,069 $141,973 109,300 109,300 105,189 -$4,111 0 

Actual/Projected 

Cost per Acre (in 

dollars)

$2,130 $1,099 $3,049 $24,650 $24,650 $315,822 $291,172 0 

Comments 

Process Land 

Purchase/Donation 

(number of acres) * 

60 9,704 4,446 4,434 4,434 2,714 -1,720 -- 

Total 

Actual/Projected 

Cost1/3 ($000)

$79,256,

220 

$20,892,

712 

$11,635,

182 

$11,603,7

78 $11,603,778 $7,102,5

38 -$4,501,240 -- 

Actual/Projected 

Cost per Acre (in 

dollars)

$1,320,9

37 $2,153 $2,617 $2,617 $2,617 $2,617 $2,617 -- 

*Land Acquisitions are based on actual acres in planned projects, which will vary between years. 

Note: Projected costs may not equal program change as these are full costs, which may include funds from other sources and (or) 

use averages. 

Column A: The level of performance and costs expected in 2009 at the 2008 level plus funded fixed costs. Reflects the impact of prior 

year funding changes, management efficiencies, absorption of prior year fixed costs, and trend impacts, but does not reflect the 

proposed program change. 

Column D: Outyear performance beyond 2009 addresses lagging performance — those changes occurring as a result of the program 

change (not total budget) requested in 2009. It does not include the impact of receiving the program change again in a subsequent 

out-year. 

PROGRAM OVERVIEW

Program Components - The BLM’s Land Acquisition program promotes conservation of 

natural landscapes and resources by consolidating privately owned lands with publicly owned 

lands within nationally-designated management units; including National Monuments, National 

Conservation areas, Wilderness, National Wild and Scenic Rivers, National Scenic Trails, 

National Historic Trails, as well as BLM-designated Areas of Critical Environmental Concern and 

Special Recreation Management Areas. The program preserves natural and cultural heritage 

resources, provides opportunities for environmentally responsible recreation, restores at-risk 

resources and maintains functioning ecosystems through land acquisition. 

Section V- Land Acquisition Page V-9 
Bureau of Land Management 2009 Budget Justifications 

The land acquisition program promotes the conservation of natural landscapes and resources 

by consolidating public lands through purchase and donation to increase management 

efficiency and preserve areas where the values of natural, cultural, and recreational importance 

are emphasized. As a result, other public lands are available for a variety of other uses. 

Communication, cooperation, and consultation with local communities and interested parties are 

key elements to the BLM’s implementation of the land acquisition program goals. Funds for the 

Land Acquisition activity are derived from the Land and Water Conservation Fund (LWCF). 

The BLM prioritizes its acquisition efforts through an annual national ranking process, to support 

areas specially designated by Congress, including National Monuments, National Conservation 

Areas, Wilderness, National Wild and Scenic Rivers, National Scenic Trails, National Historic 

Trails, as well as BLM-designated Areas of Critical Environmental Concern and Special 

Recreation Management Areas. The BLM also accepts donations of property in these areas, 

and only purchases lands from willing sellers. 

Long Term Vision - The goal of the Land Acquisition program is to consolidate areas of critical 

environment concern. This is done through the purchase of private property inholdings, as 

identified by approved agency land use plans, directed by resource conservation goals 

supported by agency management and in response to public demand. 

Critical Factors – Critical and unpredictable factors impacting the Land Acquisition program 

include fatal flaws in title, threats to property from hazardous materials contamination, appraised 

property values that do not reach landowner expectations, lack of consensus among landowner 

family members, sudden death of landowners, and expired (non-renewable) third party options 

due to the absence of full or partial land acquisition funding. 

Means and Strategies – The BLM conducts an annual request of qualifying land acquisition 

proposals from field offices. Qualifying proposals must be included on a pre-selected list (BLM 

has intentionally narrowed the field of candidates, due to reduced funding levels) and be within 

or adjacent to a unit of the National Landscape Conservation System, and Area of Critical 

Environmental Concern or Special Recreation Management Area. Submitted proposals are 

ranked based on response to a national questionnaire (addressing biologic, cultural, 

management, realty, and recreation conditions), project goals and objectives. Ranking also 

evaluates descriptive documents, maps and photos, level of community, local government and 

historic Congressional support, recent land acquisition accomplishments and successes, the 

status of prior year appropriations (unobligated balances), coordination with third parties and the 

likelihood of accomplishment. 

Other Funding Sources – To increase the BLM’s Land and Water Conservation Fund 

capabilities, the BLM accepts the support of federal, tribal, state, and local governments, 

interested individuals, and non-profit organizations. These partners, in compliance with 

approved agency land use plans, obtain options on properties or purchase properties offered for 

sale by willing sellers, for potential sale or resale to the BLM. Some partners provide long-term 

property management assistance, especially when purchases of critical habitat for threatened 

and endangered species is involved. This reduces BLM’s management costs while achieving 

the same desired results.

Other land acquisition funding sources include funds obtained through the Federal Land 

Transaction Facilitation Act (FLTFA); third party leveraged funding (i.e. wildlife mitigation funds - 

specific to only a few states, foundation grants, landowner “bargain sales”, etc.) and donations. 

Section V- Land Acquisition Page V-10 
Bureau of Land Management 2009 Budget Justifications 

Land exchange (while not a funding source) also makes a significant contribution to BLM’s land 

acquisition program. 

Strategic Plan – The Land Acquisition program supports the Resource Protection and Serving 

Communities mission goals from the Department’s Strategic Plan by implementing land use 

plan recommendations through the acquisition of private property inholdings from highlymotivated willing sellers. Each mission goal of the Strategic Plan has several performance 

measures to gauge progress towards meeting mission goal accomplishments, including end 

outcome goals and measures, intermediate outcome goals and measures and primary outputs. 

A key performance measure for the Land Acquisition program is increasing the number of acres 

restored or enhanced to achieve habitat conditions to support species conservation consistent 

with management documents and program objectives. Creating or finding opportunities for 

recreation has become the primary focus for the program. 

2009 PROGRAM PERFORMANCE

2007 Program Accomplishments 

 Purchase of two phases of the three-phase Cathton/Joshua Hills property, an 

edgeholding to the Coachella Valley Fringe Toed Lizard Area of Critical Environmental 

Concern (ACEC) project in southern California. Purchase of 636 acres of the 937-acre 

property was accomplished utilizing $1,200,000 of funding from the Land and Water 

Conservation Fund (LWCF), leveraged with $850,000 of funding from the Federal Land 

Transaction Facilitation Act (FLTFA). The third and final 301-acre phase of the threephase acquisition is valued at $975,000. BLM is finalizing funding for the third phase 

which is currently pending Secretarial approval. The Coachella Valley Fringe-Toed 

Lizard ACEC 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. The property maintains the fluvial sand transport 

system and hydrological regime essential for sustaining the dune communities of listed 

species in the Preserve. In a joint effort, the State of California, The Coachella Valley 

Association of Governments, and several non-profit conservation organizations 

purchased the 8,880-acre Joshua Hills property for $26,000,000 in 2004. The Joshua 

Hills property is the largest single ownership in the Coachella Valley targeted for 

conservation purposes and is within the Coachella Valley Multiple Species Habitat 

Conservation Plan area. 

 Purchase of five small inholdings, threatened by encroaching rural residential 

development into New Mexico’s El Malpais National Conservation Area. The parcels 

total 74.89 aces and were acquired for $74,890 in 2007. The purchases protect the 

integrity of a stunning landscape of high sandstone bluffs and cliffs overlooking 

sweeping lava flows, cinder cones, sculptured formations, and forested woodlands. 

 Purchase of a 641-acre inholding, valued at $568,000, within Oregon’s remote North 

Fork of the Owyhee National Wild and Scenic River (NWSR) corridor. This inholding, 

the last parcel of private riverfront property within the NWSR corridor, straddles one mile 

of river and includes sagebrush-steppe habitat in Oregon. The North Fork of the 

Owyhee NWSR lies on a high plateau within a narrow, basalt-rimmed canyon. The river 

is noted for its stark landscape of soaring cliffs and pinnacles, as well as remarkable 

Section V- Land Acquisition Page V-11 
Bureau of Land Management 2009 Budget Justifications 

geology, wildlife habitat and challenging kayaking opportunities. The acquisition was 

facilitated by The Nature Conservancy. 

 Purchase of a 277-acre inholding, valued at $2,350,000, within Wyoming’s North Platte 

River Special Recreation 

Management Area (SRMA). 

The purchase was 

accomplished with $788,500 

from the Land and Water 

Conservation Fund (LWCF), 

leveraged with $1,300,000 from 

the Federal Land Transaction 

Facilitation Act (FLTFA), and 

$261,500 in donations from the 

Wyoming Game and Fish 

Department (WGFD) and the 

Wyoming Fly Casters. Weaving 

a fragile thread of green through 

the high plains of central 

Wyoming, the North Platte River 

represents the rarest of 

Wyoming’s ecosystems, only one percent of land in Wyoming constitutes 

riparian/wetland habitat. The 4,600-acre North Platte River SRMA includes a 45-mile 

segment of the North Platte, between Pathfinder National Wildlife Refuge and the City of 

Casper. The California, Mormon Pioneer, Oregon, and Pony Express National Historic 

Trails, diverging west from Casper, follow the natural contour of the North Platte River 

within the project area. Recently touted as the number one trout fishery destination in 

the lower 48 states by a prominent angling publication, this segment of the river supports 

the highest ratio of pounds of trout per mile of any waterway in Wyoming. According to 

the WGFD this area of the North Platte hosted an estimated 17,000 anglers in 1996. By 

2000, the number of anglers had increased to over 102,000. 

North Platte River SRMA, Wyoming 

2008 Planned Program Performance - In 2008, BLM plans to complete 25 purchases in six 

states. These acquisitions would strengthen BLM’s efforts to conserve and protect cultural and 

historic resources, retain open space, preserve wildlife habitat and wilderness, and enhance 

public recreation opportunities in the western United States. 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 include: 

 Upper Snake/South Fork Snake River ACEC/SRMA, Idaho - Approximately 145 acres 

will be acquired through the Conservation Fund and Teton Regional Land Trust to 

conserve and enhance significant scenic, recreational, and wildlife resources within the 

Snake River corridor, predominately through the acquisition of conservation easements. 

 Gunnison Gorge National Conservation Area, Colorado – Approximately 550 acres will 

be acquired through the Conservation Fund, to protect and enhance conservation and 

wilderness values within the project area. Preservation will provide high quality outdoor 

recreation experiences to the public. 

Section V- Land Acquisition Page V-12 
Bureau of Land Management 2009 Budget Justifications 

 El Malpais National Conservation Area, New Mexico – Approximately 250 acres of small 

inholdings from several highly-motivated willing sellers within the West Malpais 

Wilderness, a unit imbedded within the El Malpais National Conservation Area. 

 Upper Sacramento River ACEC, California – From a highly-motivated willing seller, six 

acres of riverfront inholding will be acquired through the American Land Conservancy 

 Blackfoot River SRMA, Montana – Funding will be utilized to acquire a 640-acre 

inholding, assisted by The Nature Conservancy, to protect exceptional biological 

diversity, wildlife habitat, and to maintain the rural character from the impacts of rural 

residential subdivision. 

 California Wilderness, California – Funding will be utilized to acquire approximately 500 

acres of small inholdings from several willing sellers to consolidate public ownership 

within the Owens Peak Wilderness, to preserve wilderness qualities, increase public 

recreation opportunities, and protect endangered species habitat. 

 Cascade-Siskiyou National Monument, Oregon – Funding will be utilized to acquire 

approximately 1,000 acres of private inholdings, assisted by The Pacific Forest Trust, to 

protect significant wildlife, water, flora, and recreational resource values. 

 Coachella Valley Fringe-Toed Lizard ACEC, California – Funding will be utilized to 

acquire 320 acres, assisted by Friends of the Desert Mountains, in support of a local 

habitat conservation planning effort adjacent to the ACEC and benefiting Joshua Tree 

National Park and the Coachella Valley National Wildlife Refuge. 

The estimated annual operation and maintenance costs associated with the proposed 2007 

LWCF acquisitions in the aggregate were $78,500. The costs associated with 2008 proposed 

acquisitions are estimated to be $23,000. 

 2009 Planned Program Performance - In 2009, BLM plans four acquisitions in four states. 

These acquisitions will strengthen BLM’s efforts to conserve and protect cultural and historic 

resources, retain open space, 

preserve wildlife habitat and 

wilderness, and enhance public 

recreation opportunities in the western 

U.S. in perpetuity. 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. 

Upper Snake/South Fork Snake River 

Planned acquisitions in 2009 include: Idaho

 Upper Snake/South Fork Snake River ACEC/SRMA, Idaho - Funding will be utilized to 

acquire approximately 170 acres, assisted by The Conservation Fund and Teton 

Section V- Land Acquisition Page V-13 
Bureau of Land Management 2009 Budget Justifications 

Section V- Land Acquisition Page V-14 

Regional Land Trust, to conserve and enhance significant scenic, recreational, and 

wildlife resources within the Snake River corridor, predominately through the acquisition 

of conservation easements. 

 Meeteetse Spires ACEC, Montana – Funding will be utilized to initiate the phased 

acquisition of approximately 223 acres, assisted by The Conservation Fund, to protect 

and conserve significant biologic, wildlife, threatened and endangered plant resources 

and scenic values unique to this area. 

 Arkansas River SRMA, Colorado – Funding will be utilized to acquire approximately 12 

acres, assisted by The Trust for Public Land, to improve river access, management and 

recreation opportunities and benefits to the public. 

 Sandy River/Oregon National Historic Trail, Oregon – Funding will be utilized to acquire 

approximately 50 acres, assisted by Western Rivers Conservancy, to preserve the 

Sandy River gorge and abutting Oregon National Historic Trail corridor, as well as 

providing for the protection of significant open space, scenic, recreation, fisheries and 

wildlife values. 
au of Land Management 2009 Budget Justifications 

Section V- Land Acquisition 

LAND ACQUISITION PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 President's Budget Change from 2008 Plan to 2009 

Increase the number and acreage of land acquisitions to improve land tenure distribution (Bur)* 

40,712 90,655 72,887 25,000 46,560 4,434 333 -92% 

Total Actual/Projected Cost ($000) 225,468 193,078 80,069 0 141,973 109,300 105,189 Actual/Projected Cost per Acre 

(in dollars) $5,538 $2,130 $1,099 $0 $3,049 $24,650 $315,822 

Comments Results for the Southern Nevada Public Lands Management Act (SNPLMA) are included in 2004-2006. SNPLMA 

separate measures in 2006. 

Process Land Purchase/Donation (number of acres) ** 

89 60 *9,704 5,592 4,446 4,434 2,714 -39% 

* Land Acquisitions are based on actual acres in planned projects, which will vary between years. ** Program Element definition changed between FY`05 and FY`06. 

Bure
Bureau of Land Management 2009 Budget Justifications 

Section V- Land Acquisition Page V-16 

BUREAU OF LAND MANAGEMENT 

Land and Water Conservation Fund 

2009 National Project Priorities 

Rank State Project Name1

Funding 

Request ($) 

1 ID Upper Snake/South Fork Snake River ACEC/SRMA 300,000

2 MT Meeteetse Spires ACEC 1,000,000

3 CO Arkansas River SRMA 200,000

4 OR Sandy River/Oregon National Historic Trail 500,000

Total Line Item Projects 2,000,000

Acquisition Management 1,531,000

Emergency/Inholding/Hardship 944,000

TOTAL 4,475,000

1

 Acronyms 

ACEC = Area of Critical Environmental Concern 

SRMA = Special Recreation Management Area 
Bureau of Land Management 2009 Budget Justifications 

Section V- Land Acquisition Page V-17 
Bureau of Land Management 2009 Budget Justifications 

Section V- Land Acquisition Page V-18 

 Upper Snake/South Fork Snake River 

Area of Critical Environmental Concern/ 

Special Recreation Management Area 

IDAHO Bonneville, Fremont, Jefferson, 

and Madison Counties 

Congressional District 2 

Member: Mike Simpson 

Location Southeast Idaho, 20 miles northeast of Acquired to Date 

Idaho Falls. Method Acres* Cost ($) 

Purchase 7,412 20,719,947

Exchange 40 40,000

Donation N/A 3,450,450

Other 401 1,411,000

Partners 9,870 16,284,862

Purpose Conserve and enhance significant scenic, 

recreational and wildlife resources within 

the Snake River corridors, predominately 

through the acquisition of conservation 

easements. Appropriated in 2008 

Method Acres* Cost ($) 

Purchase 145 1,230,500

Proposed for 2009 

Method Acres* Cost ($) 

Purchase 

Opportunities 

Multiple properties facing immediate 

threat from rural residential and resort 

development. Sustaining historic family 

farming/ranching operations is a priority. Purchase 170 300,000

Pending Future Action 

Method Acres* Cost ($) 

Purchase 5,259 12,920,000

Partners The Conservation Fund, The Nature 

Conservancy, Teton Regional Land Trust. 

*Includes fee and conservation easement interest

Cooperators/ 

Supporters 

Local county and municipal support, Idaho Department of Fish and Game, Shoshone-Bannock 

Tribes, Ducks Unlimited, Trout Unlimited, Greater Yellowstone Coalition, Henrys Fork 

Foundation. 

Project 

Description 

Born of snowmelt and springs among high ridges of Yellowstone country, the 42,900-acre Upper 

Snake/South Fork Snake River project is an area like no other in the West. Gliding through 

mountains, canyons, and meadows, and the vast farmlands of the Snake River plains; a 1980 

U.S. Fish and Wildlife Service evaluation rated this area the most valuable, biodiverse, and 

unique ecosystem in Idaho. The riparian corridor, lined with commanding cottonwood galleries 

and a lush shrub understory, sustains a broad variety of plants, fish, birds, and wildlife 

populations. It is the only home for the Federally-threatened Ute ladies’-tresses orchid in Idaho, 

supports a Federally-endangered snail, and is a world famous, blue ribbon fishery, supporting 

the largest wild Yellowstone cutthroat trout population outside of Yellowstone National Park. 

The first World Fly Fishing Championship in North America took place on the South Fork in 

1997. The area provides crucial habitat for 126 bird species (the majority of them neotropical 

migrants), including the majority of Idaho’s bald eagle production (with 25 nesting territories), 

great blue heron (11 rookeries), and the yellow-billed cuckoo. Diverse recreational opportunities 

account for 335,000 recreational visits per year. 

The scope of the project increased dramatically as a result of enormous public support and the 

residual impact from the 1997 100-year flood event. The project shares a contiguous boundary 

with the Caribou-Targhee National Forest, administered by the Forest Service, and serves as a 

national model for land conservation, strategically utilizing conservation easements in an effort to 

preserve the unique values of this area. 

O&M Cost Estimated “start up” cost: $1,000 Estimated “annual” maintenance: $500 

DOI Goal Provide for a quality recreation experience, including access, and enjoyment of natural and 

cultural resources on DOI managed and partnered lands and waters. 
Bureau of Land Management 2009 Budget Justifications 

Section V- Land Acquisition Page V-19 

Meeteetse Spires Area of Critical Environmental Concern 

MONTANA Carbon County Congressional District: 1 

Member: Dennis Rehberg 

Location South central Montana, 60 miles south Acquired to Date 

of Billings. Method Acres* Cost ($) 

Purchase 0 0

Exchange 0 0

Donation 0 0

Other 0 0

Partners 0 0

Purpose Protect and conserve significant 

biologic, wildlife, T&E plant resources 

and scenic values. 

Proposed for 2009 

Method Acres* Cost ($) 

Purchase 223 1,000,000

Pending Future Action 

Method Acres* Cost ($) 

Pending 337 1,500,000

Purchase 

Opportunities 

Acquisition of the only private inholding 

within the ACEC. Approved for 

subdivision and platted into 28 20-acre 

lots. Marketed for sale nationwide. 

*Includes fee and conservation easement interest 

Partner The Conservation Fund. 

Cooperators U.S. Forest Service, Crow Tribe of Indians, Carbon County, Montana Department of 

Fish, Wildlife and Parks, Montana Wilderness Association. 

Project 

Description 

The wind-blasted stone pinnacles of the Meeteetse Spires reach hundreds of feet into 

the sky and provide a unique backdrop to a hidden hanging valley encompassing 

situated west of the spires. In 1989, BLM and The Nature Conservancy dedicated the 

adjoining BLM land as a Centennial Preserve, created to protect the spectacular 

scenery and natural beauty of the spires and the ecological habitat for Shoshonea 

pulvinata, a rare plant known to exit in only three locations in Montana and fewer than 

twelve locations globally. The area was designated an Area of Critical Environmental 

Concern (ACEC) in August 1998 through an amendment to the Billings Resource 

Management Plan. A majority of the species are located on the private land. The area 

provides habitat for elk, moose, mule deer, white-tailed deer, black bear and mountain 

lion. Canadian lynx and the Rosebud pack of gray wolves frequent the area. The 

parcel adjoins and buffers the Yellowstone Grizzly Bear Recovery Zone and the Line 

Creek Research Natural Area in the adjoining Custer National Forest. 

The area holds special significance to the Crow Tribe of Indians and could be 

considered for designation as a Traditional Cultural District. 

O&M Cost Estimated “start-up” cost: $2,500 Estimated “annual” maintenance: $750 

DOI Goal Provide for a quality recreation experience, including access, and enjoyment of natural 

and cultural resources on DOI managed and partnered lands and waters. 
Bureau of Land Management 2009 Budget Justifications 

Section V- Land Acquisition Page V-20 

Arkansas River Special Recreation Management Area 

COLORADO Congressional District 5 Chafee, Fremont and Lake Counties Member: Doug Lamborn 

Location Central Colorado, within the 148-mile Acquired to Date 

Arkansas Headwaters Recreation 

Area. 

Method Acres* Cost ($) 

Purchase 5,096 5,212,000

Exchange 3,192 3,260,000

Donation 4,939 5,050,000

Other 0 0

Partners 0 0

Purpose To improve access, management and 

recreation opportunities and benefits to 

the public. 

Appropriated in 2008 

Method Acres* Cost ($) 

Purchase 0 0

Proposed for 2009 

Method Acres* Cost ($) 

Purchase 

Opportunities 

Multiple properties facing immediate 

threat from rural residential 

development. 

Purchase 12 200,000

Pending Future Action 

Method Acres* Cost ($) 

Purchase 525 2,960,000

Partners The Trust for Public Land. 

*Includes fee and conservation easement interest

Cooperators/ Colorado State Parks, Colorado Division of Wildlife, Upper Arkansas Land Trust. 

Supporters 

Project 

Description 

The Upper Arkansas River is an internationally famous whitewater river that boasts the 

highest commercial boating use in the world. Some 275,000 boaters enjoyed the river in 

2006. A naturally reproducing Brown trout fishery draws anglers from throughout the 

country. From its headwaters near historic Leadville, the river traverses some of 

Colorado’s most spectacular and diverse sceneries while dropping over 5,000 vertical 

feet to Pueblo on the plains. It passes thirteen 14,000’ peaks (within San Isabel National 

Forest) through open valleys, boulder strewn canyons, and the 1,000-foot deep Royal 

Gorge. Two National Scenic Byways parallel the river corridor. A broad spectrum of 

geology, vegetation, wildlife habitat, and cultural resources lie along the length of the river 

corridor. The Bureau of Land Management co-manages the Arkansas Headwaters 

Recreation Area in partnership with Colorado State Parks, Colorado Division of Wildlife 

and the U.S. Forest Service. 

Three Wilderness Study Areas and five Areas of Critical Environmental Concern, in 

addition to the entire corridor’s designation as a Special Visual Resources Management 

Area, are representative of the Basin’s significance. Its beauty and accessibility is also 

attracting rural subdivisions to support increasing tracts of residential development 

intermingled with public lands and unique natural resources. This rapid expansion of rural 

home sites is threatening wildlife habitats and migration routes and adversely affecting 

public recreation opportunities. 

O&M Cost Estimated “start up” cost: $1,000 Estimated “annual” maintenance: $500 

DOI Goal Provide for a quality recreation experience, including access, and enjoyment of natural 

and cultural resources on DOI managed and partnered lands and waters. 
Bureau of Land Management 2009 Budget Justifications 

Section V- Land Acquisition Page V-21 

Sandy River/Oregon National Historic Trail 

OREGON Clackamas and Multnomah 

Counties 

Congressional District 3,5 

Member: Blumenauer/Hooley 

Location Northwest Oregon, 20 miles Acquired to Date 

southeast of Portland. Method Acres* Cost ($) 

Purchase 2,234 8,460,000

Exchange 3,548 15,761,730

Donation 0 0

Other 0 0

Partners 1,500 6,660,115

Purpose Preservation of the Sandy River 

gorge and abutting Oregon National 

Historic Trail corridor, providing for 

the protection of significant open 

space, scenic, recreation, fisheries 

and wildlife values. Proposed for 2008 

Method Acres* Cost ($) 

Purchase 0 0

Proposed for 2009 

Method Acres* Cost ($) 

Purchase 

Opportunities 

Multiple properties facing immediate 

threat from commercial and rural 

residential development and 

subdivision, and degrading land use 

practices. 

Purchase 50 500,000

Pending Future Action 

Method Acres* Cost ($) 

Purchase 1,395 13,050,000

Partners Western Rivers Conservancy. 

*Includes fee and conservation easement interest

Cooperators/ U.S. Forest Service, State of Oregon, Clackamas and Multnomah Counties, METRO 

(regional government body), Cities of Portland and Sandy, Portland General Electric (PGE), 

The Nature Conservancy, Northwest Steelheaders, Oregon Trout, Sandy River Watershed 

Council. 

Supporters 

Project 

Description 

A breath-taking scenic corridor immediately east of metropolitan Portland, the Sandy and 

Salmon Rivers descend from the forested slopes of Mount Hood, harboring a rich diversity 

of animal and plant populations, within secluded riparian and wetland areas. Multiple 

threatened salmonid species, including Lower Columbia Chinook and Coho salmon and 

Steelhead use these turbulent waters for spawning and rearing their young before returning 

to the Pacific Ocean via the Columbia River. Old growth stands of Douglas fir contain prime 

habitat for the threatened northern spotted owl. 

The Sandy River project offers exceptional recreational opportunities for fishing, hiking, 

wildlife viewing, nature study, and non-motorized boating or floating. The project is easily 

accessible from the Portland Metro area, the northwest's second largest population center.

The 29,000-acre Sandy River project contains the route of the historic Barlow Road, the 

western segment of the Oregon National Historic Trail and shares a common boundary with 

the Salmon-Huckleberry Wilderness, administered by the U.S. Forest Service. 

BLM is working with PGE to remove the Bull Run hydroelectric project, including dams on 

both the Sandy and Little Sandy Rivers. Dam removal will restore the free flowing 

character of the Sandy River and result in the eventual transfer of 1,272 acres of PGE 

lands within the Sandy River project area into Federal ownership. 

O&M Cost Estimated “start up” cost: $1,000 Estimated “annual” maintenance: $500 

DOI Goal Provide for a quality recreation experience, including access, and enjoyment of natural and 

cultural resources on DOI managed and partnered lands and waters. 
Bureau of Land Management 2009 Budget Justifications 

Section V- Land Acquisition Page V-22 

Activity: Land Acquisition 

Subactivity: Emergency, Inholding and Hardship

Activity: Land Acquisition 

Subactivity: Emergencies and Hardships 

 2009 

 Fixed Costs & Program Budget Change

 2007 2008 

Related 

Changes Changes Request

from 

2008 

 Enacted Enacted (+/ -) (+/ -) (+/-) 

Emergencies & Hardships 

($000) 1,000 1,477 0 -533 944 -533

 

FTE 0 0 0 0 0 0

Other Major Resources: 

 

Major Program IT 

Investments: 

 

Summary of 2009 Program Changes for Emergencies and Hardships 

Request Component $0 FTE

Program Changes: 

• Restoration of Program funding to 2008 Request level -533

TOTAL, Program Changes -533 0

JUSTIFICATION OF 2009 PROGRAM CHANGES

The 2009 budget request for the Emergency, Inholding and Hardship program is $944,000. 

This is a program decrease of $533,000 from the 2008 enacted level. 

Reduction of Unrequested Increase in Base Funding (-$533,000) 

The program will be reduced by -$533,000 which includes the increase provided in 2008 

earmarks. The BLM will continue to restore and maintain core functions in the Emergency, 

Inholding, and Hardship program by focusing on the highest priority properties. 

PROGRAM OVERVIEW

Program Components - The Emergency, Inholding and Hardship land acquisition 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 

Emergency, Inholding, 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 Emergency, Inholding and Hardship land acquisition program promotes 

conservation of natural landscapes and resources by consolidating public ownership within 

nationally-designated management units; including National Monuments, National Wild and 
Bureau of Land Management 2009 Budget Justifications 

Section V- Land Acquisition Page V-23 

Scenic River corridors and Wilderness. 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. The use of these funds is limited to purchasing land or 

interest in land within or adjacent to Administrative or Congressionally-designated boundaries or 

areas that meet the intent of the Land and Water Conservation Fund Act. Funds for the 

Emergency, Inholding and Hardship activity are derived from the Land and Water Conservation 

Fund (LWCF).

The BLM prioritizes its acquisition efforts through an annual national ranking process, to support 

areas specially designated by Congress, including National Monuments, National Conservation 

Areas, Wilderness, National Wild and Scenic Rivers, National Scenic Trails, National Historic 

Trails, as well as BLM-designated Areas of Critical Environmental Concern and Special 

Recreation Management Areas. The BLM also accepts donations of property in these areas, 

and only purchases lands from willing sellers. 

Long Term Vision - The goal of the Emergency, Inholding and Hardship program is to 

consolidate public ownership within specially designated units through purchase of “willing 

seller” private property inholdings, as identified by approved agency land use plans, directed by 

resource conservation goals supported by agency management and in response to public 

demand. 

Critical Factors – Critical and unpredictable factors impacting the Emergency, Inholding and 

Hardship land acquisition program include fatal flaws in title, threats to property from hazardous 

materials contamination, appraised property values that do not reach landowner expectations, 

lack of consensus among landowner family members, sudden death of landowners, and expired 

(non-renewable) third party options due to the absence of full or partial land acquisition funding. 

Means and Strategies - The BLM conducts an annual request of qualifying land acquisition 

proposals from field offices. Qualifying proposals must be included on a pre-selected list (BLM 

has intentionally narrowed the field of candidates, due to reduced funding levels) and be within 

or adjacent to a unit of the National Landscape Conservation System, and Area of Critical 

Environmental Concern or Special Recreation Management Area. Submitted proposals are 

ranked based on response to a national questionnaire (addressing biologic, cultural, 

management, realty, and recreation conditions), project goals and objectives. Ranking also 

evaluates descriptive documents, maps and photos, level of community, local government and 

historic Congressional support, recent land acquisition accomplishments and successes, the 

status of prior year appropriations (unobligated balances), coordination with third parties and the 

likelihood of accomplishment. 

Other Funding Sources – To increase the BLM’s Land and Water Conservation Fund 

capabilities, the BLM accepts the support of Federal, tribal, State, and local governments, 

interested individuals, and non-profit organizations. These partners, in compliance with 

approved agency land use plans, obtain options on properties or purchase properties offered for 

sale by willing sellers, for potential sale or resale to the BLM. Some partners provide long-term 

property management assistance, especially when purchases of critical habitat for threatened 

and endangered species are involved. This reduces the BLM’s management costs while 

achieving the same desired results.
Bureau of Land Management 2009 Budget Justifications 

Section V- Land Acquisition Page V-24 

Other land acquisition funding sources include the Federal Land Transaction Facilitation Act 

(FLTFA); third party leveraged funding. Land exchange (while not a funding source) makes a 

significant contribution to BLM’s land acquisition program. 

Strategic Plan – The Emergency, Inholding and Hardship land acquisition program supports 

the Resource Protection and Serving Communities mission goals from the Department’s 

Strategic Plan by implementing land use plan recommendations through the acquisition of 

private property inholdings from highly-motivated willing sellers. Each mission goal of the 

Strategic Plan has several performance measures to gauge progress towards meeting mission 

goal accomplishments, including end outcome goals and measures, intermediate outcome 

goals and measures and primary outputs. A key performance measure for the Emergency, 

Inholding and Hardship land acquisition program is increasing the number of acres restored or 

enhanced to achieve habitat conditions to support species conservation consistent with 

management documents and program objectives. Opportunities for recreational purposes have 

become the highest area of focus for the program. 

2009 PROGRAM PERFORMANCE 

2007 Accomplishments – The purchase of a 22-acre inholding, valued at $255,000, within 

New Mexico’s Ojo Caliente Area of Critical Environmental Concern. The triangular Howiri 

parcel, subdivided into 17 highly developable commercial and industrial lots, contains a large 

mounded adobe pueblo (or village) including some 1,700 rooms covering 19 acres. The pueblo 

was built of adobe and like other abandoned adobe structures has melted into mounds. The 

walls, floors, fire hearths, storage pits, and artifacts are intact, buried under these mounds. 

Tewa Pueblo Indians built this pueblo during their migration from the Four Corners area to their 

present locations along the Rio Grande and it’s tributaries near present day Espanola, New 

Mexico. The Tewa people lived in Howiri from 1350-1550 AD. Future acquisition of the Howiri 

site may provide an examination of scientific, educational, and cultural artifacts unique to this 

site. 

2008 Planned Program Performance - In 2008, BLM will respond to field requests for 

Emergency, Inholding and Hardship funding as they are submitted for consideration on a caseby-case basis. Funding request are subject to the same selection criteria as all Land and Water 

Conservation fund land acquisition proposals. Tentative requests have been identified for 10 

purchases in five states. These acquisitions would strengthen BLM’s efforts to conserve and 

protect cultural and historic resources, retain open space, preserve wildlife habitat and 

wilderness, and enhance public recreation opportunities in the western U.S. in perpetuity. 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. 

2009 Planned Program Performance - In 2009, BLM will continue to focus on Emergency, 

Inholding and Hardship land acquisitions which would strengthen BLM’s efforts to conserve and 

protect cultural and historic resources, retain open space, preserve wildlife habitat and 

wilderness, and enhance public recreation opportunities in the western U.S. in perpetuity. 
Bureau of Land Management 2009 Budget Justifications 

Section V- Land Acquisition Page V-25 

Activity: Land Acquisition 

Subactivity: Acquisition Management

Activity: Land Acquisition 

Subactivity: Acquisition Management 

 2009 

 

Fixed Costs 

& Program Change 

 2007 2008 

Related 

Changes Changes Budget from 2008 

 Enacted Enacted (+/ -) (+/ -) Request (+/-) 

Acquisition Management 

($000) 1,569 1,673 +29 -171 1,531 -142

 

FTE 14 14 0 0 14 0

Other Major Resources: 

 

Major Program IT 

Investments: 

 

Summary of 2009 Program Changes for Acquisition Management 

Request Component $0 FTE

Program Changes: 

• Restoration of Program funding to 2008 Request level -54 

• Organizational & Administrative Streamlining -111 0

• Travel & Relocation expenses -6 

TOTAL, Program 

Changes -171 0

JUSTIFICATION OF 2009 PROGRAM CHANGES

The 2009 budget request for the Acquisition Management program is $1,531,000 and 14 FTEs. 

A net program decrease of $171,000 offset by a $29,000 increase over the 2008 enacted level. 

Reduction of Unrequested Increase in Base Funding (-$54,000) 

The Budget reduces the increase provided in 2008, in order to fund higher BLM priorities. The 

BLM will continue to restore and maintain core functions in the Acquisition Management 

program by focusing on the highest priorities. 

PROGRAM OVERVIEW

Program Components - The Acquisition Management program funds the administrative costs 

necessary to acquire the lands funded through the Land and Water Conservation Fund. The 

funds are used to process the actions needed to complete land purchases; including costs 

associated with title research, appraisal, appraisal review, project planning, boundary surveys, 
Bureau of Land Management 2009 Budget Justifications 

Section V- Land Acquisition Page V-26 

relocation, taxes, escrow, closing, coordination with BLM multi-resource programs, and 

coordination with local governments and private parties.

The BLM’s Acquisition Management program assists the Land Acquisition program, in 

promoting the conservation of natural landscapes and resources by consolidating public 

ownership within nationally-designated management units. This includes National Monuments, 

National Wild and Scenic River corridors, and Wilderness areas. Acquisition Management 

funding facilitates preservation of natural and cultural heritage resources, provides opportunities 

for environmentally responsible recreation, restores at-risk resources and maintains functioning 

ecosystems through land acquisition. 

The Acquisition Management program promotes land acquisition goals by consolidating public 

lands through purchase and donation to increase management efficiency and create areas 

where these values are emphasized. Funds for the Acquisition Management activity are 

derived from the Land and Water Conservation Fund (LWCF). 

The BLM prioritizes its acquisition efforts through an annual national ranking process, to support 

areas specially designated by Congress, including National Monuments, National Conservation 

Areas, Wilderness, National Wild and Scenic Rivers, National Scenic Trails, National Historic 

Trails, as well as BLM-designated Areas of Critical Environmental Concern and Special 

Recreation Management Areas. The BLM also accepts donations of property in these areas, 

and only purchases lands from willing sellers. 

Long Term Vision - The Acquisition Management program’s goal is to consolidate public 

ownership through land acquisition within specially designated units through the purchase of 

private property inholdings, as identified by approved agency land use plans, and directed by 

resource conservation goals supported by agency management, and in response to public 

demand. 

Critical Factors – Critical and unpredictable factors impacting the Acquisition Management 

program include retirement of experienced staff, flaws in land title, threats to property from 

hazardous materials contamination, appraised property values that do not reach landowner 

expectations, lack of consensus among landowner family members, sudden death of 

landowners, and expired (non-renewable) third party options due to the absence of full or partial 

land acquisition funding. 

Means and Strategies - The BLM conducts an annual request of qualifying land acquisition 

proposals from field offices. Qualifying proposals must be included on a pre-selected list (BLM 

has intentionally narrowed the field of candidates, due to reduced funding levels) and be within 

or adjacent to a unit of the National Landscape Conservation System, and Area of Critical 

Environmental Concern or Special Recreation Management Area. Submitted proposals are 

ranked based on response to a national questionnaire (addressing biologic, cultural, 

management, realty, and recreation conditions), project goals and objectives. Ranking also 

evaluates descriptive documents, maps and photos, level of community, local government and 

historic Congressional support, recent land acquisition accomplishments and successes, the 

status of prior year appropriations (unobligated balances), coordination with third parties and the 

likelihood of accomplishment. 
Bureau of Land Management 2009 Budget Justifications 

Section V- Land Acquisition Page V-27 

Other Funding Sources – To increase the BLM’s Land and Water Conservation Fund 

capabilities, the BLM accepts the support of Federal, tribal, State, and local governments, 

interested individuals, and non-profit organizations. 

These partners, in compliance with approved agency land use plans, obtain options on 

properties or purchase properties offered for sale by willing sellers, for potential sale or resale to 

the BLM. Some partners provide long-term property management assistance, especially when 

purchases of critical habitat for threatened and endangered species are involved. This reduces 

BLM’s costs while still achieving the same desired results. 

Other Acquisition Management funding sources include benefiting resource programs, the 

Federal Land Transaction Facilitation Act (FLTFA); third party leveraged funding, and donations 

of time and expertise. Land exchange (while not a funding source) makes a significant 

contribution to BLM’s land acquisition program. 

Strategic Plan – The Acquisition Management program supports the Resource Protection and 

Serving Communities mission goals from the Department’s Strategic Plan by implementing land 

use plan recommendations through the acquisition of private property inholdings from highlymotivated willing sellers. Each mission goal of the Strategic Plan has several performance 

measures to gauge progress towards meeting mission goal accomplishments, including end 

outcome goals and measures, intermediate outcome goals and measures, and primary outputs. 

A key intermediate outcome measure of this goal is to improve land tenure distribution through 

purchase and donation. Protecting cultural and natural heritage resources is an End Outcome 

Goal of the Resource Protection goal. The Acquisition Management program funds the 

administrative costs of the land acquisition program, which allows the BLM to meet these goals. 

Use of Cost and Performance Information 

Use of Performance and Cost Management Data in the Land Acquisition 

Program - The BLM closely monitors funds spent in both the Land Acquisition 

program, for the purchase of land and interest in land, and the funds spent in the 

Acquisition Management program, for processing costs associated with the purchase 

of land and interest in land. Processing costs can vary widely for each purchase, 

from $50,000 to $100,000 in 2007, 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.

2009 PLANNED PROGRAM PERFORMANCE 

2007 Accomplishments - In 2007, major accomplishments in the land acquisition program, 

supported by Acquisition Management funding, included: 

• Fee interest purchase of 29 parcels, totaling 3,900 acres, valued at $8,584,823. 

• Easement interest purchase of 4 parcels, totaling 2,751 acres, valued at $3,779,060. 

• Fee interest donation of 27 parcels, totaling 10,470 acres, valued at $10,475,737. 

• Easement interest donation of 9 parcels, totaling 861 acres, valued at $394,066. 
Bureau of Land Management 2009 Budget Justifications 

Section V- Land Acquisition Page V-28 

The Acquisition Management subactivity funded all processing costs for these transactions, 

including labor and contract costs for appraisal and title services. 

2008 Planned Program Performance - In 2008, BLM will pursue land acquisition strategies 

that meet BLM management goals. Significant planned accomplishments in 2008 will include 

the fee or easement purchase of approximately 25 parcels, totaling 4,200 acres, valued at 

approximately $5,789,000 . 

2009 Planned Program Performance - In 2009, BLM will pursue land acquisition strategies 

that meet BLM management goals. Significant planned accomplishments in 2009 will include 

the fee or easement purchase of approximately 4 parcels, totaling 455 acres, valued at 

approximately $2,000,000. 
Bureau of Land Management 2009 Budget Justifications 

Section V- Land Acquisition Page V-29 

Budget Schedules 

PROGRAM AND FINANCING (P) (MILLIONS $) 

Identification code: 

14-5033 2007 Act 2008 CY 2009 BY 

Obligations by program activity 

0001 Land acquisition 10 9 5 

0002 Acquisition management 2 2 2 

1000 Total new obligations 12 11 7 

Budgetary resources available for obligation 

2140 

Unobligated balance carried forward, start of 

year 14 14 12 

2200 New budget authority (gross) 11 9 4 

2210 

Resources available from recoveries of prior 

year obligations 1 0 0 

2390 

Total budgetary resources available for 

obligation 26 23 16 

2395 Total new obligations -12 -11 -7 

2440 

Unobligated balance carried forward, end of 

year 14 12 9 

New budget authority (gross), detail 

Discretionary 

4020 Appropriation (special fund) 9 9 4 

4200 Transferred from other accounts [14-1125] 3 0 0 

4300 Appropriation (total discretionary) 12 9 4 

Spending authority from offsetting collections 

5810 

Change in uncollected customer payments 

from Federal sources (unexpired) -1 0 0 

7000 Total new budget authority (gross) 11 9 4 

Change in obligated balances 

7240 Obligated balance, start of year 8 6 7 

7310 Total new obligations 12 11 7 

7320 Total outlays (gross) -14 -10 -8 

7345 Recoveries of prior year obligations -1 0 0 

7400 

Change in uncollected customer payments 

from Federal sources (unexpired) 1 0 0 

7440 Obligated balance, end of year 6 7 6 

Outlays (gross), detail 

8690 Outlays from new discretionary authority 2 2 1 

8693 Outlays from discretionary balances 12 8 7 

8700 Total outlays (gross) 14 10 8 

Offsets 

Against gross budget authority only 

8895 

Change in uncollected customer payments 

from Federal sources (unexpired) -1 0 0 

Net budget authority and outlays 

8900 Budget authority 12 9 4 

9000 Outlays 14 10 8 

9502 Unpaid obligation, end of year 5 0 0 
Bureau of Land Management 2009 Budget Justifications 

Section V- Land Acquisition Page V-30 

OBJECT CLASSIFICATION (O) (MILLIONS $) 

Identification code: 

14-5033 2007 Act 2008 CY 2009 BY 

Direct obligations 

Personnel compensation 

1111 Full-time permanent 1 1 1 

1252 Other services 1 1 1 

1320 Land and structures 10 9 5 

9999 Total new obligations 12 11 7 

BA, LIMITATIONS, AND OUTLAYS (A) (MILLIONS $) 

Identification code: 

14-5033 2007 Act 2008 CY 2009 BY 

Appropriation (total) [Text] 

4300 Discretionary, Appropriations Committee 12 9 4 

Spending authority from offsetting collections 

(total) [subsurface mineral rights] 

5890 Discretionary, Appropriations Committee -1 0 0 

Spending authority from offsetting collections 

(total) [Text] 

5890 Discretionary, Appropriations Committee 0 0 0 

Offsetting collections, Non-Federal sources 

[Text] 

8840 Discretionary, Appropriations Committee 0 0 0 

Chg in uncollected customer payments from 

Fed sources (unexpired) [Text] 

8895 Discretionary, Appropriations Committee -1 0 0 

Outlays from new authority [Text] 

9111 Discretionary, Appropriations Committee 3 2 1 

Outlays from balances [Text] 

9121 Discretionary, Appropriations Committee 12 8 7 

Memo: Outlays frm end of PY balances [Text] 

9122 Discretionary, Appropriations Committee 0 8 2 

Outlays from new offsetting collections [Text] 

9311 Discretionary, Appropriations Committee -1 0 0 

Outlays from new offsetting collections [Text] 

9311 Discretionary, Appropriations Committee 0 0 0 

Outlays from balances of offsetting collections 

[Text] 

9321 Discretionary, Appropriations Committee 0 0 0 

Outlays from balances of offsetting collections 

[Text] 

9321 Discretionary, Appropriations Committee 0 0 0 

Memo: Outlays frm end of PY bal. from 

offsetting coll [Text] 

9322 Discretionary, Appropriations Committee 0 0 0 

Memo: Outlays frm end of PY bal. from 

offsetting coll [Text] 

9322 Discretionary, Appropriations Committee 0 0 0 
Bureau of Land Management 2009 Budget Justifications 

Section V- Land Acquisition Page V-31 

BA, LIMITATIONS, AND OUTLAYS (S) (MILLIONS $) 

Identification code: 

14-5033 2007 Act 2008 CY 2009 BY 

Appropriation (total) [Text] 

Discretionary, Appropriations Committee 

4300 Baseline Non-Pay 0 8 8 

4300 Baseline Civilian Pay 0 1 1 

Spending authority from offsetting collections 

(total) [subsurface mineral rights] 

5890 Discretionary, Appropriations Committee 0 0 0 

Chg in uncollected customer payments from 

Fed sources (unexpired) [Text] 

8895 Discretionary, Appropriations Committee 0 0 0 

Outlays from new authority [Text] 

9111 Discretionary, Appropriations Committee 0 2 2 

Outlays from balances [Text] 

9121 Discretionary, Appropriations Committee 0 8 7 

Memo: Outlays frm end of PY balances [Text] 

9122 Discretionary, Appropriations Committee 0 8 2 

Outlays from new offsetting collections [Text] 

9311 Discretionary, Appropriations Committee 0 0 0 

Outlays from balances of offsetting collections 

[Text] 

9321 Discretionary, Appropriations Committee 0 0 0 

CHARACTER CLASSIFICATION (C) (MILLIONS $) 

Identification code: 

14-5033 2007 Act 2008 CY 2009 BY 

INVESTMENT ACTIVITIES 

Physical assets 

Major equipment 

Purchases and sales of land and structures 

for Federal use 

Direct Federal programs 

1340-01 Budget Authority 12 9 4 

1340-02 Outlays 14 10 8 

EMPLOYMENT SUMMARY (Q) 

Identification code: 

14-5033 2007 Act 2008 CY 2009 BY 

Direct 

1001 Civilian full-time equivalent employment 14 14 14 

APPROPRIATIONS REQUESTS IN THOUSANDS OF DOLLARS (T)

Identification code: 

14-5033 2007 Act 2008 CY 2009 BY 

1000 Budget year budgetary resources [14-5033] 0 0 4475 
Bureau of Land Management 2009 Budget Justifications 

Section V- Land Acquisition Page V-32 

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Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-1

Appropriation: Oregon and California Grant Lands 

APPROPRIATION LANGUAGE SHEET

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-of-way; and acquisition of lands or interests therein, including existing 

connecting roads on or adjacent to such grant lands; [$110,242,000] $108,253,000, 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 a 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). (Department of the Interior, Environment, and Related Agencies Appropriations 

Act, 2008.)
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-2

APPROPRIATION LANGUAGE CITATIONS

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 grant lands and Reconveyed Coos Bay Wagon Road 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 (§103(e)). However, §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 

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, disease, and insects. 

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. 

PL 110-28, Provided one additional 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. 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-3

Healthy Forest Restoration Act (P.L. 108-148)- authorizes the BLM and the U.S. Forest 

Service to conduct hazardous fuel reduction projects on federal land in wildland-urban interface 

areas and on certain other federal lands using expedited procedures. 

Forest Counties Payments Committee Term Extension (P.L. 108-319) - extends the term of 

the advisory committee on the forest counties payments until September 30, 2007. 

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 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-4

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 the Revested Oregon 

and California grant lands and the Reconveyed Coos Bay 

Wagon Road Lands located in western Oregon. 

The Act of May 24, 1939 

(53 Stat. 753) 

 Relates to the disposition of funds from the CBWR grant 

lands. 

The Timber Protection 

Act of 1922 (16 U.S.C. 

594) 

 Provides for the protection of timber from fire, disease, and 

insects. 

The Federal Land Policy 

and Management Act of 

1976 (43 U.S.C. 1702, 

1701 note) 

 Applies to all "public lands'' that include the O&C grant 

lands by definition (§103(e)). However, §701(b) provides 

that if any provision of FLPMA is in conflict with or 

inconsistent with the O&C Act and the CBWR 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 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 Secure Rural 

Schools and 

Community SelfDetermination 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. 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-5

Summary of Requirements ($000) 

 Fixed Costs & Program 2009 Inc(+) 

Comparison 2007 2008 Related Changes Changes Budget Dec(-) 

by Activity/ Enacted Enacted (+/ -) (+/ -) Request from 2008 

Subactivity FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount 

 

 Oregon and 

California Grant 

Lands 864 108,991 864 108,522 0 1,429 -5 -1,698 859 108,253 -5 -269 

 

 

 Western Oregon 

Construction and 

Acquisition 2 302 2 311 0 3 0 -1 2 313 0 +2 

 

 Construction 0 0 0 0 0 0 0 0 0 0 0 0 

 

 Acquisition 2 302 2 311 0 3 0 -1 2 313 0 +2 

 

 Western Oregon 

Transportation 

and Facilities 

Maintenance 89 10,782 89 10,919 0 134 -1 -120 88 10,933 -1 +14 

 

 Operations 19 2,044 19 2,079 0 24 -1 -46 18 2,057 -1 -22 

 

 Annual 

Maintenance 68 7,679 68 7,798 0 110 0 -72 68 7,836 0 +38 

 

 Deferred 

Maintenance 2 1,059 2 1,042 0 0 0 -2 2 1,040 0 -2 

 

 Western Oregon 

Resources 

Management 772 95,752 772 95,140 0 1,291 -10 -2,062 762 94,369 -10 -771 

 

 Forest 

Management 256 27,264 256 30,681 0 452 -1 -254 255 30,879 -1 +198 

 

Nat'l Monuments 

& Nat'l Cons. 

Areas 159 24,522 159 23,619 0 265 0 -180 159 23,704 0 +85 

 

 Other Forest 

Resources 310 37,402 310 37,190 0 490 -4 -594 306 37,086 -4 -104 

 

 Resource 

Management 

Planning 47 6,564 47 3,650 0 84 -5 -1,034 42 2,700 -5 -950 

 

 Western Oregon 

Information & 

Data Systems 1 2,155 1 2,152 0 1 0 -1 1 2,152 0 0 

 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-6

Summary of Requirements ($000) 

 Fixed Costs & Program 2009 Inc(+) 

Comparison 2007 2008 Related Changes Changes Budget Dec(-) 

by Activity/ Enacted Enacted (+/ -) (+/ -) Request from 2008 

Subactivity FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount 

 Information 

Systems 

Operation & 

Maintenance 1 2,155 1 2,152 0 1 0 -1 1 2,152 0 0 

 

Nat'l Landscape 

Conservation 

System 0 0 0 0 0 0 6 486 6 486 6 486 

 Nat'l Monuments 

& Nat'l Cons. 

Areas 0 0 0 0 0 0 6 486 6 486 +6 +486 

 

 Jobs-in-theWoods 0 0 0 0 0 0 0 0 0 0 0 0 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-7

Justification of Fixed Costs and Related Changes 

 (dollars in thousands) 

 

2008 

Budget 

2008 

Revised 

2009 

Fixed 

Costs 

Change 

 

Additional Operational Costs from 2008 and 2009 

January Pay Raises 

1. 2008 Pay Raise, 3 Quarters in 2008 Budget +1,840 +1,811 NA

 Amount of pay raise absorbed through cost savings [336] NA

 

2. 2008 Pay Raise, 1 Quarter (3.5%) NA NA +477

 Amount of pay raise absorbed through cost savings [80]

 

3. 2009 Pay Raise (Assumed 2.9%) NA NA +1,107

 Amount of pay raise absorbed through cost savings [277]

 These adjustments are for an additional amount needed to fund estimated pay raises for Federal employees. 

 Line 1, 2008 Revised column is an update of 2008 Budget estimates based upon an enacted 3.5% and the 1.56% across 

the board reduction. 

 Line 2 is the amount needed in 2009 to fund the enacted 3.5% January 2008 pay raise from October through December 

2008. 

 

Line 3 is the amount needed in 2009 to fund the estimated 2.9% January 2009 pay raise from January through September 

2009. 

 

2008 

Budget 

2008 

Revised 

2009 

Fixed 

Costs 

Change 

 Other Fixed Cost Changes 

 Two More Pay Days 601 592 

 Amount absorbed through cost savings [12] 

 This adjustment reflects the increased costs resulting from the fact that there are two more pay days in 2008 than in 2007. 

 One Less Pay Day in 2009 -243

 This adjustment reflects the decreased costs resulting from the fact that there is one day less in 2009 than in 2008. 

 Employer Share of Federal Health Benefit Plans 131 129 +88

 Amount absorbed through cost savings [2] [22]

 

This adjustment is for changes in the Federal government's share of the cost of health insurance coverage for Federal 

employees. The increase is estimated at 3.0%, the average increase for the past few years. 

 Total Fixed Costs Absorbed [379]

 Total Fixed Costs Funded +1,429
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-8

APPROPRIATION DESCRIPTION

The Oregon and California grant lands appropriation provides for management of the revested 

O&C Railroad grant lands and the reconveyed Coos Bay Wagon Road grant lands. This 

appropriation supports all four of the mission goals for the Department’s Strategic Plan 

(Resource Protection, Resource Use, Recreation, and Serve Communities) by managing the 

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. 

O&C grant lands, CBWR lands, and 

intermingled public domain lands comprise 2.4 

million acres that are managed with this 

appropriation. Resources on public domain 

land (10 percent of the area) are managed 

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 and managed with U.S. 

Forest Service funds. However, receipts 

generated from U.S. Forest Service activities on 

these lands are returned to the BLM. The O&C 

appropriation has four major budget activities 

that are summarized below. These activities fund the implementation of the Northwest Forest 

Plan and support 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. No new additional funding has been requested for or 

appropriated to the construction component of this account for the past several years. The 

most recent funding received was emergency supplemental funding for flood damage repair 

work in 1996 and 1997. Major new construction projects are currently being funded through 

the BLM’s Construction appropriation. 

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. Efforts are focused on maintaining the 

transportation system that is necessary for effective implementation of the Northwest Forest 

Plan. Road maintenance activities help to ameliorate the negative impacts of poor road 

conditions on aquatic and fisheries resources, including salmon populations and other 

resident and anadromous fish populations in the Northwest. Funding will continue to be 

directed toward the highest-priority deferred maintenance projects, consistent with the 

BLM’s 5-Year Deferred Maintenance and Capital Improvement Plan. 

BLM LANDS IN WESTERN OREGON

(ACRES) 

BLM-managed Lands 

 O&C Grant Lands 2,084,800 

 CBWR Lands 74,500 

 Public Domain Lands 239,500 

 Subtotal 2,398,800 

U.S. Forest Service-managed Lands 

 Converted O&C Lands 462,700 

 Special O&C Lands 29,700 

 Subtotal 492,400 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-9

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 and improving water and air quality. In December of 2008, the BLM plans to 

issue the Records of Decision for the six western Oregon Resource Management Plans and 

begin the implementation of activities as outlined under the new Records of Decision in 

2009. 

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. 

 

THE NORTHWEST FOREST PLAN

Since 1994, the BLM has implemented the 

Northwest Forest Plan (NWFP) in western 

Oregon and northern California, and has 

achieved significant accomplishments. The focus 

of this section is the O&C appropriation which 

funds activities only in western Oregon. The 

timber targets and accomplishments displayed in 

the table on the following page are for BLMmanaged lands in both western Oregon and 

northern California, even though timber activities 

in northern California are funded by other 

appropriations. The rest of this discussion will 

focus on the O&C programs of western Oregon. 

A sustainable level of timber sales and other 

forest products is an important goal of the NWFP. 

The long-term timber target, or Allowable Sale 

Quantity, of the NWFP was set at 211 MMBF for 

BLM-managed lands in western Oregon (see 

table below). Shortly after the implementation of the NWFP, 211 MMBF of timber were offered 

for sale. However, legal challenges and implementation of the Plan’s requirement to “survey 

and manage” certain species greatly reduced the BLM’s ability to offer timber sales beginning in 

1999 and continuing through 2007. For example, an annual average of 64 MMBF (less than 30 

percent of the ASQ) was offered from 1999 to 2001. 

The BLM manages 2.4 million acres in western 

Oregon under the NW Forest Plan of which 

500,000 acres are available for timber harvest. 

In 2007, the BLM offered 195.6 million board 

feet of timber for sale in Oregon. 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-10

The ASQ was recalculated from 211 MMBF to 203 MMBF. Between 2001 and 2007, the BLM 

has offered the following volume for sale (MMBF): 

 

 

 2001 - 56.4 

 2002 - 162.5 

 2003 - 162.7 

 2004 - 140.0 

 2005 - 198.2 

 2006 – 200.6 

 2007 – 195.6 

The estimated volume offered in 

western Oregon will be 236.8 MMBF for 

2008, including 71 MMBF by thinning 

Late-Successional Reserves. The 

estimated volume offered for 2009 will 

be 268.8 MMBF, including 82 MMBF of 

LSRs. However, the attainment of these 

timber sale levels in 2008 and 2009 is 

contingent on the outcome of lawsuits 

filed in 2006 relating to the Survey and 

Manage program and Endangered 

Species Act consultation on the 

Northern spotted owl. 

Two changes to the NWFP completed in 

2004 (Supplemental Environmental 

Impact Statements (SEIS) on Survey 

and Manage and the Aquatic 

Conservation Strategy) were expected 

to increase efficiencies by allowing the 

BLM to use a wider variety of 

silvicultural and harvest prescriptions 

thereby enabling the BLM to produce 

the ASQ as outlined in the Northwest 

Forest Plan. At the current time, 

litigation is preventing the BLM from 

capitalizing on the efficiencies gained 

from these Environmental Impact 

Statements (EISs). A second SEIS on Survey and Manage was completed in 2007. The legal 

sufficiency of this SEIS has yet to be challenged in court. The Departments of Interior and 

Agriculture have recently received a Notice of Intent to sue. 

BLM NWFP TIMBER TARGETS (MMBF) 

Allowable Sale Quantity 

for 1997-2009 

Volume Offered 

Year 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 2.5 213.5 212.0 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 1.0 204 56.4 0.1 56.5

2002 203 1.0 204 162.5 0.4 162.9

2003 203 1.0 204 162.7 0.0 162.7

2004 203 1.0 204 140.0 0.1 140.1

2005 203 1.0 204 198.2 7.7 205.9

2006 203 1.0 204 200.6 0.6 201.2

2007 203 1.0 204 195.6 3.2 198.8

2008 est. 203 1.0 204 236.0 0.8 236.8

2009 est.* 203 1.0 204 268.0 0.8 268.8

Note: Timber volumes are displayed for BLM-lands in California that are 

managed under the NWFP, even though these activities are funded by 

other BLM appropriations and not the O&C appropriation. *2009 volume 

estimate includes 186 MMBF ASQ set by the Northwest Forest Plan 

plus an additional 82 MMBF to partially meet the terms of the Settlement 

Agreement in the AFRC v. Clarke lawsuit. Successful completion and 

implementation of the ongoing Western Oregon Plan Revisions may 

satisfy the Settlement Agreement and its terms may no longer apply. 

O&C ASQ Volume Offered for Sale 

2001-2006 

0

50

100

150

200

250

2001

2002

2003

2004

2005

2006

2007

MMBF
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-11

The NWFP promotes and protects old-growth dependent species, primarily with a system of 

Late Successional Reserves (LSR) that comprise 30 percent of BLM and U.S. Forest Service 

forestlands in the region. These areas, in combination with the other land use allocations and 

management direction, will maintain a functional, interactive late-successional and old-growth 

forest ecosystem in the long-term. These LSRs are designed to serve as habitat for species that 

depend on late-successional and old-growth ecosystems, such as the northern spotted owl and 

marbled murrelet. Timber harvest is conducted in these areas only to promote development of 

late-successional characteristics in younger stands within the LSRs. In an effort to identify 

measures that could accelerate the development 

of old-growth characteristics and to better 

understand these reserves, the BLM has 

completed LSR assessments for all of these 

areas. The BLM has been implementing 

recommendations from the LSR assessments, 

including increasing the amount of thinning of 

younger stands to accelerate attainment of oldgrowth characteristics (also a requirement of the 

settlement agreement in AFRC et al. v. Clarke 

[BLM] lawsuit). 

Monitoring is an important component of the 

NWFP and has been accomplished by both 

Federal and non-Federal entities. Monitoring 

includes random visits to selected timber sales 

and restoration projects. Results have 

consistently shown 95 percent compliance with 

NWFP requirements for resource protection. 

Effectiveness monitoring evaluates whether a 

management action has achieved the desired 

goals designed by interagency teams of scientists 

to meet the NWFP requirement for northern 

spotted owls, marbled murrelets, and aquatic 

systems. Results of effectiveness monitoring are 

considered to be preliminary because changes in 

ecological processes will likely take decades to 

achieve, as will measurable monitoring results. 

The NWFP was designed to achieve a balance between environmental protection and 

predictable and sustainable production of commodities, principally timber. Despite the balanced 

objectives identified by the NWFP, timber sale activities continue to be subjected to a 

proliferation of administrative appeals and litigation. Responding to these actions has increased 

the quantity of environmental analysis and documentation, and associated costs of all 

management activities under the NWFP. As a result, the Federal agencies have not yet 

achieved the balance envisioned by the Plan. The BLM continues to strive to meet these 

objectives, along with the objectives of other policies, such as the National Fire Plan and the 

National Energy Policy within a complex setting of legal requirements and challenges. 

Aerial logging is one of many techniques used 

to remove timber in an environmentally 

responsible fashion.
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-12

Settlement Agreement – In 2003, The Secretary of Agriculture and the Secretary of the 

Interior, and the American Forest Resource Council (AFRC) and the Association of O&C 

Counties agreed to settle a long standing lawsuit AFRC et al v. Clarke (BLM), which revolved 

around the alleged inappropriate application of reserves and wildlife viability standards to 

Oregon and California Railroad lands. 

The key points of the agreement are: 

1. The BLM will annually offer the full NWFP probable sale quantity of 203 MMBF from 

BLM Matrix Land Use Allocation of the NWFP and 100 MMBF by thinning in the LSRs 

land use allocation of the NWFP, contingent on the availability of funding. 

2. Contingent on funding, the BLM will revise its Resource Management Plans for its Coos 

Bay, Eugene, Lakeview, Medford, Roseburg, and Salem Districts, by 2008, and will 

consider in such revisions an alternative which will not create any reserves on O&C 

lands except as required to avoid jeopardy under the Endangered Species Act. All plan 

revisions shall be consistent with the O&C Act as interpreted by the 9th Circuit Court of 

Appeals. The intent in revising the plans is to meet the terms of the Settlement 

Agreement, and create more legally defensible plans that would support a sustained 

offering of the new ASQ. 

3. The BLM and USFS will propose research and demonstration projects and evaluate 

alternative silvicultural practices in the three NWFP Adaptive Management Areas which 

were created in the NWFP to foster innovative methods for forest management, 

community collaboration, and technical applications. One Adaptive Management Area 

will have a proposed project that tests the Multi-Resource Land Allocation Model, which 

looks at the impacts of a light timber harvest (all age thinning) instead of reserves. 

The BLM demonstrates its commitment to the Settlement Agreement with the funding requested 

and received in 2005, 2006, and in the 2007 funding increase requested in the Forest 

Management, Other Forest Resources Management, and the Resource Management Planning 

programs. In 2008 and 2009, the BLM anticipates using $9.0 million from unobligated balances 

in the Timber Sale Pipeline Restoration Fund to support additional timber volume being offered 

for sale in the Forest Management program which also demonstrates BLM’s commitment to the 

Settlement Agreement. Successful completion and implementation of the ongoing Western 

Oregon Plan Revisions may satisfy the Settlement Agreement and its terms may no longer 

apply. 

Western Oregon Plan Revisions – On August 10, 2007, the BLM released for public review 

and comment a Draft Environmental Impact Statement (EIS) for future management of 2.4 

million acres of public lands in Western Oregon. The BLM is proposing to revise existing plans 

to replace the Northwest Forest Plan because: (1) the BLM plan evaluations found that the BLM 

has not been achieving the timber harvest levels directed by the existing plans, and the BLM 

now has more detailed and accurate information than was available in 1995 on the effects of 

sustained yield management on other resources; (2) there is an opportunity to coordinate the 

BLM management plans with new recovery plans and redesignations of critical habitat currently 

under development; and (3) the BLM has refocused the goal for management of the BLMadministered lands to the objectives of its statutory mandate to utilize the principles of sustained 

yield management on the timber lands covered under the O&C Act to contribute to the 

economic stability of local communities and industries, and realize other benefits from such 

management of watersheds, stream flows, and recreation. 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-13

The purpose and need for this plan revision is to manage the BLM-administered lands for 

permanent forest production in conformity with all the principles of sustained yield, consistent 

with the O&C Act. The plans will also comply with all other applicable federal laws including, but 

not limited to, the Endangered Species Act, the Clean Water Act, and, to the extent that it is not 

in conflict with the O&C Act, the Federal Land Policy and Management Act. In accord with the 

Endangered Species Act, the plans will use the BLM’s authorities for managing the lands it 

administers in the planning area to conserve habitat needed from these lands for the survival 

and recovery of species listed at threatened or endangered under the Endangered Species Act. 

The Preferred Alternative of the Draft EIS identified a possible harvest level up to 767 MMBF 

(includes 727 of allowable sale quantity volume and 40 MMBF of thinning volume in the 

anticipated Late Successional Management Areas to meet late-successional forest habitat 

development objectives). Continued planning effort is underway to develop the Proposed 

Alternative for the Final EIS. The current schedule indicates the issuance of the Record of 

Decision in December of 2008 with implementation commencing in 2009. 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-14

O&C REVENUES AND RECEIPTS

O&C timber receipts are derived from the harvest of timber on the O&C grant lands, the CBWR 

grant lands, intermingled public domain and O&C grant lands under the jurisdiction of the U.S. 

Forest Service. Since 1998, the BLM has deposited the proceeds from timber sales of Section 

2001(k) of the 1995 Supplemental Appropriations for Disaster Assistance and Rescissions Act 

(P.L. 104-134), and corresponding replacement volumes, into the Timber Sale Pipeline 

Restoration Fund. 

TIMBER RECEIPTS FROM O&C and CBWR LANDS (Million $) 

2005 2006 2007 2008 est. 2009 est. 

O&C Grant Lands 

 Regular Sales 10.0 11.7 15.8 27.0 28.5

 Salvage Sales 3.1 4.4 4.5 5.0 5.0

 Subtotal 13.1 16.1 20.3 32.0 33.5

CBWR Lands 

 Regular Sales 0.1 0.5 0.7 3.0 3.2

 Salvage Sales 0.1 0.2 0.0 0.5 0.5

 Subtotal 0.2 0.7 0.7 3.5 3.7

Timber Sale Pipeline Restoration Fund 

Regular Sales 9.3 12.7 10.2 5.0 6.0

Total Receipts 22.6 29.5 31.2 40.5 43.2

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 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 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. The BLM annually provides to the 

Appropriations Committees a report on the expenditures made from the Pipeline Fund for timber 

sales and recreation projects, revenues received into the Pipeline Fund from timber sales, and 

timber sale preparation and recreation maintenance project work. 

At the end of 2007, the balance in the fund had grown to $25.8 million. This rapid growth is due 

to increasing success in the harvest of pipeline sales and higher timber values. A spend down 

plan has been implemented to bring the fund balance down to approximately $8.0 million in 

2011. This carryover balance is necessary to offset irregular deposits caused by fluctuating 

timber market conditions and to stabilize and meet the objectives of rebuilding the timber sale 

pipeline.
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-15

DEPOSITS AND EXPENDITURES, 

TIMBER SALE PIPELINE RESTORATION FUND 

($000)

Year Annual Deposit 

Cumulative 

Deposit

Annual 

Expenditure 

Cumulative 

Expenditure

1998 38,193 38,193 4,474 4,474

1999 0 38,193 9,931 14,405

2000 0 38.193 8,288 22,693

2001 3,677 41,870 7,558 30,251

2002 563 42,433 5,495 35,746

2003 3,070 45,503 5,270 41,016

2004 7,919 53,422 2,827 43,843

2005 8,917 62,339 2,908 46,751

2006 12,455 74,794 5,070 51,821

2007 11,082 85,876 8,403 60,224

2008 est. 5,000 90,876 11,552 71,776

2009 est. 6,000 96,876 10,552 82,328

Recreation Projects - Significant progress has been made in western Oregon to address the 

recreation project backlog. By the close of 2008, the BLM will have completed $17.6 million in 

backlog maintenance work at 43 recreation sites. The principal focuses are maintenance of 

existing facilities, critical safety needs, and meeting the requirements of the Americans with 

Disabilities Act. For example, the BLM has spent considerable effort renovating water and 

sewer systems, replacing restrooms, improving parking areas, and adapting existing recreation 

sites for handicapped visitors. 

Timber Sales - The other 75 percent of the Pipeline Fund is used specifically to prepare timber 

sales, including all necessary environmental inventories and analyses, sale layout, timber 

cruise, and contract costs. Upon completion of these requirements, a sale is officially prepared 

and placed “on-the-shelf” in anticipation of being offered for sale. Timber sale preparation also 

depends on BLM’s skilled and experienced Forest Management workforce, particularly foresters 

and forest technicians. Today, the average age of this forestry workforce in western Oregon is 

approximately 50 years. The BLM’s focus will be to replace skills needed to prepare and 

administer timber sales. 

Between 1998, when funds for the Timber Sale Pipeline Restoration Fund were first collected, 

and the close of 2008, the BLM will have cumulatively spent $54.2 million for the preparation of 

timber sales and offered approximately 431 MMBF for sale that was funded by the Pipeline 

Fund. A portion of the 268 MMBF planned to be offered for sale in western Oregon in 2009 is 

funded by the Pipeline Fund. In 2009, $6,000,000 from associated timber sales is expected to 

be deposited into this fund with an estimated year-end unobligated balance of $14.8 million, a 

reduction of $11.1 million (43%) from the 2007 level, and a reduction of $4.5 million (24%) from 

the 2008 level. 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-16

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. 

Under Secure Rural Schools and Community 

Self-Determination 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, P.L. 106-393, 

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. Under the Act, the BLM worked 

collaboratively with the five western Oregon Resource Advisory Committees, which have 

reviewed over 1,024 projects and recommended 591 restoration projects for implementation, 

worth approximately $42.8 million. 

Receipts from public domain lands within the O&C grant lands are distributed to the State of 

Oregon (4 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 Timber Sale Pipeline Fund, which are deposited into those 

accounts.PL 106-393 expired in 2006. Final payments for 2006 were made in 2007, consistent 

with the Act. PL 110-28 provided payments for one additional year. Payments in 2009 will be 

made under two statutes enacted in 1937 and 1939, 50 Stat. 874 and 53 Stat. 753. Payments to 

17 Oregon counties under the 1937 statute will be 50% of all revenues from O&C grant lands. 

Payments under the 1939 statute are for lost tax revenue in two Oregon counties and are 

estimated to be 25% of all revenues from Coos Bay Wagon Road grant lands. 

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 

est.* 

115.9 1.0 116.9

2009 

est.* 

16.5 1.3 17.8

* These are the estimated payments in 2008 and 

2009 based on the 1937 and 1939 statutes.
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-17

HEALTHY FORESTS INITIATIVE AND FOREST MANAGEMENT IN WESTERN OREGON

The President identified several areas that need to be addressed through implementation of his 

Healthy Forests initiative that should continue to be a focus in 2009. In addition to recognizing 

that forests and rangelands in the west are threatened by deteriorating land heath, another key 

message was the promise to balance old growth protection and production of a dependable, 

sustainable level of timber harvest in the Pacific Northwest. 

On December 3, 2003, President Bush signed into law the Healthy 

Forests Restoration Act of 2003 to reduce the threat of destructive 

wildfires while upholding environmental standards and encouraging 

early public input during review and planning processes. In the 

Healthy Forest Initiative, Stewardship Contracting Authority was 

extended to the BLM and here, a collaborative group discusses 

resource improvements under one such stewardship contract on the 

Medford District in Oregon. 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-18

Activity: Western Oregon Construction and 

Acquisition 

Activity Summary ($000) 

 2009 

 Fixed Costs & Program Change 

 2007 2008 

Related 

Changes Changes Budget 

from 

2008 

Subactivity Enacted Enacted (+/ -) (+/ -) Request (+/-) 

 Construction $ 0 0 0 0 0 0

 FTE 0 0 0 0 0 0

 Acquisition $ 302 311 +3 -1 313 +2

 FTE 2 2 0 0 2 0

Total Activity $ 302 311 +3 -1 313 +2

 FTE 2 2 0 0 2 0

 

 

ACTIVITY DESCRIPTION

Funding in this program is used to acquire and protect federal access rights to public lands in 

western Oregon. The primary objective for the O&C acquisition program is to provide legal 

access to BLM timber sales. Access is the legal right to cross non-federal land to reach public 

lands. Access is obtained by the BLM through negotiated purchase of perpetual easements or 

by acquisition (fee purchase) 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 Western Oregon Acquisition program supports the Department’s Strategic Plan by 

providing for public recreation, management of resources to protect wildlife habitat and enhance 

public benefit, and to protect private and public resources and property. The primary output 

funded by this program is the number of acquisitions of land or interest in land acquired (See 

“O&C Acquisition Management Performance Summary” at that end of this program discussion). 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-19

Activity: Western Oregon Construction and 

Acquisition 

Subactivity: Western Oregon Acquisition 

Activity: Western Oregon Construction and Acquisition 

Subactivity: Acquisition 

 2009 

 Fixed Costs & Program Change 

 2007 2008 Related Changes Changes Budget 

from 

2008 

 Enacted Enacted (+/ -) (+/ -) Request (+/-) 

Acquisition ($000) 302 311 +3 -1 313 +2

 

FTE 2 2 0 0 2 0

Other Major Resources: 

 

Major Program IT Investments: 

 

 

Summary of 2009 Program Changes for Acquisition 

Request Component ($000) FTE

Program Changes: 

• Organizational & Administrative Streamlining -1 

TOTAL, Program Changes -1 0

JUSTIFICATION OF 2009 PROGRAM CHANGES

The 2009 budget request for Western Oregon Acquisition is $313,000 and 2 FTE, a net 

increase of $2,000 and 0 FTE from the 2008 enacted level. 

PROGRAM OVERVIEW

The majority of public lands administered by the BLM in western Oregon are intermingled with 

private lands in a checkerboard pattern, which creates significant access needs for the BLM. 

Legal access to O&C Grant Lands across non-Federal lands has become increasingly important 

for the BLM to effectively implement the Northwest Forest Plan and the Healthy Forests 

Initiative. It is estimated that there are nearly 5,000 separate tracts of land administered by the 

BLM in the O&C area which require some form of access for proper management and 

protection. 

Typically, legal access to public lands is obtained by acquiring lands or interests in lands 

(easements) through direct purchase, donations, or reciprocal grants. The BLM Districts in 

western Oregon continue to acquire needed public and/or administrative access to the O&C 

timberlands through the acquisition of nonexclusive and exclusive easements over intermingled 

private lands. 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-20

Funding for the O&C acquisition program supports the acquisition needs of BLM field operating 

units, including access for forest treatments and timber sales, forest road and trail development, 

watershed and riparian restoration projects, and public access for recreational activities, 

including hunting, fishing, and hiking. Access acquisition continues to be an important tool in the 

implementation of forest health and habitat restoration goals including: 

• The Northwest Forest Plan. 

• Healthy Forests Initiative. 

• Fish and wildlife habitat restoration programs through state and local partnership efforts, 

such as the Governor of Oregon’s Coastal Salmon Initiative. 

• Cooperative Watershed Agreements under “Wyden Amendment” authority. 

• Long-term monitoring for protection of species listed under the Endangered Species 

Act. 

The O&C Acquisition program follows strict procedures and guidelines. For example, the BLM 

does not consider acquisitions completed until the titles are accepted by the Department of 

Justice The use of office automation has improved performance in completing transactions, 

including development of easement document templates, improved survey techniques using 

Global Positioning Satellites (GPS), e-mail communications with private business in obtaining 

title information, and interactions with the National Business Center in the disbursement of funds 

used for purchasing acquisitions. 

Long-term Vision- The long term goal of the Western Oregon Acquisition Program is to provide 

access to lands in the O&C area which are fundamental to implementing Resource 

Management Plans (RMPs), the O&C Act, and the Federal Land Policy and Management Act. 

Current access issues identified by the BLM in western Oregon include: 

• Increased harvest and reforestation costs for BLM timber sales. On a typical BLM timber 

sale, the lack of legal access to the sale could reduce timber values by as much as $ 

750,000. 

• Trespass by the public over non-federal lands to reach public lands designated for 

dispersed recreation use, including Off Highway Vehicles. 

• Closure of historic access routes and privatization of public lands and resources by 

adjacent landowners. Defense of historic access routes to public lands with the adjoining 

private landowners is expensive but necessary. 

Critical Factors- 

• The O&C lands in western Oregon are interspersed with private lands, usually in 

alternating sections, resulting in a constant need to acquire and maintain rights-of ways 

to accomplish the BLM’s mission. Equally important is working with landowners to 

provide access across BLM lands to reach private lands. 

• Land values in the Pacific Northwest continue to outpace the National average and 

inflation. Most access easements which are successfully acquired by the BLM in western 

Oregon require compensation in excess of the agency’s appraised value. Expenditures 

include surveys, appraisals, environmental and title clearance, and payment of just 

compensation to the landowner(s). 

• The success of the O&C acquisition program is also dependent, in large part, on the 

effectiveness of BLM negotiations with private landowners. Numerous obstacles, 

including landowner attitude toward the federal government and its programs, privacy, 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-21

changing land uses, and lack of support for eminent domain, leave many planned 

acquisitions uncompleted. The general trend has been a reduction of agency expertise 

in the O&C acquisition program. The O&C acquisition program facilitates the 

implementation of forest development and recreation programs and will follow 

adjustments in those program areas. 

Means and Strategies- Obtaining access to BLM lands in the O&C area presents considerable 

challenges to agency negotiators and land managers. Opportunities for success are limited 

when the BLM is trying to secure access unilaterally, so the agency is taking advantage of 

situations when a landowner is requesting access to BLM lands or roads and the BLM needs 

access over the landowner’s property. This scenario is becoming more common and provides a 

“reciprocal” access opportunity and a win-win for both the BLM and the landowner to meet each 

other’s access needs. 

The BLM in western Oregon is using advanced office and field technology tools to improve 

efficiencies in the access acquisition program, including route planning and analysis based on 

BLM geographic information systems (GIS) data, survey grade global positions systems (GPS) 

hardware and software programs for preparation of right-of-way exhibits, and communicating 

and document transfers with private landowners, title companies and other interest parties 

through the internet. 

Other Funding Sources- This subactivity funds the highest priority access projects. Other 

benefiting subactivities, including recreation, Healthy Forests (5900), and O&C forest 

management (6310) subactivities provide supplemental funding to obtain access in support of 

their program initiatives. 

 

Strategic Plan- The Western Oregon Construction and Acquisition program continues to 

support the strategic plan of the Department in the following areas:

Resource Protection - Provide access to public lands for watershed restoration and forest health 

projects. 

Resource Use – Provide access to public lands for the transportation and removal of timber 

offered for sale. 

Recreation – Provide adequate legal public access to public lands for dispersed recreation 

opportunities, including hunting, sight seeing, hiking, horseback riding, and fishing. Provide 

public access to existing and proposed BLM recreation sites and acquire lands or interests in 

lands needed for recreation development. 

Serving Communities – Provide access to public lands for resource development, energy 

transmission, and management of the urban interface to reduce wildfire influence. 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-22

2009 PROGRAM PERFORMANCE 

2007 Accomplishments 

• The BLM acquired 5 acres of access right-of-way in 2007 and provides legal access to 

an additional 5000 acres of public lands in western Oregon. 

• An additional 2241 acres of access right-of-way was acquired by the BLM in 2007 

through the reciprocal right-of-way agreement program. 

2008 Planned Program Performance- In 2008, the Western Oregon Acquisition program plans 

to acquire, manage, and protect United States access rights acquired by the BLM for 

management of approximately 2.4 million acres of BLM administered lands in the O&C area. 

We anticipate the acquisition of 8 acres of access right-of-way to allow the BLM to restore atrisk riparian areas and priority watersheds, restore plant and animal habitat, and provide a 

sustainable timber harvest level. 

2009 Planned Program Performance- In 2009, the Western Oregon Acquisition program plans 

to acquire, manage, and protect United States access rights acquired by the BLM for 

management of approximately 2.4 million acres of the BLM administered lands in the O&C area. 

We anticipate the acquisition of 10 acres of access right-of-way, an increase in access needs 

from 2008 associated with implementation of the Western Oregon Plan Revisions and ramp-up 

in timber management activities. 
Bureau of Land Management 2009 Bu

Section VI-Oregon and California Grant Lands 

O&C ACQUISITION MANAGEMENT PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Planned 2007 Actual 2008 Plan 2009 President's Budget 

Change 

from 

2008 

Plan to 

2009 

Increase the number and acreage of land acquisitions to improve land tenure distribution (Bur) 40,712 90,655 72,887 25,000 46,560 4,434 333 -92% Total Actual/Projected Cost ($000) $225,468 $193,078 $80,069 $0 $141,973 $109,300 $105,189 -$4,111 $Actual/Projected Cost per Acre 

(in dollars) $5,538 $2,130 $1,099 $0 $3,049 $24,650 $315,822 $291,172 $

Comments: 

The number of acres planned for land acquisition is based on actual projects and will show a wide variance each year. Results for the Southern Nevada Public Lands Management Act (SNPLMA) are included in the 2

2006 rollup of all participating programs. SNPLMA developed separate bureau measures in 2006 which will 

change the results shown in this measure. In 2009, Western Oregon Acquisitions will acquire 10 acres whicincluded in the total of 333 acres acquired. 

Process Land Purchase/Donation (number of acres) 10 7 4 41 5 8 10 +2 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-24

Activity: Western Oregon Transportation and 

Facilities Maintenance 

Activity Summary ($000) 

 2009 

 Fixed Costs & Program Change 

 2007 2008 

Related 

Changes Changes Budget 

from 

2008 

Subactivity Enacted Enacted (+/ -) (+/ -) Request (+/-) 

 Operations $ 2,044 2,079 +24 -46 2,057 -22

 FTE 19 19 0 -1 18 -1

 Annual Maintenance $ 7,679 7,798 +110 -72 7,836 +38

 FTE 68 68 0 0 68 0

 Deferred Maintenance $ 1,059 1,042 0 -2 1,040 -2

 FTE 2 2 0 0 2 0

Total Activity $ 10,782 10,919 +134 -120 10,933 +14

 FTE 89 89 0 -1 88 -1

 

 

ACTIVITY DESCRIPTION

BLM facilities in western Oregon include administrative sites, large visitor centers, radio 

repeater buildings, restrooms, warehouses, storage structures, maintenance shops, 

greenhouses, recreation sites, as well as roads, and bridges. The increase in public land use 

over the last decade has required the BLM to relocate and upgrade many of its facilities in order 

to reduce health and safety risks, meet environmental requirements, or comply with building 

codes and standards. 

The Western Oregon Transportation and Facilities Maintenance program improves 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 will continue to conduct 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 the following: 

• Buildings and Administrative Facilities - In western Oregon, the BLM maintains 65 

administrative sites and 425 BLM-owned buildings, including office buildings, greenhouses, 

small radio repeater buildings, and well houses. Included in these facilities are 71 water 

systems, 113 sewer systems, and 46 electrical distribution systems. 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-25 

• Recreation Sites - The principal goal of recreation site maintenance is to protect visitor 

safety and resource values at 129 recreation sites in western Oregon. In 2009, the program 

will continue to provide garbage disposal, service sanitation facilities, safe drinking water, as 

well as repair and maintain facilities, and mitigate hazards. The BLM has 11 recreation sites 

in western Oregon participating in the Recreation Fee program. It is estimated that 

$400,000 from fee collections will be returned to these sites in 2009 to address critical 

maintenance needs. 

• Transportation - The western Oregon transportation system consists of 14,000 miles of 

roads (4,000 miles of timber hauling roads involve reciprocal maintenance agreements with 

private parties including 131 miles designated as Back Country Byways), 324 miles of trails, 

and two airstrips, along with related structures, including 353 bridges, 488 major culverts, 2 

dams, and multiple retaining walls and subsurface drainage systems. 

 

• Maintenance work will be completed on high-priority roads, trails, and bridges that are 

essential to ensure an acceptable level of public safety, management access for fire 

protection and the ability to carry out the management objectives of Resource Management 

Plans. Most system roads, trails, and airstrips used by the public are maintained using 

appropriated funds. Timber haul roads, or “fee roads,” are maintained using road 

maintenance fees that are collected from commercial users and deposited into a permanent 

operating fund for road maintenance. 

The Western Oregon Transportation and Facilities Maintenance program supports the 

Recreation mission goal in the Department’s Strategic Plan, by ensuring a quality experience 

and enjoyment of recreation resources on BLM-managed lands and waters. This program also 

supports the Serve Communities mission goal by improving public safety and security and 

protecting public resources from damage. Key intermediate outcome measures of performance 

include increasing the number of recreation sites in good or fair condition (See the O&C 

Transportation and Facilities Management Performance Summary at the end of the Deferred 

Maintenance subactivity). 

Use of Performance and Cost Management Data 

BLM has continued to use performance and cost data from the 

Maintenance Organization’s internal database and 

Management Information System in order to assure effective 

overall maintenance management of OR/WA roads and 

facilities. Daily work accomplishments are recorded in the 

database for each employee performing maintenance functions. 

Reports are available for review purposes continually 

throughout the year to show maintenance work on roads and 

facilities related to their condition. 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-26 

Activity: Western Transportation and Facilities 

Management 

Subactivity: Operations 

Activity: Western Oregon Transportation and Facilities Maintenance 

Subactivity: Operations 

 2009 

 Fixed Costs & Program Change 

 2007 2008 

Related 

Changes Changes Budget 

from 

2008 

 Enacted Enacted (+/ -) (+/ -) Request (+/-) 

Operations ($000) 2,044 2,079 +24 -46 2,057 -22

 

FTE 19 19 0 -1 18 -1

Other Major Resources: 

 

Major Program IT Investments: 

 

 

Summary of 2009 Program Changes for Operations 

Request Component ($000) FTE

Program Changes: 

• Organizational & Administrative Streamlining -7 

• Travel & Relocation Expenses -6 

• Nat'l Monument & Nat'l Conservation Area funding (new subactivity created) -33 -1

TOTAL, Program Changes -46 -1

JUSTIFICATION OF 2009 PROGRAM CHANGES

The 2009 budget request for Western Oregon Transportation and Facilities Maintenance 

Operations program is $2,057,000 and 17 FTE, a net program change of -$46,000 and 2 FTE 

from the 2008 enacted level. 

National Monuments and National Conservation Areas Funding (-$33,000) 

The BLM is proposing a new subactivity to fund base operations at National Monuments and 

National Conservation Areas. As a result, $33,000 is shifted from the Western Oregon 

Transportation and Facilities Annual Maintenance subactivity to the new subactivity within the 

O&C account. The funding shifted from the Western Oregon Transportation and Facilities 

Annual Maintenance subactivity is funding currently spent in the National Monuments and 

National Conservation Areas, to meet the goals of the Western Oregon Transportation and 

Facilities Annual Maintenance program. The funding will continue to be spent on Western 

Oregon Transportation and Facilities Annual Maintenance priorities, but it will be managed 

through the NLCS-National Monuments and National Conservation Areas subactivity. 

Performance in the Western Oregon Transportation and Facilities Annual Maintenance 

subactivity will decrease due to the funding shift; however, this performance will shift to the 

NLCS-National Monuments and National Conservation Areas O&C subactivity and is shown in 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-27 

the performance goals for that subactivity. For more information about the new NLCS-National 

Monuments and National Conservation Areas subactivity, see section III, paragraph 2.

PROGRAM OVERVIEW

Program Components- The Western Oregon Transportation and Facilities Maintenance 

program provides for the maintenance of 129 recreational facilities within the O&C lands of 

western Oregon. Operational activities include functional utilities (electricity, water and sewer), 

fuel, janitorial services, window cleaning, rodent and pest control, grounds upkeep, and waste 

management, including personnel to perform these activities. Fully operational, clean, and 

pleasant appearance of recreational facilities is important to the public. Developed recreation 

sites utilize hosts and volunteers to assist maintenance personnel in fee collection, security, 

maintaining restrooms, trails, and campgrounds during high seasonal use periods (May – 

September). Recreational areas (including dispersed ones) that are open year-round are 

maintained to a lesser degree during low use periods due to weather conditions (rain, wind, 

snow). 

Eleven of the 129 recreation sites participate in the Department’s Recreation Fee program. 

Operational maintenance is the responsibility of the new maintenance organization created as a 

result of the 2004 Competitive Sourcing Streamlining (A-76) Study. The Letter of Obligation 

(LOO) for the new maintenance organization states the costs and expectations for 2005-2010. 

Long term Vision- Operational maintenance of these facilities supports the Recreation mission 

goal from the Department’s Strategic Plan by improving the quality experience and enjoyment of 

recreational resources on BLM-managed lands and waters. This program also supports the 

Serve Communities mission goal by 

improving public safety and security and 

protecting public resources from damage. 

Other Funding Sources – Most system 

roads, trails, and airstrips used by the public 

are maintained using appropriated funds. 

Timber haul roads, or “fee roads,” are 

maintained using road maintenance fees that 

are collected from commercial users and 

deposited into a permanent operating fund for 

road maintenance.

Strategic Plan - Key intermediate outcome measures of performance include increasing the 

number of recreation buildings and sites in fair or good condition. Dispersed recreation sites will 

provide improved opportunities for Off-Highway Vehicles and other travel management 

considerations to generate a wider range of experiences for the public. 

2009 PROGRAM PERFORMANCE

2007 Accomplishments- In 2007, the Western Oregon Operations Maintenance program 

completed:

• 2,805 square feet of operational maintenance on buildings within recreation sites that 

includes: restroom cleaning, potable water system maintenance, electrical system 

maintenance, sewer system maintenance, and mechanical system maintenance. 

Program Process Improvements 

Annual reviews are performed between the 

maintenance organization and each district to 

assure the maintenance work performed meets or 

exceeds district expectations and is within 

established budgets. The OR/WA maintenance 

database provides reports to track annual 

maintenance costs on an on-going basis and can be 

compared against a monthly report prepared by the 

OR/WA state office budget analyst. The database is 

reviewed annually and modified as needed to 

provide appropriate tracking of costs and 

accomplishments. 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-28 

• Operational maintenance on 812 recreation non-building assets that includes: mowing 

lawns, trash removal, grey water removal, and shelter cleaning. 

• 35 miles of annual trail maintenance within five O&C Districts. 

2008 Program Performance- In 2008, the Western Oregon Operations Maintenance program 

plans to complete:

• 4,300 square feet of operational maintenance on approx. 300 recreational buildings in 

five O&C Districts. 

• 35 miles of annual trail maintenance within five O&C Districts. 

• Operational maintenance of 1,200 recreation site non-building assets that are 

components of grounds upkeep for landscaping, camping and picnic sites, shelters, 

interpretive displays, wells, and waste stations. 

2009 Program Performance - In 2009, the Western Oregon Operations Maintenance program 

plans to complete:

• 10,000 square feet of operational maintenance on approx. 300 recreational buildings in 

five O&C Districts. 

• 35 miles of annual trail maintenance within five O&C Districts 

• Operational maintenance of 1,200 recreation site non-building assets that are 

components of grounds upkeep for landscaping, camping and picnic sites, shelters, 

interpretive displays, wells, and waste stations. 

Use of Cost and Performance Information

The BLM continues to make extensive use of cost 

management data while managing the recreation facilities 

operational maintenance program. The A-76 Maintenance 

Organization database stores and reports cost 

management data that is integral in prioritizing operational 

maintenance activities throughout the year. Organizational 

flexibility continues to provide district staff to accomplish 

high priority operational work on recreation facilities. 
Bureau of Land Management 2009 

Section VI-Oregon and California Grant Lands 

O&C OPERATIONS PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Planned 2007 Actual 2008 Plan 2009 President's Budget Chan

from 2

Plan 

200

Maintenance: Number of square feet of buildings maintained in adequate condition, determined by FCI<0.15, at recreation sites. (Bur) 

new 

measure 

new 

measure 

new 

measure 

93% 

706,285/ 

761,903 

90% 

723,280/ 

799,420 

90% 

723,280/ 

799,420 

90% 

723,280/ 

799,420 

0% 

Total Actual/Projected Cost ($000) $0 $0 $0 $0 $23,466 $28,781 $26,429 -$2,3Actual/Projected Cost per Square Foot (in dollars) $0 $0 $0 $0 $32 $40 $37 -$3 Comments: 

This measure includes funding from Recreation Management, Maintenance Operations, AnnuaDeferred Maintenance accounts which includes the Oregon and California Grant Lands. The perfo

derived from Annual Maintenance and Maintenance Operations, and do not include Deferred Mainte

be represented by the 10% of square feet of buildings that do not meet adequate condition. The 200for deferred maintenance does not affect the performance of the measure in the short termmaintenance is more costly than annual maintenance, the remaining annual maintenance reflects a Western Oregon Operations Maintenance will provide 4,286 square feet of building annual ma

included in the total of 723,280 square feet of buildings maintained at recreation sites. 

Maintenance: Number of non-building assets maintained in adequate condition, determined by FCI<0.15, at recreation sites. (Bur) 

new 

measure 

new 

measure 

new 

measure 

88% 

11,883/ 

13,479 

88% 

14,670/ 

16,724 

88% 

14,670/ 

16,724 

88% 

14,670/ 

16,724 

0% 

Total Actual/Projected Cost ($000) $0 $0 $0 $0 $23,440 $15,541 $13,610 -$1,9Actual/Projected Cost per Asset (in dollars) $0 $0 $0 $0 $1,598 $1,059 $928 -$13Comments: 

This measure includes funding from Recreation Management, Maintenance Operations, Annual MainDeferred Maintenance accounts which includes Oregon and California Grant Lands. The performancderived from Annual Maintenance and Maintenance Operations, and do not include Deferred Mainten

be represented by the 12% of non-building assets that do not meet adequate condition. The 2009 de

deferred maintenance does not affect the performance of the measure in the short term. Since defer

more costly than annual maintenance, the remaining annual maintenance reflects a lower cost. In 20Oregon Operations Maintenance will provide annual maintenance for 704 non-building assets which total of 14,670 non-building assets maintained at recreation sites. 

Recreation Site Building Annual Maintenance (square feet.) 

0 20 *2671 2,805 2,538 4,286 4,286 0% 
Bureau of Land Management 2009 

Section VI-Oregon and California Grant Lands 

O&C OPERATIONS PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Planned 2007 Actual 2008 Plan 2009 President's Budget Chan

from 2

Plan 

200

Recreation Site Non-Building Annual Maintenance (# assets). 0 0 44 **812 812 704 704 0% * In 2006, the measurements changed from each site, to square feet of buildings. ** In 2007, the measurements changed from number of sites to number of assets. 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-31 

Activity: Western Transportation and Facilities 

Management 

Subactivity: Annual Maintenance 

Activity: Western Oregon Transportation and Facilities Maintenance 

Subactivity: Annual Maintenance 

 2009 

 Fixed Costs & Change 

 2007 2008 

Related 

Changes 

Program 

Changes Budget 

from 

2008 

 Enacted Enacted (+/ -) (+/ -) Request (+/-) 

Annual Maintenance ($000) 7,679 7,798 +110 -72 7,836 +38

 

FTE 68 68 0 0 68 0

Other Major Resources: 

Road Maintenance 1,780 1,790 0 0 1,790 0

Major Program IT Investments: 

 

 

Summary of 2009 Program Changes for Annual Maintenance 

Request Component ($000) FTE

Program Changes: 

• Organizational & Administrative Streamlining -23 

• Travel & Relocation Expenses -24 

• Nat'l Monument & Nat'l Conservation Area funding (new subactivity created) -25 

TOTAL, Program Changes -72 0

JUSTIFICATION OF 2009 PROGRAM CHANGES

The 2009 budget request for Western Oregon Annual Maintenance program is $7,836,000 and 

68 FTE, a net program change of -$72,000 and 0 FTE from the 2008 enacted level. 

National Monuments and National Conservation Areas Funding (-$25,000) 

The BLM is proposing a new subactivity to fund base operations at National Monuments and 

National Conservation Areas. As a result, $25,000 is shifted from the Western Oregon 

Transportation and Facilities Annual Maintenance subactivity to the new subactivity within the 

O&C account. The funding shifted from the Western Oregon Transportation and Facilities 

Annual Maintenance subactivity is funding currently spent in the National Monuments and 

National Conservation Areas to meet the goals of the Western Oregon Transportation and 

Facilities Annual Maintenance program. The funding will continue to be spent on Western 

Oregon Transportation and Facilities Annual Maintenance priorities, but it will be managed 

through the NLCS-National Monuments and National Conservation Areas subactivity. 

Performance in the Western Oregon Transportation and Facilities Annual Maintenance 

subactivity will decrease due to the funding shift; however, this performance will shift to the 

NLCS-National Monuments and National Conservation Areas subactivity and is shown in the 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-32 

performance goals for that subactivity. For more information about the new NLCS-National 

Monuments and National Conservation Areas subactivity, see section III.

PROGRAM OVERVIEW

Program Component- Annual maintenance activities help maintain the BLM’s investment in 

roads, assure the roads function as designed, preserve public safety, and minimize 

environmental impacts, especially for water quality and soil erosion. BLM manages numerous 

roads, bridges, and other facilities in Western Oregon. There are approximately 7,000 miles of 

BLM roads in western Oregon that require cyclic and preventative maintenance. It takes a 

minimum of three years to complete one cycle of maintenance on the transportation system 

used for public, commercial, and BLM administrative uses. Annual maintenance activities focus 

on facilities, access roads, and bridges that receive the greatest public and commercial use; 

roads needed for administrative purposes; roads causing the greatest environmental damage 

due to sedimentation and runoff; and roads with changing use patterns. This focus allows the 

Western Oregon Annual Maintenance program to maintain the facilities and transportation 

system in a condition consistent with management objectives in Resource Management Plans. 

Sharing of equipment and resources has contributed to accomplishing maintenance targets at a 

lower cost than prior years. 

Long term Vision- Western Oregon’s Annual Maintenance program’s first priority is to perform 

maintenance on major access roads, active timber haul roads, developed recreation sites, and 

administrative office complexes. The program supports the Recreation mission goal in the 

Department’s Strategic Plan by ensuring a quality experience and enjoyment of recreation 

resources on BLM-managed lands and waters. This program also supports the Serve 

Communities mission goal by improving public safety and security and protecting public 

resources from damage. 

Critical Factors – The following factors can impact 

program performance: 

• Heavy rains during the winter can cause 

maintenance priorities to change. This 

may require a change from original 

planned projects. 

• Performance trends show that public 

use of recreational facilities and timber 

activity for use of existing roads is 

increasing. 

Means and Strategies – The OR/WA Maintenance Organization (MO) has combined all 

maintenance functions for roads, recreation, and facilities into one centralized organization. 

Maintenance priorities are established at the district and field office level annually using a 

Maintenance Operation Plan (MOP). The MO schedules their work based on their workforce 

and equipment needed to perform the prioritized tasks. Emergency work that is identified by the 

district is completed as high priority work as soon as the MO is notified. The centralized 

organization encourages sharing of equipment and personnel between districts to accomplish 

high priority work where additional workforce or equipment are needed. Partnerships and 

maintenance agreements with counties or other local organizations are utilized as needed. 

Program Process Improvements

Annual reviews are performed between the 

maintenance organization and each district to 

assure the maintenance work performed meets 

or exceeds district expectations and is within 

established budgets. The OR/WA maintenance 

database provides reports to track annual 

maintenance costs on an on-going basis and 

can be compared against a monthly report 

prepared by the OR/WA state office budget 

analyst. The database is reviewed annually and 

modified an need to provide appropriate 

tracking of costs and accomplishments.
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-33 

Other Funding Sources – Most system roads, trails, and airstrips used by the public are 

maintained using appropriated funds. Timber haul roads, or “fee roads,” are maintained using 

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. 

Strategic Plan – The annual maintenance program accomplishes facility maintenance on all 

O&C facilities (roads, recreation, and administrative) to provide for safe access and use of the 

facilities. Satisfactory facility maintenance improves the condition of our roads, trails, bridges, 

recreation sites, buildings, and administrative sites. Public users of BLM land and facilities 

expect maintenance that provides for their safety and enjoyment of the public lands they are 

visiting. 

2009 PROGRAM PERFORMANCE

2007 Accomplishments- In 2007, the western Oregon Annual Maintenance program:

• Performed routine annual maintenance on 334,568 sq. ft. of recreational and 

administrative buildings. 

• Completed 2,575 miles of quality road maintenance. 

• Maintained 651 assets on recreation and administrative sites. 

• Performed condition 

assessments on 27,000 sq. 

ft. of recreation and 

administrative buildings. 

2008 Planned Program 

Performance- In 2008, the 

Western Oregon Transportation 

and Facilities Maintenance 

program plans to:

• Perform quality road 

maintenance on 2,445 

miles of roads. 

• Complete routine annual maintenance of 323 recreation site non-building assets and 

347 administrative site non-building assets. 

• Perform routine maintenance work at nearly 190 administration and recreation sites that 

include 334,347 sq. ft. of buildings. 

• Complete annual maintenance on 116 bridges. 

2009 Planned Program Performance- In 2009, the Western Oregon Transportation and 

Facilities Maintenance program plans to:

• Perform quality road maintenance on 2,445 miles of roads. 

• Complete routine annual maintenance of 323 recreation site non-building assets and 

347 administrative site non-building assets. 

• Perform routine maintenance work at nearly 190 administration and recreation sites that 

include 334,347 sq. ft. of buildings. 

• Complete annual maintenance on 116 bridges.

Use of Cost and Performance Information 

Western Oregon BLM makes extensive use of cost management 

data to manage the facilities and transportation maintenance 

programs. The A-76 Maintenance Organization database stores and 

reports cost management data that is integral in prioritizing 

maintenance activities throughout the year. Organizational flexibility 

continues to provide annual savings which allows OR/WA to 

maximize maintenance on priority roads and facilities without 

increasing costs and allows districts to allocate savings to 

accomplish their increasing facility asset management workload. 

Cost and performance data also helps the organization determine 

when it is cost effective to contract out certain functions of their 

maintenance program. 
Bureau of Land Management 2009 

Section VI-Oregon and California Grant Lands 

O&C ANNUAL MAINTENANCE PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Planned 2007 Actual 2008 Plan 2009 President's Budget Change from 2008 Plan to 2009 

Maintenance: Number of square feet of buildings maintained in adequate condition, determined by FCI<0.15, at non-recreation sites. (Bur) 

new 

measure 

new 

measure 

new 

measure 

95% 

2,459,990/ 

2,602,380 

97% 

3,000,073/ 

3,085,585 

97% 

3,000,073/ 

3,085,585 

97% 

3,000,073/ 

3,085,585 

0% 

Total Actual/Projected Cost ($000) $0 $0 $0 $0 $24,295 $26,064 $22,025 -$4,039 Actual/Projected Cost per Square Feet (in dollars) $0 $0 $0 $0 $8 $9 $7 -$2 Comments: 

This measure includes funding from Maintenance Operations, Annual Maintenance, and Deferred Mainte

which includes Oregon and California Grant Lands. The performance results are derived from Annual MMaintenance Operations, and do not include deferred maintenance which is represented by the 3% of square that do not meet adequate condition. The 2009 decline in funding for deferred maintenance does not affect the 

the measure in the short term. Since deferred maintenance is more costly than annual maintenance, the r

maintenance reflects a lower cost. In 2009, Western Oregon Annual Maintenance will provide 270,000 maintenance to the total results of 3,000,073 square feet maintained at non-recreation sites. 

Maintenance: Number of non-building assets maintained in adequate condition, determined by FCI<0.15, at non-recreation sites. (Bur) 

new 

measure 

new 

measure 

new 

measure 

94% 

11,407/ 

12,131 

95% 

14,174/ 

14,970 

95% 

14,174/ 

14,970 

95% 

14,174/ 

14,970 

0% 

Total Actual/Projected Cost ($000) $0 $0 $0 $0 $15,857 $10,192 $7,939 -$2,253 Actual/Projected Cost per Asset (in dollars) $0 $0 $0 $0 $1,119 $719 $560 -$159 Comments: 

 This measure includes funding from Maintenance Operations, Annual Maintenance, and Deferred Maintewhich includes Oregon and California Grant Lands. The performance results are derived from Annual MMaintenance Operations, and do not include deferred maintenance which is represented by the 5% of non-budo not meet adequate condition. The 2009 decline in funding for deferred maintenance does not affect the pemeasure in the short term. Since deferred maintenance is more costly than annual maintenance, the re

maintenance reflects a lower cost. In 2009, Western Oregon Annual Maintenance will provide annual mainnon-building assets which is included in the total of 14,174 assets maintained at non-recreation sites. 

Maintenance: Number of lane miles of roads maintained in adequate condition. (Bur) 

new 

measure 

new 

measure 

new 

measure 

Establish 

Baseline 29,500 29,500 29,500 0% 

Total Actual/Projected Cost ($000) $0 $0 $0 $0 $28,215 $27,083 $24,819 -$2,264 
Bureau of Land Management 2009 

Section VI-Oregon and California Grant Lands 

Actual/Projected Cost per Mile (in dollars) $0 $0 $0 $0 $956 $918 $841 -$77 Comments: 

This measure includes funding from Maintenance Operations, Annual Maintenance, and Deferred Maintewhich includes Oregon and California Grant Lands. The performance results are derived from Annual M

Maintenance Operations, and do not include deferred maintenance which would be represented by the lane 

meet adequate condition. The 2009 decline in funding for deferred maintenance does not affect the permeasure in the short term but will show a steeper rate of decline in the long term. Since deferred maintenancthan annual maintenance, the remaining annual maintenance reflects a lower cost. In 2009, Western 

Maintenance will provide 2,445 lane miles of annual maintenance which is included in the total of 29maintained. 

Recreation Site Building Annual Maintenance (square feet.) 

UNK 18 71,497 64,347 64,347 64,347 64,347 0 

Bridge Annual Maintenance (# sites). UNK 273 139 116 116 116 116 0 Administrative Site Building Annual Maintenance (square feet). UNK 47 325,886 285,921 270,221 270,000 270,000 0 Road Annual Maint. (lane miles). UNK 2,569 2,338 2,445 2,575 2,445 2,445 0 Recreation Site Non-Building Annual Maintenance (# assets). 

UNK UNK 2 *323 323 323 323 0 

Administrative Site Non-Building Annual Maintenance (# assets). 

UNK UNK 8 *347 328 347 347 0 

*In 2007, the measurement changed from number of sites to number of assets. The 2007 planned numbers for roads and bridges were reduced due to priorities being placed on flood damaged road repairs. 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-36 

Activity: Western Transportation and Facilities 

Management 

Subactivity: Deferred Maintenance 

Activity: Western Oregon Transportation and Facilities Maintenance 

Subactivity: Deferred Maintenance 

 2009 

 Fixed Costs & Change 

 2007 2008 

Related 

Changes 

Program 

Changes Budget 

from 

2008 

 Enacted Enacted (+/ -) (+/ -) Request (+/-) 

Deferred Maintenance ($000) 1,059 1,042 0 -2 1,040 -2

 

FTE 2 2 0 0 2 0

Other Major Resources: 

 

Major Program IT Investments: 

 

 

Summary of 2009 Program Changes for Deferred Maintenance 

Request Component ($000) FTE

Program Changes: 

• Travel & Relocation Expenses -2 

TOTAL, Program Changes -2 0

JUSTIFICATION OF 2009 PROGRAM CHANGES

The 2009 budget request for Western Oregon Deferred Maintenance program is $1,040,000 

and 2 FTE, a net program change of -$2,000 and 0 FTE from the 2008 enacted level. 

PROGRAM OVERVIEW

Program Component- This program is restricted to Western Oregon BLM lands that are 

managed primarily for forestry, recreation and resources. The program prioritizes and directs 

funding to backlog maintenance not addressed by annual efforts. This is being identified through 

condition assessments and the use of facility cost indexing (FCI). The program systematically 

funds the highest priority needs identified by the field offices based on the ranking criteria of the 

Bureau’s Five-Year Capital Improvement and Deferred Maintenance Plan and the judgment of 

the BLM Engineering Advisory Team. The Plan directs funding first to the work deemed as a 

critical health and safety issue and then second to resource protection maintenance projects. 

Maintenance that is solely mission-related is a lower priority. In order to allocate funding 

equitably, the process is supported using an Asset Priority Index in conjunction with the FCI in 

addition to procedures focusing on life-cycle operation and maintenance costs.
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-37 

The program supports the transportation network and recreation sites throughout Western 

Oregon. The road system is critical not only for forest management access, but for current 

biomass operations and potential coal-bed methane development currently being explored as 

contributions to the domestic energy supply. Dispersed recreation not only requires a 

maintained transportation system, but the water and wastewater system improvements also 

funded by this program are necessary to provide and protect safe public water supplies and 

protect public health at Bureau recreation and administrative sites. Deferred maintenance 

funding is also used to repair roadway creek crossings that benefit anadromous fisheries and to 

maintain facilities that protect critical natural or cultural resource sites. 

Long term Vision - Deferred maintenance of these facilities supports the Recreation mission 

goal from the Department’s Strategic Plan by improving the quality experience and enjoyment of 

recreational resources on BLM-managed lands and waters. This program also supports the 

Serve Communities mission goal by improving public safety and security and protecting public 

resources from damage. 

Critical Factors – Heavy Cascade winter rains can impact performance by suddenly shifting 

maintenance priorities from original targets.

Strategic Plan – The Program supports the 

Northwest Forest Plan and the Western Oregon Plan 

Revision.

Performance Measure – In 2009, the BLM plans to 

address the highest priority deferred maintenance 

sites, facilities, and transportation systems in western 

Oregon. Key intermediate outcome measures of 

performance include: 

• Increasing the percentage of BLM 

organizational facility units rated in good 

safety, health, and environmental condition. 

(Bureau Measure) 

• Increasing the number of square feet of 

buildings and non-building assets maintained 

in adequate condition at non-recreation sites. 

(Bureau Measure) 

2009 PROGRAM PERFORMANCE

2007 Accomplishments - In 2007, Oregon and Washington completed maintenance work on 

one bridge and road maintenance on over 370 lane-miles of roads. One bridge, West Fork 

Canyon Creek Bridge in Roseburg District, was scheduled to be replaced, but the project was 

dropped as the district decided to discontinue that thoroughfare. (The bridge has been 

removed.) Funds were transferred to support another O&C project and reduce deferred 

maintenance. All targeted activities planned for 2007, with the exception of the Roseburg 

Bridge, were accomplished. 

2008 Planned Program Performance - The annual funding received ($1,059,000) allows BLM 

to complete 5 deferred maintenance projects. In 2008, the Western Oregon Deferred 

Maintenance program plans to use the requested budget of $1,059,000 to: 

Bridge approach work is a typical ongoing 

maintenance need for Western Oregon roadways. 

Ditch clearing needs and culvert replacements are 

also in constant demand.
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-38 

• Repair drinking water systems at the extremely popular Loon Lake Recreation Site 

($181,000) 

• Repair 2 bridges in Salem and Medford districts ($198,000), and 

• Perform road maintenance on roads in Roseburg and Medford districts ($680,000). 

2009 Planned Program Performance - The annual funding received ($1,040,000) will allow 

BLM to complete 5 deferred maintenance projects. In 2009, the Western Oregon Deferred 

Maintenance program plans to use the requested budget of $1,040,000 to: 

• Replace 2 failing culverts in Eugene District (Luyne Creek Culvert and Perry Road 

Culvert ($668,000) 

• Replace a bridge railing on Elkhorn Bridge in Salem District ($130,000), and 

• Repair two long-overdue road projects in Salem District: Ginger Creek Road surface 

repair and partially fund the Nestucca Basin Water Bars ($242,000). 
Bureau of Land Management 2009 

Section VI-Oregon and California Grant Lands 

O&C DEFERRED MAINTENANCE PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Planned 2007 Actual 2008 Plan 2009 President's Budget Change from 2008 Plan to 2009 L

Maintenance: Number of lane miles of roads maintained in adequate condition. (Bur) 

new 

measure 

new 

measure 

new 

measure 

Establish 

Baseline 29,500 29,500 29,500 0% 

Total Actual/Projected Cost ($000) $0 $0 $0 $0 $28,215 $27,083 $24,819 -$2,264 Actual/Projected Cost per Mile (in dollars) $0 $0 $0 $0 $956 $918 $841 -$77 Comments: 

This measure includes funding from Maintenance Operations, Annual Maintenance, and Deferred Maaccounts which includes Oregon and California Grant Lands. The performance results are derived froMaintenance and Maintenance Operations, and do not include Deferred Maintenance which would be reprelane miles that do not meet adequate condition. The 2009 decline in funding for deferred maintenance does 

the performance of the measure in the short term. Since Deferred Maintenance is more costly than annual mathe remaining annual maintenance reflects a lower cost. Western Oregon Deferred Maintenance has no plane miles planned to be completed in 2009. 

Road Deferred Maint. (lane miles). UNK 256 474 180 371 0 plnd 4 +4 Targets for deferred maintenance projects are based on actual projects planned which will vary between years. Deferred Maintenance projects are multwith results counted the final year of the project. 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-40 

Activity: Western Oregon Resources Management 

Activity Summary ($000) 

 2009 

 Fixed Costs & Change 

 2007 2008 

Related 

Changes 

Program 

Changes Budget 

from 

2008 

Subactivity Enacted Enacted (+/ -) (+/ -) Request (+/-) 

 Forest Management $ 27,264 30,681 +452 -254 30,879 +198

 FTE 256 256 0 -1 255 -1

 Reforestation & Forest 

Development $ 24,522 23,619 +265 -180 23,704 +85

 FTE 159 159 0 0 159 0

 Other Forest 

Resources $ 37,402 37,190 +490 -594 37,086 -104

 FTE 310 310 0 -4 306 -4

 Resource 

Management Planning $ 6,564 3,650 +84 -1,034 2,700 -950

 FTE 47 47 0 -5 42 -5

Total Activity $ 95,752 95,140 +1,291 -2,062 94,369 -771

 FTE 772 772 0 -10 762 -10

 

 

ACTIVITY DESCRIPTION

The Western Oregon Resources Management program provides for the management of 2.4 

million acres of O&C and Coos Bay Wagon Road grant lands, and intermingled Public Domain 

lands. Management of these lands is guided by the Northwest Forest Plan (NWFP) as 

incorporated into six local Resource Management Plans. This program is focused on providing 

a sustainable supply of timber products; restoring and maintaining the ecological health of 

watersheds and aquatic ecosystems; and providing a well-distributed system of large blocks of 

late-successional and old-growth forests to protect sensitive and Federally listed old-growth 

dependent species. This budget request reflects a number of proposed administrative initiatives 

that would expedite forest restoration projects. The budget will provide adequate funding for the 

BLM to maintain the commitment of the NWFP to produce 203 MMBF plus an additional 100 

MMBF to partially meet the terms of the settlement agreement in the AFRC v. Clarke lawsuit. 

The Western Oregon Resources Management program supports the Resource Use mission 

goal of the Department’s Strategic Plan by managing resources to enhance public benefit, 

promote responsible use and ensure optimal value. This program also supports the Resource 

Protection and the Recreation mission goals. 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-41 

Activity: Western Oregon Resources Management 

Subactivity: Western Oregon Forest Management 

Activity: Western Oregon Resources Management 

Subactivity: Forest Management 

 2009 

 Fixed Costs & Change 

 2007 2008 Related Changes

Program 

Changes Budget 

from 

2008 

 Enacted Enacted (+/ -) (+/ -) Request (+/-) 

Forest Mgmt ($000) 27,264 30,681 +452 -254 30,879 +198

 

FTE 256 256 0 -1 255 -1

Other Major Resources: 

 

Major Program IT Investments: 

 

 

Summary of 2009 Program Changes for Forest Management 

Request Component ($000) FTE

Program Changes: 

• Organizational & Administrative Streamlining -147 

• Travel & Relocation Expenses -67 

• Nat'l Monument & Nat'l Conservation Area funding (new subactivity created) -40 -1

TOTAL, Program Changes -254 -1

JUSTIFICATION OF 2009 PROGRAM CHANGES 

 

The 2009 budget request for the Western Oregon Forest Management program is $30,879,000 

and 256 FTE, a net program change of -$254,000 and 0 FTE from the 2008 enacted level. 

National Monuments and National Conservation Areas Funding (-$40,000)

The BLM is proposing a new subactivity in the O&C Account to fund base operations at National 

Monuments and National Conservation Areas. As a result, $40,000 is shifted from the Western 

Oregon Forest Management subactivity to the new subactivity. The funding shifted from the 

Western Oregon Forest Management subactivity is currently spent in the National Monuments 

and National Conservation Areas to meet the goals of the Western Oregon Forest Management 

program. The funding will continue to be spent on Western Oregon Forest Management 

priorities, but it will be managed through the NLCS-National Monuments and National 

Conservation Areas subactivity. Performance in the Western Oregon Forest Management 

subactivity will decrease due to the funding shift; however, this performance will shift to the 

NLCS-National Monuments and National Conservation Areas subactivity and will show in the 

performance goals for that subactivity. For more information about the new NLCS-National 

Monuments and National Conservation Areas subactivity, see section III.
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-42 

PROGRAM OVERVIEW 

Program Components- Sustainable timber harvests are a primary goal of the Oregon and 

California (O&C) Grant Lands Act of 1937, which directs, among other goals, that O&C lands be 

managed for permanent forest production. The Western Oregon Forest Management program 

provides the expertise and support required to manage the 2.4 million acres of BLM forestlands 

in western Oregon. Additional support is provided by two permanent operating funds, the 

Forest Ecosystem Health and Recovery Fund, and the Timber Sale Pipeline Restoration Fund. 

The O&C appropriation is discussed in this chapter and the two operating funds are discussed 

in the Collections and Permanent Operating Funds Section of the Budget Justification. 

The primary emphasis of the program is to provide scientifically sound and environmentally 

responsible commercial timber production and forest health and habitat restoration treatments in 

compliance with the Northwest Forest Plan (NWFP). The NWFP was intended to preserve the 

health of forests, wildlife, and waterways and produce a predictable and sustainable level of 

timber. The NWFP requires that Matrix lands be managed for timber, and Late-Successional 

Reserves (LSR) be managed to protect and enhance conditions of late-successional and oldgrowth forest ecosystems. These ecosystems serve as habitat for late-successional and oldgrowth related species including the federally listed northern spotted owl. These reserves 

should be protected from large-scale fires, insect and disease epidemics, and major human 

impacts. Many of the BLM LSR projects result in the harvest of commercial sized timber as a 

by-product of the restoration treatments. 

Legal challenges relating to the Endangered 

Species Act and other administrative 

requirements established under the NWFP 

are expected to continue. Implementation of 

the NWFP is affected by these challenges, 

which continue to have impacts to sale 

offerings. 

Other program priorities include supporting 

progress on the Western Oregon Resource 

Management Plan revisions, implementation 

of stewardship contracts, and offering forest 

biomass for the production of bio-energy in 

support of the national energy policy. 

Management of the BLM’s reciprocal right-ofway agreement program in western Oregon 

will also continue as a long-term commitment 

in providing access to intermingled private 

timberland owners and securing needed 

access to the O&C lands. 

The focus of the program is to design, prepare, and administer timber sales, a process which 

typically takes from three to five years. Interdisciplinary teams representing a variety of resource 

values plan timber sales and prepare the environmental assessments required under the 

National Environmental Policy Act. Biological assessments are prepared and submitted to the 

federal regulatory agencies to meet consultation requirements of the Endangered Species Act. 

Access to the sale areas are also evaluated and legal rights secured, if needed. The tract is 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-43 

then laid out on-the-ground (including establishment of legal property lines, tree and boundary 

marking, and road design) with the timber volumes and values established. Next the contract is 

written and the timber is offered for sale. Finally, harvest operations by the purchaser occur 

under the administration of a field manager through the contract inspector. 

Long-term Vision - The long-term vision of the program is to continue to ramp-up to full 

accomplishment of the requirements stated in the 2003 Settlement Agreement. Under the 

agreement, BLM committed to offering 203 MMBF of timber for harvest from commercial forest 

lands (“Matrix” lands) and an additional 100 MMBF of timber as a by-product of thinning in LSR 

to restore habitat, contingent on funding. Also under the Agreement, BLM must revise its land 

use plans for the six western Oregon BLM Districts. This Western Oregon Plan Revisions are 

underway and a draft was published in August 2007. The BLM is proposing to revise existing 

plans to replace the NWFP because: (1) the BLM plan evaluations found that the BLM has not 

been achieving the timber harvest levels directed by the existing plans, and the BLM now has 

more detailed and accurate information than was available in 1995 on the effects of sustained 

yield management on other resources; (2) there is an opportunity to coordinate the BLM 

management plans with new recovery plans and redesignations of critical habitat currently 

under development; and (3) the BLM has refocused the goal for management of the BLMadministered lands to the objectives of its statutory mandate to utilize the principles of sustained 

yield management on the timber lands covered under the O&C Act of 1937. 

The management of most of these BLM-managed lands is distinctive because of the unique 

requirements of the O&C Act, directing that the lands be managed in permanent forest 

production providing economic benefit to local communities. The Act requires that the O&C 

lands be managed “for permanent forest production, and the timber thereon shall be sold, cut, 

and removed in conformity with the principle of sustained yield for the purpose of providing a 

permanent source of timber supply, protecting watersheds, and regulating stream flow, and 

contributing to the economic stability of local communities and industry, and providing 

recreational facilities.” 

The Preferred Alternative of the Draft EIS identified a possible harvest level of up to 767 MMBF 

(includes 727 of allowable sale quantity volume and 40 MMBF of thinning volume in the 

anticipated Late Successional Management Areas to meet late-successional forest habitat 

development objectives). Continued planning effort is underway to develop the Proposed 

Alternative for the Final Environmental Impact Statement (EIS). The current schedule indicates 

the issuance of the Record of Decision in December of 2008 with implementation commencing 

in 2009. 

The program also supports activities that contribute to meeting the objectives of the Healthy 

Forests Initiative, Tribal Forest Protection Act, and Healthy Forests Restoration Act. Forest 

Management supports the BLM’s lands and realty programs in western Oregon, including the 

administration of logging road right-of-way permits and agreements, communication site 

management, land sales and exchanges, and realty compliance inspection and trespass 

abatement. 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-44 

All forest management activities 

incorporate practices that 

recognize multiple resource 

values. These values include: 

• Protection and enhancement 

of habitat for plants and 

animals (including Federally 

listed threatened and 

endangered species); 

• Improvement of fish habitat 

for both resident and 

anadromous fish; 

• Compliance with Federal and 

State laws and regulations to 

protect soil, water and air 

quality; and 

• Monitoring of ecological 

impacts and resource trends 

to determine effectiveness of 

management practices. 

Workloads associated with 

completion of administrative 

remedies (protest and appeal of 

agency actions) and litigation, 

both against the Bureau and 

Federal regulatory agencies that 

review Bureau activities, remain 

as significant challenges to 

program performance. 

Critical Factors - Litigation is an 

ongoing concern. Since 1999, BLM has offered less than the target in six years. The cumulative 

shortfall is 165 MMBF. This additional volume would have been offered were it not for various 

court orders. Refer to the Program Challenges section in this subactivity for further information.

Program Challenges - The timber sale program continues to be impacted by numerous, 

ongoing lawsuits against both the Bureau and the US Forest Service relative to the adequacy of 

the National Environmental Policy Act analysis. The program is also impacted by ongoing 

litigation against the U.S. Fish and Wildlife Service and National Marine Fisheries Service, 

which provide the consultation necessary for the Bureau to meet requirements of the 

Endangered Species Act for the northern spotted owl and listed fish species. These impacts 

began in 1999 and take several forms: 

1. Less volume is offered than anticipated in the specified performance targets. An 

additional 165 MMBF would have been offered were it not for various court orders. 

 

Volume of Timber Offered/Enacted

2003-2008

0

50

100

150

200

250

300

2003 2004 2005 2006 2007 2008

Fiscal Year

MMBF

Enacted Budget

2003-2008

0

5

10

15

20

25

30

35

2003 2004 2005 2006 2007 2008

Fiscal Year

$ Millions
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-45 

Program Process Improvements - 2008

Recognizing the harvest level under the Western Oregon 

Plan Revisions could approximately triple compared to 

the harvest level under the Northwest Forest Plan, an 

Implementation Team of key managers and staff has 

begun work to identify the funding and personnel needs 

to ramp-up to the full harvest levels under the new plans 

as rapidly as possible. The team will recommend the 

appropriate proportional mix of BLM permanent and 

temporary personnel funded within existing resources, 

and contracting. Forms of innovative contracting and 

other revised business practices will be identified. 

2. Litigation increases the unit cost of 

preparing timber for sale by 

imposing additional species survey 

requirements and higher 

standards for environmental 

analysis and ESA consultation. 

3. Rulings require work to be done 

over, such as the revision and 

amendment of environmental 

documents, and changes to the 

sale area in the field. 

4. Litigation causes delay in 

awarding sold sale contracts and delay in operations of executed contracts. 

Demands, Trends, and Resources -

BLM offered 195.6 MMBF in 2007 and 

is expected to offer 236.8 MMBF of 

timber for sale in 2008 (15 MMBF less 

than published in the 2008 Budget 

request). The timber sale volumes are 

less than that projected in the 2008 

request due to the impacts of ongoing 

litigation, both against the Bureau and 

against the U.S. Fish and Wildlife 

Service, which provides the 

consultation necessary for the Bureau 

to meet the requirements of the 

Endangered Species Act. Several 

court orders in 2005 and 2006 created 

additional work that was not 

anticipated when the 2008 budget was 

requested. These orders have 

resulted in gaps in the 2006-2008 

programs as planned timber sales 

need to be dropped or re-worked. 

In 2000, the Secure Rural Schools and Community Self Determination Act was enacted to 

provide payments to counties in lieu of their share of receipts from timber sales on BLM lands. 

The Act expired in 2007. The final payment for 2006 was made in 2007, consistent with the Act. 

PL110-28 provided payments for one additional year. Effective in fiscal year 2008, counties will 

return to a share of receipts from timber sales. 

Means and Strategies - The BLM continues to develop processes that will help manage our 

forest resources. The Western Oregon Forest Management program uses cooperative 

conservation principles by engaging commodity users, private groups, local communities, 

government agencies, and other stakeholders in the process of conservation. The ongoing 

development of the Western Oregon Plan Revisions will also help to establish a priority for 

The primary emphasis of the Forest Management Program 

is to provide scientifically sound and environmentally 

responsible commercial timber production and forest health 

and habitat restoration treatments. 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-46 

forestry projects, identify Bureau assets and their importance to the Bureau mission. Projects 

are prioritized based on critical health and safety and resource protection, as well as program 

objectives. 

Other Funding Sources-

● The Timber Sale Pipeline Restoration Fund. 

This Permanent Operating Fund provides for 

the deposit and use of fees collected by the 

BLM in Western Oregon for sales of nonsalvage timber pursuant to the timber salvage 

provisions of P.L. 104-19 and P.L. 105-83. Of 

the total deposited into this account, 75 

percent is to be used for preparation of timber 

sales to fill the timber sale pipeline on lands 

administered by the BLM in Western Oregon, 

while the other 25 percent is to be expended 

on the backlog of recreation projects on lands 

administered by BLM. This is discussed in 

Permanent Operating Funds (X) section. 

● The Forest Ecosystem Health and Recovery 

Fund. This Permanent Operating Fund provides funding for much of the actual on-theground contracts designed to restore forest health, including salvaging dead and dying 

timber; reforesting areas degraded by natural or human disturbance; and enhancing tree 

vigor by removing smaller trees and other forest vegetation. 

Strategic Plan- The western Oregon Forest Management program supports the Resource Use, 

Resource Protection, and Serving Communities mission goals of the Department’s Strategic 

Plan by managing forest products to enhance public benefit, promote responsible use and 

ensure optimal value of the public forest resources. Key measures of performance include 

providing wood products offered for sale consistent with the land use plans and increasing the 

number of forest restoration conducted projects implemented within the O&C area. Forest 

health is also improved through thinning for growth enhancement, fuels and hazard reduction, 

and habitat restoration. 

Laying out a timber sale marking the trees 

to be removed. 

Success Story 

195.6 MMBF of timber was offered for sale in western Oregon in 2007 comprised of 138.6 

MMBF of ASQ sales and 57.0 MMBF of LSR sales. The total volume offered was less than the 

226 MMBF target. This was due to the impact of the northern spotted owl critical habitat 

lawsuits that resulted in the withdrawal of Biological Opinions covering the northern spotted owl 

by the Fish and Wildlife Service. This resulted in the loss of considerable area from the sale 

plan in two of the six O&C districts. Through the development of proactive strategies and rework of the sale plan, adding in out year sales “off the shelf,” and substantial target 

overachievement in three of the districts, 195.6 MMBF was offered. Due to this timely and 

proactive reaction to the litigation impacts to the initial sale plan, the shortfall was minimized.
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-47 

2009 PROGRAM PERFORMANCE

2007 Accomplishments - In 2007, the focus of the O&C Forest Management program was to 

continue to work towards achieving the commitments of the Settlement Agreement and 

replacing sales lost due to the litigation-related withdrawal of Biological Opinions on the northern 

spotted owls by the US Fish and Wildlife Service. The BLM accomplished: 

• Preparing additional sales (31 MMBF) in three of the districts to partially offset the shortfall 

caused in two of the districts due to the Biological Opinion withdrawal. 

• Offering of 195.6 MMBF of timber comprised of 138.6 MMBF of timber sales on Matrix lands 

and 57 MMBF of LSR thinning timber sales. 

2008 Planned Program Performance - In 2008, the focus of the O&C Forest Management 

program is to continue to work towards achieving the commitments of the Settlement 

Agreement as well as bringing timber sales into compliance with various court orders. The BLM 

plans to: 

• Offer 236 MMBF of timber comprised of 165 MMBF of timber sales on Matrix lands and 71 

MMBF of LSR thinning timber sales, which is an increase of +40 MMBF in performance 

trend from 2007. 

• Inventory 71,200 acres of Forest/Woodland vegetation. 

• Harvest 170 MMBF of volume. 

• Improve Forest Health on 2,984 acres of forest health and habitat restoration sales. 

• Continue work on the Western Oregon Plan Revisions. 

2009 Planned Program Performance - In 2009, with a slight funding increase, the focus of the 

O&C Forest Management program will be beginning the implementations of the Western 

Oregon Plan Revisions and ramping up to the full Allowable Sale Quantity (ASQ) declared in the 

Records of Decisions. The BLM plans to: 

• Offer 268 MMBF of timber comprised of 208 MMBF of timber sales on Timber Management 

Area lands and 60 MMBF of Late Successional Management Area thinning timber sales, 

which is an increase of +32 MMBF in performance trend from 2008. 

• Inventory 127,000 acres of Forest/Woodland vegetation. 

• Improve Forest Health on 4,000 acres of forest health and habitat restoration sales. 

• Harvest 180 MMBF of volume. 

• Complete the Western Oregon Plan Revisions and begin implementation. 

These activities contribute to the Resource Use, Resource Protection, and Serving 

Communities mission goals from the Department’s Strategic Plan. 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-48 

Use of Cost and Performance Information 

Over 2006-2009, the BLM in OR/WA is realigning base funding within the Forest Management program using three 

years of data and four indicators of the major work completed. The indicators for the Forest Management program 

were: 

• The annual Resource Management Plan Allowable Sale Quantities in million board feet declared in the 1995 

Records of Decision and as modified by the Eugene and Coos Bay Districts in 1999. 

• Three-Year Annual Average Harvest Acres. This indicator is the sum of the district acres harvested in Fiscal 

Years 2003-2005 from the Timber Sale Information System divided by three for an annual average. 

• Three-Year Average Volume per Acre in Advertised Sales. This indicator is the average volume per acre in 

advertised sales offered in FYs 2003-2005. The source of data is the Westside Annual Timber Sale Plans 

maintained by the State Timber Program Lead as verified by the District Forestry Leads. 

• RMP ten year Regeneration Projection (Annualized Acres). This indicator is the district ten year regeneration 

harvest acre projection from the district Annual Program Summary and Monitoring Reports divided by ten to 

create the annual figure. 

The results of the analysis have redistributed base funding within the six O&C Districts ranging from changes 

between 3 to 9 percent of what historical levels were prior to this analysis. Funds have been redirected, based on the 

four performance indicators. The model employed is being reevaluated in 2008 to determine if changes are 

necessary to match the shift in direction in the Western Oregon Plan Revisions.

Program Assessment Rating Tool 

 The Forestry programs continues to implement the recommendations from the 2006 Program Assessment 

Rating Tool (PART) evaluation “Resource Protection” stated that BLM needed to improve its’ data collection and 

reporting process. BLM has: 

• Added several intermediate output measures that should help show a better correlation to the outcome 

measures; 

• Aligned and combined many of the BLM workload measures in these new output measures; 

• Moved some workload measures from "Resource Use" to "Resource Protection" where the primary objective 

is resource protection; 

• Continues to refine the new performance measure “Percent of BLM acres that have achieved desired 

condition (PFC and Land Health Conditions) where condition is known and as specified in management plans” 

and seek ways to accurately measure the performance measure which are statistically accurate at the National 

and state leave to ensure it will cascade to the appropriate levels of the organization. 

• Continue efforts to develop an efficiency measure for the “Resource Protection” mission area. 

The BLM continues to validate the information collected by working closer with the State and Field Offices. 

These performance measures are linked to the budget allocations, as well as the measurable outputs. The BLM 

increasingly uses the information garnered from the Activity Based Costing system (ABC) to evaluate the states 

for efficiency and effectiveness in meeting the agreed upon targets and to determine the most effective 

distribution of funding between states that meets the National priorities identified in this justification. 
Bureau of Land Management 2009 

Section VI-Oregon and California Grant Lands 

O&C FOREST MANAGEMENT PERFORMANCE SUMMARY Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Planned 2007 Actual 2008 Plan 2009 President's Budget Chan

from 2

Plan 

200

Percent of forestry improvements (acres) completed as planned. [SP] 

102% 

32,980/ 

32,335 

104% 

28,376/ 

27,376 

112% 

32,510/ 

28,919 

100% 

26,700/ 

26,700 

112% 

29,846/ 

26,700 

100% 

27,564/ 

27,564 

100% 

26,800/ 

26,800 

0% 

Total Actual/Projected Cost ($000) $12,123 $12,701 $13,173 $0 $13,224 $14,340 $14,364 $24 Actual/Projected Cost per acre 

(in dollars) $375 $441 $405 $0 $443 $520 $536 +$1

Comments: This is a new measure in 2007. Historical data has been added to provide context. Number of DOI upland acres restored 

to the condition specified in management plans. (SP/PART) 

661,701 584,013 807,271 535,000 868,577 840,000 840,000 0% 

Comments: * Support Measure - No cost will be shown. Data gathered in 2007 supports higher performance than original

Target have been adjusted to reflect the new data. 

Percent of allowable sale quantity timber offered for sale consistent with applicable resource management plans. (O&C) [SP] 

69% 

140 / 203 

98% 

198 / 203 

80% 

162/ 203 

82% 

166/ 203 

68% 

139/ 203 

85% 

172/ 203 

85% 

172/ 203 0% 

Total Actual/Projected Cost ($000) $23,876 $22,709 $28,180 $0 $31,910 $33,518 $33,507 -$1Actual/Projected Cost per MMBF 

( in dollars) $170,546 $114,693 $173,949 $0 $229,567 $194,873 $194,806 -$6

Comments: 

The 2005 volume of 98% was incorrectly calculated based on the total ASQ plus the LSR planned. It should 

on the ASQ only of 163 MMBF. The correct percent would be 80% (163/203). In 2007, increased litigatioseveral critical biological opinions required the BLM to remove approximately 33% of the timber sale plan whserves as the basis for this performance measure. 

Volume of wood products offered consistent with applicable management plans (Public Domain & O&C/MMBF) [SP] 

188.5 257 243 276 255 286 313 +10% 

Total Actual/Projected Cost ($000) $1,170 $1,264 $1,423 $0 $1,438 $1,870 $1,745 -$12Actual/Projected Cost per MMBF 

( in dollars) $6,207 $4,918 $5,856 $0 $5,639 $6,538 $5,575 -$1,1
Bureau of Land Management 2009 

Section VI-Oregon and California Grant Lands 

O&C FOREST MANAGEMENT PERFORMANCE SUMMARY Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Planned 2007 Actual 2008 Plan 2009 President's Budget Chan

from 2

Plan 

200

Comments: 

 Focus in 2006 for Public Domain was shifted to the more time consuming process of increasing the volume result of the shift, the volume of biomass was increased 71% over 2005. In 2007, increased litigation and t

citical biological opinions required the BLM to remove approximately 25% of the timber sale plan which whbasis for this performance measure. 

Administrative cost per thousand board feet (MBF) of timber offered for sale [SP] 

$176 $105 $135 $190 $190 $190 $180 -10% 

Comments: Several court orders in 2005 and 2006 have resulted in the need for additional species survey work that will in

per thousand board feet of timber offered for sale. Results shown in 2005 and 2006 do not include full cost. 

Inventory Forest/Woodland Vegetation (acres)**. 47,302 5,359 1,615 2,900 3,795 71,200 5,000 -93% Manage Forest and Woodland Commercial Sales (acres). 5,033 5,846 5,267 1,959 3,704 1,977 5,000 +153Restore Forest and Woodlands through sales (acres). 5,348 4,191 7,028 646 4,188 2,984 4,000 +34%  **O&C timber inventory has two components: (1) Routine stand exams for timber sale planning that runs about 5,000 acres per year; and (2) Current V

(CVS) plot re-measurement (extensive forest inventory) that occurs every three years with accomplishments lapsing over into the following year. This 

the fluctuation of inventory acres from year to year. 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-51 

Activity: Western Oregon Resources Management 

Subactivity: Reforestation and Forest Development 

Activity: Western Oregon Resources Management 

Subactivity: Reforestation and Forest Development 

 2009 

 Fixed Costs & Change 

 2007 2008 

Related 

Changes 

Program 

Changes Budget 

from 

2008 

 Enacted Enacted (+/ -) (+/ -) Request (+/-) 

Reforestation & Forest Dev. 

($000) 24,522 23,619 +265 -180 23,704 85

 

FTE 159 159 0 0 159 0

Other Major Resources: 

 

Major Program IT Investments: 

 

 

Summary of 2009 Program Changes for Reforestation and Forest Development 

Request Component $0 FTE

Program Changes: 

• Organizational & Administrative Streamlining -53 

• Travel & Relocation expenses -28 

• Performance Contracting savings -64 

• Nat'l Monument & Nat'l Conservation Area funding (new subactivity created) -35 

TOTAL, Program Changes -180 0

JUSTIFICATION OF 2009 PROGRAM CHANGES 

The 2009 budget request for the Western Oregon Reforestation and Forest Development 

program is $23,704,000 and 159 FTE, a net increase of $85,000 and 0 FTE from the 2008 

enacted level. The budget increase is comprised of a -$180,000 decrease in program funding 

that is offset by a $265,000 increase in related funding. 

National Monuments and National Conservation Areas Funding (-$35,000) 

The BLM is proposing a new subactivity in the O$C account to fund base operations at National 

Monuments and National Conservation Areas. As a result, $35,000 will be shifted from the 

Western Oregon Reforestation and Forest Development subactivity to the new Subactivity in 

2009. The funding shifted from the Western Oregon Reforestation and Forest Development 

subactivity is funding currently spent in the National Monuments and National Conservation 

Areas to meet the goals of the Western Oregon Reforestation and Forest Development 

program. The funding will continue to be spent on Western Oregon Reforestation and Forest 

Development priorities, but will be managed through the NLCS-National Monuments and 

National Conservation Areas subactivity. Performance in the Western Oregon Reforestation 

and Forest Development subactivity will decrease due to the funding shift; however, this 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-52 

performance will be shifted to the NLCS-National Monuments and National Conservation Areas 

subactivity and is shown in the performance goals for that subactivity. For more information 

about the new NLCS-National Monuments and National Conservation Areas subactivity, see 

section III.

Program Performance Change

Measure

2005 

Actual 

2006 

Actual 

2007 

President’s 

Budget 

2008 

Plan 

2009 Base 

Budget 

(2008 + 

Fixed 

Costs) 

2009 

Plan 

Program 

Change 

Accruing 

in 2009 

Program 

Change 

Accruing 

in Out 

years 

A B=A+C C D 

Apply 

Commercial 

Forest and 

Woodland 

Management 

Treatments 

(acres) HL

18,513 22,400 19,800 16,607 16,607 0 0

Total Actual and 

Projected Cost 

$000)

$12,238 $11,684 $10,316 $10,941 $ $ $0 $0 

Actual/Projected 

Cost Per Site 

(whole $’s)

$663 $521 $521 $521 $ $ $0 $0

Comments

Forest and 

Woodland 

Restoration 

Treatments 

(acres) JN 

8,310 6,993 7,200 8,187 8,817 0 0

Total Actual and 

Projected Cost 

$000)

$2,995 $3,180 $3,276 $3,458 $ $ $0 $0

Actual/Projected 

Cost 

Per Site (whole 

$’s)

$360 $455 $455 $455 $ $ $0 $0

Comments 

Apply Weed 

Treatments 

(acres) JD

2,303 3,097 3,052 2,200 2,200 0 0

Total Actual and 

Projected Cost 

$000)

$914 $525 $516 $333 $ $ $0 $0

Actual/Projected 

Cost 

Per Site (whole 

$’s)

$397 $169 $169 $169 $ $ $0 $0

Comments 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-53 

O&C AGE CLASS DISTRIBUTION

0

20

40

60

80

100

120

140

160

10 20 30 40 50 60 70 80 90 100 110

10-Year Age Class

Acres (Thousands)

Coos Bay

Eugene

Salem

Roseburg

PROGRAM OVERVIEW

The Reforestation and Forest Development subactivity sustains forest management and forest 

restoration through silvicultural treatments to achieve healthy and productive watersheds. These 

treatments directly contribute to attainment of goals and objectives of the Northwest Forest Plan 

(NWFP) and the Western Oregon Resource Management Plans to restore and maintain forests 

and woodlands. 

The focus areas for the Forest Development / Silviculture Program, Subactivity 6320, include 1) 

forest regeneration and restoration activities on commercial and non-commercial forestlands 

that result in the establishment of young stands including habitat restoration activities in riparian 

and other reserve areas not included in the timber harvest base, 2) intermediate stand 

management activities that promote forest growth, health, value enhancement, risk reduction 

and structure development to provide for future timber harvest and habitat requirements, 3) 

forest monitoring and adaptive management assessments that document the success of active 

management in achieving stand objectives while providing for the sustainable harvest of timber, 

4) support for other programs including timber harvest, noxious weed control, and fuels 

management, 5) forest inventory, data acquisition, and coordination with other programs to 

create an integrated data retrieval system, 6) cooperation with other resource management 

organizations and universities to sponsor cooperative research in support of management 

objectives, and 7) coordination of technology transfer and training programs that provide direct 

support for the Silviculture program. 

Reforestation and stand maintenance/protection of healthy young stands - The Forest 

Development / Silviculture Program continues to adapt to support the increased harvest level in 

the 2003 Settlement Agreement while 

keeping options open as management goals 

and direction are adjusted via the Western 

Oregon Resource Management Planning 

process. In order to position the BLM to 

meet future reforestation needs the four 

existing O&C seed orchards are being 

consolidated into two more efficient 

orchards. The consolidation is an ongoing 

process and is expected to require up to 10 

years to complete because of the need to 

move genetic material by grafting the 

material onto new root stock in the 

consolidated orchards. No genetic material will be lost in the consolidation process. The 

consolidated orchards will meet the seed needs under any of the alternatives implemented 

under the Western Oregon Plan Revisions. 

Intermediate stand management activities to promote continued growth - The Forest 

Development / Silviculture Program emphasizes creating and maintaining healthy ecosystems 

through active management. This will involve the thinning of overstocked stands to maintain 

growth, reduce risk and enhance older forest structure. The current age class distribution of 

forest stands on the O&C lands in western Oregon contains an overabundance of stands in the 

20 to 70 year old age classes that is a result of the harvest pattern in the mid to late twentieth 

century. These stands are currently in a condition where they are in need of thinning to 

maintain growth and forest health. The emphasis on intermediate operations is a new focus for 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-54 

the Forest Development / Silviculture program as this is the first full rotation of young growth 

timber that the BLM has managed in western Oregon. The result is an increased level of 

precommercial and commercial thinning of young stands. 

Forest monitoring - The Forest Development / Silviculture Program supports an active 

monitoring program that tracks the success of applied treatments in achieving silvicultural 

objectives such as maintaining species diversity, keeping young forest stands in a “free to grow” 

condition, improving wood quality and accelerating attainment of older forest characteristics. 

Such monitoring is necessary to track the ability of these dynamic forests to meet desired future 

conditions and to apply the concepts of adaptive management. The monitoring program also 

includes quality control for the information entered into BLM data bases to insure that the data is 

accurate and can be used to create District and State wide reports that track management 

accomplishments. 

Support for non-native and noxious weed management and other programs - The Forest 

Development / Silviculture Program supports the growth of healthy forests by preventing the 

introduction and spread of invasive species, reducing the number of acres infested with invasive 

or noxious weeds, and treating areas known to be infested with infectious pathogens. The BLM 

uses early detection and rapid treatment of identified areas of emerging invasive species issues 

such as Sudden Oak Death in southwest Oregon. Noxious and invasive weed management is 

being pursued across three areas of emphasis using BLM’s Partners Against Weeds Action 

Plan: education, inventory, and control. These areas of emphasis are also identified in the 

National Invasive Species Management Plan. Partnerships serve as a clearinghouse for 

documenting noxious weed locations and treatment efforts. 

Tree on the left is 37 years old and 40 cm in diameter 

Tree on the right is 45 years old and 30 cm in diameter 

Tree on left maintained growth while tree on the right slowed growth due to overcrowding 

The Forest Development / Silviculture Program supports the timber sales program through the 

design and implementation of commercial thinning sales even though the activities are reported 

in the Forest Management program. This coordinated effort focuses the expertise of 

Silviculturists on intermediate operations to insure the continued growth of the residual stand 

following harvest. The Forest Development / Silviculture Program also support the fuels 

management program to ensure that fuels treatments do not harm the growth potential of 

residual stands. 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-55 

Forest inventory and data acquisition - The Forest Development / Silviculture Program last 

completed a stand level inventory of O&C lands in 1988. Accurate stand level information will 

be critical in the implementation of the revised western Oregon management plans. This 

information is required in the planning process for cumulative effects analysis as well as 

prioritizing future activities. The use of Light Detection and Ranging (LiDAR) to develop this 

inventory has the potential to greatly reduce the cost of compiling stand level information. 

Toward this end the BLM has entered into an agreement with the Oregon Department of 

Geology and Mineral Industries and other resource management agencies to contribute to the 

cooperative acquisition of LiDAR data for western Oregon. 

The Forest Development / Silviculture Program also support a portion of the Continious 

Vegetation Survey (CVS) inventory project. Every third year the project remeasures 25 percent 

of the permanent inventory plots located on BLM managed land. The result is a complete 

remeasurement of the CVS plots every 12 years. The remeasurement of the CVS plots creates 

a spike in budget expenditures and accomplishments for forest inventory every third year. The 

reduction in inventory accomplishments in 2009 is part of normal business practice following the 

completion of the CVS inventory in 2008. . 

Cooperative research support to support management objectives - The Forest 

Development / Silviculture Program also supports the active management of forest resources 

under the concept of adaptive management which preserves future management options. 

Adaptive management, where management strategies are adjusted to reflect new knowledge 

about the behavior of natural systems, is one element of active management. The BLM 

addresses adaptive management by partnering with other resource management agencies and 

research institutions in the region, including the U.S. Geological Survey, Oregon State 

University, University of Washington, U.S. Forest Service Pacific Northwest Research Station, 

Oregon Department of Forestry, Washington Department of Natural Resources, private 

landowners and the U.S. Forest Service (USFS) to fund cooperative research programs to 

address management issues and to produce peer-reviewed science and formal publications that 

provide understanding of natural systems. 

BLM is a member of seven regional research cooperatives that form the keystone of applied 

forestry research in the Pacific Northwest. These include cooperatives studying Swiss needle 

case, hardwood Silviculture, forest nutrition in the Inland Northwest, nursery technology, tree 

breeding, progeny testing, and stand management and growth. 

Technology transfer and training support - The Forest Development / Silviculture Program is 

initiating a field craft training program for BLM field staff. This training involves the hands on 

application of emerging technology to the development of stand conditions that provide 

environmental services from managed stand while producing a sustainable harvest of timber to 

support local communities. 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-56 

Long Term Vision - The long range goals of the Forest Development / Silviculture Program 

include: increased growth, yield, and wood quality from forest stands managed for timber 

production; accelerated attainment of mature stand structure in stands managed for 

conservation of species dependant on older forests; and increased resiliency of managed 

forests to be able to respond to uncharacteristic fire and insect and disease epidemics. These 

Forest Development treatments will continue to directly contribute to attainment of goals and 

objectives of the NWFP and the Western Oregon Resource Management Plans (RMPs) to 

restore and maintain forests and woodlands. 

The role of the Forest Development / Silviculture Program is expanding beyond the direct 

support of timber sale production into the long term sustainable management of forest 

resources. This shift is necessary in order to treat the large number of young plantations that 

were established in the late 1970’s and early 1980’s following the harvest of large acreages of 

mature timber. This shift to a second growth management strategy creates the need for midrotation treatments that involves a greater emphasis on stand evaluation and the completion of 

long term integrated management prescriptions. This shift has created an increase in needed 

forest growth and value enhancement work such as pre-commercial thinning. These midrotation treatments have historically been less expensive than regeneration treatments, resulting 

in our ability to accomplish more acres with the same budget. There has also been increased 

support to both planning and implementation of forest restoration activities in Late Successional 

Management Areas. 

Critical Factors - The annual year-round work cycle of the Forest Development Program is 

highly dependant on the weather conditions experienced in both the planning and 

implementation of projects. Many projects are directly related to specific growing conditions that 

exist during only part of the year. Thus a delay of a few weeks may result in the delay of an 

entire year in project implementation until growing conditions are again appropriate for the 

activity. When working in biological systems the weather conditions experienced during the 

winter season can delay projects for months at a time. 

Operational activities are impacted by the level of wildfire support in any given year as 

Silviculture foresters often are also wild land firefighters and may spend weeks or months away 

from their workstations throughout the summer fire season. 

SUCCESS STORIES

The BLM continues to aggressively respond to an outbreak of Sudden Oak Death in Curry County, 

Oregon. Even though BLM is enjoined from using herbicides, which is the preferred method of treatment 

of infected plants, for treatment of the outbreak BLM has to this point successfully prevented the spread 

of the disease beyond the emergency quarantine area declared by the U.S. Department of Agriculture 

and the State of Oregon. 

The BLM Tyrrell Seed Orchard completed cone processing and seed extraction which yielded 677 

pounds of Douglas-fir seed. The yield per bushel averaged .46 pounds per bushel, which is very good. 

Mike Crawford, the state seed orchard manger, attributed the success to two factors “the application of 

an insecticide protects the cones from insect damage, and the favorable spring weather conditions 

means lower frost damage and higher yields”. The BLM funded the work with Forest Development / 

Silviculture money. Orchard cooperators contributed their share of the costs and received a portion of 

the seed. The seed will go to reforestation programs and into seed banks to meet future needs. The 

cones were collected in August and September 2006 from several orchard units at the Tyrrell Seed 

Orchard. 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-57 

Litigation also impacts accomplishments. Current court injunctions prevent the wide-scale use 

of the most effective and cost efficient tools for young stand management and control of forest 

diseases. For example, BLM cannot use herbicides to treat areas quarantined to prevent the 

spread of Sudden Oak Death, a fungal-like disease that threatens both forest and commercial 

nursery plants. 

Means and Strategies - The BLM continues to develop processes that will help manage our 

forest resources. The State and Washington Offices monitor the O&C districts’ effort to meet 

established performance targets and the expenditure of funds allocated to meet the established 

targets. The Forest Development / Silviculture Program monitors overall program needs and 

shifts funding among districts to accomplish on-the-ground treatments according to established 

priorities. The State Office will oversee the consolidation of existing seed orchards into a more 

efficient operation, will cooperate with the State of Oregon in the acquisition of LiDAR to 

produce a more economical stand level inventory, is participating in the Forest Resource 

Application Project (FRAP) to develop a streamlines data storage and retrieval process to aid 

the field resource mangers in accomplishing their assigned tasks. 

With an expected Record of Decision for the Western Oregon Resource Management Plan 

Revisions in 2008, the planning process will continue to guide priorities for forest development 

and long term forest management activities. The revised Western Oregon RMP’s will help 

assure the distribution of funding to the highest priority projects and activities. The Forest 

Development Program uses active management strategies to produce healthy and productive 

forests to meet long term timber and habitat goals while preserving future management options. 

In developing funding and activity priorities the Forest Development / Silviculture Program is 

guided by the three principles of intergenerational equity, acting as a prudent person, and 

maintaining future management options. Adhering to these principals permits the BLM to 

develop and implement innovative and adaptive strategies to manage O&C lands. 

Strategic Plan - The Western Oregon Reforestation and Forest Development program supports 

the Resource Use mission goal from the Department’s Strategic Plan by managing forest 

resources to enhance public benefits, to promote responsible use and ensure optimal value of 

the public forest resources. 

Other Funding Sources– The Forest Development / Silviculture Program periodically receives 

external grant funding such as Forest Health Program money from the U.S. Forest Service that 

has been used in the past to fund genetic improvement Describe funding acquired through 

other means besides the appropriation.

2009 PROGRAM PERFORMANCE

2007 Accomplishments - In 2007, the Western Oregon Reforestation and Forest Development 

(Silviculture) Program had the following accomplishments: 

Evaluate 38,513 acres (Inventory Forest/Woodland Vegetation) of inventory to quantify the 

spatial distribution, composition, and rates of change of forest conditions, to support 

development of Silviculture prescriptions and Western Oregon Plan Revision implementation, a 

37% increase from planned 2007 levels. 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-58 

Treat 21,501 acres of young forest (Apply Commercial Forest and Woodland Management) to 

assure adequate reforestation and maintenance of growing conditions that achieve the desired 

growth rates of young trees, a 12 percent increase over target. 

Apply 9,700 acres of forest and woodland restoration treatments (Restore Forest and 

Woodlands through Development) to maintain forest growth and develop desired future habitat 

conditions in late-successional management and riparian management areas, a 6 % increase 

from planned targets. 

Inventory 28,233 acres for the presence of invasive and/or noxious weeds, a 94 %, increase 

from the planned 2007 level. 

Conduct 67,063 acres (Evaluate Forest/Woodland Treatments) of monitoring and adaptive 

management assessments to evaluate the effectiveness of forest management treatments in 

achieving multiple resource goals such as increased growth, improved forest health, and 

improved habitat conditions, a 25 % increase from the planned 2007 level. 

2008 Planned Program Performance - In 2008, the Western Oregon Reforestation and Forest 

Development (Silviculture) Program plans the following accomplishments: 

Evaluate 74,500 acres (Inventory Forest/Woodland Vegetation) of inventory to quantify the 

spatial distribution, composition, and rates of change of forest conditions, to support 

development of Silviculture prescriptions and Western Oregon Plan Revision implementation. 

Cooperate in the acquisition of 1,500,000 acres of LiDAR data, approximately 350,000 acres 

are BLM managed lands. No target is established for evolving technology but the information 

will be used in the implementation of the revised western Oregon Resource Management Plans. 

Conduct 47,072 acres (Evaluate Forest/Woodland Treatments) of monitoring and adaptive 

management assessments to evaluate the effectiveness of forest management treatments in 

achieving multiple resource goals such as increased growth, improved forest health, and 

improved habitat conditions, the same level as 2007. 

Inventory 14,302 acres for the presence of invasive and/or noxious weeds, a slight, 3 %, 

decrease from the planned 2007 level. 

Monitor water quality following herbicide application at Western Oregon Seed Orchards which 

translates into monitoring 15 miles (Monitor Stream/Riparian Habitat) of streams. 

Apply 8,817 acres of forest and woodland restoration treatments (Restore Forest and 

Woodlands through Development) to maintain forest growth and develop desired future habitat 

conditions in late-successional management and riparian management areas. 

Treat 16,607 acres of young forest (Apply Commercial Forest and Woodland Management) to 

assure adequate reforestation and maintenance of growing conditions that achieve the desired 

growth rates of young trees. 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-59 

2009 Planned Program Performance - In 2009 the Western Oregon Reforestation and Forest 

Development (Silviculture) will support the following activities: 

Conduct 47,072 acres (Evaluate Forest/Woodland Treatments) of monitoring and adaptive 

management assessments to evaluate the effectiveness of forest management treatments in 

achieving multiple resource goals such as increased growth, improved forest health, and 

improved habitat conditions, the same level as 2008. 

Inventory 14,302 acres for the presence of invasive and/or noxious weeds. This is the same as 

the anticipated 2008 level. 

Monitor water quality following herbicide application at Western Oregon Seed Orchards which 

translates into monitoring 15 miles (Monitor Stream/Riparian Habitat) of streams. This is the 

same as the 2008 level. 

Cooperate in the acquisition of 1,500,000 acres of LiDAR data, approximately 350,000 acres 

are BLM managed lands. No target is established for evolving technology but the information 

will be used in the implementation of the revised western Oregon Resource Management Plans. 

 

Apply 7,687 acres of forest and woodland restoration treatments (Restore Forest and 

Woodlands through Development) to maintain forest growth and develop desired future habitat 

conditions in late-successional management and riparian management areas, a decrease of 

1,130 acres (13%) from the planned 2008 level. 

Treat 14,107 acres of young forest (Apply Commercial Forest and Woodland Management) to 

assure adequate reforestation and maintenance of growing conditions that achieve the desired 

growth rates of young trees, a -15% decrease from planned 2008 levels. 

Evaluate 38,000 acres (Inventory Forest/Woodland Vegetation) of inventory to quantify the 

spatial distribution, composition, and rates of change of forest conditions, to support 

development of Silviculture prescriptions and Western Oregon Plan Revision implementation. 

This 49% decrease from 2008 levels is due to normal business practices as 25 percent of the 

CVS plots are measured every three years. An additional 25 percent of the plots will be 

measured in 2011 which will again result in a one year spike in accomplishments associated 

with the CVS inventory. 
Bureau of Land Management 2009 

Section VI-Oregon and California Grant Lands 

O & C REFORESTATION AND FOREST DEVELOPMENT Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Planned 2007 Actual 2008 Plan 2009 President's Budget Change from 2008 Plan to 2009 

Number of acres of vegetative treatments evaluated. (Bur) 757,804 506,307 512,840 470,558 561,668 597,139 821,504 +38% Total Actual/Projected Cost ($000) $12,464 $11,818 $13,745 $0 $14,895 $15,732 $16,668 +936 Actual/Projected Cost per Acre Evaluated (in dollars) $16 $23 $27 $0 $27 $26 $20 $0 Comments: 

Acres of vegetative treatments evaluated is based on actual project acres and will vary between years. This mean increase for the Healthy Lands Initiative 0f $936,281 in 2009, which will result in 224,365 acres of vegetaevaluated. 

Number of DOI upland acres 

restored to the condition specified in management plans. (SP/PART) 

661,701 584,013 807,271 535,000 868,577 840,000 840,000 0% 

Comments: 

 * Support Measure - No cost will be shown. Data gathered in 2007 supports higher performance than originally 2009 target has been adjusted to reflect the new data. This performance measure is shared by Public Management, Range Management, Riparian Management, Western Oregon Forest Management and WReforestation and Forest Development (7,200). 

Percent of forestry improvements (acres) completed as planned. [SP] 

102% 

32,980/ 

32,335 

104% 

28,376/ 

27,376 

112% 

32,510/ 

28,919 

100% 

26,700/ 

26,700 

112% 

29,846/ 

26,700 

100% 

27,564/ 

27,564 

100% 

26,800/ 

26,800 0% 

Total Actual/Projected Cost ($000) $12,123 $12,701 $13,173 $0 $13,224 $14,340 $14,364 $24 Actual/Projected Cost per acre (in dollars) $375 $441 $405 $0 $443 $520 $536 $16 Comments: This is a new measure in 2007. Historical data has been added to provide context. Apply Commercial Forest and Woodland Management Treatments (acres) 

23,645 18,513 22,400 19,121 21,501 16,607 14,107 -15% 

Forest and Woodland Restoration Treatments (acres) 9,227 8,310 6,993 9,134 9,700 8,817 7,687 -13% 
Bureau of Land Management 2009 

Section VI-Oregon and California Grant Lands 

Evaluate Forest/Woodland Treatments (acres)** 82,297 67,950 60,052 53,557 67,063 47,072 47,072 0% Inventory for Presence of Invasive and/or Noxious Weeds (acres)** 18,172 41,979 38,593 14,576 28,233 14,302 14,302 0% Inventory Forest/Woodland Vegetation (acres)* 14,731 78,393 79,119 28,035 38,513 74,500 38,000 -49% Apply Weed Treatments (acres)** 1,830 2,303 3,097 2,410 3,202 2,220 2,200 -1% * Forest inventory is cyclic where one year of every three has no region wide inventory scheduled. 2007 was a year with no region wide inventory. 

** Measures were not shown in the 2007 President's Budget. Density management acres that have been funded from the Forest Development Subactivity and reported in the Forest Management Subactivity throug

be funded and reported in the Forest Management Subactivity in FY 2008 and beyond. This work will be accomplished by transferring 10 FTE’s from th

Development Subactivity to the Forest Management Subactivity in FY 2008 and beyond. 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-62 

Activity: Western Oregon Resources Management 

Subactivity: Other Forest Resources Management 

Activity: Western Oregon Resources Management 

Subactivity: Other Forest Resources 

 2009 

 Fixed Costs & Change 

 2007 2008 

Related 

Changes 

Program 

Changes Budget 

from 

2008 

 Enacted Enacted (+/ -) (+/ -) Request (+/-) 

Other Forest Resources ($000) 37,402 37,190 +490 -594 37,086 -104

 

FTE 310 310 0 -4 306 -4

Other Major Resources: 

 

Major Program IT Investments: 

 

 

Summary of 2009 Program Changes for Other Forest Resources 

Request Component $0 FTE

Program Changes: 

• Organizational & Administrative Streamlining -112 

• Travel & Relocation expenses -79 

• Performance Contracting savings -50 

• Nat'l Monument & Nat'l Conservation Area funding (new subactivity created) -353 -4

TOTAL, Program Changes -594 -4

JUSTIFICATION OF 2009 PROGRAM CHANGES

The 2009 budget request for the Western Oregon Other Forest Resources Management 

program is $ 37,086,000 and 306 FTE, a net program change of -$594,000 and 4 FTE from the 

2008 enacted level. 

National Monuments and National Conservation Areas Funding (-$353,000) 

The BLM is proposing a new subactivity in the O&C account to fund base operations at National 

Monuments and National Conservation Areas. As a result, $353,000 is shifted from the 

Western Oregon Other Forest Resources Management subactivity to the new subactivity. The 

funding shifted from the Western Oregon Other Forest Resources Management subactivity is 

funding currently spent in the National Monuments and National Conservation Areas to meet the 

goals of the Western Oregon Other Forest Resources Management program. The funding will 

continue to be spent on Western Oregon Other Forest Resources Management priorities, but 

will be managed through the National Monuments and National Conservation Areas subactivity. 

Performance in the Western Oregon Other Forest Resources Management subactivity will 

decrease due to the funding shift; however, this performance will be shifted to the National 

Monuments and National Conservation Areas subactivity and is shown in the performance goals 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-63 

for that subactivity. For more information about the new National Monuments and National 

Conservation Areas subactivity, see section VI.

Western Oregon Other Forest Resource Management- In 2008, the BLM is planning to 

deobligate $3,000,000 from previously obligated recreation funds in the Timber Sale Pipeline 

Restoration Fund to address the maintenance backlog of recreation projects, road and trail 

maintenance, annual maintenance of recreation sites, administrative sites, annual maintenance 

of recreation site (non-building), and annual maintenance of bridges. It is also projected that 

there will be some accomplishment of trail, bridge, and administrative site construction. This use 

of funds for maintaining recreation sites is authorized by Section 327 of the Omnibus 

Consolidated Rescissions and Appropriations Act of 1996 (See the Permanent Operating Fund 

Section for further details). 

PROGRAM OVERVIEW 

Program Component- The Western Oregon Resources Management, Other Forest Resource 

Management program includes funding for four programs in Western Oregon: Rangeland 

Management, Recreation Management, Soil, Water and Air Management, and Wildlife and Fish 

Habitat Management. These four programs support implementation of the Northwest Forest 

Plan (NWFP), the American Forest Resource 

Council et. al. versus Clarke Settlement 

Agreement (Settlement Agreement), the Healthy 

Forests Initiative, and various Western Oregon 

Resource Management Plans. 

Public demand for recreation in general (fish and 

wildlife-related recreational opportunities in 

particular), continue to increase and are becoming 

a significant economic influence in western 

Oregon. Local demand for healthy watersheds and 

scenic vistas continue to increase in importance. 

Concurrent with these demands is an increasing 

workload to provide support services for fish and 

wildlife environmental clearances related to the 

Healthy Forests Initiative. This program supports 

species and habitat management and associated 

data collection as well as the timber sale program 

in the form of surveys, clearances, interdisciplinary team participation, and environmental 

assessment preparation. 

Long-Term Visions-The long-term goals of the Western Oregon Resources Management, 

Other Forest Resources Management program are to enhance non-commodity forest resources 

and provide guidance to the timber sale program that incorporates fish, plant and wildlife 

protection and enhancement measures into timber extraction activities. Examples include 

inventory, monitoring, developing and improving wildlife habitat including sensitive species and 

projects that improve fish passage, water quality, stream bank stabilization and enhancing and 

restoring riparian and upland habitats. Habitat maintenance for migratory land birds to achieve 

goals of the Migratory Bird Treaty Act and implementation of a comprehensive Travel 

Management Strategy are additional emphasis areas. 

Mountain Biking keeps growing in popularity 

and is one of many recreational pursuits for 

which BLM is providing opportunities. 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-64 

Critical Factors - The Western Oregon Other 

Forest Resources Management program’s ability 

to achieve outcomes is directly affected by 

economics, changes in public use and valuation 

of resources. Economics directly impact visitor 

use of public lands, the types of activities, in 

which they participate, and consequent demand 

and impact on resources. Other factors affecting 

programs and priorities include weather such as 

prolonged drought or wildland fire. Program 

administration relies on obtaining clearance for 

potential impacts to cultural resources, special 

status species, and water quality. Litigation also 

affects program administration, particularly as 

strategies accomplishing program priorities are 

affected relative to the time litigation pulls staff 

attention from other priorities. Administration of 

resources in Oregon and Washington relies on 

partnerships and public involvement that is a significant factor in BLM’s ability to meet projected 

program performance targets. Fragmented ownership particularly in Oregon creates 

complexities for resource management and necessitates collaboration across multiple agencies 

and jurisdictions to accomplish some of the agencies management objectives. 

Implementing the new Recreation Strategy will shift BLM’s emphasis toward Recreation and 

Visitor Services programs by applying benefits-based management. Directed toward seven 

program goals, benefits-based management is outcome-based, collaborative, and based on a 

business approach to managing recreation resources. The approach is based on enhanced 

support for conserving public land recreation settings, improving the quality of life for people 

and communities; encouraging diverse and vibrant local economies; and sustaining a healthy, 

resilient, and productive environment. 

Managing for a quality recreational experience is 

one of seven distinct goals within the Other Forest 

Resources Management program. 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-65 

 Means and Strategies – The Western Oregon Other Forest Resources Management program 

uses cooperative conservation principles by engaging commodity users, private groups, local 

communities, government agencies, and other stakeholders in conservation. For example, the 

BLM works with the U.S. Forest Service to implement an interagency Special Status Species 

Program and for Clean Water Act compliance activities that extend across differing 

administrative boundaries. Applying the concept of “Service First” and sharing skills 

accommodates an interagency approach toward resource conservation. The BLM also partners 

with The Nature Conservancy and Nature Serve, 

to share data and planning strategies that extend 

across private, state, and federal jurisdictions. 

Partnering improves administrative efficiencies, 

and decreases the cost of program administration. 

Key partnerships in the Soil, Water, and Air 

program with the U.S. Forest Service, 

Environmental Protection Agency, and the Oregon 

Department of Environmental Quality have 

contributed toward administrative streamlining, 

model evaluation, data collection and review, and 

standards development, all of which contribute to 

BLM’s role as a Designated Management Agency 

under the Clean Water Act. Invasive species 

management will emphasize coordination with 

other landowners and land management agencies 

to control the spread of noxious weeds in high 

priority habitats that include sensitive species. 

Activities will focus on rapid detection/early 

response and prevention to include seeking approval for the use of additional, more effective 

herbicides. 

Strategic Plan – The Western Oregon Other Forest Resources Management Program supports 

the Department’s Strategic Plan Mission Goals as follows: 

Resource Protection

• Supporting restoration activities in riparian areas to move toward Proper Functioning 

Condition 

• Supporting work in fire adapted ecosystems to move lands toward desired conditions, 

improving FRCC. 

• Enhancing habitat conditions to support species conservation 

• Preparing appropriate cultural resources for public visitation, education and conservation 

purposes. 

Resource Use

• Clearance work supports ability to offer wood products consistent with applicable 

management plans. 

• The NEPA review of active grazing leases will allow for the continued authorization of 

sustainable grazing activities, where determined appropriate. 

White water rafting on the Rogue River. 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-66 

Serving Communities

• Clearance work supports restoration activities to decrease the acres burned by 

unplanned wildfire and treatments in the WUI. 

Soil, Water, and Air program objectives are coordinated across the wildlife, range, weed, 

riparian, and fisheries programs. This approach accommodates strategic shifts in budgeting 

and program management that emphasize state and national priorities. 

Other Funding Sources – The Recreation program is also funded by the Timber Sale Pipeline 

Restoration Fund which uses 

revenues generated by timber sales 

released under the 1995 

Supplemental Appropriations for 

Disaster Assistance and Rescissions 

Act. This Act directs 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. 

The Soil, Water, and Air program benefits from partnerships and projects developed using 

Clean Water and Watershed Restoration funds and grants from the Oregon Watershed 

Enhancement Board. 

Demands, Trends, and Resources - The trend to develop monitoring, restoration, and 

compliance objectives through partnerships and collaborative efforts is a primary driver of Soil, 

Water, and Air program objectives. Western Oregon needs to continue to remain involved in 

development of national data bases and standards and the research and science that is used as 

the basis for regulatory review and standards development. 

Coho salmon spawning along gravel bar. 

Successful Use of Cost and Performance Information 

Activity Based Costing (ABC) is used by the program to monitor 

unit costs and accomplishments versus targets. The Oregon 

state office is adjusting base budgets of field offices for all Other 

Forest Resources Management subactivities to reflect changing 

priorities and to more equitably fund districts in priority areas. A 

significant portion of the workload revolves around 

environmental clearances for the timber management program 

which greatly influences and/or affects accomplishments in all 

PE codes.
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-67 

Rangeland Management - 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, that provide 2,714 Animal Unit Months of forage, are partially or 

completely within the Cascade-Siskiyou National Monument (CSNM). The BLM’s focus in 2007 

was dedicated to completing the CSNM Livestock Impact Study. The study’s purpose is to 

“...study the impacts of livestock grazing on the objects of biological interest in the monument 

with specific attention to sustaining the natural ecosystem dynamics.” The BLM completed the 

study and a literature review in 2007. An extensive peer review of the study procedures was 

also conducted to ensure that data collected is founded on acceptable scientific principles. In 

2008 and 2009, the Medford District will develop resource recommendations based on the 

livestock study conclusions, evaluate these through appropriate NEPA and draft decisions 

regarding the renewal, modification or cancellation of grazing leases in the CSNM. Other work 

priorities are the completion of range health assessments and appropriate NEPA in reissuing 

over 70 grazing leases. The Medford and Lakeview Districts are on schedule to meet the 

Congressional expectation for completion of this effort by the end of 2009, by completing 

between 5-10 lease renewals per year. Additionally, the Medford District has range 

management staff directly involved in preparing the Western Oregon Plan Revision. The plan 

will address management recommendations for both active and vacant grazing allotments. 

2009 PROGRAM PERFORMANCE

2007 Accomplishments - In 2007, the Medford District primarily focused on completing the 

CSNM Livestock study and having the study peer reviewed. This was completed including all 

program targets for monitoring (9), grazing use lease authorizations (67), maintenance of exiting 

fence projects (20), and grazing lease compliance (23). Originally, 10 grazing leases were 

targeted for renewal however this was renegotiated to two and work deferred due to the priority 

to complete the CSNM livestock study 

2008 Planned Program Performance - In 2008, the Rangeland program: 

 Increased Performance-

 Complete the monitoring of 10 allotments, an increase of 1 from the 2007 Actual. 

 Unchanged Performance-

 Begin NEPA analysis and regarding the renewal, modification or cancellation of livestock 

grazing leases on the Cascade Siskiyou National Monument based on the livestock 

study and public consultation. 

 Issue 67 grazing use authorizations, the same as in 2007. 

 Construct 1 shrub, grassland, or woodland project and maintain 20 existing projects in 

2007. 

 Complete grazing lease compliance inspections on 23 grazing allotments, the same as 

in 2007. 

Decreased Performance- 

• Complete the renewal of 10 grazing leases in 2007.
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-68 

2009 Planned Program Performance -The priority Range workload in the Medford District in 

FY2009 will be three-fold: 1) complete NEPA analysis based on conclusions drawn from the 

Cascade Siskiyou National Monument (CSNM) Livestock Grazing Study; 2) prepare proposed 

and final grazing decisions for eleven lessees to either renew, modify or retire their grazing 

leases within the CSNM. Other work in the Medford and Lakeview Districts will include issuing 

67 grazing authorizations (billings), monitoring 10 allotments, maintain 20 rangeland projects 

and conduct grazing lease compliance on 24 allotments.
Bureau of Land Management 2009 

Section VI-Oregon and California Grant Lands 

O&C RANGE MANAGEMENT PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Planned 2007 Actual 2008 Plan 2009 President's Budget Change from 2008 Plan to 2009 

Percent of grazing permits and leases processed as planned consistent with applicable resource management plans. [SP] 

108% 

2512/ 

2329 

117% 

2,730/ 

2,342 

103% 

2,565/ 

2,479 

100% 

2,600/ 

2,600 

79% 

2058/ 2,600 

85% 

2210/ 2,600 

90% 

3,245/ 

3,606 

+5% 

Total Actual/Projected Cost ($000) $19,513 $18,908 $21,027 $0 $23,792 $26,476 $25,654 -$822 Actual/Projected Cost per permit or lease (in dollars) $7,768 $6,926 $8,198 $0 $11,560 $11,980 $7,906 -$4,074 Comments: 

The grazing strategy or planned number considers all permits due for renewal and a portion of the existing bac

completed by each office during the reporting period. A customer service standard is being implemented in 2007 the permits in backlog status. 

Issue Grazing Allotment Permits/Leases (number). 35 36 25 2* 2 10 10 0% Issue Grazing Use Authorizations (number). 64 67 67 67 67 67 67 0% Maintain Shrub, Grassland, Woodland, Forest Projects (number). 

18 19 21 25 29 20 20 0% 

Monitor Grazing Allotments (number). 8 12 6 11 11 10 10 0% Inspect Grazing Allotments for Compliance (number). 24 28 23 23 23 24 24 0% * The 2007 program was focused on grazing assessments rather than permit renewal as shown in the President's budget. 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-70 

Recreation Management - The Western Oregon Recreation program consists of a complex 

and interlaced management system of campgrounds, lakes, reservoirs, rivers, interpretative 

programs, recreation permits, site fee collections, OHV management, and tourism outreach, trail 

systems, designated areas (wilderness, Outstanding Natural Area, National Monuments, Areas 

of Critical Environmental Concern, Wild and Scenic Rivers, Scenic Byways, National Trails, and 

more), volunteer and partnership programs, and other benefits-based management actions 

throughout these programs. As such, recreation emphasis is on managing public lands and 

waters for enhanced recreation experiences for the public’s quality of life. Involvement in the 

NWFP revision is a priority for recreation and OHV management. OHV management for 

western Oregon will be in accordance with the national guidelines and strategy. Route 

designation and OHV coordination will reduce resource impacts on the west side. All west side 

fee sites will be evaluated and managed with the new fee authority; Federal Lands Recreation 

Enhancement Act (FLREA). 

2009 PROGRAM PERFORMANCE

2007 Accomplishments 

 Maintained 145 miles of trail 

 Issued and managed 33,872 Recreation Use Permits 

 Prepared/revised 2 Recreation Activity Plans. 

2008 Planned Program Performance - In 2008, the Recreation Management program: 

Increase Performance-

 Assess 250 miles of linear recreation resources, a 443% increase over 2007 levels. 

 Unchanged Performance-

 The Recreation Management program plans performance similar to 2007 with continued 

emphasis on updating plans for recreation on four Oregon Wild and Scenic Rivers. 

 Make available 14,500 miles of river and shoreline made available for recreation through 

management actions and partnerships, the same as in 2007. 

 Evaluate 12,000 acres of recreation areas, the same level as in 2007. 

 Inventory 6,000 acres of recreation resources, a 2% reduction from 2007 levels. 

 Assess 98 miles of nationally designated rivers and trails, same level as 2007. 

 Prepare 2 Recreation Activity Plans, unchanged from 2007 levels. 

 Decrease Performance- 

 Issue and manage 16,000 recreation use permits, a 50% reduction from 2007 levels. 

The following were new measures initiated in 2008: 

 Percent of recreation units with management plans. 

 Number of square feet in buildings maintained in adequate condition. 

 Number of non-building maintained in adequate condition. 

 Number of square feet of buildings constructed at recreation sites. 

 Number of non-building assets constructed at recreation sites. 

 Make available 14,500 miles of river and shoreline for recreation through management 

actions and partnerships. 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-71 

2009 Planned Program Performance - Recreation goals in Western Oregon include a variety 

of programs that interconnect. Seven distinct goals dealing with managing quality recreation 

experiences in a preferred setting, sustaining travel and tourism development, providing fair 

value and return for recreation services, establishing travel planning approaches, ensuring 

public health and safety, enhancing visitor services and sustaining collaborative partnerships 

and volunteer services, are the baseline efforts District’s will be involved in during 2008. With 

demographics changing and public demand for recreation on the rise, the need to integrate 

effective strategy is a prerequisite to success. More specific actions include the following: 

1) Development of a Comprehensive Travel Management strategy for Western Oregon will 

include a framework for motorized and non-motorized recreation programs. 

2) An overall Oregon/Washington Recreation Strategy will be developed with coordination’s 

between mangers, planners, partners and cooperators. This will identify Oregon’s special niche 

for a wide array of recreation programs and move Districts toward Benefits Based 

Management. 

3) Developed Sites planning, monitoring and deferred maintenance issues will continue as a 

high priority. 

4) Dispersed recreation areas will be identified in the Western Oregon revised Resource 

Management Plan, an effort by all six O&C Districts. 

5) Interpretation and Tourism incentives will be brought to the tables of cooperating partners to 

benefit local and non-resident receptionists. 

6) Rivers and trails will be managed to protect the natural resources, minimize user conflicts, 

promote a quality recreational experience in a preferred setting, and promote public safety. 

7) Permits will be issued at campgrounds, day-use areas, and at special events across the 

Districts O&C wide, meeting the public demand by users in the state. 

8) Tens of thousands of volunteer hours and projects will be managed, along with long term 

recreation partnerships between BLM and user constituencies and; 

9) Monitoring of use and resources of these recreation programs will be documented and 

brought to the appropriate management attention. 

As one of the largest recreation programs the Bureau manages, Oregon and Washington BLM 

programs continue to be complex and in high public demand. BLM’s image is directly related to 

the successes of this “out front” curriculum. 
Bureau of Land Management 2009 

Section VI-Oregon and California Grant Lands Page VI-72 

O&C RECREATION MANAGEMENT PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Planned 2007 Actual 2008 Plan 2009 President's Budget Change from 2008 Plan to 2009 

*Percent of visitors satisfied with the quality of their experience (SP/PART) 

94% 91% 97% 94% 93% 93/ 100 93% 93/ 100 94% 94/100 +1% 

Total Actual/Projected Cost ($000) $23,942 $21,060 $18,984 $0 $16,227 $24,152 $21,952 -$2,200 Actual/Projected Cost per Percent of Visitors Satisfied (in dollars) $263,094 $231,426 $195,715 $0 $174,480 $259,700 $233,531 -$26,169 Comments: Customer surveys have a variance of +/- 6%. BLM hosted over 57 million visitors in 2007. 1% equals 570,000 v*Percent of recreation units with current management plan (SP) 

new 

measure 

new 

measure 

new 

measure 

Establish 

Baseline 

55% 

199/ 362 

56% 

201/ 362 

56% 

203/ 362 0% 

Total Actual/Projected Cost ($000) $0 $0 $0 $0 $1,757 $2,373 $2,073 -$300 Actual/Projected Cost per Unit (in dollars) $0 $0 $0 $0 $8,829 $11,808 $10,210 -$1,598 Comments: 

Reflects the number of administratively designated Special Recreation Management Areas (SRMAs) 

management plans in place. These units include areas with significant recreation infrastructure development, hig

and more intensive recreation management needs. About 15% of BLM lands have been designated as SRMAs. 

*Maintenance: Number of square feet of buildings maintained in adequate condition, determined by FCI<0.15, at recreation sites. (Bur) 

new 

measure 

new 

measure 

new 

measure 

93% 

706,285/ 

761,903 

90% 

723,280/ 

799,420 

90% 

723,280/ 

799,420 

90% 

723,280/ 

799,420 

0% 

Total Actual/Projected Cost ($000) $0 $0 $0 $0 $23,466 $28,781 $26,429 -$2,352 Actual/Projected Cost per Square Foot (in dollars) $0 $0 $0 $0 $32 $40 $37 -$3 
Bureau of Land Management 2009 

Section VI-Oregon and California Grant Lands Page VI-73 

O&C RECREATION MANAGEMENT PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Planned 2007 Actual 2008 Plan 2009 President's Budget Change from 2008 Plan to 2009 

Comments: 

This measure includes funding from Recreation Management, Maintenance Operations, Annual Maintenance, aMaintenance accounts which includes the Oregon and California Grant Lands. The performance results are Annual Maintenance and Maintenance Operations, and do not include Deferred Maintenance which would be 

by the 10% of square feet of buildings that do not meet adequate condition. The 2009 decline in funding 

maintenance does not affect the performance of the measure in the short term but will show a steeper rate of dlong term. Since deferred maintenance is more costly than annual maintenance, the remaining annual mainten

a lower cost. In 2009, Western Oregon Operations Maintenance will provide 4,286 square feet of bui

maintenance which is included in the total of 723,280 square feet of buildings maintained at recreation sites. 

Maintenance: Number of nonbuilding assets maintained in adequate condition, determined by FCI<0.15, at recreation sites. (Bur) 

new 

measure 

new 

measure 

new 

measure 

88% 

11,883/ 

13,479 

88% 

14,670/ 

16,724 

88% 

14,670/ 

16,724 

88% 

14,670/ 

16,724 

0% 

Total Actual/Projected Cost ($000) $0 $0 $0 $0 $23,440 $15,541 $13,610 Actual/Projected Cost per Asset (in dollars) $0 $0 $0 $0 $1,598 $1,059 $928 Infrastructure Improvement: Number of square feet of buildings constructed at recreation sites. (Bur) 

UNK 7,200 5,600 27,000 83,524 37,187 25,000 -33% 

Total Actual/Projected Cost ($000) $0 $617,242 $143,443 $0 $445,013 $482,847 $481,752 -$1,095 Actual/Projected Cost per Square Foot (in dollars) $0 $85,728 $25,615 $0 $5,328 $12,984 $19,270 +$6286 Comments: Infrastructure improvement results for buildings constructed at recreation sites are based on actual squar

planned projects which will vary each year. 2005 and 2006 actuals show number of buildings rather than square 

*Infrastructure Improvement: Number of non-building assets constructed at recreation sites. (i.e. roads, bridges, etc) (Bur) 

0 8 10 18 30 30 30 0% 

Total Actual/Projected Cost ($000) $0 $1,213 $4,338 $0 $4,869 $2,397 $2,086 -$311 
Bureau of Land Management 2009 

Section VI-Oregon and California Grant Lands Page VI-74 

O&C RECREATION MANAGEMENT PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Planned 2007 Actual 2008 Plan 2009 President's Budget Change from 2008 Plan to 2009 

Actual/Projected Cost per Constructed Asset (in dollars) $0 $151,591 $433,768 $0 $162,282 $79,884 $69,525 -$10,359 Comments: Infrastructure improvement results for non-building assets constructed at recreation sites are based on actual pla

projects which will vary each year. 

Percent satisfaction among visitors served by facilitated programs (SP/PART) 

new 

measure 

new 

measure 

new 

measure 

91% 81% 81/ 100 81% 81/ 100 82% 82/ 100 +1% 

Total Actual/Projected Cost ($000) $0 $0 $0 $0 $45,461 $24,355 $21,779 -$2,576 Actual/Projected Cost per Percent of Visitors Satisfied (in dollars) $0 $0 $0 $0 $561,251 $300,676 $265,603 -$35,073 Comments: Facilitated programs include all deliverable interpretive products and include a wide range of signs, kiosks

displays, websites, educational programs etc...each of which may reach thousands of individual visitors. 

**Inventory Recreation Resources (acres). 18,816 13,948 6,080 17,080 17,107 6,000 6,000 0% **Assess Linear Recreation Resources (miles). 139 187 632 196 196 250 250 0% **Assess Nationally Designated Rivers and Trails (number). 55 55 55 98 98 45 45 0% Prepare Recreation Activity Plans (number). 3 3 4 2 2 2 2 0% Process Commercial and Group Special Recreation Permits (number). 

150 164 +172 150 148 145 145 0% 

Issue and Manage Recreation Use Permits (number). 25,400 22,134 24,742 28,000 33,872 16,000 16,000 0% Evaluate Recreation Areas (acres). 10,063 21,129 11,300 14,292 14,260 12,000 12,000 0% 
Bureau of Land Management 2009 

Section VI-Oregon and California Grant Lands Page VI-75 

O&C RECREATION MANAGEMENT PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Planned 2007 Actual 2008 Plan 2009 President's Budget Change from 2008 Plan to 2009 

Monitor Wilderness and Wilderness Study Areas (acres). 5,867 5,948 5947 5,948 81 5,948 5,948 0% *The Strategic Plan Performance Measures shown in this table represent national totals which include O&C 6332, and Recreation 1220 values **Results for O&C Recreation Management are based on actual projects planned and will vary between years. 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-76 

Soil, Water and Air Management- The Soil, Water, and Air program is focused on priority 

sub-basins and waters included on the State of Oregon’s 303(d) list of affected waters. Program 

objectives emphasize the potential to restore water quality, restore listed salmonid fisheries, 

improve aquatic and riparian habitat, and to develop program priorities based on stakeholder 

input and involvement. The program has been coordinated with the fisheries and riparian 

programs and was expanded in 2006 to include upland concerns relating to noxious and 

invasive species management, soils, upland health, habitat for sensitive species, and wild and 

scenic rivers. Much of the work emphasizes activities to monitor or restore watersheds based on 

the necessity to comply with the Clean Water Act and to develop monitoring and restoration 

activities defined within the context of water quality restoration plans that support Total 

Maximum Daily Load implementation. Additionally, the program supports studies necessary to 

establish in-stream flows 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 Service to develop flow and water quality monitoring data 

necessary for developing National Environmental Policy Act planning documents. The program 

supports the National Energy Policy Act of 2005 through involvement in the Federal Energy 

Regulatory Commission re-licensing process. 

2009 PROGRAM PERFORMANCE

2007 Accomplishments 

 108 acres of watersheds assessed 

 9 miles of stream and riparian habitat inventoried or monitored 

 17,045 acres of watersheds assessed a reduction from the planned 97,580 due to 

litigation that prevented completion. 

 Renewed memorandum of agreement with Oregon Department of Environmental Quality 

 Continued funding of U.S. Geological Service stream gages for Western Oregon 

2008 Planned Program Performance 

 Continue funding the U.S. Geological Service for operation of stream gages in Western 

Oregon 

 Operate according to the terms of a memorandum of agreement with the Oregon 

Department of Environmental Quality 

 Develop a comprehensive monitoring strategy for portions of Western Oregon where 

aquatic habitat restoration, AREMP monitoring, and establishment of a total station for 

stream channel characterization will provide input to factors affecting restoration 

potential/success

 

In 2008, the Soil, Water, and Air Program plans to: 

 

Unchanged Performance-

 The Soil, Water and Air Program plans similar performance to that of 2007 with 

increased effort to improve efficiencies in TDML compliance through standards 

development, refining methods and models for developing TMDLs, and increased 

coordination with regulatory agencies. 

Decreased Performance- 

 Watershed Assessment is estimated at 97,000 acres, a 3% reduction from the planned 

accomplishments for 2007. 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-77 

 Water resources will be monitored at 145 sites, a four percent reduction from the 2007 

levels. 

 Five sites will be monitored for air resources/climatic conditions, a decrease of 5 from 

the 2007 levels.

2009 Planned Program Performance - Throughout the Western Oregon Plan Revision plan 

area several Total Maximum Daily Loads (TMDLs) are either approved or in development. By 

Oregon Statute the BLM is a Designated Management Agency (DMA) with responsibilities for 

complying with the Clean Water Act on lands the agency administers, has or will have a role 

and responsibility in implementing these TMDLs. The BLM meets this regulatory obligation by 

preparing and implementing water quality restoration plans (WQRPs) that include components 

of aquatic and riparian habitat restoration intended to protect and/or restore water quality in 

areas where it is impaired. Like the recovery plans, WQRPs are a statement of BLM’s 

commitment to watershed protection and restoration and require annual funding to implement. 

Funding would support a wide range of watershed restoration activities in the O&C lands. 

Upland and riparian habitats would be treated to remove invasive plants; reduce susceptibility to 

insect, disease and fire; create habitat for wildlife and special status plants; and accelerate the 

growth of trees for large wood recruitment and to improve stream shade. Upslope, mid-slope, 

and stream adjacent roads that intercept the stream channel would be decommissioned and/or 

obliterated or receive surface improvements. High priority instream activities would include 

barrier or culvert replacement, placement of large wood, and development of site potential 

riparian vegetation where it currently does not exist. The following are the goals and objectives 

we plan to accomplish in a collaborative approach with partners: 

 Develop administrative efficiencies that support improving water quality in impaired 

waters. Treatments may include but not be limited to 

o Thinning riparian stands to improve shade characteristics and thereby reduce 

stream temperatures 

o Reduce fine sediment being delivered to stream channels from roads and other 

sources 

o Coordinate with EPA and ODEQ on TMDLs and WQRPs 

 As funds allow restore upland and riparian habitat for plant communities and wildlife 

through vegetation management 

o Stand development 

o Invasive plant treatments 
Bureau of Land Management 2009 

Section VI-Oregon and California Grant Lands 

O&C SOIL, WATER & AIR MANAGEMENT PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Planned 2007 Actual 2008 Plan 2009 President's Budget Change from 2008 Plan to 2009 Lo

T(

Percent of surface waters acres managed by DOI that meet State EPA Approved Water Quality Standards. (SP) 

Establish 

Baseline 

87% 

282,167/ 

324,628 

87% 

282,966/ 

324,628 

87% 

283,616/ 

324,628 

87% 

283,616/ 

324,628 

87% 

283,616/ 

324,628 

87% 

283,616/ 

324,628 

+0% 

28

3

Comments: Support Measure - No cost will be shown. The BLM uses State EPA reports to provide results for this measure. Inventory water resources (number). 859 908 71 108 108 75 75 0% Complete watershed assessments (acres). 207,555 101,784 58,000 97,580 17,045 97,000 92,150 -5% 9Comments: O&C Districts are not currently involved in planned actions or decisions that require watershed assessments. Process water rights actions (number). 5 1 1 0 0 0 0 0% Comments: Reduced production is a function of the limited number of Public Water Rights and 107 federal water rights being processed in Western Oregon at this time. State adjudications involving the BLM are also reduced. Monitor air resources/climatic conditions (number). 15 15 4 5 5 0 0 0% Comments: All air resource monitoring has since been re-prioritized within this program and is no longer funded with the excep

support to the BLM Fire Management program. 

Monitor water resources (number). 415 404 311 158 151 145 145 0% The BLM shifted the reporting of water resources monitored to reflect USGS maintained stream gages. The Strategic Plan Performance Measures show

table represent national totals which include O&C 6333, AML 1010, and Hazardous Materials 1640. 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-79 

Wildlife and Fish Habitat Management 

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 Settlement Agreement are critical elements of 

the program. Incumbent in the program is responsibility under the NWFP, the Federal 

Endangered Species Act and Bureau policies to inventory, monitor, and manage 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 United States Forest Service to monitor 

northern spotted owl populations and increasing 

old growth forest characteristics within Late 

Successional Forest Reserves to enhance habitat 

for many listed and sensitive species and support 

the Healthy Forests Initiative Integrating separate 

BLM/United States Forest Service sensitive 

species programs into one Interagency Special 

Status Species Program as per the 2004 Record 

of Decision on the NWFP Survey and Manage 

Special 

Status Species program was initiated in 2004 and 

continues to be a priority. 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. Program activities contribute to 

emphasis area #2 by enhancing wildlife and fish habitat through improved watershed condition, 

water quality and overall forest health.

2009 PROGRAM PERFORMANCE

2007 Accomplishments 

 BLM completed an interagency conservation assessment with the USFS, USFWS and 

State agencies for the Pacific fisher, a federal candidate species associated with 

westside forests in Oregon and Washington. 

 BLM staff cooperated and participated on a recovery plan team that developed a draft 

recovery plan for the northern spotted owl in 2007. 

 Under the Interagency Special Status Species Program (ISSSP), BLM accomplished 

over forty species fact sheets, rare amphibian and butterfly inventories, plant and fungi 

taxonomic analyses, the development of a site management plan format for rare species 

and establishment of joint FS Region 6 and BLM OR/WA listing criteria for determining 

special status species. 

 Approximately 700 sites of the northern spotted owl were monitored on BLM lands to 

ensure compliance and contribution with the interagency effort to population status of 

this listed species. 

 Approximately 2.5 million acres and 224 species were monitored as part of NWFP 

implementation. 

The western Oregon Fish and Wildlife Habitat 

program combines habitat restoration actions with 

monitoring and inventory work. 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-80 

2008 Planned Program Performance - In 2008, the Wildlife and Fish Habitat Management 

program plans to: 

Increase Performance- 

 Inventory 120 miles of Stream/Riparian Areas, an increase of 34% over 2007 levels. 

 Prepare 2 T&E species recovery plans. BLM does not actually prepare species recovery 

plans. That authority falls under FWS. We do participate in the preparation of plans as 

cooperating agencies. This year we are working on 3 fish stocks and should complete 

the northern spotted owl recovery plan. But completion of these plans is outside of our 

control 

Unchanged Performance - 

 Monitor 100 acres of lake and wetland habitat. 

 Monitor 700 sites of the northern spotted owl. 

 Complete approximately 40 rare species fact sheets as part of the ISSSP. 

 Continue special status amphibian and butterfly habitat analyses and modeling for the 

ISSSP effort. 

Decrease Performance- 

 Monitor 2,497,021 acres of terrestrial habitat. 

 Monitor 873 species populations. 

 Implement 31 species recovery/conservation actions. 

 Inventory of wildlife/plant habitat is estimated at 58,000 acres. 

The following new measure was initiated in 2008: 

 Number of conservation actions implemented from recovery plans for ESA-listed 

species. 

 Complete a conservation strategy for the Pacific fisher under the cooperative FS, BLM, 

USFWS and States effort. 

 Initiate telemetry project n the OR spotted frog – a federal candidate - as part of the 

ISSSP. 

2009 Planned Program Performance 

 If the final Western Oregon Plan Revision (WOPR) is implemented similar to the August 

2007 draft EIS, there will be decreased emphasis on non- federally listed special status 

species management and conservation on BLM managed O&C lands. Therefore the key 

focus will be on listed species such as the northern spotted owl, marbled murrelet and 

various populations of anadromous fish. 

 In 2009, contingent upon the completion of the recovery plan for the northern spotted 

owl, monitoring of owl sites will continue a similar or modified level as consistent with 

interagency objectives of the monitoring and demography program. 

 Owl and murrelet recovery plan objectives and goals will be integrated into BLM plans 

and activities to the extent consistent with the WOPR direction. 

 Surveys and protection for murrelet sites will occur per the terms and conditions of 

Section 7 ESA consultation with the USFWS. 

 If the final Western Oregon Plan Revision is implemented, increased cooperation with 

Oregon Department of Fish and Wildlife and the Forest Service will be necessary to 

improve and restore elk and deer habitat as per the plan E.O.13443. 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-81 

2009 Performance Change 

 Monitor 2,236,000 acres of habitat as part of interagency resource monitoring to meet 

criteria of NWFP. This is a decrease of 118,000 (5%) acres monitored in 2008 and could 

reduce the Bureau’s ability to satisfy monitoring obligations related to the NWFP. 
Bureau of Land Management 2009 

Section VI-Oregon and California Grant Lands 

O & C OTHER FOREST RESOURCES Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 President's Budget Change from 200

Plan to 2009 

Number of conservation actions implemented from recovery plans for ESA-listed species. (Bur/PART) 

New 

Measure 

New 

Measure 

New 

Measure 1,150 1,254 1,375 1,650 +20% 

Total Actual/Projected Cost ($000) 0 0 0 0 $43,896 $44,373 $44,749 +376 Actual/Projected Cost per Conservation Action (in dollars) $0 $0 $0 $0 $35,005 $32,271 $27,121 -$5,150 Comments: 

 As a result of the 2006 Resource Management PART recommendations BLM has redirected base funding inimprove performance directly related to ESA listed species beginning in 2008. Western Oregon Other Foreswill implement 32 conservation actions in 2009 which are included in the 1,900 conservation actions impleme

measure includes an increase for the Healthy Lands Initiative of $376,101 in 2009, which will result in 40 addrecovery and conservation actions. 

Streams/Riparian Areas Inventory (Miles) 125 117 163 124 183 120 116 -4 Inventory Wildlife/Plant Habitat (acres). 82,881 88,924 94,801 69,729 92,299 58,000 60,000 +2,000 Prepare T&E Species Recovery Plans (number). 2 3 0 0 0 2 0 -2 Implement Species Recovery/Conservation Actions (number). 

48 38 35 21 31 31 30 -1 

Lake and Wetland Habitat Monitored (Acres) 100 105 106 100 100 100 0 -100 Monitor Terrestrial Habitat (acres). 185,986 186,951 2,588,955 2,563,344 2,497,021 2,497,021 2,236,000 -261,021 Monitor Species Populations (number). 703 1,094 828 663 873 873 804 -69 The Performance Measures shown in this table represents national totals which include O&C 6334, 1110, 1120, and 1150 values. 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-83 

Activity: Western Oregon Resources Management 

Subactivity: Resource Management Planning 

Activity: Western Oregon Resources Management 

Subactivity: Resource Management Planning 

 2009 

 Fixed Costs & Change 

 2007 2008 

Related 

Changes 

Program 

Changes Budget 

from 

2008 

 Enacted Enacted (+/ -) (+/ -) Request (+/-) 

Resource Mgmt. Planning ($000) 6,564 3,650 +84 -1,034 2,700 -950

 

FTE 47 47 0 -5 42 -5

Other Major Resources: 

 

Major Program IT Investments: 

 

 

Summary of 2009 Program Changes for Resource Management Planning 

Request Component ($000) FTE

Program Changes: 

• Organizational & Administrative Streamlining -12 

• Travel & Relocation Expenses -22 

• Completion of Plans -1,000 -5

TOTAL, Program Changes -1,034 -5

JUSTIFICATION OF 2009 PROGRAM CHANGES

The 2008 budget request for the Resource Management Planning program is $ 2,700,000 and 

47 FTE, a net program change of -$1,034,000 and 5 FTE from the 2008 enacted level. 

Completion of Plans - In 2009 the Western Oregon Resource Planning Program will complete 

revision of six Resource Management Plans. This is the conclusion of a significant planning 

effort initiated in 2005 and completed under the court ordered Settlement Agreement (American 

Forest Resource Council et.al. v. Clarke). Records of Decision will be issued before the end of 

calendar year 2008. Alternatives examined in the Draft Environmental Impact Statement have 

proposed significant increases in timber sale offerings and continued non-timber project 

implementation at historic levels. 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-84 

Program Change Table 

2005 

Actual 

2006 

Actual 

2007 

Actual 2008 Plan 

2009 

Base 

Budget 

(2008 

Plan + 

Fixed 

Costs) 

2009 

President’s 

Budget 

Program 

Change 

Accruing 

in 2009 

Program 

Change 

Accruing 

in Outyears 

A B=A+C C D 

Prepare Draft Land 

Use Plan and Final 

EIS (number). 

0 0 6 0 0 0 0 0 

Total 

Actual/Projected 

Cost ($000) 

$0 $0 $4,000 $1,000 $1,000 $0 -$1,000 $0 

Projected Cost per 

workload measure. $0 $0 $666,666 $0 $0 $0 $0 $0 

Comments 

The $1,000,000 reduction seen in 2009 closes out the process for revising 6 Resource Management 

Plans for the Western Oregon Grant Lands. No new planning starts are needed at this time, and work will 

shift to implementing these 6 plans 

Note: Projected costs may not equal program change as these are full costs, which may include funds from other sources and 

(or) use averages. 

 

Column A: The level of performance and costs expected in 2009 at the 2008 level plus funded fixed costs. Reflects the impact of

prior year funding changes, management efficiencies, absorption of prior year fixed costs, and trend impacts, but does not reflect 

the proposed program change. 

 

Column D: Outyear performance beyond 2009 addresses lagging performance — those changes occurring as a result of the 

program change (not total budget) requested in 2009. It does not include the impact of receiving the program change again in a 

subsequent out-year. 

PROGRAM OVERVIEW

The Western Oregon Resource Management Planning program emphasizes the development, 

implementation, and maintenance of Resource Management Plans (RMPs) for BLM-managed 

lands in Western Oregon. These RMPs direct management of public lands for current and future 

resource protection, resource use, and recreation use in western Oregon. 

Program Components - The major components of the program are: 

• Development, completion, and publication of the six Proposed Resource Management 

Plans/Final Environmental Impact Statements (EIS), and issuance of six Records of 

Decision; 

• Supporting implementation of applicable plans through project level NEPA analysis 

guidance and review; 

• Complying with applicable laws regulations, and policies, including, but not limited to, 

National Environmental Policy Act, Federal Land Policy and Management Act, 

Endangered Species Act, Clean Air Act, and Clean Water Act; and, 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-85 

• Educating and training employees. 

 

Development, completion, and publication of 

the six land use plans – The Settlement 

Agreement directed revision of the six RMPs 

covering all BLM-managed lands in western 

Oregon. The BLM agreed to complete its land 

use plan revisions by the end of 2008. The 

RMP/EIS revisions will address public lands and 

resources managed by the Salem, Eugene, 

Roseburg, Medford, and Coos Bay Districts, and 

lands managed by the Lakeview District's 

Klamath Falls Field Office. The composite 

planning area includes approximately 2,550,000 

acres of public land, and 69,000 acres of splitestate, where the lands only involve the Federal 

mineral estate. 

The RMPs contain goals, objectives, land use 

allocations, and standards and guidelines. The 

RMPs provide the decisional and environmental 

documentation for subsequent activity and 

implementation of projects, such as timber sales, 

fuels treatments, transportation management, recreation, special status species, and water 

quality. The RMPs support the implementation of the Healthy Forests Initiative, the Tribal 

Forest Protection Act, and the Healthy Forests Restoration Act. The purpose of the land use 

planning process is to ensure that management decisions balance resource uses with resource 

protection in an open and public process, using the best available information. 

Ongoing Planning Activities and support for Implementation of Existing Plans - The 

Western Oregon Planning program supports Resource Management Plan implementation 

through provision of a network of planning experts who provide oversight, extensive advice, and 

review of the Environmental Assessments, Categorical Exclusions, and Determinations of 

NEPA Adequacy. Preparation of high quality NEPA documents is a critical step in agency 

decision making and project implementation. 

The existing program funds approximately 1 FTE per Westside district and 2 FTE at the State 

Office for a total of 7 FTE’s. The program also supports its proportionate share of administrative 

and other costs. Funded district personnel provide the expertise needed to advise specialists 

and interdisciplinary teams preparing NEPA documents to support agency decision making and 

plan implementation. These experts have the responsibility of ensuring that documents meet 

the standards required by law, regulation and policy. The expertise and coordination from State 

Office staff includes: social and economic sciences, protest/appeal/litigation coordination, 

alternative dispute resolution, geographic sciences, printing and distribution. 

Long-term Vision- The long-term goal of the Western Oregon Resource Management Planning 

program is to develop and support implementation of high quality, legally defensible and publicly 

supported land use plans. 

Successful Use of Cost and 

Performance Information

Using the BLM cost management system all 

expenditures are continuously tracked using 

an assigned project code to ensure work and 

products are within allocated cost targets and 

agreed upon accomplishment targets. 

In Fiscal Year 2007 the Oregon State Office 

utilized this information to establish base 

budgets for all subactivites and offices. 

Within the Western Oregon Planning 

Program this has resulted in greater 

accountability and more focus on project 

support. In particular, an emphasis on 

employee training and investments in 

collaborative process may provide a 

mechanism for future decreases in litigation 

costs. Future cost and performance data will 

be evaluated in conjunction with other 

information to determine the long-term return 

on these investments. 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-86 

The Western Oregon Plan Revision DEIS examines a range of alternatives which significantly 

increase timber sale offerings. The preferred alternative has the potential to almost triple timber 

sale offerings. 

The Oregon State Office has anticipated that as timber volume offered targets increase under 

the revised plan a less than proportionate increase of NEPA documents will be prepared. 

Some efficiencies are anticipated under the plan revision due to several factors: 1) districts will 

be completing more landscape scale Environmental Assessments (EA) that analyze multiple 

projects in a watershed or other geographic area, and 2) greater use of regeneration harvest 

under the revised plans will result is greater timber volume offered in a single EA, thus lowering 

average support cost per thousand board foot. Due to efficiencies, Oregon BLM has projected 

a decrease in planning support cost per thousand board foot offered of 15% to occur over the 

first 3 years of the plan implementation. 

Means and Strategies– The Western Oregon Planning program supports Resource 

Management Plan implementation through provision of a network of planning experts who 

provide oversight, extensive advice, and review of the EAs, Categorical Exclusions, and 

Determinations of NEPA Adequacy. Preparation of high quality NEPA documents is a critical 

step in agency decision making and project implementation. 

 

Critical Factors – The BLM has committed to revising the six land use plans by the end of 2008 

as part of a court ordered settlement. The court, plaintiffs, and many other interested groups 

and individuals expect the agency to meet its commitment. Delivering the RMP’s on schedule is 

very important in maintaining agency credibility and building trust with interested publics. 

Demands, Trends, and Resources - Population growth has resulted in increased demand for 

public access, recreation use, and visual protection, particularly in the wildland-urban interface 

areas. Demand for species protection has also increased in recent years. The planning 

process highlights both the diversity of interests in the public lands and the areas of 

commonality. The revised RMP’s propose a new approach to managing forest lands to provide 

species protection. 

Strategic Plan - The Resource Management Planning program also supports the mission goals 

in the Department’s Strategic Plan by providing management direction, developed with public 

participation and collaboration, that balances the goals of resource protection, resource use, 

and recreation on BLM managed lands. 

2009 PROGRAM PERFORMANCE

2007 Accomplishments - During 2007 the Draft Western Oregon Resource Management 

Plans/EIS was published and the following was produced. 

 Continued implementation and refinement of the public involvement strategy 

 Continued involvement of the Cooperating Agencies 

 Continued support of ongoing planning activities and support for implementation of the 

applicable resource management plans. 

2008 Planned Program Performance - In 2008, the Western Oregon Resource Management 

Planning program will: 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-87 

 After conclusion of the public comment period, which was extended to 151 days 

because of public and congressional requests, a Comment Analysis Report will be 

published to address issues and concerns raised by the public. 

 Responses to comments will be developed for inclusion into the Proposed Western 

Oregon Resource Management Plan/DEIS

 Changes to the alternatives or analysis may be made based on public comment 

 Publish one Proposed Plan/Final Environmental Impact Statement addressing the 

Salem, Eugene, Roseburg, Medford and Coos Bay Districts and the Klamath Falls 

Resource Area of the Lakeview District. 

 Issue six Records of Decision for the proposed Western Oregon Resource Management 

Plans/Final Environmental Impact Statements; 

 Continue the ongoing planning activities and support for implementation of applicable 

resource management plans. 

2009 Planned Program Performance - The revision of the six Western Oregon RMPs and 

publication of the Records of Decision will be completed. In 2009, emphasis will be on 

implementing these six revised RMPs. In addition, the State Office will continue to develop and 

sponsor supplemental NEPA training. The training emphasizes improving the quality and 

consistency of Environmental Assessments, with the goal of improving legal defensibility of the 

documentation supporting agency decision-making. 

In 2009, the Western Oregon Resource Management Planning program will: 

 Issue implementation guidance, as needed, at both the regional and district levels. 

 Finalize an Implementation Plan that: 

o Establishes project priorities; 

o Maintains and updates inventory and other data utilized in the planning process 

as an implementation tool; 

o Recognizes this data collection as a valuable capital resource; 

o Directs monitoring and establishes monitoring priorities; and, 

o Involves cooperating agencies, state and local governments, tribes and other 

interested publics in implementation of the revised plans. 

 Prepare materials in response to anticipated litigation. 

 Continue the planning activities and support for implementation of applicable resource 

management plans. 
Bureau of Land Management 2009 

Section VI-Oregon and California Grant Lands Page VI-88 

O&C RESOURCE MANAGEMENT PLANNING PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Planned 2007 Actual 2008 Plan 2009 President's Budget Change from 2008 Plan to 2009 Long-term Target (2012) 

Prepare Draft Land Use Plans (number). 0 0 0 6 6 0 0 0 0 Prepare Proposed Land Use Plan and Final EIS (number). 

0 0 0 0 0 6 0 -6 0 

Resolve Land Use Plan Protests and Prepare ROD (number). 

0 0 0 0 0 1 0 -1 0 

Prepare Final Land Use Plan Amendment and ROD (#). 

10 0 0 6 6 0 0 0 0 

Complete RMP Implementation Strategies 0 0 0 0 0 0 6 +6 0 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-89 

Activity: Western Oregon Information and Resource 

Data System 

Activity Summary ($000) 

 2009 

 Fixed Costs & Program Change 

 2007 2008 

Related 

Changes Changes Budget 

from 

2008 

Subactivity Enacted Enacted (+/ -) (+/ -) Request (+/-) 

 Information Systems 

Operation & 

Maintenance $ 2,155 2,152 +1 -1 2,152 0

 FTE 1 1 0 0 1 0

 

 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-90 

Activity: Western Oregon Information and Data 

Systems 

Subactivity: Western Oregon Information Systems 

Operation and Maintenance 

Activity: Western Oregon Information and Data Systems 

Subactivity: Information Systems Operation and Maintenance 

 2009 

 Fixed Costs & Program Change 

 2007 2008 

Related 

Changes Changes Budget 

from 

2008 

 Enacted Enacted (+/ -) (+/ -) Request (+/-) 

Info. Sys. Operations & Maint. 

($000) 2,155 2,152 +1 -1 2,152 0

 

FTE 1 1 0 0 1 0

Other Major Resources: 

 

Major Program IT Investments: 

 

 

Summary of 2009 Program Changes for Information Systems Operation and Maintenance 

Request Component ($000) FTE

Program Changes: 

• Travel & Relocation Expenses -1 

TOTAL, Program Changes -1 0

JUSTIFICATION OF 2009 PROGRAM CHANGES

The 2009 budget request for the Western Oregon Information Systems Operations and 

Maintenance program is $ 2,152,000 and 1 FTE, a net program change of -$1,000 and 0 FTE 

from the 2008 enacted level. 

PROGRAM OVERVIEW

Program Components - This program provides infrastructure support for information systems 

in Western Oregon. This activity enables resources data to be available to specialists in their 

day-to-day activities and encourages and supports development of data standards and data 

stewardship. This program develops and deploys basic, cross-cutting datasets and implements 

hardware and software infrastructures necessary to deliver information to the user’s desktop. 

Integral to this function is the examination and evaluation of emerging technologies and their 

role in resource management (such as mobile GIS and internet mapping services). The 

Information Systems Operations and Maintenance program also continues to improve on 

responsive service to all BLM’s offices in Oregon/Washington. This service includes: 

 Management of IT and telecommunications infrastructure (including desktops, laptops, 

networks, and software applications), and the skills base necessary to support BLM
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-91 

employees. Integration of the IT infrastructure to resource specialists and management 

of the Web services for the region; 

 Providing the public with faster, more affordable and flexible information concerning the 

management of Lands and Resources; 

 Ensuring that the systems BLM manages are secure, and the information collected and 

used in the management of Lands and Resources is reliable through a complete 

Certification and Accreditation process approved by the BLM Washington Office and the 

Department of the Interior. 

Long-Term Vision- The long range goal is to make all data used to manage resources readily 

available for decisions on resource management as well as to external customers. Minimizing 

the system support required to maintain spatial data repository is an immediate goal. Exploring 

potential efficiencies with the Forest Service as well as partnerships with the State and other 

Federal agencies is a continuing long range goal. The strategy for the future is centralization 

and consolidation of infrastructure and skills. This will steadily reduce costs, increase reliability 

and standardization, and decrease the risks attributed to skills attrition and security 

weaknesses. Technology advances in hardware, software and telecommunications will allow 

OR/WA BLM to more tightly integrate internally as well as with other agencies. 

Critical Factors– Program performance could be impacted by the BLM’s Managing for 

Excellence decisions. Centralizing of certain IT functions at the National Operations Center 

could affect local staffing levels. Network security policies and Service First IT policy for 

sharing IT resources between BLM and Forest Service could greatly impact the advancement of 

Service First GIS in the Pacific Northwest. Final decisions on the Western Oregon Plan 

Revision will impact GIS support requirements for the state.

Means and Strategies– In 2009 the IT support functions will continue to be consolidated by 

centralizing infrastructure to the State Office. Implementing Web based collaboration tools will 

introduce ways to enhance efficiencies in communication. Citrix technology will be used to 

centralize the GIS infrastructure and facilitate the management of corporate spatial data. 

Corporate standards for spatial data will continue to be established and implemented reducing 

redundancy and strengthening the integrity of GIS data. 

Shared Service First positions and products with the Forest Service reduce costs while 

facilitating knowledge transfer and standardization of data, products and procedures between 

the agencies. Efforts will continue to more closely align the GIS functions of both agencies. 

Demands, Trends, and Resources - Western Oregon BLM has been able to maintain fairly 

stable accomplishments due primarily to the proactive management of resources, partnering 

with other agencies and reengineering the IT infrastructure to operate more efficiently. The 

trend is toward a more centralized managing of IT and GIS resources, while the demand grows 

for these services. Instituting corporate spatial data standards will ensure integrity of GIS data 

and facilitate integration with Forest Service and other partners. Web based collaboration and 

mapping tools will be implemented to enhance access and communication both within the 

agency and with out partners.

Other Funding Sources – OR/WA BLM has several on-going projects with other agencies. 

The Forest Service is sharing funding and positions to more closely align the agencies’ GIS 

programs. The BLM is also sharing funding with the Forest Service and USGS to build a single 

hydrography data set for common use in the northwest. Partnering with the Oregon LiDAR 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-92 

Consortium pools money from state, county and federal agencies to collect state-of-the art 

remote sensing data. 

Strategic Plan–Investing in technology to consolidate and integrate disparate IT systems, 

consolidate IT support and standardize corporate data are overriding themes at the Department, 

Bureau and program levels. Local strategic plans for IT and GIS are influenced by the DOI 

Geospatial Blueprint, the Bureau’s Geospatial Strategic Plan, Managing for Excellence, eGIS 

and ePlanning initiatives. Eliminating inconsistencies and redundancies between local and 

national authoritative data sets is an ongoing goal. OR/WA BLM will continue to expand public 

access to the Bureau’s data through Web technologies, while ensuring systems and data are 

secure and protected. Service First efforts will continue to more closely align the BLM and 

Forest Service GIS functions, workforce and data. 

2009 PROGRAM PERFORMANCE

2007 Accomplishments 

 Provided GIS support to the Western Oregon Plan Revision resulting in data intensive 

analysis of potential resource utilization and protection.

 Provided Web-based tools and access for the Western Oregon Plan Revision public 

comment period. These tools support eGov policies for Citizen to Government contact 

and the ability to consolidate comments in an extremely useful manner for further 

analysis.

 Instituting Sharepoint Services to improve administrative processes across the Western 

Oregon districts. 

 Implementing the GIS data framework to institutionalize BLM’s data in a format that is 

consistent across the state. 

2008 Planned Accomplishments 

 Completion of the Western Oregon Plan Revision. 

2009 Program Performance- In 2009, several activities will support the mission of the BLM in 

Western Oregon. These activities included: 

 Continued development of tools to simplify use of geospatial data. 

 Continued support of the National Fire Plan. 

 Continued development of infrastructure to support GIS. 

 Improved data sharing with external parties via the web (eGov, ePlanning). 

 Continued support of a variety of collaboration tools. 

All of these activities depend on an efficient and reliable information infrastructure (hardware, 

software, data, and applications). Three focal areas are: 

1) Standardization and consolidation of spatial data into corporate data layers that are more 

easily maintained, documented and accessible; 

2) Maintaining existing and building new partnerships to more seamlessly depict data in the 

ecosystem and share data to gain efficiencies; and 

3) Assure technology is deployed to provide customers reliable, accurate, up to date information 

about the lands we manage and make it easily accessible from a secure central location.
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-93 

Quality spatial data and the infrastructure to 

support it are key to resource management and 

planning. Following are examples of the data 

maintained or collected and some of its 

potential uses: 

 An alternative energy data layer 

documents sites with known wind and 

geothermal potential. 

 Hydrology and geology data can be 

used to assess sites for conventional 

energy potential. 

 A spatial data infrastructure is needed to 

manage timber holdings and reduce fire 

potential. 

 Transportation data and other resource 

data can help recreation planners 

develop and manage OHV opportunities 

and trails, conduct condition 

assessments and place signage. 

 Spatial data is essential to providing 

online access to travel information and 

quality maps. 

 Well organized data about cultural and natural heritage sites is essential for developing 

management plans for newly designated areas and monitoring those areas. 

 Spatial data shows additional areas where wind farms and geothermal energy could be 

developed in Oregon and Washington. 

 Hydrological data is used to assess potential waterpower. 

 Geological data can be used to evaluate possible locations of fossil fuels. 

 A variety of other resource data allows a complete assessment of potential impacts to 

the environment that might occur as a result of developing a particular energy source. 

Standard, consolidated data produces accurate, repeatable and defensible analysis that can be 

used in decisions regarding how to manage the public lands. An efficient infrastructure reduces 

the amount of time required to conduct resource analysis and enables BLM to be responsive to 

changing issues.

Use of Cost and Performance Information in the 

O&C Information Systems Program 

In 2005, an analysis was done on the IRM and GIS 

functions in OR/WA. The emphasis was on 

centralization and consolidation of infrastructure and 

skills, with the desired outcome to reduce the costs 

of service provision, increase the reliability and 

standardization of IT components and GIS data, and 

decrease the risks attributed to skills attrition and 

security weaknesses. Implementation of this plan 

continues in 2008, eliminating redundant 

infrastructure, consolidating data and centralizing 

support to the organization. In addition, efforts are 

being made to more closely integrate the GIS 

functions between the BLM and FS in the region. 

These streamlining efforts will align the OR/WA BLM 

program with the Bureau’s Managing for Excellence 

agenda, in the 2010 timeframe enabling more 

seamless products and services to support lands 

and resources decisions. These products and 

services support the unified information 

management goal of “collect once, use many times 

and in many ways.” 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-94 

Activity: Western Oregon National Landscape 

Conservation System 

Activity Summary ($000) 

 2009 

 Fixed Costs & Program Change 

 2007 2008 

Related 

Changes Changes Budget 

from 

2008 

Subactivity Enacted Enacted (+/ -) (+/ -) Request (+/-) 

National Monuments & 

National Conservation 

Areas 

$ 

FTE 

0 

0 

0 

0 

0 

0 

+486 

+6 

486 

6 

+486 

+6 

 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-95 

Activity: National Landscape Conservation System 

Subactivity: National Monuments & National 

Conservation Areas 

Activity: Western Oregon National Landscape Conservation System 

Subactivity: National Monuments & National Conservation Areas 

 2009 

 Fixed Costs & Program Change 

 2007 2008 

Related 

Changes Changes Budget 

from 

2008 

 Enacted Enacted (+/ -) (+/ -) Request (+/-) 

Nat'l Landscape Cons. Sys. ($000) 0 0 0 +486 486 +486

 

FTE 0 0 0 +6 6 +6

Other Major Resources: 

 

Major Program IT Investments: 

 

 

Summary of 2009 Program Changes for National Landscape Conservation System 

Request Component ($000) FTE

Program Changes: 

• Creation of new subactivity +486 +6

TOTAL, Program Changes +486 +6

JUSTIFICATION OF 2009 PROGRAM CHANGES

The 2009 budget request proposes a new subactivity, National Monuments and National 

Conservation Areas, funded at $486,000 and 6 FTE. 

Creation of new National Monuments and National Conservation Areas Subactivity 

($486,000) 

The 2009 President’s budget proposes a new subactivity within the Oregon and California 

Grants (O&C) appropriation, to fund annually recurring base costs in National Monuments and 

National Conservation Areas. The funds for this new subactivity are shifted from other 

subactivies in the O&C appropriation. 

PROGRAM OVERVIEW

Program Components - The National Monuments and National Conservation Areas are 

components of the BLM’s National Landscape Conservation System (NLCS). MLR and O&C 

Accounts will contain two new subactivities in 2009 to manage the National Monuments and 

National Conservation Areas and other similar congressionally designated areas, two specific to 

Western Oregon. Funding for this subactivity will be transferred from those programs that 

include annually recurring costs for managing these areas. 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-96 

National Monuments – The BLM administers 15 national monuments in eight Western States, 

the first of which was created in 1996. Within western Oregon, a single national monument, 

Cascade Siskiyou National Monument, has been designated. This conservation designation is 

an integral part of the agency’s multiple-use mandate. Congress granted the President authority 

to designate national monuments in the Antiquities Act of 1906, which specifies that the law’s 

purpose is to protect “objects of historic or scientific interest. 

In partnership with Southern Oregon University, the 

Cascade Siskiyou National Monument has initiated 

a pilot study on a 250 acre pasture on the former 

Box O Ranch. The native grassland restoration 

project was implemented to study restoration 

protocols in old pasture sites like the Box O Ranch. 

The eventual reintroduction of native drought 

tolerant grasses is considered to be a key step in 

combating noxious weeds. 

Outstanding Natural Areas – The Outstanding 

Natural Area designation was established by 

Congress primarily to protect unique scenic, 

scientific, educational, and recreational values for the enjoyment 

of current and future generations. Recreation activities center on 

those that foster education and interpretation of the Outstanding 

Natural Area’s unique resources. In 1980, Congress established 

the BLM’s first Outstanding Natural Area along Oregon’s coast at 

Yaquina Head. 

Long Term Vision – The long term vision for National 

Monuments and Outstanding Natural Areas is to provide 1) active 

and effective conservation, protection and restoration; 2) support 

for vibrant communities and mutually beneficial partnerships; 3) 

rigorous science; and 4) high quality outdoor recreation, education 

and visitor services in these areas. 

 

Critical Factors - The National Monuments and National 

Conservation Areas program’s ability to achieve outcomes is 

directly affected by external factors including economic conditions 

and other program dependencies. 

 These include weather conditions such as the direct 

impacts from prolonged drought, wildland fires. 

 Availability of commercial services (outfitters and guides), and community services (food 

and lodging). 

Means and Strategies - The National Monuments and National Conservation Areas program 

addresses the priorities of the program through: 

Burning test plots on former Box-O Ranch 

in the Cascade Siskiyou National Monument
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-97 

 Conservation, Protection & Restoration - Presidential proclamation and legislative 

objectives for national monuments and outstanding natural areas are achieved through 

active and effective stewardship of these lands. 

 Communities & Partnerships - Emphasize the value of being a good neighbor and 

extending the capacity of the NLCS to accomplish critical work through enhanced 

partnership opportunities and community involvement. 

 Science - Work with partners to gain scientific understanding of NLCS resources and 

landscapes and the benefits they provide. This knowledge can be applied to improve 

management, education, and outreach, supporting the conservation and protection goals 

of the System. 

 Recreation, Education and Visitor Services - Provide recreation management and visitor 

services that support sustainable forms of recreation and help visitors realize 

opportunities for enjoyment, learning, exploration and discovery. 

Funding Sources – In 2009, a new subactivity is established for Western Oregon National 

Monuments and National Conservation Areas. Beginning in 2009, funding for Western Oregon 

NLCS will be tracked using the new subactivity. Funding is defined as the historic annually 

recurring costs for personnel and operations at each unit. Additional funding through other 

existing BLM program subactivities will also continue to support the monuments and 

conservation areas, as in the past.

The BLM has been highly successful in using and leveraging resources as follows: 

 The BLM has built a history of innovation, creativity, and partnership success – these 

partnerships can serve as a tool to meet community growth demands placed on public 

lands. 

 The program engages corporate and local support from surrounding communities to 

collaboratively manage resources. 

Strategic Plan – These National Monuments and Natural Areas contribute to the Department’s 

2007-2012 Strategic Plan by protecting the Nation’s natural, cultural and heritage resources, 

one of the plan’s mission goals. The program protects and restores the overall health of 

landscapes and watersheds on the public lands while providing opportunities to improve 

scientific understanding of these ecosystems. The program also supports the Recreation 

mission goal by providing outstanding recreational opportunities. 

2009 PROGRAM PERFORMANCE

2007 and 2008 Accomplishments – This is a new subactivity and all prior performance was 

accomplished in other subactivities, predominately, Western Oregon Forest Management, 

Range Management, Recreation Management, Soil, Water and Air Management and Wildlife 

Management. 

2009 Planned Program Performance - In 2009, the National Monument and Conservation 

Area Management program will continue to manage the units to protect, conserve, and enhance 

natural and cultural resources for the benefit and enjoyment of present and future generations. 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-98 

The priority range workload in FY2009 will be three-fold: 1) complete NEPA analysis based on 

conclusions drawn from the Cascade Siskiyou National Monument (CSNM) Livestock Grazing 

Study; 2) prepare proposed and final grazing decisions for eleven lessees to renew, modify or 

retire their grazing leases within the CSNM.

Recreation goals in National Monuments include a variety of programs that interconnect. Unit 

goals dealing with managing quality recreation experiences in a preferred setting, sustaining 

travel and tourism development, providing fair value and return for recreation services, 

establishing travel planning approaches, ensuring public health and safety, enhancing visitor 

services and sustaining collaborative partnerships and volunteer services, are the baseline 

efforts District’s will be involved in during 2009. With demographics changing and public 

demand for recreation on the rise, the need to integrate effective strategy is a prerequisite to 

success. 

Funding will support a wide range of watershed restoration activities in the National Monument 

lands. Upland wildlife and riparian habitats would be treated to remove invasive plants; reduce 

susceptibility to insect, disease and fire; create habitat for wildlife and special status plants; and 

accelerate the growth of trees for large wood recruitment and to improve stream shade. 

Upslope, mid-slope, and stream adjacent roads that intercept the stream channel would be 

decommissioned and/or obliterated or receive surface improvements. High priority instream 

activities would include barrier or culvert replacement, placement of large wood, and 

development of site potential riparian vegetation where it currently does not exist. The following 

are the goals and objectives we plan to accomplish in a collaborative approach with partners: 

 Improve water quality in impaired waters 

o Thin riparian stands to improve shade characteristics and thereby reduce stream 

temperatures 

o Reduce fine sediment being delivered to stream channels from roads and other 

sources 

o Continue work on Total Maximum Daily Loads and Water Quality Restoration 

Plans with the Environmental Protection Agency and Oregon Department of 

Environmental Quality. 

 Restore upland and riparian habitat for plant communities and wildlife through vegetation 

management 

o Stand development 

o Invasive plant treatments 
Bureau of Land Management 2009 

Section VI-Oregon and California Grant Lands 

WESTERN OREGON RESOURCES MANAGEMENT 

NATIONAL MONUMENT & NATIONAL CONSERVATION AREA MANAGEMENT PERFORMANCE Overview 

Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 Plan 

Change 

from 2008 

Plan to 

2009 

L

Percent of National Monuments and National Conservation Areas meeting resource condition objectives. (Bur) 

84% 

27 / 32 

78% 

25 / 32 

100% 

32/ 32 

100% 

32/ 32 

100% 

32/ 32 

100% 

32/ 32 

100% 

32/ 32 +0% 

Comments: * Support Measure - No cost will be shown. Public Outreach Through Interpretation & Envir Educ (Programs/Events Deliv 

N/A N/A N/A N/A N/A N/A 104 N/A 

Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 12 N/A Actual/Projected Cost per Program or Event Delivered (in dollars) N/A N/A N/A N/A N/A N/A 115 N/A Comments: This is a new subactivity in 2009. Results for prior years were shown in O&C Recreation Management. Inventory Shrub, Grassland/ PJ Vegetation (Acres) N/A N/A N/A N/A N/A N/A 3,600 N/A Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 205 N/A Actual/Projected Cost per Acre (in dollars) N/A N/A N/A N/A N/A N/A 57 N/A Comments: This is a new subactivity in 2009. Results for prior years were shown in O&C Wildlife Habitat Management  Inventory Streams/Riparian Areas (Miles) 

N/A N/A N/A N/A N/A N/A 38 N/A 

Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 29 N/A Actual/Projected Cost per Mile (in dollars) 

N/A N/A N/A N/A N/A N/A 763 N/A 

Comments: This is a new subactivity in 2009. Results for prior years were shown in O&C Soil, Water, Air Management 
Bureau of Land Management 2009 

Section VI-Oregon and California Grant Lands 

WESTERN OREGON RESOURCES MANAGEMENT 

NATIONAL MONUMENT & NATIONAL CONSERVATION AREA MANAGEMENT PERFORMANCE Overview 

Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 Plan 

Change 

from 2008 

Plan to 

2009 

L

 Prepare and Revise Recreation Activity Plans (Number) 

N/A N/A N/A N/A N/A N/A 243 N/A 

Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A N/A N/A Actual/Projected Cost per (in dollars) N/A N/A N/A N/A N/A N/A N/A N/A Comments: This is a new subactivity in 2009. Results for prior years were shown in O&C Recreation Management  Resolve Protest/Prepare Record of Decision (Number Completed) N/A N/A N/A N/A N/A N/A 9 N/A Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A N/A N/A Actual/Projected Cost per (in dollars) N/A N/A N/A N/A N/A N/A N/A N/A Comments: This is a new subactivity in 2009. Results for prior years were shown in O&C Range Management Issue & Manage Recreation Use Permits (Number Issued) N/A N/A N/A N/A N/A N/A 2,500 N/A Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 58 N/A Actual/Projected Cost per Permit (in dollars) N/A N/A N/A N/A N/A N/A 13 N/A Comments: This is a new subactivity in 2009. Results for prior years were shown in O&C Operations Maintenance and O&

Annual Maintenance 

Issue Grazing Permits/Leases (Number) N/A N/A N/A N/A N/A N/A 9 N/A Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 107 N/A Actual/Projected Cost per (in dollars) N/A N/A N/A N/A N/A N/A 11,889 N/A Comments: This is a new subactivity in 2009. Results for prior years were shown in O&C Range Management 
Bureau of Land Management 2009 

Section VI-Oregon and California Grant Lands 

WESTERN OREGON RESOURCES MANAGEMENT 

NATIONAL MONUMENT & NATIONAL CONSERVATION AREA MANAGEMENT PERFORMANCE Overview 

Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 Plan 

Change 

from 2008 

Plan to 

2009 

L

Manage Fee Collection Program for RUPs & SRPs (Fee Sites Managed) N/A N/A N/A N/A N/A N/A 1 N/A Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A N/A N/A Actual/Projected Cost per (in dollars) N/A N/A N/A N/A N/A N/A N/A N/A Comments: This is a new subactivity in 2009. Results for prior years were shown in O&C Operations Maintenance Administer the Recreation Fee Program (Fee Sites Managed) N/A N/A N/A N/A N/A N/A 1 N/A Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A N/A N/A Actual/Projected Cost per (in dollars) N/A N/A N/A N/A N/A N/A N/A N/A Comments: This is a new subactivity in 2009. Results for prior years were shown in O&C Operations Management Trail Annual Maintenance (Miles) N/A N/A N/A N/A N/A N/A 4 N/A Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A N/A N/A Actual/Projected Cost per (in dollars) N/A N/A N/A N/A N/A N/A N/A N/A Comments: This is a new subactivity in 2009. Results for prior years were shown in O&C Recreation Management Trail Deferred Maintenance (Miles) N/A N/A N/A N/A N/A N/A N/A N/A Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A N/A N/A Actual/Projected Cost per (in dollars) N/A N/A N/A N/A N/A N/A N/A N/A Comments: This is a new subactivity in 2009. Results for prior years were shown in O&C Recreation Management Administrative Site Building Deferred Maintenance (Square Feet) N/A N/A N/A N/A N/A N/A 8 N/A 
Bureau of Land Management 2009 

Section VI-Oregon and California Grant Lands 

WESTERN OREGON RESOURCES MANAGEMENT 

NATIONAL MONUMENT & NATIONAL CONSERVATION AREA MANAGEMENT PERFORMANCE Overview 

Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 Plan 

Change 

from 2008 

Plan to 

2009 

L

Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A N/A N/A Actual/Projected Cost per (in dollars) N/A N/A N/A N/A N/A N/A N/A N/A Comments: This is a new subactivity in 2009. Results for prior years were shown in O&C Operations Maintenance Road Deferred Maintenance (Lane Miles) N/A N/A N/A N/A N/A N/A 51 N/A Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 20 N/A Actual/Projected Cost per (in dollars) N/A N/A N/A N/A N/A N/A 392 N/A Comments: This is a new subactivity in 2009. Results for prior years were shown in O&C Forest Management Recreation Site Non-Building Deferred Maintenance (Recreation Sites Improved) 

N/A N/A N/A N/A N/A N/A 21 N/A 

Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A N/A N/A Actual/Projected Cost per (in dollars) N/A N/A N/A N/A N/A N/A N/A N/A Comments: This is a new subactivity in 2009. Results for prior years were shown in O&C Operations Maintenance Apply Shrub/Grass Vegetation Treatments (Acres) N/A N/A N/A N/A N/A N/A 1,000 N/A Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A N/A N/A Actual/Projected Cost per (in dollars) N/A N/A N/A N/A N/A N/A N/A N/A Comments: This is a new subactivity in 2009. Results for prior years were shown in O&C Wildlife Habitat Management Maintain Shrub/Grass/PJ/Forest Projects (Number) N/A N/A N/A N/A N/A N/A 107 N/A Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A 55 N/A Actual/Projected Cost per (in dollars) N/A N/A N/A N/A N/A N/A 514 N/A 
Bureau of Land Management 2009 

Section VI-Oregon and California Grant Lands 

WESTERN OREGON RESOURCES MANAGEMENT 

NATIONAL MONUMENT & NATIONAL CONSERVATION AREA MANAGEMENT PERFORMANCE Overview 

Measure 2004 Actual 2005 Actual 2006 Actual 2007 Plan 2007 Actual 2008 Plan 2009 Plan 

Change 

from 2008 

Plan to 

2009 

L

Comments: This is a new subactivity in 2009. Results for prior years were shown in O&C Forest Management and O&C Reforestation & Forest Development Apply Weed Treatments (Acres) N/A N/A N/A N/A N/A N/A 9 N/A Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A N/A N/A Actual/Projected Cost per (in dollars) N/A N/A N/A N/A N/A N/A N/A N/A Comments: This is a new subactivity in 2009. Results for prior years were shown in O&C Wildlife Habitat Management Monitor Grazing Allotments (Number) N/A N/A N/A N/A N/A N/A 2 N/A Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A N/A N/A Actual/Projected Cost per (in dollars) N/A N/A N/A N/A N/A N/A N/A N/A Comments: This is a new subactivity in 2009. Results for prior years were shown in O&C Range Management Inspect Allotments for Grazing Authorization Compliance (Number) N/A N/A N/A N/A N/A N/A 3 N/A Total Actual/Projected Cost ($000) N/A N/A N/A N/A N/A N/A N/A N/A Actual/Projected Cost per (in dollars) N/A N/A N/A N/A N/A N/A N/A N/A Comments: This is a new subactivity in 2009. Results for prior years were shown in O&C Range Management 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-104 

Budget Schedules 

PROGRAM AND FINANCING (P) (MILLIONS $) 

Identification code: 

14-1116 2007 Act 2008 CY 2009 BY 

 Program and Financing (P) 

 Obligations by program activity 

0001 Western Oregon Operations 2 2 0 

0002 Western Oregon Maintenance 9 9 11 

0004 Western Oregon Resource Management 96 97 97 

0005 

Western Oregon Data Systems Operation & 

Management 2 2 2 

1000 Total new obligations 109 110 110 

 Budgetary resources available for obligation 

2140 

Unobligated balance carried forward, start of 

year 2 4 3 

2200 New budget authority (gross) 109 109 108 

2210 

Resources available from recoveries of prior 

year obligations 2 0 0 

2390 

Total budgetary resources available for 

obligation 113 113 111 

2395 Total new obligations -109 -110 -110 

2440 

Unobligated balance carried forward, end of 

year 4 3 1 

 New budget authority (gross), detail 

 Discretionary 

4000 Appropriation 109 110 108 

4033 

Appropriation permanently reduced (H.R. 

2764) 0 -1 0 

4300 Appropriation (total discretionary) 109 109 108 

 Change in obligated balances 

7240 Obligated balance, start of year 32 32 33 

7310 Total new obligations 109 110 110 

7320 Total outlays (gross) -107 -109 -108 

7345 Recoveries of prior year obligations -2 0 0 

7440 Obligated balance, end of year 32 33 35 

 Outlays (gross), detail 

8690 Outlays from new discretionary authority 79 81 80 

8693 Outlays from discretionary balances 28 28 28 

8700 Total outlays (gross) 107 109 108 

 Net budget authority and outlays 

8900 Budget authority 109 109 108 

9000 Outlays 107 109 108 

9502 Unpaid obligation, end of year 33 0 0 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-105 

OBJECT CLASSIFICATION (O) (MILLIONS $) 

Identification code: 

14-1116 2007 Act 2008 CY 2009 BY 

 Direct obligations 

 Personnel compensation 

1111 Full-time permanent 46 48 48 

1113 Other than full-time permanent 6 6 5 

1115 Other personnel compensation 2 2 2 

1119 Total personnel compensation 54 56 55 

1121 Civilian personnel benefits 15 15 15 

1210 Travel and transportation of persons 2 2 1 

1220 Transportation of things 2 2 3 

1233 

Communications, utilities, and miscellaneous 

charges 2 2 2 

1251 Advisory and assistance services 5 5 5 

1252 Other services 15 14 16 

1253 

Other purchases of goods and services from 

Government accounts 3 3 3 

1254 Operation and maintenance of facilities 0 0 1 

1257 Operation and maintenance of equipment 1 1 1 

1260 Supplies and materials 3 3 4 

1310 Equipment 4 4 3 

1410 Grants, subsidies, and contributions 3 3 1 

9999 Total new obligations 109 110 110 

BA, LIMITATIONS, AND OUTLAYS (A) (MILLIONS $) 

Identification code: 

14-1116 2007 Act 2008 CY 2009 BY 

 BA, Limitations, and Outlays - Policy (A) 

 Appropriation (total) [Text] 

4300 Discretionary, Appropriations Committee 109 109 108 

 Outlays from new authority [Text] 

9111 Discretionary, Appropriations Committee 79 81 80 

 Outlays from balances [Text] 

9121 Discretionary, Appropriations Committee 28 28 28 

 Memo: Outlays frm end of PY balances [Text] 

9122 Discretionary, Appropriations Committee 0 28 4 

BA, LIMITATIONS, AND OUTLAYS (S) (MILLIONS $) 

Identification code: 

14-1116 2007 Act 2008 CY 2009 BY 

 BA, Limitations, and Outlays - Baseline (S) 

 Appropriation (total) [Text] 

 Discretionary, Appropriations Committee 

4300 Baseline Non-Pay 0 38 39 

4300 Baseline Civilian Pay 0 71 75 

 Outlays from new authority [Text] 

9111 Discretionary, Appropriations Committee 0 81 84 

 Outlays from balances [Text] 

9121 Discretionary, Appropriations Committee 0 28 28 
Bureau of Land Management 2009 Budget Justifications 

Section VI-Oregon and California Grant Lands Page VI-106 

BA, LIMITATIONS, AND OUTLAYS (S) (MILLIONS $) 

Identification code: 

14-1116 2007 Act 2008 CY 2009 BY 

 Memo: Outlays frm end of PY balances [Text] 

9122 Discretionary, Appropriations Committee 0 28 4 

CHARACTER CLASSIFICATION (C) (MILLIONS $) 

Identification code: 

14-1116-0- 2007 Act 2008 CY 2009 BY 

 Character Classification (C) 

 NON-INVESTMENT ACTIVITIES 

 Direct Federal programs 

2004-01 Budget Authority 109 109 108 

2004-02 Outlays 107 109 108 

EMPLOYMENT SUMMARY (Q) 

Identification code: 

14-1116-0- 2007 Act 2008 CY 2009 BY 

 Employment Summary (Q) 

 Direct 

1001 Civilian full-time equivalent employment 864 864 859 

APPROPRIATIONS REQUESTS IN THOUSANDS OF DOLLARS (T) 

Identification code: 

14-1116-0- 2007 Act 2008 CY 2009 BY 

Appropriations Requests in Thousands of 

Dollars (T) 

1000 Budget year budgetary resources [14-1116] 0 0 108253 
Bureau of Land Management 2009 Budget Justifications 

Appropriation: Range Improvements 

APPROPRIATION LANGUAGE SHEET

[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, 2008). 

 

Section VII-Range Improvements Page VII-1
Bureau of Land Management 2009 Budget Justifications 

Section VII-Range Improvements Page VII-2

APPROPRIATION LANGUAGE CITATIONS

Proposed Deletion: The 2009 budget proposes to eliminate the Range Improvements Fund. 

This elimination will move more responsibility for construction and maintenance of public land 

projects to the public. 

Section 401 of 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. 

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 

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 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. 
Bureau of Land Management 2009 Budget Justifications 

Section VII-Range Improvements Page VII-3

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. 

P.L. 107-63 Department of the Interior and Related Agencies Appropriation Act of 2002. 
Bureau of Land Management 2009 Budget Justifications 

Section VII-Range Improvements Page VII-4

Summary of Requirements ($000) 

 Fixed Costs & Program 2009 Inc(+) 

Comparison 2007 2008 Related Changes Changes Budget Dec(-) 

by Activity/ Enacted Enacted (+/ -) (+/ -) Request from 2008 

Subactivity FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount 

 

 Range 

Improvements 41 10,000 41 10,000 0 0 -20 -10,000 21 0 -20 -10,000 

 

 

 Public Lands 

Improvement* 34 7,873 34 7,873 0 0 -17 -7,873 17 0 -17 -7,873 

 

 Farm Tenant Act 

Lands Improvement* 7 1,527 7 1,527 0 0 -3 -1,527 4 0 -3 -1,527 

 

 Administrative 

Expenses 0 600 0 600 0 0 0 -600 0 0 0 -600 
Bureau of Land Management 2009 Budget Justifications 

Section VII-Range Improvements Page VII-5

Appropriation: Range Improvements 

Activity Summary ($000) 

 2009 

 Fixed Costs & Program Change 

 2007 2008 

Related 

Changes Changes Budget 

from 

2008 

Subactivity Enacted Enacted (+/ -) (+/ -) Request (+/-) 

 Public Lands 

Improvement* $ 7,873 7,873 0 -7,873 0 -7,873

 FTE 34 34 0 -17 17 -17

 Farm Tenant Act 

Lands Improvement* $ 1,527 1,527 0 -1,527 0 -1,527

 FTE 7 7 0 -3 4 -3

 Administrative 

Expenses $ 600 600 0 -600 0 -600

 FTE 0 0 0 0 0 0

Total Activity $ 10,000 10,000 0 -10,000 0 -10,000

 FTE 41 41 0 -20 21 -20

 

* Carryover funding from FY 2008 supports proposed FTE usage in 2009. 

Activity: Range Improvements 

Subactivity: Public Lands Improvement 

 2009 

 Fixed Costs & Program Change

 2007 2008 

Related 

Changes 

Change

s Budget 

from 

2008 

 

Enacte

d 

Enacte

d (+/ -) (+/ -) 

Reques

t (+/-) 

Public Lands Improvement ($000) 7,873 7,873 0 -7,873 0 -7,873

 

FTE 34 34 0 -17 17 -17

Other Major Resources: 

 

Major Program IT Investments: 

RIPS: 010-04-01-02-02-0433-00 140 140 0 140 0

RIS: 010-04-01-02-02-0434-00 20 0 0 0 0 0

 

Summary of 2009 Program Changes for Public Lands Improvement 

Request Component ($000) FTE

Program Changes: 

• Elimination of Program -7,873 -17

TOTAL, Program Changes -7,873 -17
Bureau of Land Management 2009 Budget Justifications 

Section VII-Range Improvements Page VII-6

Activity: Range Improvements 

Subactivity: Farm Tenant Act Lands Improvement 

 2009 

 Fixed Costs & Program Change

 2007 2008 

Related 

Changes 

Change

s Budget 

from 

2008 

 

Enacte

d 

Enacte

d (+/ -) (+/ -) 

Reques

t (+/-) 

Farm Tenant Act Lands Imp. 

($000) 1,527 1,527 0 -1,527 0 -1,527

 

FTE 7 7 0 -3 4 -3

Other Major Resources: 

 

Major Program IT Investments: 

 

 

Summary of 2009 Program Changes for Farm Tenant Act Lands Improvement 

Request Component ($000) FTE

Program Changes: 

• Elimination of Program -1,527 -3

TOTAL, Program Changes -1,527 -3

Activity: Range Improvements 

Subactivity: General Administrative Expenses 

 2009 

 Fixed Costs & Program Change

 2007 2008 

Related 

Changes 

Change

s Budget 

from 

2008 

 

Enacte

d 

Enacte

d (+/ -) (+/ -) 

Reques

t (+/-) 

General Admin. Expenses ($000) 600 600 0 -600 0 -600

 

FTE 0 0 0 0 0 0

Other Major Resources: 

 

Major Program IT Investments: 

 

 

Summary of 2009 Program Changes for General Administrative Expenses 

Request Component ($000) FTE

Program Changes: 

• Elimination of Program -600

TOTAL, Program Changes -600 0
Bureau of Land Management 2009 Budget Justifications 

Section VII-Range Improvements Page VII-7

JUSTIFICATION OF 2009 PROGRAM CHANGES

The 2009 budget request for the Range Improvement Activity is $0 and 21 FTE, a net program 

change of -$10,000,000 and -20 FTE from the 2008 Enacted Level. 

Elimination of Program ($-10,000,000/-20 FTE) 

The Budget proposes to eliminate the range improvements fund. The mandatory nature of the 

range improvements funding does not allow program managers to consider an array of 

spending options and shift funding toward higher priorities. The elimination of the Range 

Improvements program will move more responsibility for construction and maintenance of public 

land projects to public lands users and public land advocacy groups/State agencies as well as 

other Management of Lands and Resources and Oregon and California Grant Lands programs. 

PROGRAM OVERVIEW 

Program Components –The 2009 President’s Budget proposes to eliminate the Range 

Improvement program. Range Improvements include on-the-ground improvements such as 

vegetation projects, fencing, and wildlife-livestock water developments that have been 

recommended or identified to promote improved rangeland management. Projects are 

prioritized according to needs and potential benefits for areas currently not achieving one or 

more of the rangeland health standards. 

 

Critical Factors – The Administration submitted legislation on April 4, 2007 to amend the 

Federal Land Policy and Management Act to direct the 50 percent of grazing fee receipts 

currently deposited in the Range Improvements Fund (i.e. the Federal share of such receipts), 

to be deposited in the General fund of the Treasury. Under the Administration’s proposal, BLM 

would retain the ability to fund range improvements within its appropriated budget. Also, private 

users who directly benefit from projects could decrease the need for the federal government to 

fund these projects 

Means and Strategies – In 2008, the program is requiring BLM State Offices closely examine 

range improvement needs to streamline the environmental review and allocation of funds 

process to field offices that are ready to complete larger priority projects in a specific fiscal year. 

These efforts will increase expenditures and reduce the carryover significantly during that fiscal 

year. 

 

Other Funding Sources – Public land users and other interest groups provide funding to help 

accomplish project work.. Other Management of Land Resources subactivities may be used to 

conduct range improvements project work. 

Strategic Plan– The Range Improvements activity supports the Resource Use and Resource 

Protection mission goals from the Department’s Draft Strategic Plan by managing or influencing 

forage resources to enhance public benefit, promote responsible use, and ensure optimal value. 

This program also supports the BLM emphasis areas of Healthy Lands and Non-energy 

commodity use. 
Bureau of Land Management 2009 Budget Justifications 

Section VII-Range Improvements Page VII-8

2009 PROGRAM PERFORMANCE 

2007 Accomplishments – During 2007, funds were used to accomplish vegetation treatments 

on 36,882 acres, construct and maintain 432 new and existing projects, and treat weeds on 

69,782 acres.

2008 Planned Performance – During 2008, funds will be used to accomplish similar projects 

including vegetation treatments on 24,900 acres, construct and maintain 278 new and existing 

projects, and treat weeds on 77,000 acres. The Federal grazing fee for Western public lands 

managed by the BLM will be $1.35 per animal unit month (AUM) in 2008, the same level as it 

was in 2007. The fee, determined by a congressional formula and effective on March 1, applies 

to nearly 18,000 grazing permits and leases administered by the BLM. 

2009 Planned Program Performance - In 2009, the Range Improvement Program will focus 

any remaining carryover funding for construction and maintenance of projects needed to restore 

areas determined not meeting land health standards and areas damaged by past wildland fires. 

Expected carryover of funds from the Range Improvements Fund in 2008 to 2009 is expected to 

be in the range of $3.5 to $4.5 million. Anticipated carryover of 2008 funds is expected to cover 

21 FTE in 2009 during the completion of several projects initiated in 2007 and 2008. This will 

carry the traditional Range Improvements program through 2009 and essentially sunset the 

program. 
au of Land Management 2009 

Section VII-Range Improvements 

RANGE IMPROVEMENTS PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Planned 2007 Actual 2008 Plan 2009 Plan Change from 200

Plan to 20

Percent of range improvements completed as planned (SP) 

new 

measure 

new 

measure 

new 

measure 

95% 

95/ 100 

104% 

489/ 469 

95% 

446/ 469 

95% 

446/ 469 0% 

Comment: * Support Measure - No cost will be shown. This is a new measure. Historical data is not available. The targe

95%, or 95/100 was used until a baseline could be established. 

Contributing Programs: The Range Improvement Program provides 88% of the results for this measure. Other programs contributing 

include Rangeland Management, Riparian Management, and Western Oregon Rangeland Management. 

Apply Shrub/Grass Vegetation Treatments (acres) 11,522 23,020 68,720 14,748 36,882 24,900 0 -100% Construct Shrub/Grass/PJ/Forest Projects (number) 430 777 464 423 403 255 0 -100% Maintain Shrub/Grass/PJ/Forest Projects (number) 1,160 896 360 413 515 180 0 -100% Apply Weed Treatments (acres) 8,525 11,942 27,772 68,310 69,782 65,520 0 -100% Construct Lake/Wetland/Stream/Riparian Projects (number of projects) 

28 56 41 28 29 23 0 -100% 

Maintain Lake/Wetland/Stream/Riparian Projects (number of projects) 

252 299 252 87 218 87 0 -100% 

Results for the Range Improvement Program are based on actual projects planned which will vary between years. The 8100 and 8200 programs were i

elimination in the budgets submitted for both 2008 and 2009. Although these funds were recently restored for 2008, these unit projections were made p

allocation of these funds per state. Therefore these units should be considered estimates. Since the 2009 budget identifies the elimination of these prog

units planned for these subactivities in FY09. 

Bure
Bureau of Land Management 2009 Budget Justifications 

Section VII-Range Improvements Page VII-10

Budget Schedules 

PROGRAM AND FINANCING (P) (MILLIONS $) 

Identification code: 

14-5132-4 2007 Act 2008 CY 2009 BY 

Obligations by program activity 

0001 Improvements to public lands 0 0 -6 

0002 Farm Tenament Act lands 0 0 -1 

1000 Total new obligations 0 0 -7 

Budgetary resources available for obligation 

2200 New budget authority (gross) 0 0 -10 

2395 Total new obligations 0 0 7 

2440 

Unobligated balance carried forward, end of 

year 0 0 -3

New budget authority (gross), detail 

Mandatory 

6000 Appropriation (General Fund) 0 0 -2 

6020 Appropriation (special fund) 0 0 -8 

6250 Appropriation (total mandatory) 0 0 -10 

Change in obligated balances 

7310 Total new obligations 0 0 -7 

7320 Total outlays (gross) 0 0 6 

7440 Obligated balance, end of year 0 0 -1 

Outlays (gross), detail 

8697 Outlays from new mandatory authority 0 0 -6 

Net budget authority and outlays 

8900 Budget authority 0 0 -10 

9000 Outlays 0 0 -6 

9502 Unpaid obligation, end of year 0 0 (1) 

OBJECT CLASSIFICATION (O) (MILLIONS $) 

Identification code: 

14-5132-4 2007 Act 2008 CY 2009 BY 

Direct obligations 

Personnel compensation 

1111 Full-time permanent 0 0 -1 

1252 Other services 0 0 -5 

1260 Supplies and materials 0 0 -1 

9999 Total new obligations 0 0 -7 

BA, LIMITATIONS, AND OUTLAYS (A) (MILLIONS $) 

Identification code: 

14-5132-4 2007 Act 2008 CY 2009 BY 

Appropriation (total) [Indefinite] 

6250 Mandatory, Appropriations Committee 0 0 -2 

Appropriation (total) [Special Fund, Indefinite] 

6250 Mandatory, Appropriations Committee 0 0 -8 

Appropriation [Indefinite] 

9111 Mandatory, Appropriations Committee 0 0 -1 
Bureau of Land Management 2009 Budget Justifications 

Section VII-Range Improvements Page VII-11

BA, LIMITATIONS, AND OUTLAYS (A) (MILLIONS $) 

Identification code: 

14-5132-4 2007 Act 2008 CY 2009 BY 

Outlays from new authority [Text] 

9111 Mandatory, Appropriations Committee 0 0 -5 

Appropriation [Indefinite] 

9121 Mandatory, Appropriations Committee 0 0 0 

Outlays from balances [Text] 

9121 Mandatory, Appropriations Committee 0 0 0 

Memo: Outlays frm end of PY balances [Text] 

9122 Mandatory, Appropriations Committee 0 0 0 

Memo: Outlays frm end of PY balances [Text] 

9122 Mandatory, Appropriations Committee 0 0 0 

CHARACTER CLASSIFICATION (C) (MILLIONS $) 

Identification code: 

14-5132-4 2007 Act 2008 CY 2009 BY 

INVESTMENT ACTIVITIES 

Physical assets 

Major equipment 

Other physical assets 

Direct Federal programs 

1352-01 Budget Authority 0 0 -10 

1352-02 Outlays 0 0 -7 

EMPLOYMENT SUMMARY (Q) 

Identification code: 

14-5132-4 2007 Act 2008 CY 2009 BY 

Direct 

1001 Civilian full-time equivalent employment 0 0 -20 
Bureau of Land Management 2009 Budget Justifications 

Section VII-Range Improvements Page VII-12

Budget Schedules 

SPECIAL AND TRUST FUND RECEIPTS (N) (MILLIONS $) 

Identification code: 

14-5132-0 2007 Act 2008 CY 2009 BY 

Special and Trust Fund Receipts (N) 

0100 Balance, start of year 7 7 8 

0199 Balance, start of year 7 7 8 

Receipts 

0220 

Grazing Fees for Range Improvements, 

Taylor Grazing Act, As Amended 9 8 8 

0221 

Grazing Fees for Range Improvements, 

Taylor Grazing Act, As Amended - legislative 

proposal subject to PAYGO 0 0 -8 

0299 Total receipts and collections 9 8 0 

0400 Total: Balances and collections 16 15 8 

Appropriations 

0500 Range Improvements -9 -7 -7 

0501 

Range Improvements - legislative proposal 

subject to PAYGO 0 0 8 

0599 Total appropriations -9 -7 1 

0799 Balance, end of year 7 8 9 

PROGRAM AND FINANCING (P) (MILLIONS $) 

Identification code: 

14-5132-0 2007 Act 2008 CY 2009 BY 

Obligations by program activity 

0001 Improvements to public lands 8 9 9 

0002 Farm Tenant Act lands 1 2 2 

1000 Total new obligations 9 11 11 

Budgetary resources available for obligation 

2140 

Unobligated balance carried forward, start of 

year 4 5 4 

2200 New budget authority (gross) 10 10 10 

2390 

Total budgetary resources available for 

obligation 14 15 14 

2395 Total new obligations -9 -11 -11 

2440 

Unobligated balance carried forward, end of 

year 5 4 3 

New budget authority (gross), detail 

Mandatory 

6000 Appropriation (General Fund) 1 3 3 

6020 Appropriation (special fund) 9 7 7 

6250 Appropriation (total mandatory) 10 10 10 

Change in obligated balances 

7240 Obligated balance, start of year 4 4 5 

7310 Total new obligations 9 11 11 

7320 Total outlays (gross) -9 -10 -10 

7440 Obligated balance, end of year 4 5 6 
Bureau of Land Management 2009 Budget Justifications 

Section VII-Range Improvements Page VII-13

PROGRAM AND FINANCING (P) (MILLIONS $) 

Identification code: 

14-5132-0 2007 Act 2008 CY 2009 BY 

Outlays (gross), detail 

8697 Outlays from new mandatory authority 6 7 7 

8698 Outlays from mandatory balances 3 3 3 

8700 Total outlays (gross) 9 10 10 

Net budget authority and outlays 

8900 Budget authority 10 10 10 

9000 Outlays 9 10 10 

9502 Unpaid obligation, end of year 3 0 0 

OBJECT CLASSIFICATION (O) (MILLIONS $) 

Identification code: 

14-5132-0 2007 Act 2008 CY 2009 BY 

Direct obligations 

Personnel compensation 

1111 Full-time permanent 2 2 2 

1121 Civilian personnel benefits 1 2 2 

1252 Other services 2 2 3 

1260 Supplies and materials 1 2 2 

1320 Land and structures 2 2 1 

1410 Grants, subsidies, and contributions 1 1 1 

9999 Total new obligations 9 11 11 

BA, LIMITATIONS, AND OUTLAYS (A) (MILLIONS $) 

Identification code: 

14-5132-0 2007 Act 2008 CY 2009 BY 

Appropriation (total) [Indefinite] 

6250 Mandatory, Appropriations Committee 3 3 3 

Appropriation (total) [Special Fund, Indefinite] 

6250 Mandatory, Appropriations Committee 7 7 7 

Appropriation [Indefinite] 

9111 Mandatory, Appropriations Committee 2 2 2 

Outlays from new authority [Text] 

9111 Mandatory, Appropriations Committee 4 5 5 

Appropriation [Indefinite] 

9121 Mandatory, Appropriations Committee 1 1 1 

Outlays from balances [Text] 

9121 Mandatory, Appropriations Committee 2 2 2 

Memo: Outlays frm end of PY balances [Text] 

9122 Mandatory, Appropriations Committee 0 1 0 

Memo: Outlays frm end of PY balances [Text] 

9122 Mandatory, Appropriations Committee 0 2 0 

BA, LIMITATIONS, AND OUTLAYS (S) (MILLIONS $) 

Identification code: 

14-5132-0 2007 Act 2008 CY 2009 BY 

Appropriation (total) [Indefinite] 

Mandatory, Appropriations Committee 
Bureau of Land Management 2009 Budget Justifications 

Section VII-Range Improvements Page VII-14

BA, LIMITATIONS, AND OUTLAYS (S) (MILLIONS $) 

Identification code: 

14-5132-0 2007 Act 2008 CY 2009 BY 

6250 Baseline Civilian Pay 0 3 3 

Appropriation (total) [Special Fund, Indefinite] 

Mandatory, Appropriations Committee 

6250 Baseline Non-Pay 0 7 7 

Outlays from new authority [Text] 

9111 Mandatory, Appropriations Committee 0 2 2 

Outlays from new authority [Text] 

9111 Mandatory, Appropriations Committee 0 5 5 

Outlays from balances [Text] 

9121 Mandatory, Appropriations Committee 0 1 1 

Outlays from balances [Text] 

9121 Mandatory, Appropriations Committee 0 2 2 

Memo: Outlays frm end of PY balances [Text] 

9122 Mandatory, Appropriations Committee 0 1 0 

Memo: Outlays frm end of PY balances [Text] 

9122 Mandatory, Appropriations Committee 0 2 0 

CHARACTER CLASSIFICATION (C) (MILLIONS $) 

Identification code: 

14-5132-0 2007 Act 2008 CY 2009 BY 

INVESTMENT ACTIVITIES 

Physical assets 

Major equipment 

Other physical assets 

Direct Federal programs 

1352-01 Budget Authority 10 10 10 

1352-02 Outlays 9 10 10 

EMPLOYMENT SUMMARY (Q) 

Identification code: 

14-5132-0 2007 Act 2008 CY 2009 BY 

Direct 

1001 Civilian full-time equivalent employment 41 41 41 

APPROPRIATIONS REQUESTS IN THOUSANDS OF DOLLARS (T)

Identification code: 

14-5132-0 2007 Act 2008 CY 2009 BY 

1000 Budget year budgetary resources [14-5132] 0 0 10000 
Bureau of Land Management 2009 Budget Justifications 

Section VIII –Service Charges, Deposits and Forfeitures Page VIII - 1

Appropriation: Services Charges, Deposits, and 

Forfeitures 

APPROPRIATION LANGUAGE SHEET

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, 2008.) 
Bureau of Land Management 2009 Budget Justifications 

Section VIII –Service Charges, Deposits and Forfeitures Page VIII - 2

AUTHORIZATIONS

The Mineral Leasing Act of 

1920, as amended by the 

Trans-Alaska Pipeline Act of 

1973, §101 (30 U.S.C. 185)

Authorizes rights-of-way for oil, gas, and other fuels. It further 

authorizes the Secretary to issue ROW 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. 

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. 

Federal Land Policy and 

Management Act of 1976, as 

amended (43 U.S.C. 1701 et 

seq.) 

Outlines functions of the BLM Directorate, 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: 

• Management of the use, occupancy, and development of 

the public lands through leases and permits; 

• Determination of the suitability of public lands for rightsof-way 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 annual assessment work. 
Bureau of Land Management 2009 Budget Justifications 

Section VIII –Service Charges, Deposits and Forfeitures Page VIII - 3

Summary of Requirements ($000) 

 Fixed Costs & Program 2009 Inc(+) 

Comparison 2007 2008 Related Changes Changes Budget Dec(-) 

by Activity/ Enacted Enacted (+/ -) (+/ -) Request from 2008 

Subactivity FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount 

 

 Service 

Charges, 

Deposits, & 

Forfeitures 151 0 155 0 +0 +0 +210 +0 365 0 210 0 

 

 Service 

Charges, 

Deposits, & 

Forfeitures 151 26,388 155 28,490 +0 +0 +210 +33,500 365 61,990 210 33,500 

 Offsets -26,388 -28,490 +0 -33,500 -61,990 -33,500 

 

 Right-Of-Way 

Processing 103 12,814 107 12,840 +0 +0 +0 -500 107 12,340 0 -500 

 Energy & 

Minerals Cost 

Recovery 25 2,780 25 5,000 +0 +0 +210 +34,000 235 39,000 +210 +34,000 

 

Recreation Cost 

Recovery 2 1,147 2 1,200 +0 +0 +0 +0 2 1,200 0 0 

 

 Adopt-A-Horse 

Program 2 634 2 650 +0 +0 +0 +0 2 650 0 0 

 

 Repair of 

Damaged Lands 7 4,274 7 4,000 +0 +0 +0 +0 7 4,000 0 0 

 Cost 

Recoverable 

Realty Cases 4 838 4 840 +0 +0 +0 +0 4 840 0 0 

 

 Timber Contract 

Expenses 0 131 0 100 +0 +0 +0 +0 0 100 0 0 

 Commercial Film 

& Photography 

Fees 2 864 2 860 +0 +0 +0 +0 2 860 0 0 

 

 Copy Fee 

Account 6 2,906 6 3,000 +0 +0 +0 +0 6 3,000 0 0 
Bureau of Land Management 2009 Budget Justifications 

Section VIII –Service Charges, Deposits and Forfeitures Page VIII - 4

Appropriation: Service Charges, Deposits, and 

Forfeitures (Indefinite) 

Activity Summary ($000) 

 2009 

 Fixed Costs & Program Change 

 2007 2008 

Related 

Changes Changes Budget 

from 

2008 

Subactivity Enacted Enacted (+/ -) (+/ -) Request (+/-) 

 Right-Of-Way 

Processing $ 12,814 12,840 0 -500 12,340 -500

 FTE 103 107 0 0 107 0

Energy & Minerals 

Cost Recovery $ 2,780 5,000 0 +34,000 39,000 +34,000

 FTE 25 25 0 +210 235 +210

Recreation Cost 

Recovery $ 1,147 1,200 0 0 1,200 0

 FTE 2 2 0 0 2 0

 Adopt-A-Horse 

Program $ 634 650 0 0 650 0

 FTE 2 2 0 0 2 0

 Repair of Damaged 

Lands $ 4,274 4,000 0 0 4,000 0

 FTE 7 7 0 0 7 0

 Cost Recoverable 

Realty Cases $ 838 840 0 0 840 0

 FTE 4 4 0 0 4 0

 Timber Contract 

Expenses $ 131 100 0 0 100 0

 FTE 0 0 0 0 0 0

Commercial Film & 

Photography Fees $ 864 860 0 0 860 0

 FTE 2 2 0 0 2 0

 Copy Fee Account $ 2,906 3,000 0 0 3,000 0

 FTE 6 6 0 0 6 0

 Total Dollars $ 26,388 28,490 0 +33,500 61,990 +33,500

 FTE 151 155 0 +210 365 +210
Bureau of Land Management 2009 Budget Justifications 

Section VIII –Service Charges, Deposits and Forfeitures Page VIII - 5

PROGRAM OVERVIEW

Subactivity: Rights-Of-Way Processing and Energy and Minerals Cost Recovery – The 

BLM currently recovers its costs of processing documents related to rights-of-way, 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. 

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 appropriation--Lands and Realty Management 

subactivity. 

BLM recovers costs for the processing costs of ROW issued pursuant to the Mineral Leasing 

Act and the Federal Land Policy and Management Act. Regulations set fee schedules according 

to the type and size of the project. In 2007, BLM’s average cost to process a right-of-way 

application was $5,017. The regulations allow the BLM to assess applicants for the actual costs 

to process large scale ROW projects, which are usually for oil and gas pipelines, electric 

transmission lines, wind energy sites, or other projects associated with energy development. 

Twenty percent of BLM’s rights-of-way applications are for these types of projects. 

At least 80 percent of the ROW projects are for smaller scale projects such as short roads, well 

gathering lines, and electric lines. For the smaller scale projects, which cost an average of $600 

each to process in 2004, regulations set out a graduated fee schedule which assesses a flat 

rate depending on the estimated amount of work to process the application. For these projects, 

the BLM recovers 50 percent of the actual costs of each rights-of-way application for smaller 

scale projects. BLM estimates that it will recover 80 percent of the actual processing costs of 

the larger scale project types of applications. 

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 applicable to more than one project, cannot 

be charged to the individual rights-of-way project. These costs are funded entirely from the 

MLR appropriation. 

The BLM currently maintains more than 93,000 ROW authorizations. The Bureau will continue 

to expedite the granting of ROWs by processing applications, issuing permits, and monitoring 

construction involved with the operation and termination of cost-recoverable ROWs on the 

public land as authorized by the FLPMA and the 1973 amendment to the Mineral Leasing Act. 

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 

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 BLM, lease 

applications, name changes, corporate mergers, lease consolidations and reinstatements, and 

other processing-related costs. 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)). 
Bureau of Land Management 2009 Budget Justifications 

Section VIII –Service Charges, Deposits and Forfeitures Page VIII - 6

The Administration will re-propose legislation to repeal 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 BLM from implementing 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 APD processing fees. The rulemaking will 

provide for a phase-in of full cost recovery on APDs, beginning with a fee amount in 2009 that 

will generate an estimated $34.0 million in revenue. The legislative proposal will also authorize 

a $4,150 fee while the rulemaking is under development to ensure that any time gap that may 

occur between enactment of this legislation and the implementation of the cost recovery 

regulations does not cause funding shortfall in the Oil and Gas Management program. The 

proposed increased reliance on cost recoveries is consistent with the findings of previous 

Inspector General reports and the 2005 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. 

Subactivity: Recreation Cost Recovery - Cost recovery charges are associated with 

recreation activities or events and are levied to compensate the Government for the costs of 

authorizing and administering the recreation-related use. 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. 

Subactivity: Adopt-a-Horse Program - The BLM conducts adoptions throughout the year for 

wild horses and burros on public lands. In 2009, the BLM anticipates making 5,200 animals 

available for adoption to qualified applicants. The BLM places animals in adoption primarily 

through a competitive bidding process, receiving a minimum of $125 per horse or burro to offset 

veterinary, transportation, and animal maintenance costs.

Subactivity: Repair of Damaged Lands - Under the FLPMA, the BLM is authorized to collect 

for land damaged by users who have not fulfilled the requirements of contracts or bonds. If a 

funding excess exists after repair has been made to the exact land for which funds were 

collected or forfeited, then BLM may use these funds to improve, protect, or rehabilitate any 

damaged public land.

Subactivity: Cost-Recoverable Realty Cases - The BLM performs certain types of realty work 

on a cost-recoverable basis. Regulations promulgated pursuant to the FLPMA allow the BLM to 

collect from applicants the costs of processing applications for realty work such as conveyance 

of mineral interests; issuance of disclaimers of interest; and issuance and compliance 

monitoring of many types of land use authorizations through leases, permits, and easements. 

Realty actions for which the BLM recovers costs from applicants under current regulations 

include: 

• Conveyance of Federally Owned Mineral Interests – The BLM collects costs from 

applicants to cover administrative costs, including the costs of conducting an exploratory 
Bureau of Land Management 2009 Budget Justifications 

Section VIII –Service Charges, Deposits and Forfeitures Page VIII - 7

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 costs 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 costs 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.

Subactivity: 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.

Subactivity: 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, 

video taping, 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 new 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. 

Subactivity: Copy Fees - The BLM is the custodian of the official public land records of the 

U.S. There are 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 ROW, serial register pages, and master title plats). This fee covers the cost of research, 

staff time, and printing.
Bureau of Land Management 2009 Budget Justifications 

Section VIII –Service Charges, Deposits and Forfeitures Page VIII - 8

Budget Schedules-Current Law 

SPECIAL AND TRUST FUND RECEIPTS (N) (MILLIONS $) 

Identification code: 

14-5017-0 2007 Act 2008 CY 2009 BY 

Special and Trust Fund Receipts (N) 

0100 Balance, start of year 0 0 0 

0199 Balance, start of year 0 0 0 

Receipts 

0220 

Service Charges, Deposits, and Forfeitures, 

BLM 26 28 28 

0221 

Service Charges, Deposits, and Forfeitures, 

BLM - legislative proposal not subject to 

PAYGO 0 0 34 

0299 Total receipts and collections 26 28 62 

0400 Total: Balances and collections 26 28 62 

Appropriations 

0500 Service Charges, Deposits, and Forfeitures -26 -28 -28 

0501 

Service Charges, Deposits, and Forfeitures - 

legislative proposal not subject to PAYGO 0 0 -34 

0599 Total appropriations -26 -28 -62 

0799 Balance, end of year 0 0 0 

PROGRAM AND FINANCING (P) (MILLIONS $) 

Identification code: 

14-5017-0 2007 Act 2008 CY 2009 BY 

Obligations by program activity 

0001 Right-of-Way Processing 12 14 15 

0002 Adopt-a-Horse Program 1 1 1 

0003 Repair of Damaged Lands 4 4 4 

0004 Recreation Cost Recovery 1 1 1 

0005 Copy Fees 3 4 4 

0006 Energy and Minerals Cost Recovery 2 5 4 

1000 Total new obligations 23 29 29 

Budgetary resources available for obligation 

2140 

Unobligated balance carried forward, start of 

year 26 30 29 

2200 New budget authority (gross) 26 28 28 

2210 

Resources available from recoveries of prior 

year obligations 1 0 0 

2390 

Total budgetary resources available for 

obligation 53 58 57 

2395 Total new obligations -23 -29 -29 

2440 

Unobligated balance carried forward, end of 

year 30 29 28 

New budget authority (gross), detail 

Discretionary 

4020 Appropriation (special fund) 26 28 28 

Change in obligated balances 

7240 Obligated balance, start of year 3 3 5 
Bureau of Land Management 2009 Budget Justifications 

Section VIII –Service Charges, Deposits and Forfeitures Page VIII - 9

PROGRAM AND FINANCING (P) (MILLIONS $) 

Identification code: 

14-5017-0 2007 Act 2008 CY 2009 BY 

7310 Total new obligations 23 29 29 

7320 Total outlays (gross) -22 -27 -29 

7345 Recoveries of prior year obligations -1 0 0 

7440 Obligated balance, end of year 3 5 5 

Outlays (gross), detail 

8690 Outlays from new discretionary authority 11 14 14 

8693 Outlays from discretionary balances 11 13 15 

8700 Total outlays (gross) 22 27 29 

Net budget authority and outlays 

8900 Budget authority 26 28 28 

9000 Outlays 22 27 29 

9502 Unpaid obligation, end of year 4 0 0 

9602 2006 CR adjusted balances, SOY 0 0 0 

OBJECT CLASSIFICATION (O) (MILLIONS $) 

Identification code: 

14-5017-0 2007 Act 2008 CY 2009 BY 

Direct obligations 

Personnel compensation 

1111 Full-time permanent 9 10 10 

1121 Civilian personnel benefits 3 3 3 

1220 Transportation of things 1 1 1 

1252 Other services 4 7 7 

1253 

Other purchases of goods and services from 

Government accounts 3 4 4 

1260 Supplies and materials 3 4 4 

9999 Total new obligations 23 29 29 

BA, LIMITATIONS, AND OUTLAYS (A) (MILLIONS $) 

Identification code: 

14-5017-0 2007 Act 2008 CY 2009 BY 

Appropriation (total) [Text] 

4300 Discretionary, Appropriations Committee 26 28 28 

Outlays from new authority [Text] 

9111 Discretionary, Appropriations Committee 11 14 14 

Outlays from balances [Text] 

9121 Discretionary, Appropriations Committee 11 13 15 

Memo: Outlays frm end of PY balances [Text] 

9122 Discretionary, Appropriations Committee 0 13 1 

BA, LIMITATIONS, AND OUTLAYS (S) (MILLIONS $) 

Identification code: 

14-5017-0 2007 Act 2008 CY 2009 BY 

Appropriation (total) [Text] 

Discretionary, Appropriations Committee 

4300 Baseline Non-Pay 0 13 13 

4300 Baseline Civilian Pay 0 15 16 

Outlays from new authority [Text] 

9111 Discretionary, Appropriations Committee 0 14 15 
Bureau of Land Management 2009 Budget Justifications 

Section VIII –Service Charges, Deposits and Forfeitures Page VIII - 10

BA, LIMITATIONS, AND OUTLAYS (S) (MILLIONS $) 

Identification code: 

14-5017-0 2007 Act 2008 CY 2009 BY 

Outlays from balances [Text] 

9121 Discretionary, Appropriations Committee 0 13 15 

Memo: Outlays frm end of PY balances [Text] 

9122 Discretionary, Appropriations Committee 0 13 1 

CHARACTER CLASSIFICATION (C) (MILLIONS $) 

Identification code: 

14-5017-0 2007 Act 2008 CY 2009 BY 

NON-INVESTMENT ACTIVITIES 

Direct Federal programs 

2004-01 Budget Authority 26 28 28 

2004-02 Outlays 22 27 29 

EMPLOYMENT SUMMARY (Q) 

Identification code: 

14-5017-0 2007 Act 2008 CY 2009 BY 

Direct 

1001 Civilian full-time equivalent employment 151 155 155 

APPROPRIATIONS REQUESTS IN THOUSANDS OF DOLLARS (T)

Identification code: 

14-5017-0 2007 Act 2008 CY 2009 BY 

1000 Budget year budgetary resources [14-5017] 0 0 27990 
Bureau of Land Management 2009 Budget Justifications 

Section VIII –Service Charges, Deposits and Forfeitures Page VIII - 11

Budget Schedules-Proposal 

PROGRAM AND FINANCING (P) (MILLIONS $) 

Identification code: 

14-5017-2 2007 Act 2008 CY 2009 BY 

Obligations by program activity 

0006 Energy and minerals cost recovery 0 0 29 

1000 Total new obligations 0 0 29 

Budgetary resources available for obligation 

2200 New budget authority (gross) 0 0 34 

2395 Total new obligations 0 0 -29 

2440 

Unobligated balance carried forward, end of 

year 0 0 5 

New budget authority (gross), detail 

Discretionary 

4020 Appropriation (special fund) 0 0 34 

Change in obligated balances 

7310 Total new obligations 0 0 29 

7320 Total outlays (gross) 0 0 -17 

7440 Obligated balance, end of year 0 0 12 

Outlays (gross), detail 

8690 Outlays from new discretionary authority 0 0 17 

Net budget authority and outlays 

8900 Budget authority 0 0 34 

9000 Outlays 0 0 17 

9502 Unpaid obligation, end of year 0 0 1 

9602 2006 CR adjusted balances, SOY 0 0 1 

OBJECT CLASSIFICATION (O) (MILLIONS $) 

Identification code: 

14-5017-2 2007 Act 2008 CY 2009 BY 

Direct obligations 

Personnel compensation 

1111 Full-time permanent 0 0 10 

1121 Civilian personnel benefits 0 0 1 

1252 Other services 0 0 18 

9999 Total new obligations 0 0 29 

BA, LIMITATIONS, AND OUTLAYS (A) (MILLIONS $) 

Identification code: 

14-5017-2 2007 Act 2008 CY 2009 BY 

Appropriation (total) [Text] 

4300 Discretionary, Appropriations Committee 0 0 34 

Outlays from new authority [Text] 

9111 Discretionary, Appropriations Committee 0 0 17 

Outlays from balances [Text] 

9121 Discretionary, Appropriations Committee 0 0 0 

Memo: Outlays frm end of PY balances [Text] 

9122 Discretionary, Appropriations Committee 0 0 0 
Bureau of Land Management 2009 Budget Justifications 

Section VIII –Service Charges, Deposits and Forfeitures Page VIII - 12

BA, LIMITATIONS, AND OUTLAYS (S) (MILLIONS $) 

Identification code: 

14-5017-2 2007 Act 2008 CY 2009 BY 

Outlays from new authority [Text] 

9111 Discretionary, Appropriations Committee 0 0 0 

Outlays from balances [Text] 

9121 Discretionary, Appropriations Committee 0 0 0 

Memo: Outlays frm end of PY balances [Text] 

9122 Discretionary, Appropriations Committee 0 0 0 

CHARACTER CLASSIFICATION (C) (MILLIONS $) 

Identification code: 

14-5017-2 2007 Act 2008 CY 2009 BY 

NON-INVESTMENT ACTIVITIES 

Direct Federal programs 

2004-01 Budget Authority 0 0 34 

2004-02 Outlays 0 0 17 

EMPLOYMENT SUMMARY (Q) 

Identification code: 

14-5017-2 2007 Act 2008 CY 2009 BY 

Direct 

1001 Civilian full-time equivalent employment 0 0 210 
Bureau of Land Management 2009 Budget Justifications 

Appropriation: Miscellaneous Permanent Payments 

APPROPRIATION LANGUAGE SHEET

No Appropriation Language Sheet 

PROGRAM OVERVIEW

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 by the Congress. Amounts are estimated based on 

anticipated collections, or in some cases, upon provisions required by permanent legislation. 

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 showing for each year are the amounts paid, or estimated to be paid, in that 

year. 

Section IX- Miscellaneous Permanent Payments Page IX-1
Bureau of Land Management 2009 Budget Justifications 

Authorizations 

65 Stat. 252 The State of Oklahoma is paid 37 1⁄2 percent of the Red River oil and 

gas royalties in lieu of State and local taxes on Kiowa, Comanche, 

and Apache Tribal lands, to be used for construction and 

maintenance of public roads and support of public schools. (65 

Stat. 252). After November 2007, the Minerals Management 

Service will make these payments. 

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 5 percent of the net proceeds (4 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. 

94 Stat. 1964 (42 U.S.C. 

6508) 

Alaska is paid 50 percent of the receipts from sales, bonuses, 

royalties, and rentals resulting from oil and gas leasing in the 

National Petroleum Reserve in Alaska. After November 2007, the 

Minerals Management Service will make these payments. 

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 Act-Land 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. 

Section IX- Miscellaneous Permanent Payments Page IX-2
Bureau of Land Management 2009 Budget Justifications 

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) 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 NPS, FWS 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. 

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. 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 U.S. 

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 U.S., 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. 

P.L. 102-172 Authorizes land exchanges with Calista Corporation, a Native 

corporation authorized under the laws of the State of Alaska. The 

final payment was made in October, 2007. 

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. 

Section IX- Miscellaneous Permanent Payments Page IX-3
Bureau of Land Management 2009 Budget Justifications 

The Secure Rural Schools 

and Community SelfDetermination Act of 2000 

(P.L. 106-393) 

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 

were made in October 2007 . 

Public Law 110-28 

Clark County 

Conservation of Public 

Land and Natural 

Resources Act of 2002 

(P.L. 107-282) as amended 

by P.L. 108-447 

Provided one additional year of payments to Oregon and California 

Grant Lands and the Coos Bay Wagon Road counties. 

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. 

P.L. 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) 5 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 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. 

Section IX- Miscellaneous Permanent Payments Page IX-4
Bureau of Land Management 2009 Budget Justifications 

Summary of Requirements ($000) 

 Fixed Costs & Program 2009 Inc(+) 

Comparison 2007 2008 

Related 

Changes Changes Budget Dec(-) 

by Appropriation Enacted Enacted (+/ -) (+/ -) Request from 2008 

 FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount 

 

 Miscellaneous 

Permanent 

Payments, total 

Appropriated 15 144,465 15 26,981 +0 +0 -15 +8,816 0 35,797 0 8,816 

Misc. Perm. 

Payments, with 

2008 carryover 

provided in PL 

110-28* 

0 [144,465] [143,846] [8,816] [35,797] [8,816] 

O&C Grant 

Lands Payments 

to Counties 0 0 0 0 +0 +0 +0 +18,018 0 18,018 0 +18,018 

 

Coos Bay Wagon 

Road Grant 

Lands Payments 

to Counties 0 0 0 0 +0 +0 +0 +3,191 0 3,191 0 +3,191 

 

 Royalty 

Payments to 

State of 

Oklahoma 0 20 0 0 +0 +0 +0 +0 0 0 0 0 

 

 Payments to 

States from 

Proceeds of 

Sales 0 3,311 0 2,227 +0 +0 +0 +75 0 2,302 0 +75 

 

 Payments to 

States from 

Grazing Fees, 

etc. on Public 

Lands outside 

Grazing Districts 0 1,027 0 875 +0 +0 +0 +100 0 975 0 +100 

 

 Payments to 

States from 

Grazing Fees, 

etc. on Public 

Lands within 

Grazing Districts 0 1,517 0 1,313 +0 +0 +0 +62 0 1,375 0 +62 

 

 Payments to 

States from 

Grazing Fees, 

etc. on Public 

Lands within 

Grazing Districts, 

misc. 0 20 0 15 +0 +0 +0 +8 0 23 0 +8 

 

 Payments to 

Counties, 

National 

GrassLands 

(Farm Tenant 

Lands) 0 980 0 890 +0 +0 +0 +5 0 895 0 +5 

 

Section IX- Miscellaneous Permanent Payments Page IX-5
Bureau of Land Management 2009 Budget Justifications 

Summary of Requirements ($000) 

 Fixed Costs & Program 2009 Inc(+) 

Comparison 2007 2008 

Related 

Changes Changes Budget Dec(-) 

by Appropriation Enacted Enacted (+/ -) (+/ -) Request from 2008 

 FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount 

 

 Payments to 

Nevada from 

Receipts on Land 

Sales (includes 

15%) 0 7,713 0 17,260 +0 +0 +0 -8,242 0 9,018 0 -8,242 

 

 Native Alaskan 

Groups' Property 0 0 0 4,401 +0 +0 +0 -4,401 0 0 0 -4,401 

 

 Alaska, National 

Petroleum 

Reserve 0 12,772 0 0 +0 +0 +0 +0 0 0 0 0 

 

Secure Rural 

Schools 15 117,105 0 0 +0 +0 +0 +0 0 0 0 0 

P.L. 110-28 

providing one 

year of additional 

county 

payments* 0 0 15 116,865 +0 +0 -15 

-

116,865 0 0 -15 

-

116,865 

 

 Payments to 

O&C Counties, 

Title I/III 15 107,928 15 110,873 +0 +0 -15 

-

110,873 0 0 -15 

-

110,873 

 

 Payments to 

Coos Bay Wagon 

Road Counties, 

Title I/III 0 924 0 995 +0 +0 +0 -995 0 0 0 -995 

 

 Payments to 

O&C and Coos 

Bay Wagon Road 

Counties, Title II 0 8,253 0 4,997 +0 +0 +0 -4,997 0 0 0 -4,997 

* FY 2008 includes $116.865M in adjustment to unobligated balance carried forward, start of year. 

Section IX- Miscellaneous Permanent Payments Page IX-6
Bureau of Land Management 2009 Budget Justifications 

Appropriation: Miscellaneous Permanent Payments 

Appropriations 

Activity Summary ($000) 

 2009 

 Fixed Costs & Program Change 

 2007 2008 

Related 

Changes Changes Budget 

from 

2008 

Subactivity Enacted Enacted (+/ -) (+/ -) Request (+/-) 

Oregon & California 

Grant Lands payments 

to counties $ 0 0 0 +18,018 18,018 +18,018

 FTE 0 0 0 0 0 0

Coos Bay Wagon 

Road Grant Lands 

payments to counties $ 0 0 0 +3,191 3,191 +3,191

 FTE 0 0 0 0 0 0

 Royalty Payments to 

State of Oklahoma $ 20 0 0 0 0 0

 FTE 0 0 0 0 0 0

 Payments to States 

from Proceeds of 

Sales $ 3,311 2,227 0 +75 2,302 +75

 FTE 0 0 0 0 0 0

 Payments to States 

from Grazing Fees, 

etc. on Public Lands 

outside Grazing 

Districts $ 1,027 875 0 +100 975 +100

 FTE 0 0 0 0 0 0

 Payments to States 

from Grazing Fees, 

etc. on Public Lands 

within Grazing Districts $ 1,517 1,313 0 +62 1,375 +62

 FTE 0 0 0 0 0 0

Section IX- Miscellaneous Permanent Payments Page IX-7
Bureau of Land Management 2009 Budget Justifications 

Activity Summary ($000) 

 2009 

 Fixed Costs & Program Change 

 2007 2008 

Related from 

Changes Changes Budget 2008 

Subactivity Enacted Enacted (+/ -) (+/ -) Request (+/-) 

 Payments to States 

from Grazing Fees, 

etc. on Public Lands 

within Grazing 

Districts, misc. $ 20 15 0 +8 23 +8

 FTE 0 0 0 0 0 0

 Payments to 

Counties, National 

GrassLands (Farm 

Tenant Lands) $ 980 890 0 +5 895 +5

 FTE 0 0 0 0 0 0

 Payments to Nevada 

from Receipts on Land 

Sales (includes 15%) $ 7,713 17,260 0 -8,242 9,018 -8,242

 FTE 0 0 0 0 0 0

 Native Alaskan 

Groups' Property $ 0 4,401 0 -4,401 0 -4,401

 FTE 0 0 0 0 0 0

 Alaska, National 

Petroleum Reserve $ 12,772 0 0 0 0 0

 FTE 0 0 0 0 0 0

Secure Rural Schools 117,105 0 0 0 0 0

P.L. 110-28 providing 

one year of additional 

county payments* $ 0 116,865 0 -116,865 0 -116,865

 FTE 15 15 0 -15 0 -15

 Total Dollars $ 144,465 143,846 0 -108,049 35,797 -108,049

 FTE 15 15 0 -15 0 -15

* FY 2008 includes $116.865M in adjustment to unobligated balance carried forward, start of year 

Section IX- Miscellaneous Permanent Payments Page IX-8
Bureau of Land Management 2009 Budget Justifications 

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 congressional appropriations. The payment amounts for 2008 and 2009 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 Oregon and California and Coos Bay Wagon Road counties - The final 

payments to 18 western Oregon counties under the Secure Rural Schools and Community Selfdetermination Act, P.L. 106-393, were made in 2007. P.L. 110-28 provided payments for one 

additional year. The payments in 2008 were required to be made in the same way as in 2007, 

but were limited to a total of $525 million for both the Bureau of Land Management and the 

Forest Service. BLM’s share, $116,865,000, was paid in the same proportion as the payments 

made in 2007. Payments by BLM in 2009 will be made under two statutes enacted in 1937 and 

1939, 50 Stat. 874 and 53 Stat. 753. O&C grant lands payments will be made under the 1937 

statute and will be 50 percent of revenues from O&C grant lands. Payments to Coos and 

Douglas counties under a 1939 statute are for lost tax revenue in those counties and are 

estimated to be 25 percent of all revenues from Coos Bay Wagon Road grant lands. 

Royalty payments to Oklahoma - After November, 2007, the Minerals Management Service 

will make these payments. Prior to that date, BLM paid the State of Oklahoma 371⁄2 percent of 

the Red River oil and gas royalties in lieu of State and local taxes on Kiowa, Comanche, and 

Apache tribal lands. These payments are used for construction and maintenance of public 

roads and support of public schools (65 Stat. 252). The payment in 2007 was $19,500. 

Payments to States from Proceeds of Sales - The 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. 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 estimated payment for 2009 of $2,302,000 includes the 

States’ share of additional receipts that would result from an Administration proposal to broaden 

BLM’s land sale authority under the Federal Land Transaction Facilitation Act of 2000. 

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. BLM makes these payments 

annually. The actual and estimate payments for 2007, 2008, and 2009 are $1,027,000, 

$875,000, and $975,000 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. BLM makes the payments annually. Actual and 

estimate payments for 2007, 2008, and 2009 are $1,517,000, $1,313,000, and $1,375,000 

respectively. 

Section IX- Miscellaneous Permanent Payments Page IX-9
Bureau of Land Management 2009 Budget Justifications 

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. BLM makes these payments annually. Actual and estimate payments for 2007, 

2008, and 2009 are $20,000, $15,000, and $23,000 respectively. 

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). 

BLM makes payments annually on a calendar-year basis. Actual and estimate payments for 

2007, 2008, and 2009 are $980,000, $890,000, and $895,000 respectively. 

Payments to Nevada from Receipts on Land Sales - 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) 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 for 

use in acquiring environmentally sensitive lands in Nevada; making capital improvements to 

areas administered by the National Park Service and the U.S. Fish and Wildlife Service, and the 

BLM in Clark County, Nevada; developing a multi-species habitat plan in Clark County, Nevada; 

developing parks, trails, or natural areas in Clark County, Nevada; reimbursing BLM for the 

costs incurred in arranging sales and exchanges under this Act; and conservation initiatives on 

Federal lands in Clark County, Nevada. 

P.L. 107-282 amended the Southern Nevada Lands Act to increase the boundary area in which 

the BLM can sell lands. It also approved a land exchange in the Red Rock Canyon area, 

designates wilderness and certain BLM lands for a new airport, and gives lands to the State and 

City for other purposes. It also makes a technical amendment to the Mesquite Lands Act. 

BLM paid the State of Nevada and Southern Nevada Water Authority $7,713,000 in 2007. 

Estimated payments for 2008 and 2009 are $17,260,000 in 2008 and $9,018,000 in 2009 based 

on the estimates of collections from planned land sales. Sales values for these lands in Clark 

County have stabilized. The BLM estimates that it will collect $115,100,000 in 2008 and 

$60,000,000 in 2009 through these lands sales. Some receipts for sales held in the latter half 

one fiscal year are not collected in full until the next fiscal year because of normal delay in the 

acceptance of bids. 

Native Alaskan Groups’ Properties - Alaska Native Corporations are organized pursuant to 

the Alaska Native Claims Settlement Act of 1971. Pursuant to ANCSA, Alaska Native 

Corporations may opt for the cash valuation of their lands. The cash valuation of the lands is, or 

will be, warranted into an account established within the Department of the Treasury. Funds are 

appropriated from the General Fund of the Treasury. Amounts listed are not payments but the 

Section IX- Miscellaneous Permanent Payments Page IX-10
Bureau of Land Management 2009 Budget Justifications 

cash valuation warranted into the Treasury accounts. Funds were appropriated by the 

Department of Defense Appropriations Act of 1990 and the Cook Inlet Region, Incorporated, 

Public Law 102-172 for the Calista Corporation and by Public Law 102-415 for the Haida 

Corporation and the Gold Creek Susitna Association, Incorporated, for the acquisition by those 

groups of Federal real properties to fulfill claims originally settled in the Alaska Native Claims 

Settlement Act. The BLM maintains an accounting of appropriations to and expenditures from 

these accounts, but has no control over them. This category includes the following Native 

Corporation property accounts: 

 

• Cook Inlet Region, Inc., Property Account - This account received funding appropriated 

by section 9102 of the 1990 Department of Defense Appropriations Act for the acquisition of 

Federal real properties, improvements on such lands or rights to their use or exploitation, 

and any personal property related to the land purchased by the Cook Inlet Region, 

Incorporated, as authorized by the provisions of section 12(b) of P.L. 94-204 (43 U.S.C. 

1611). Several statutes have granted authorities to various Native corporations and the 

State of Alaska to select parcels of Federal land in Alaska. The ANCSA authorized Native 

corporations to select 44 million acres of land. Native corporations, which were established 

by ANSCA to handle money and lands granted to Alaska Natives, who wanted land that 

could be developed for the economic benefit of Alaska Natives as well as for home lands 

where Native peoples have historically lived, hunted, and fished. 

 CIRI was established as a Native corporation by ANCSA. CIRI had problems obtaining land 

entitled to it under ANCSA, which resulted in a number of legislative and administrative 

resolution attempts. Amendments to ANCSA in P.L. 94-204 of January 2, 1976, provided 

for: (1) the establishment (but not funding) of the Cook Inlet Region, Incorporated Property 

Account for the purpose of bidding on Federal surplus property; (2) identification of the 

entitlement to be charged against the surplus property account; and (3) the basis for 

computing gain or loss against CIRI’s entitlement. In 1990, actual funding for the CIRI 

Property Account was appropriated as permanent budget authority by P.L. 101-165, the 

Department of the Defense Appropriation Act of 1990. Various legislative authorities and 

agreements between the Department and CIRI further defined a mechanism to account for 

CIRI entitlements. A Memorandum of Understanding between the Department and CIRI 

dated April 11, 1986, requires the Department to adjust the CIRI’s Remaining Obligation 

Entitlement Account periodically to reflect changes in the consumer price index for the 

Anchorage, area. The BLM has been assigned responsibility for administering the 

operations of the CIRI Property Account and appropriated funds. The remaining entitlement 

balance in the CIRI Property Account as of September 30, 2003, including all CPI 

adjustment to that date, is $2,376,394. There has been no activity in this account in recent 

years and none is projected for 2008 and 2009. 

Section IX- Miscellaneous Permanent Payments Page IX-11
Bureau of Land Management 2009 Budget Justifications 

• Calista - Section 8126 of P.L. 102-172, dated November 26, 1991, authorized the Secretary 

of the Interior to exchange excess government properties for lands, and interests in lands, of 

equal value identified in a document entitled “The Calista Conveyance and Relinquishment 

Document,” dated October 28, 1991. Public Law 105–333 amended the ANCSA to clarify 

the land bank protection provisions and assigned a value of $39,400,000 to properties to be 

conveyed by the Calista Corporation in exchange for monetary credits to Federal properties. 

This amount is to be paid over an eight-year period; the first payment of $5,000,000 was 

made in 2000. Pursuant to that Act, $4,999,860 was paid each year from 2003 through 

2006. No payment was made in 2007, and a final payment of $4,400,980 was made in 

2008. 

• Haida - This account was established under the authority of P.L. 102-415, Section 13, 106 

Stat. 2122. Haida Property Account is an account for an Alaska native corporation 

organized pursuant to the ANSCA, as amended. Pursuant to Section 16, which amends the 

Haida Land Exchange Act of 1986, this account received $47,573,000 in 1997 for the 

assignment and land exchange credit as prescribed in the Act. There was no activity in this 

account in 2007, and none is anticipated in 2008 and 2009. 

Payments to Alaska, National Petroleum Reserve – After November, 2007, the Minerals 

Management Service will make these payments. Prior to that date, BLM collected bonuses, 

rents, and royalties from oil and gas leasing in the National Petroleum Reserve in Alaska, and 

semi-annually paid the State of Alaska 50 percent of those receipts, depositing the balance to 

the General Fund of the Treasury. The payments to Alaska are to be used for planning, 

constructing, maintaining, and operating essential public facilities, and for other necessary 

provisions of public service. The payment to Alaska in 2007 was $12,772,000. 

Secure Rural Schools payments to Coos and Douglas Counties, Oregon, from Receipts, 

Coos Bay Wagon Road Grant Lands - Under the Secure Rural Schools and Community SelfDetermination Act of 2000 (P.L. 106-393), Coos and Douglas Counties received annual 

payments equal to the average of the three highest “in lieu of tax” payments and safety net 

payments made for the fiscal years 1988-1999, adjusted for inflation. Payments were derived 

from any revenues, fees, penalties, or miscellaneous receipts, exclusive of deposits to any 

relevant trust fund or permanent operating funds, received by the Federal government from 

BLM activities on Coos Bay Wagon Road lands and, to the extent of any shortfall, out of any 

funds in the Treasury not otherwise appropriated. The law expired in 2006. P.L. 110-28 

provided payments for one additional year. 

P.L. 110-28 – P.L. 110-28 provided payments for one additional year to counties receiving 

payments under the Secure Rural Schools and Community Self-Determination Act of 2000

which expired in 2006. The USDA Forest Service Budget includes a legislative proposal that 

provides $200 million above the current baseline for a four-year extension of USDA and 

Department of the Interior forest county safety net payments, which will be targeted to the most 

affected areas, capped, adjusted downward each year, and phased out. For administrative 

convenience, USDA will make the payments on behalf of both agencies. Offsets for the 

Administration’s proposal are provided within the topline of the President’s Budget throughout 

the Department of Agriculture and elsewhere. For the 2008 payment (to be made in 2009), the 

Administration continues to be prepared to work with Congress to identify mutually agreeable 

offsets.

Section IX- Miscellaneous Permanent Payments Page IX-12
Bureau of Land Management 2009 Budget Justifications 

Payments to Oregon and California Grant Lands 

Counties – Under Secure Rural Schools and Community 

Self-Determination 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. 

Payments to Counties 

The Secure Rural Schools Act provided that payments for 

2001-2006 (to be made in 2002-2007), were to be an 

amount equal to the average of the three highest 

payments made during fiscal years 1986-1999. 

Payments were adjusted for inflation, that is, 50 percent of 

the change in the Consumer Price Index. The law expired 

in 2006. 

 Under P.L. 106-393 in 2002 through 

2007, P.L. 110-28 in 2008, and under 

1937 O&C and 1939 CBWR statutes in 

2009 (Million $) 

Fiscal 

Year 

O&C 

Land 

CBWR 

Lands 

Total 

Payme

nts 

2002 $108.7 $1.0 $109.7

2003 $109.6 $1.0 $110.6

2004 $110.9 $1.0 $111.9

2005 $112.4 $1.0 $113.4 

2006 $114.9 $1.0 $115.9 

2007 $116.3 $1.0 $117.3 

2008 $115.9 $1.0 $116.9 

2009 $16.5 $1.3 $17.8 

P.L. 110–28 provided payments for one additional year. The payments in 2008 were required to 

be made in the same way as in 2007, but were limited to a total of $525 million for both the 

Bureau of Land Management and the Forest Service. BLM’s share, $116,865,000, was paid in 

the same proportion as the payments made in 2007. Payments in 2009 will be made under two 

statutes enacted in 1937 and 1939, 50 Stat. 874 and 53 Stat. 753. Payments to 17 Oregon 

counties under the 1937 statute will be 50 percent of all revenues from O&C grant lands. CBWR 

payments under the 1939 statute are for lost tax revenue in two Oregon counties and are 

estimated to be 25 percent of all revenues from Coos Bay Wagon Road grant lands. 

Section IX- Miscellaneous Permanent Payments Page IX-13
Bureau of Land Management 2009 Budget Justifications 

2007 PAYMENTS OF BLM RECEIPTS* TO STATES AND COUNTIES ($000) 

Mineral 

Leasing 

Act 

Outside 

Grazing 

Districts 

Inside 

Grazing 

Districts 

Proceeds 

of Sales Other 

 Total 

Payments 

 Alaska $1 $0 $0 $12 $12,772 a/ $12,785 

 Arizona $77 $91 $64 $124 $0 $356 

 California $100 $89 $17 $64 $0 $270 

 Colorado $229 $33 $84 $51 $0 $397 

 Idaho $27 $22 $197 $50 $0 $296 

 Louisiana $20 $0 $0 $0 $0 $20 

 Montana $0 $119 $151 $49 $968 b/ $1,287 

 Nebraska $0 $1 $0 $0 $0 $1 

 Nevada $61 $9 $282 $2,681 $7,713 c/ $10,746 

 New Mexico $696 $154 $221 $132 $12 b/ $1,215 

 North Dakota $4 $8 $0 $0 $0 $12 

 Oklahoma $0 $0 $0 $0 $20 d/ $20 

 Oregon $6 $24 $159 $44 $117,105 e/ $117,338 

 South Dakota $0 $82 $0 $1 $0 $83 

 Utah $220 $0 $155 $22 $0 $397 

 Washington $0 $25 $0 $16 $0 $41 

 Wyoming $669 $370 $207 $65 $0 $1,311 

Total States $2,110 $1,027 $1,537 $3,311 $138,590 $146,575

Mineral Leasing Act payments are not reported in the Summary of Requirements table. 

The Mineral Leasing Act numbers ($2,110) are included in this table to show total 

payments to States and Counties. They are not reported in the BLM Summary of 

Requirements table. This is because the Minerals Management Service includes these 

numbers in their Summary of Requirements table and their budget execution reports. 

a/ National Petroleum Reserve - Alaska lands. 

b/ LU lands under the Bankhead-Jones Farm Tenant Act (7 U.S.C. 1012).

c/ Does not include direct payments of land sales under the Southern Nevada Public Land 

Management Act and some calendar year payments to Clark County, Nevada and the 

State of Nevada under the Santini-Burton Act totaled because they were not reported to 

Treasury in 2007. 

d/ Oklahoma royalties. 

e/ 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 2007, a total of $8,252,884 of the 

$117,105,152 is money that was returned to BLM for Title II projects.

Section IX- Miscellaneous Permanent Payments Page IX-14
Bureau of Land Management 2009 Budget Justifications 

Budget Schedules

SPECIAL AND TRUST FUND RECEIPTS (N) (MILLION $)

Identification code: 

14-9921-0-999 2007 Act 2008 CY 2009 BY 

0100 Balance, start of year 185 165 170 

Adjustments 

0190 Adjustments -4 0 0 

0199 Balance, start of year 181 165 170 

Receipts 

0220 

Receipts from Grazing, Etc., Public Lands 

outside Grazing Districts 2 2 2 

0221 

Receipts from Grazing, Etc., Public Lands 

within Grazing Districts 1 1 1 

0222 

Receipts from Sale of Public Lands in 

Nevada, BLM -20 0 0 

0223 

Payments to States and Counties from Land 

Sales 11 19 11 

0224 Sale of Public Lands and Materials 1 0 0 

0225 Oregon and California Land-grant Fund 3 0 0 

0226 Deposits, Oregon and California Grant Lands 12 7 18 

0227 

Funds Reserved, Coos Bay Wagon Road 

Grant Lands 1 0 3 

0299 Total receipts and collections 11 29 35 

0400 Total: Balances and collections 192 194 205 

Appropriations 

0500 Miscellaneous Permanent Payment Accounts -1 0 0 

0501 Miscellaneous Permanent Payment Accounts -12 0 0 

0502 Miscellaneous Permanent Payment Accounts -3 -3 -3 

0503 Miscellaneous Permanent Payment Accounts -1 -1 -1 

0504 Miscellaneous Permanent Payment Accounts -1 -2 -2 

0505 Miscellaneous Permanent Payment Accounts -8 -17 -9 

0506 Miscellaneous Permanent Payment Accounts -1 -1 -1 

0507 Miscellaneous Permanent Payment Accounts 0 0 -18 

0508 Miscellaneous Permanent Payment Accounts 0 0 -3 

0599 Total appropriations -27 -24 -37 

0799 Balance, end of year 165 170 168 

Program and Financing (P) (MILLION $) 

Identification code: 

14-9921-0-999 2007 Act 2008 CY 2009 BY 

Obligations by program activity 

0001 Payments to O&C Counties, Title I/III 5884 108 108 0 

0002 

Payments to Coos Bay Wagon Road 

Counties, Title I/III 5898 1 1 0 

0003 

Payment to O&C and CBWR Counties, Title II 

5485 9 10 0 

0004 From grazing fees, etc., public lands outside 1 1 1 

Section IX- Miscellaneous Permanent Payments Page IX-15
Bureau of Land Management 2009 Budget Justifications 

Program and Financing (P) (MILLION $) 

Identification code: 

14-9921-0-999 2007 Act 2008 CY 2009 BY 

grazing districts 5016 

0005 

From grazing fees, etc., public lands within 

grazing districts 5032 2 1 1 

0006 

Payments to State and County from Nevada 

Land sales (15) 5129 8 17 9 

0007 Proceeds from sales 5133 3 3 1 

0008 Native Alaskan groups' property 1140 0 4 0 

0009 

Payments to counties from national 

grasslands 5896 1 1 1 

0011 50/50 Payments to O&C Counties 5884 0 0 18 

0012 75/25 Payments to CBWR Counties 5898 0 0 3 

1000 Total new obligations 133 146 34 

Budgetary resources available for obligation 

2140 

Unobligated balance carried forward, start of 

year 7 6 5 

2200 New budget authority (gross) 132 145 37 

2390 

Total budgetary resources available for 

obligation 139 151 42 

2395 Total new obligations -133 -146 -34 

2440 

Unobligated balance carried forward, end of 

year 6 5 8 

New budget authority (gross), detail 

Discretionary 

4000 Appropriation 0 117 0 

Mandatory 

6000 Payments to Native Corporations 0 4 0 

6000 SRS O&C Payments from GF- Title I/III 96 0 0 

6000 SRS Payments from GF-Title II 9 0 0 

6020 SRS CBWR Payments from GF- Title I/III 1 0 0 

6020 

SRS O&C Payments from GF- Title I/III from 

receipts 12 0 0 

6020 Proceeds of sales-payments to states 3 3 3 

6020 

Payments from grazing fees outside grazing 

districts 1 1 1 

6020 

Payments from grazing fees within grazing 

districts 1 2 2 

6020 Payments from Nevada land sales 8 17 9 

6020 

Payments to Counties, National Grasslands, 

BLM 1 1 1 

6020 50/50 Payments to O&C Counties 0 0 18 

6020 72/25 Payments to CBWR Counties 0 0 3 

6250 Appropriation (total mandatory) 132 28 37 

7000 Total new budget authority (gross) 132 145 37 

Change in obligated balances 

7240 Obligated balance, start of year 6 8 18 

7310 Total new obligations 133 146 34 

7320 Total outlays (gross) -131 -136 -48 

7440 Obligated balance, end of year 8 18 4 

Section IX- Miscellaneous Permanent Payments Page IX-16
Bureau of Land Management 2009 Budget Justifications 

Program and Financing (P) (MILLION $) 

Identification code: 

14-9921-0-999 2007 Act 2008 CY 2009 BY 

Outlays (gross), detail 

8690 Outlays from new discretionary authority 0 105 0 

8693 Outlays from discretionary balances 0 4 12 

8697 Outlays from new mandatory authority 123 27 35 

8698 Outlays from mandatory balances 8 0 1 

8700 Total outlays (gross) 131 136 48 

Net budget authority and outlays 

8900 Budget authority 132 145 37 

9000 Outlays 131 136 48 

9502 Unpaid obligation, end of year 8 0 0 

Object Classification (O) (MILLION $) 

Identification code: 

14-9921-0-999 2007 Act 2008 CY 2009 BY 

Direct obligations 

Personnel compensation 

1111 Full-time permanent 1 1 0 

1252 Other services 3 4 7 

1254 Operation and maintenance of facilities 0 1 1 

1410 Grants, subsidies, and contributions 129 140 26 

9999 Total new obligations 133 146 34 

BA, Limitations, and Outlays - Policy (A) (MILLION $) 

Identification code: 

14-9921-0-999 2007 Act 2008 CY 2009 BY 

Appropriation [SRS payments to western 

Oregon counties] 

4300 Discretionary, Appropriations Committee 0 117 0 

Appropriation (total) [Text] 

6250 Mandatory, Authorizing Committee 132 28 37 

Outlays from new authority [Text] 

9111 Discretionary, Appropriations Committee 0 105 0 

9111 Mandatory, Authorizing Committee 123 27 35 

Outlays from balances [Text] 

9121 Discretionary, Appropriations Committee 0 4 12 

9121 Mandatory, Authorizing Committee 8 0 1 

Memo: Outlays frm end of PY balances [Text] 

9122 Discretionary, Appropriations Committee 0 4 0 

9122 Mandatory, Authorizing Committee 0 0 0 

BA, Limitations, and Outlays - Baseline (S) (MILLION $) 

Identification code: 

14-9921-0-999 2007 Act 2008 CY 2009 BY 

Appropriation [SRS payments to western 

Oregon counties] 

Discretionary, Appropriations Committee 

4300 Baseline Non-Pay 0 111 113 

4300 Baseline Civilian Pay 0 6 6 

Section IX- Miscellaneous Permanent Payments Page IX-17
Bureau of Land Management 2009 Budget Justifications 

BA, Limitations, and Outlays - Baseline (S) (MILLION $) 

Identification code: 

14-9921-0-999 2007 Act 2008 CY 2009 BY 

Appropriation (total) [Text] 

Mandatory, Authorizing Committee 

6250 Baseline Non-Pay 0 28 37 

Outlays from new authority [Text] 

9111 Discretionary, Appropriations Committee 0 105 108 

9111 Mandatory, Authorizing Committee 0 27 35 

Outlays from balances [Text] 

9121 Discretionary, Appropriations Committee 0 4 12 

9121 Mandatory, Authorizing Committee 0 0 1 

Memo: Outlays frm end of PY balances [Text] 

9122 Discretionary, Appropriations Committee 0 4 0 

9122 Mandatory, Authorizing Committee 0 0 0 

Character Classification (C) (MILLION $) 

Identification code: 

14-9921-0-999 2007 Act 2008 CY 2009 BY 

NON-INVESTMENT ACTIVITIES 

Grants to State and local govts 

Other than shared revenues 

Discretionary, Appropriations Committee 

2001-01 Budget Authority 0 117 0 

2001-02 Outlays 0 109 12 

Mandatory, Authorizing Committee 

2001-01 Budget Authority 132 28 37 

2001-02 Outlays 131 27 36 

Employment Summary (Q) (MILLION $) 

Identification code: 

14-9921-0-999 2007 Act 2008 CY 2009 BY 

Direct 

1001 Civilian full-time equivalent employment 15 15 0 

Section IX- Miscellaneous Permanent Payments Page IX-18
Bureau of Land Management 2009 Budget Justifications 

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Section IX- Miscellaneous Permanent Payments Page IX-19
Bureau of Land Management 2009 Budget Justifications 

Appropriation: Permanent Operating Funds 

APPROPRIATION LANGUAGE SHEET

Forest Ecosystem Health and Recovery Fund 

(Revolving Fund, Special Account) 

In addition to the purposes authorized in Public Law 102-381, funds made available in the 

Forest Ecosystem Health and Recovery Fund can be used for the purpose of planning, 

preparing, implementing and monitoring salvage timber sales and forest ecosystem health and 

recovery activities, such as release from competing vegetation and density control treatments. 

The Federal share of receipts (defined as the portion of salvage timber receipts not paid to the 

counties under 43 U.S.C. 1181f and 43 U.S.C. 1181f-1 et seq., and Public Law 106-393) 

derived from treatments funded by this account shall be deposited into the Forest Ecosystem 

Health and Recovery Fund. 

Payment from Proceeds, Sale of Water – The unobligated balances available under this 

heading on the date of enactment of this Act are permanently cancelled. 

Use of Receipts from Mineral Leasing Activities on Certain Naval Oil Shale Reserves 

(Cancellation) – Of the unobligated balances available under this heading, $24,700,000 are 

hereby permanently cancelled. (Department of the Interior, Environment, and Related Agencies 

Appropriations Act of 2008.)

Section X- Permanent Operating Funds Page X-1

 
Bureau of Land Management 2009 Budget Justifications 

AUTHORIZATIONS

The 1985 Interior and 

Related Agencies, 

Appropriations Act (P.L. 

98-473), Section 320 

Established a permanent account in each bureau for the operation 

and maintenance of quarters, starting with 1985 and each fiscal 

year thereafter. 

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 seventeen 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 Treasury of the 

U.S. 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 the jurisdiction of the BLM is deposited in a special 

fund in the U.S. Treasury. 

The 1996 Interior and 

Related Agencies 

Appropriations Act

Expanded authority to develop recreation fee pilot projects to foster 

innovative and cost effective methods of collecting recreation use 

fees. 

The 1997 Interior and 

Related Agencies 

Appropriations Act

Changed the base year from 1995 to 1994 for calculating the 

recreational fee demonstration receipts that could be retained and 

spent by the BLM. 

The 1998 Interior and 

Related Agencies 

Appropriations Act

Dropped the base year for calculating the recreational fee 

demonstration receipts that could be retained and spent by the 

BLM. 

The 1999 Interior and 

Related Agencies 

Appropriations Act

Extended the recreational fee demonstration program through 2003. 

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 BLM for road maintenance. 

Act of October 30, 1998 

(P.L. 105-321)

The legislation provides that 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. 

Section X- Permanent Operating Funds Page X-2

 
Bureau of Land Management 2009 Budget Justifications 

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% to a federal fund and 15% 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. 

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: 5 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. 

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 (A) first, to reimburse 

the Administrator for the direct costs of the sale; and (B) second, to 

reimburse 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 provides that the 

Administration will 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. 

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 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 pubic 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 permanent 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 Interior to establish standards under which 

leaseholders may reduce payments owed by the reasonable actual 

costs of remediating, reclaiming, and closing orphaned wells. 

Section X- Permanent Operating Funds Page X-3

 
Bureau of Land Management 2009 Budget Justifications 

P.L. 109-432, Tax Relief 

and Health Care Act of 

2006, White Pine County 

Conservation, Recreation, 

and Development 

Authorizes the sale of land in White Pine County, Nevada, payment 

of 5 percent to the State of Nevada, 10 percent to the county, and 

authorizes expenditure of the remainder for various purposes 

described in the Act. 

P.L. 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) 5 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 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. 

Section X- Permanent Operating Funds Page X-4

 
Bureau of Land Management 2009 Budget Justifications 

Summary of Requirements ($000) 

 Fixed Costs & Program 2009 Inc(+) 

Comparison 2007 2008 Related Changes Changes Budget Dec(-) 

by Activity/ Enacted Enacted (+/ -) (+/ -) Request from 2008 

Subactivity FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount* FTE Amount 

 

 Permanent 

Operating Funds 446 219,631 444 270,001 +0 +0 -75 

-

105,105 369 164,896 -75 

-

105,105 

 

 Operations & 

Maintenance of 

Quarters 1 522 1 326 +0 +0 +0 +0 1 326 0 0 

 

 Recreation Fee 

Demonstration 108 14,550 108 15,000 +0 +0 +0 +0 108 15,000 0 0 

 

 Forest Ecosystem 

Health & 

Recovery 65 7,274 65 6,579 +0 +0 +0 -1,842 65 4,737 0 -1,842 

 

 Timber Sale 

Pipeline 

Restoration 71 10,922 71 10,160 +0 +0 +0 -7,732 71 2,428 0 -7,732 

 

Expenses, Road 

Maintenance 

Deposits 8 2,084 8 2,500 +0 +0 +0 +0 8 2,500 0 0 

 

Southern Nevada 

Public Land Sales 38 35,472 38 97,808 +0 +0 +0 -46,808 38 51,000 0 -46,808 

 

 Southern Nevada 

Earnings on 

Investments 0 111,414 0 74,000 +0 +0 +0 -1,000 0 73,000 0 -1,000 

 

 Lincoln County 

Land Sales, P.L. 

106-298, 114 Stat. 

1047 1 0 1 0 +0 +0 +0 +51 1 51 0 +51 

 

 Interest, Lincoln 

County Land 

Sales, P.L. 106-

298, 114 Stat. 

1047 0 2,205 0 1,700 +0 +0 +0 -300 0 1,400 0 -300 

 

Stewardship 

Contract, Excess 

Receipts 0 108 0 100 +0 +0 +0 +0 0 100 0 0 

 

 Federal Land 

Disposal Account, 

P.L. 106-248 7 6,689 7 28,800 +0 +0 +0 -14,700 7 14,100 0 -14,700 

 

NPR-2 Lease 

Revenue Account 5 2,081 6 504 +0 +0 +0 -301 6 203 0 -301 

 

Geothermal 

Steam Act 

Implementation** 11 4,360 11 9,300 +0 +0 -6 -9,300 5 0 -6 -9,300 

Section X- Permanent Operating Funds Page X-5

 
Bureau of Land Management 2009 Budget Justifications 

Summary of Requirements ($000) 

 Fixed Costs & Program 2009 Inc(+) 

Comparison 2007 2008 Related Changes Changes Budget Dec(-) 

by Activity/ Enacted Enacted (+/ -) (+/ -) Request from 2008 

Subactivity FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount* FTE Amount 

 

 

Permit Processing 

Fund - BLM 131 21,950 128 23,224 +0 +0 -69 -23,224 59 0 -69 -23,224 

 

 Naval Oil Shale 

Reserve 0 0 0 0 +0 +0 +0 +0 0 0 0 0 

White Pine Co. 

85% special 

account 0 0 0 0 +0 +0 +0 +51 0 51 0 +51 

In 2009, a $24.476M reduction of appropriation authority is proposed from cancellation of balances in 2 Permanent Operating Fund accounts. 

Current balance for Naval Oil Shale Reserve #3 is $24.7M over the estimated need for clean-up, BLM proposes to cancel $24.7M of carryover balances. 

Also BLM proposes to cancel $46K of carryover balances from Sale of Water. 

** Geothermal receipts deposited in this program vary from year to year, so spending plan may differ from actual and estimated receipts. The amounts in 

the Budget Appendix table reflect actual expenditures from the Geothermal Fund in 2007 and 2008 estimated expenditures. Amounts in this table show 

actual receipts in 2007 and estimated receipts for 2008 and 2009. 

Section X- Permanent Operating Funds Page X-6

 
Bureau of Land Management 2009 Budget Justifications 

Appropriation: Permanent Operating Funds 

Activity Summary ($000) 

 2009 

 Fixed Costs & Program Change 

 2007 2008 

Related 

Changes Changes Budget 

from 

2008 

Subactivity Enacted Enacted (+/ -) (+/ -) Request (+/-) 

 Operations & 

Maintenance of 

Quarters $ 522 326 0 0 326 0

 FTE 1 1 0 0 1 0

 Recreation Fee 

Demonstration $ 14,550 15,000 0 0 15,000 0

 FTE 108 108 0 0 108 0

 Forest Ecosystem 

Health & Recovery $ 7,274 6,579 0 -1,842 4,737 -1,842

 FTE 65 65 0 0 65 0

 Timber Sale Pipeline 

Restoration $ 10,922 10,160 0 -7,732 2,428 -7,732

 FTE 71 71 0 0 71 0

Expenses, Road 

Maintenance Deposits $ 2,084 2,500 0 0 2,500 0

 FTE 8 8 0 0 8 0

Southern Nevada 

Public Land Sales $ 35,472 97,808 0 -46,808 51,000 -46,808

 FTE 38 38 0 0 38 0

 Southern Nevada 

Earnings on 

Investments $ 111,414 74,000 0 -1,000 73,000 -1,000

 FTE 0 0 0 0 0 0

 Lincoln County Land 

Sales, P.L. 106-298, 

114 Stat. 1047 $ 0 0 0 +51 51 +51

 FTE 1 1 0 0 1 0

 Interest, Lincoln 

County Land Sales, 

P.L. 106-298, 114 Stat. 

1047 $ 2,205 1,700 0 -300 1,400 -300

 FTE 0 0 0 0 0 0

Section X- Permanent Operating Funds Page X-7

 
Bureau of Land Management 2009 Budget Justifications 

Activity Summary ($000) 

 2009 

 Fixed Costs & Program Change 

 2007 2008 

Related from 

Changes Changes Budget 2008 

Subactivity Enacted Enacted (+/ -) (+/ -) Request (+/-) 

Stewardship Contract, 

Excess Receipts $ 108 100 0 0 100 0

 FTE 0 0 0 0 0 0

 Federal Land Disposal 

Account, P.L. 106-248 $ 6,689 28,800 0 -14,700 14,100 -14,700

 FTE 7 7 0 0 7 0

NPR-2 Lease Revenue 

Account $ 2,081 504 0 -301 203 -301

 FTE 5 6 0 0 6 0

Geothermal Steam Act 

Implementation Fund $ 4,360 9,300 0 -9,300 0 -9,300

 FTE 11 11 0 -6 5 -6

Permit Processing 

Fund - BLM $ 21,950 23,224 0 -23,224 0 -23,224

 FTE 131 128 0 -69 59 -69

 Naval Oil Shale 

Reserve $ 0 0 0 0 0 0

 FTE 0 0 0 0 0 0

White Pine Co. 85% 

special account $ 0 0 0 +51 51 +51

 FTE 0 0 0 0 0 0

 Total Dollars $ 219,631 270,001 0 -105,105 164,896 -105,105

 FTE 446 444 0 -75 369 -75

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 BLM for the purposes specified in 

permanent laws and do not require annual appropriation action by Congress. Amounts shown 

for 2008 and 2009 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. 

Activity: Operations & Maintenance of Quarters -This account is used to maintain and repair 

all BLM employee-occupied quarters from which quarters rental charges are collected. 

Section X- Permanent Operating Funds Page X-8

 
Bureau of Land Management 2009 Budget Justifications 

Agencies are required to collect quarter rentals from employees who occupy Governmentowned 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 210 housing or housing units in 10 States. 

Activity: Recreation Fee Program, BLM – The BLM collected fees at recreation sites 

identified pursuant to provisions of the 1996 Interior and Related Agencies Appropriations Act,

from 1997 through 2004. Fees collected were deposited to this permanent account. On 

December 8, 2004, the Federal Lands Recreation Enhancement Act (FLREA) of 2004, Title VIII 

of the Consolidated Appropriations Act, 2005, Public Law 108-447, was enacted to provide 

authority through 2014 to manage public lands for recreational purposes and to collect and 

spend recreation use fees. 

Recreation projects operating under the former Recreational Fee Demonstration program have 

varying fees 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 BLM’s recreation fee collection increased from $3.3 million in 1996 to $14.6 million in 2007. 

Estimated collections for 2008 and 2009 are $15 million during each year. 

The following table provides the actual collections for 2007 and the estimated revenues 

projected for 2008 and 2009 from BLM recreational fee sites. In addition, the table provides 

information on the number of projects approved, the type of work conducted and the amount of 

revenues spent for all three fiscal years. 

Section X- Permanent Operating Funds Page X-9

 
Bureau of Land Management 2009 Budget Justifications 

RECREATION FEE PROJECTS

2007 2008 2009 

Actual Estimated Budget 

Bureau of Land Management 

Recreation Fee Revenues 13,750 14,200 14,200

America the Beautiful pass 800 800 800

Unobligated Balance Brought Forward & Recoveries 10,652 9,882 9,182

Funds Obligated 14,520 14,900 15,000

Unobligated Balance 9,882 9,182 8,382

Total Expenditures (outlays) 14,030 14,815 15,545

Obligations by Type of Project 

Interp. Visitor Services, issue SRP & RUP 4,728 4,800 4,900

Law Enforcement, Recreation 3,171 3,300 3,300

Asset Repair & Maintenance 

Facilities Deferred Maintenance 135 100 100

Facilities Capital Improvements Health & Safety 3,249 3,300 3,300

Facilities Routine/Annual Maintenance 1,750 1,800 1,800

Habitate Restoration, Resource Protection 57 100 100

Collection Costs 439 500 500

Fee Mgmt. Agreement & Reservation Services 991 1,000 1,000

Pass Administration and Overhead 

Administration, Overhead, Indirect Costs < = 15% 

 Total Obligations 14,520 14,900 15,000

 Total Expenditures (outlays) 14,030 14,815 15,545

Funds Obligated and Total Obligations must be 

equal 

14,520 14,900 15,000

The overwhelming majority of 2007 survey respondents, 93 percent, reported favorably on the 

overall quality of their recreation experience at BLM sites, with the highest user satisfaction 

associated with staff services, recreation use management, and physical facilities. 

Respondents believe that entrance fees or fees for services at the site were "about right," with 

an average score of three on a scale of five with one being “far too low” and five being “far too 

high.” When asked about value received for the fee paid on a five-point scale from "strongly 

disagree" to "strongly agree," 85 percent of respondents agreed or strongly agreed that the 

value of their recreation experience at least equaled the fees paid. 

Section X- Permanent Operating Funds Page X-10

 
Bureau of Land Management 2009 Budget Justifications 

Use of Performance and Cost Management Data 

 in the Recreation Fee Program

All fees collected under the authority of Recreation Fee Program are ultimately returned to the site or 

project where the fees are collected. The fees are used in various ways to improve the facilities and 

other services at the project or site, which result in improved recreation opportunities. Acceptance of 

various aspects of the program by the public, including the types and amounts of fees, the provision of 

the facilities and services funded by the fees, and the overall resulting recreation program, are evaluated 

using periodic customer surveys, comment cards, and other feedback mechanisms. This feedback 

allows site managers to make periodic adjustments to the program and direct fee spending to meet 

customer demands and requirements. This entire process is thus market-based. Given the range of 

measures available, the most significant are the customer satisfaction data and the facility condition 

index.

BLM’s Annual Maintenance program maintains assets on recreation sites. In fiscal year 2007, 

BLM maintained 93 percent of buildings and 88 percent of non-building assets in good to fair 

conditions. An estimated $5 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. 

Activity: Forest Ecosystem Health and Recovery Fund - 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. Funds 

from this account are available for planning, preparing, implementing, monitoring, and 

reforesting 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 or timber sale contracting. 

BLM projects occur on Oregon and California Grant Lands, Coos Bay Wagon Road Grant 

Lands, and public domain lands. 

Section X- Permanent Operating Funds Page X-11

 
Bureau of Land Management 2009 Budget Justifications 

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. The Federal share of receipts in 

2007 was $7.3 million. Litigation has prevented a number of projects in western Oregon from 

being implemented, resulting in significantly lower revenue than was expected. The expected 

receipts for 2008 and 2009 are $6.6 million and $4.7 million, respectively. In 2009, 50 percent 

of salvage timber receipts from O&C grant lands will be deposited to the Forest Ecosystem 

Health and Recovery Fund. The other 50 percent will be paid to western Oregon counties when 

payments resume under two statutes enacted in 1937 and 1939. The volume of salvage timber 

harvested in any given year (and associated revenues) may vary significantly, depending upon 

the severity of the wildland fires, weather events such as drought and windstorms, and insect 

and disease activity. In 2009, the BLM intends to treat 11,000 acres, inventory 100,000 acres, 

and offer 18 million board feet from salvage and forest restoration activities with funds from this 

account. 

Activity: 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 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 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. The BLM annually provides to the Appropriations Committees a report 

on the expenditures made from the Pipeline Fund for timber sales and recreation projects, 

revenues received into the Pipeline Fund from timber sales, and timber sale preparation and 

recreation maintenance project work. 

Receipts in 2007 were $10.9 million and are estimated to be $10.2 million in 2008 and 

$2.4 million in 2009. In 2009, only 50 percent of timber sale pipeline receipts from O&C Grant 

Lands will be deposited to the Timber Sale Pipeline Restoration Fund. The other 50 percent will 

to be paid to western Oregon counties. 

DEPOSITS AND EXPENDITURES, 

TIMBER SALE PIPELINE RESTORATION FUND 

($000)

Year Annual Deposit 

Cumulative 

Deposit

Annual 

Expenditure 

Cumulative 

Expenditure

1998 38,193 38,193 4,474 4,474

1999 0 38,193 9,931 14,405

2000 0 38.193 8,288 22,693

2001 3,677 41,870 7,558 30,251

2002 563 42,433 5,495 35,746

2003 3,070 45,503 5,270 41,016

2004 7,919 53,422 2,827 43,843

2005 8,917 62,339 2,908 46,751

2006 12,455 74,794 5,070 51,821

Section X- Permanent Operating Funds Page X-12

 
Bureau of Land Management 2009 Budget Justifications 

DEPOSITS AND EXPENDITURES, 

TIMBER SALE PIPELINE RESTORATION FUND 

($000)

Year Annual Deposit 

Cumulative 

Deposit

Annual 

Expenditure 

Cumulative 

Expenditure

2007 10,922 85,719 8,381 60,202

2008 est. 10,160 95,879 8,461 

2009 est. 2,428 98,307 11,552 

 

At the end of 2007, the balance in the fund had grown to $25.5 million. This rapid growth is due 

to increasing success in the harvest of pipeline sales and higher timber values. A spend down 

plan has been implemented to bring the fund balance down to approximately $5.0 million in 

2010. This balance is necessary to permit continued use of the fund annually to meet the fund’s 

objective of rebuilding the timber sale pipeline. 

Recreation Projects - Significant progress has been made in western Oregon to address the 

recreation project backlog using funds from the Timber Sale Pipeline Restoration Fund. 

Through the end of 2007, the BLM completed $14.8 million in backlog maintenance work at 43 

recreation sites. The principal focuses are maintenance of existing facilities, critical safety 

needs, and meeting the requirements of the Americans with Disabilities Act. For example, the 

BLM has spent considerable effort renovating water and sewer systems, replacing restrooms, 

improving parking areas, and adapting existing recreation sites for handicapped visitors. 

Timber Sales - The other 75 percent of the Pipeline Fund is used specifically to prepare timber 

sales, including all necessary environmental inventories and analyses, sale layout, timber 

cruise, and contract costs. Upon completion of these requirements, a sale is officially prepared 

and placed “on-the-shelf” in anticipation of being offered for sale. Timber sale preparation also 

depends on BLM’s skilled and experienced Forest Management workforce, particularly foresters 

and forest technicians. Today, the average age of this forestry workforce in western Oregon is 

approximately 50 years. The BLM’s focus will be replacing skills needed to prepare and 

administer timber sales. 

By the close of 2008, the BLM will have expended $45.5 million from the Pipeline Fund for the 

preparation of timber sales and offered approximately 369 MMBF of timber for sale. In 2009, 

$2,428,000 from associated timber sales is expected to be deposited into this fund. 

Activity: 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 the BLM’s 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 O&C Grant lands and are available for those lands only, excluding $225,000 that is 

made available for administrative expenses. 

Activity: Southern Nevada Public Land Sales - This receipt account allows the BLM to record 

transactions authorized by the Southern Nevada Public Land Management Act (P.L. 105-263). 

Section X- Permanent Operating Funds Page X-13

 
Bureau of Land Management 2009 Budget Justifications 

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 for Nevada’s school children. 

• 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. 

To date, SNPLMA has generated more than $2.7 billion in deposits to the special fund 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. 

Activity: 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 Southern Nevada Public Land Management 

Act, (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. 

Activity: 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. 

• 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 2007, there were no receipts. In 2008 also, none are expected. In 2009 small sales are 

expected to produce $51,000. 

Activity: 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 in an amount determined by the Secretary of the Treasury and are 

available for expenditure without further appropriation under the provisions of the Act. 

Activity: 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 U.S. Forest Service pilot stewardship 

Section X- Permanent Operating Funds Page X-14

 
Bureau of Land Management 2009 Budget Justifications 

contracting authority. Until September 30, 2013, the Forest Service and the Bureau of Land 

Management, 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. 

The Act granted BLM the ability to utilize stewardship contracting as a tool for forest and 

rangeland restoration. The Bureau of Land Management 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 Forest Service and the Bureau of Land 

Management 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 2007, the BLM deposited 

$108,000 into the fund, and expects to deposit $100,000 in 2008 and 2009. 

Activity: Federal Land Disposal Account - The Federal Land Transaction Facilitation Act,

provides that the BLM may conduct sales of lands that have been classified as suitable for 

disposal in land use 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 

certain areas now managed by the Department. Unless reauthorized, FLTFA will sunset on July 

24, 2010. 

The Administration proposed legislation in June 2007 to amend BLM’s land sale authority under 

the Federal Land Transaction Facilitation Act (FLTFA). The legislation will both expand the 

public lands available for disposal under FLTFA and change the distribution of the proceeds of 

those sales. Under the Act, the BLM is currently limited to selling lands identified for disposal in 

land-use plans that were in effect prior to the enactment of FLTFA, and makes the proceeds 

available for the acquisition of other non-Federal lands within specially-designated areas such 

as National Parks, National Wildlife Refuges, and National Monuments. The 2009 budget 

assumes FLTFA will be amended to: (1) extend FLTFA authority beyond 2010; (2) allow the 

BLM to use updated management plans to identify areas suitable for disposal; (3) allow a 

portion of the receipts to be used by the BLM for restoration projects; (4) return 70 percent of 

the net proceeds from the sales to the Treasury; and (5) cap receipt retention by the 

Department at $60 million per year. This proposal will minimize the amount of Federal spending 

not subject to regular oversight through the appropriations process and will ensure that 

taxpayers directly benefit from these land sales. 

As of June 26, 2007, the BLM has disbursed or transferred funds generated from FLTFA 

receipts for the following acquisition projects shown in the table below.

State Project Acres Amount 

Arizona Tonto National Forest (FS) 11.48 $635,000

California 

Coachella Valley Fringe-toed Lizard Area of 

Critical Environmental Concern (BLM) 321.47 $850,000

State Project Acres Amount 

California Six Rivers National Forest (FS) 4,303.33 $2,865,000

Colorado 

Canyons of the Ancients National Monument 

(BLM) 469.84 $500,000

Colorado Arapaho National Wildlife Refuge (FWS) 922.50 $1,425,000

Idaho 

Nez Perce National Historical Park/ Nez 

Perce National Historic Trail (NPS) 511.34 $200,000

Section X- Permanent Operating Funds Page X-15

 
Bureau of Land Management 2009 Budget Justifications 

Idaho Snake River ACEC (BLM) 1,967.18 $4,700,000

New 

Mexico Aztec Ruins National Monument (NPS) 10.96 $200,000

New 

Mexico 

La Cienega Area of Critical Environmental 

Concern/ El Camino Real de Tierra Adentro 

National Historic Trail (BLM) 178.85 $2,200,000

Oregon Rogue National Wild and Scenic River (BLM) 32.53 $600,000

Oregon Siletz Bay National Wildlife Refuge (FWS) 41.60 $325,000

Wyoming Grand Teton National Park (NPS) 1.38 $2,200,000

Wyoming 

North Platte River Special Recreation 

Management Area /Four Nut’s (BLM) 277.00 $1,300,000

Totals 9,049.46 $18,000,000

Note: The Secretaries of the Interior and Agriculture approved this list on May 30 & 31, 2007, 

respectively. 

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 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. 

Activity: 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 re-propose legislation to rescind that fund in 2009, but additional revenues from recovering 

the cost of permit processing will be used for the same purpose. 

Activity: 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 provides that revenue from 

geothermal bonuses, rents, and royalties, excluding funds required to be paid to State and 

County governments, are deposited into BLM’s Geothermal Steam Act Implementation Fund. 

Under the Act, these deposits will be made to the fund from 2006 through 2010 for the purpose 

of expediting the development of geothermal steam as an energy source. The budget proposes 

to rescind the revenue provisions in Section 224 and Section 234 in 2009, thus returning the 

disposition of geothermal revenue to the historical formula of fifty percent to States and fifty 

percent to the Treasury. 

Activity: Naval Oil Shale Reserve - The National Defense Authorization Act of 1998 set aside 

in a special fund the mineral leasing revenues from Naval Oil Shale Reserves Numbers 1 and 3 

to be used for the cleanup of Reserve Number 3. In 2003, P.L. 107-345 was enacted which 

appropriated $1.5 million to determine the best way to clean up the Reserve. The law also 

required that the Secretary of the Interior submit a report to Congress describing the preferred 

method along with an estimate of the cost. BLM is re-evaluating clean up costs at this time. 

The balance of the NOSR special fund account as of September, 2007, was $75,820,000. 

Based on current estimates, it is expected there will be $191.7 million in the fund at the end of 

2008 and $236.3 million in the fund by the end of 2009. The large projected increase in 2008 is 

Section X- Permanent Operating Funds Page X-16

 
Bureau of Land Management 2009 Budget Justifications 

because of a planned lease sale and the estimate for 2009 is based on expected additional 

development and production of oil and natural gas from the site. 

Section X- Permanent Operating Funds Page X-17

 
Bureau of Land Management 2009 Budget Justifications 

Budget Schedules-Current Law 

CURRENT LAW

PROGRAM AND FINANCING (P) (MILLIONS $) 

Identification code: 

14-9926-0 2007 Act 2008 CY 2009 BY 

Program and Financing (P) 

Obligations by program activity 

0001 Forest ecosystems health and recovery 6 3 3 

0002 Recreation fee demonstration 15 14 14 

0003 Expenses, road maintenance deposits 2 2 2 

0004 Timber sale pipeline restoration fund 8 5 5 

0005 Southern Nevada public land sales (85) 723 648 614 

0008 Lincoln County Lands Act 0 2 2 

0011 Federal Land Facilitation Transaction Act 8 6 6 

0012 

Use of mineral leasing receipts for cleanup of 

Naval Oil Shale Reserve #3 0 4 4 

0013 Operation and maintenance of quarters 0 1 1 

0014 Permit Processing Improvement Fund 20 22 22 

0015 Geothermal Steam Act Fund 3 2 2 

0016 NPR-2 lease revenue fund 0 1 1 

1000 Total new obligations 785 710 676 

Budgetary resources available for obligation 

2140 

Unobligated balance carried forward, start of 

year 1567 1061 622 

2200 New budget authority (gross) 220 271 183 

2210 

Resources available from recoveries of prior 

year obligations 59 0 0 

2390 

Total budgetary resources available for 

obligation 1846 1332 805 

2395 Total new obligations -785 -710 -676 

2440 

Unobligated balance carried forward, end of 

year 1061 622 129 

New budget authority (gross), detail 

Discretionary 

4036 Unobligated balance permanently reduced 0 0 -25 

Mandatory 

6020 Recreation fee demonstration program 15 15 15 

6020 Forest ecosystem health and recovery fund 7 7 5 

6020 Timber sales pipeline restoration fund 11 10 2 

6020 Expenses, road maintenance deposits 2 3 3 

6020 S. Nevada public land management 36 98 51 

6020 

S. Nevada public land management-interest 

earned 112 74 73 

6020 Federal land disposal account 7 29 29 

6020 Lincoln County land sales 2 2 1 

6020 Naval oil shale site restoration 0 0 0 

6020 Permit processing improvement fund 22 23 23 

6020 Geothermal Steam Act fund 4 9 6 

Section X- Permanent Operating Funds Page X-18

 
Bureau of Land Management 2009 Budget Justifications 

PROGRAM AND FINANCING (P) (MILLIONS $) 

Identification code: 

14-9926-0 2007 Act 2008 CY 2009 BY 

6020 NPR-2 lease revenue fund 2 1 0 

6250 Appropriation (total mandatory) 220 271 208 

7000 Total new budget authority (gross) 220 271 183 

Change in obligated balances 

7240 Obligated balance, start of year 941 1386 1850 

7310 Total new obligations 785 710 676 

7320 Total outlays (gross) -281 -246 -284 

7345 Recoveries of prior year obligations -59 0 0 

7440 Obligated balance, end of year 1386 1850 2242 

Outlays (gross), detail 

8690 Outlays from new discretionary authority 0 0 -25 

8697 Outlays from new mandatory authority 129 122 95 

8698 Outlays from mandatory balances 152 124 214 

8700 Total outlays (gross) 281 246 284 

Net budget authority and outlays 

8900 Budget authority 220 271 183 

9000 Outlays 281 246 284 

Memorandum (non-add) entries 

9201 

Total investments, start of year: Federal 

securities: Par value 2341 2190 2049 

9202 

Total investments, end of year: Federal 

securities: Par value 2190 2049 1917 

9502 Unpaid obligation, end of year 1386 0 0 

OBJECT CLASSIFICATION (O) (MILLIONS $) 

Identification code: 

14-9926-0 2007 Act 2008 CY 2009 BY 

Direct obligations 

Personnel compensation 

1111 Full-time permanent 20 23 23 

1113 Other than full-time permanent 3 3 3 

1115 Other personnel compensation 2 1 1 

1119 Total personnel compensation 25 27 27 

1121 Civilian personnel benefits 7 4 4 

1210 Travel and transportation of persons 1 1 1 

1220 Transportation of things 1 1 1 

1251 Advisory and assistance services 2 0 0 

1252 Other services 14 65 65 

1253 

Other purchases of goods and services from 

Government accounts 58 201 207 

1254 Operation and maintenance of facilities 1 2 2 

1260 Supplies and materials 3 3 3 

1310 Equipment 1 0 0 

1320 Land and structures 0 149 137 

1410 Grants, subsidies, and contributions 550 135 133 

1990 Subtotal, obligations, Direct obligations 663 588 580 

Allocation Account - direct 

Personnel compensation 

Section X- Permanent Operating Funds Page X-19

 
Bureau of Land Management 2009 Budget Justifications 

OBJECT CLASSIFICATION (O) (MILLIONS $) 

Identification code: 

14-9926-0 2007 Act 2008 CY 2009 BY 

3111 Full-time permanent 2 2 1 

3121 Civilian personnel benefits 1 1 0 

3252 Other services 34 34 12 

3253 

Other purchases of goods and services from 

Government accounts 18 18 16 

3320 Land and structures 2 2 2 

3410 Grants, subsidies, and contributions 65 65 65 

3990 

Subtotal, obligations, Allocation Account - 

direct 122 122 96 

9999 Total new obligations 785 710 676 

BA, LIMITATIONS, AND OUTLAYS (A) (MILLIONS $) 

Identification code: 

14-9926-0 2007 Act 2008 CY 2009 BY 

Appropriation (total) [NOSR 010-04-5294] 

4300 

Discretionary, Modification of a mandatory 

account, Appropriations Committee 0 0 -25 

Appropriation (total) [SNPMA] 

6250 Mandatory, Authorizing Committee 147 172 124 

Appropriation (total) [FLTFA] 

6250 Mandatory, Authorizing Committee 7 29 29 

Appropriation (total) [Other Perm Operating] 

6250 Mandatory, Authorizing Committee 66 70 55 

Appropriation [SNPMA] 

9111 

Discretionary, Modification of a mandatory 

account, Appropriations Committee 0 0 -25 

9111 Mandatory, Authorizing Committee 102 62 45 

Outlays from new authority [Text] 

9111 Mandatory, Authorizing Committee 2 11 11 

Outlays from new authority [Text] 

9111 Mandatory, Authorizing Committee 25 35 0 

Outlays from balances [Text] 

9121 

Discretionary, Modification of a mandatory 

account, Appropriations Committee 0 0 0 

9121 Mandatory, Authorizing Committee 121 104 176 

Outlays from balances [Text] 

9121 Mandatory, Authorizing Committee 4 14 13 

Outlays from balances [Text] 

9121 Mandatory, Authorizing Committee 27 6 39 

Memo: Outlays frm end of PY balances [Text] 

9122 

Discretionary, Modification of a mandatory 

account, Appropriations Committee 0 0 0 

9122 Mandatory, Authorizing Committee 0 104 125 

Memo: Outlays frm end of PY balances [Text] 

9122 Mandatory, Authorizing Committee 0 14 4 

Memo: Outlays frm end of PY balances [Text] 

9122 Mandatory, Authorizing Committee 0 6 11 

Section X- Permanent Operating Funds Page X-20

 
Bureau of Land Management 2009 Budget Justifications 

BA, LIMITATIONS, AND OUTLAYS (S) (MILLIONS $) 

Identification code: 

14-9926-0 2007 Act 2008 CY 2009 BY 

Appropriation (total) [NOSR 010-04-5294] 

Discretionary, Modification of a mandatory 

account, Appropriations Committee 

4300 Baseline Non-Pay 0 0 0 

4300 Baseline Civilian Pay 0 0 0 

Appropriation (total) [SNPMA] 

Mandatory, Authorizing Committee 

6250 Baseline Non-Pay 0 169 121 

6250 Baseline Civilian Pay 0 3 3 

Appropriation (total) [FLTFA] 

Mandatory, Authorizing Committee 

6250 Baseline Non-Pay 0 28 28 

6250 Baseline Civilian Pay 0 1 1 

Appropriation (total) [Other Perm Operating] 

Mandatory, Authorizing Committee 

6250 Baseline Non-Pay 0 39 24 

6250 Baseline Civilian Pay 0 31 31 

Outlays from new authority [Text] 

9111 

Discretionary, Modification of a mandatory 

account, Appropriations Committee 0 0 0 

9111 Mandatory, Authorizing Committee 0 62 45 

Outlays from new authority [Text] 

9111 Mandatory, Authorizing Committee 0 11 11 

Outlays from new authority [Text] 

9111 Mandatory, Authorizing Committee 0 35 0 

Outlays from balances [Text] 

9121 

Discretionary, Modification of a mandatory 

account, Appropriations Committee 0 0 0 

9121 Mandatory, Authorizing Committee 0 104 176 

Outlays from balances [Text] 

9121 Mandatory, Authorizing Committee 0 14 13 

Outlays from balances [Text] 

9121 Mandatory, Authorizing Committee 0 6 39 

Memo: Outlays frm end of PY balances [Text] 

9122 Mandatory, Authorizing Committee 0 104 125 

Memo: Outlays frm end of PY balances [Text] 

9122 Mandatory, Authorizing Committee 0 14 4 

Memo: Outlays frm end of PY balances [Text] 

9122 Mandatory, Authorizing Committee 0 6 11 

CHARACTER CLASSIFICATION (C) (MILLIONS $) 

Identification code: 

14-9926-0 2007 Act 2008 CY 2009 BY 

INVESTMENT ACTIVITIES 

Physical assets 

Other construction and rehabilitation 

Direct federal programs 

1314-01 Budget Authority 0 0 -25 

Section X- Permanent Operating Funds Page X-21

 
Bureau of Land Management 2009 Budget Justifications 

CHARACTER CLASSIFICATION (C) (MILLIONS $) 

Identification code: 

14-9926-0 2007 Act 2008 CY 2009 BY 

NON-INVESTMENT ACTIVITIES 

Direct Federal programs 

2004-01 Budget Authority 220 269 207 

2004-02 Outlays 281 232 259 

EMPLOYMENT SUMMARY (Q) 

Identification code: 

14-9926-0 2007 Act 2008 CY 2009 BY 

Direct 

1001 Civilian full-time equivalent employment 446 444 433 

APPROPRIATIONS REQUESTS IN THOUSANDS OF DOLLARS (T)

Identification code: 

14-9926-0 2007 Act 2008 CY 2009 BY 

1000 Budget year budgetary resources [Treas Acct] 0 0 -25000 

Section X- Permanent Operating Funds Page X-22

 
Bureau of Land Management 2009 Budget Justifications 

Budget Schedules-Proposal 

PROGRAM AND FINANCING (P) (MILLIONS $) 

Identification code: 

14-9926-4 2007 Act 2008 CY 2009 BY 

Obligations by program activity 

0001 Federal Land Facilitation Transaction Act 0 0 -7 

0002 Permit Processing Improvement Fund 0 0 -12 

0003 Geothermal Steam Act Fund 0 0 -4 

1000 Total new obligations 0 0 -23 

Budgetary resources available for obligation 

2200 New budget authority (gross) 0 0 -44 

2395 Total new obligations 0 0 23 

2440 

Unobligated balance carried forward, end of 

year 0 0 -21 

New budget authority (gross), detail 

Mandatory 

6020 Federal land disposal account 0 0 -15 

6020 Permit processing improvement fund 0 0 -23 

6020 Geothermal Steam Act fund 0 0 -6 

6020 Federal land disposal account 0 0 0 

6020 Lincoln County land sales 0 0 0 

6020 Stewardship contract excess receipts 0 0 0 

6020 Naval oil shale site restoration 0 0 0 

6020 Permit processing improvement fund 0 0 0 

6020 NPR-2 lease revenue fund 0 0 0 

6020 Permit processing improvement fund 0 0 0 

6020 Geothermal Steam Act fund 0 0 0 

6020 NPR-2 lease revenue fund 0 0 0 

6250 Appropriation (total mandatory) 0 0 -44 

Change in obligated balances 

7310 Total new obligations 0 0 -23 

7320 Total outlays (gross) 0 0 10 

7440 Obligated balance, end of year 0 0 -13 

Outlays (gross), detail 

8697 Outlays from new mandatory authority 0 0 -10 

Net budget authority and outlays 

8900 Budget authority 0 0 -44 

9000 Outlays 0 0 -10 

Memorandum (non-add) entries 

9201 

Total investments, start of year: Federal 

securities: Par value 0 0 0 

9202 

Total investments, end of year: Federal 

securities: Par value 0 0 0 

9502 Unpaid obligation, end of year 0 0 1 

Section X- Permanent Operating Funds Page X-23

 
Bureau of Land Management 2009 Budget Justifications 

OBJECT CLASSIFICATION (O) (MILLIONS $) 

Identification code: 

14-9926-4 2007 Act 2008 CY 2009 BY 

Direct obligations 

Personnel compensation 

1111 Full-time permanent 0 0 -5 

1121 Civilian personnel benefits 0 0 -1 

1252 Other services 0 0 -11 

1253 

Other purchases of goods and services from 

Government accounts 0 0 -6 

9999 Total new obligations 0 0 -23 

BA, LIMITATIONS, AND OUTLAYS (A) (MILLIONS $) 

Identification code: 

14-9926-4 2007 Act 2008 CY 2009 BY 

Appropriation (total) [FLTFA] 

6250 Mandatory, Authorizing Committee 0 0 -15 

Appropriation (total) [Energy Accounts] 

6250 Mandatory, Authorizing Committee 0 0 -29 

Outlays from new authority [Text] 

9111 Mandatory, Authorizing Committee 0 0 -2 

Outlays from new authority [Text] 

9111 Mandatory, Authorizing Committee 0 0 -9 

Outlays from balances [Text] 

9121 Mandatory, Authorizing Committee 0 0 0 

Outlays from balances [Text] 

9121 Mandatory, Authorizing Committee 0 0 0 

Memo: Outlays frm end of PY balances [Text] 

9122 Mandatory, Authorizing Committee 0 0 0 

Memo: Outlays frm end of PY balances [Text] 

9122 Mandatory, Authorizing Committee 0 0 0 

CHARACTER CLASSIFICATION (C) (MILLIONS $) 

Identification code: 

14-9926-4 2007 Act 2008 CY 2009 BY 

Character Classification (C) 

NON-INVESTMENT ACTIVITIES 

Direct Federal programs 

2004-01 Budget Authority 0 0 -44 

2004-02 Outlays 0 0 -10 

EMPLOYMENT SUMMARY (Q) 

Identification code: 

14-9926-4 2007 Act 2008 CY 2009 BY 

Direct 

1001 Civilian full-time equivalent employment 0 0 -64 

Section X- Permanent Operating Funds Page X-24

 
Bureau of Land Management 2009 Budget Justifications 

Appropriation: Miscellaneous Trust Funds 

APPROPRIATION LANGUAGE SHEET

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, 2008.) 

Section XI – Miscellaneous Trust Funds Page XI - 1
Bureau of Land Management 2009 Budget Justifications 

APPROPRIATION LANGUAGE CITATIONS

In addition to amounts authorized to be expended under existing law, there is hereby 

appropriated such amounts as may be contributed under section 307 of the Federal Land Policy 

Management Act 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. 

 43 U.S.C. 315h 

 43 U.S.C. 315i 

 43 U.S.C. 355 

 43 U.S.C. 759 

 43 U.S.C. 761 

 43 U.S.C. 1721 

 43 U.S.C. 1737 

 31 U.S.C. 1321(a)(47),(48) 

 48 Stat. 1224-36 

 P.L. 105 - 83 

Statutes that authorize permanent 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 nonNative Alaskans. This Act was repealed by the FLPMA in 1976. 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) classify 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 appropriations of trust funds:

43 U.S.C. 1721(a) and (b) (FLPMA Section 211(a) and (b)) provide for the donation of funds 

for surveys of omitted lands. 

Section XI – Miscellaneous Trust Funds Page XI - 2
Bureau of Land Management 2009 Budget Justifications 

43 U.S.C. 1737(c) (FLPMA Section 307(c)) provides that funds may be contributed to BLM for: 

1) resource development, protection, and management; (2) acquisition or conveyance of public 

lands; and (3) cadastral surveys on Federally controlled or intermingled lands. Contributed 

funds are to be placed in a separate account in the Treasury and are authorized to be 

appropriated and available until expended. 

Department of the Interior and Related Agencies Appropriations Act, 2002. 

AUTHORIZATIONS

The Federal Land Policy 

and Management Act of 

1976 (43 U.S.C. 1721, 

1737) 

Provides for the acceptance of contributed money or services 

for: (1) resource development, protection, and management; (2) 

conveyance or acquisition of public lands (including omitted 

lands or islands) to States, their political subdivisions, or 

individuals; and (3) conducting cadastral surveys. 

Taylor Grazing Act (43 

U.S.C. 315h and 315i) 

Provides for the acceptance of contributions for rangeland 

improvements. 

43 U.S.C. 759, 761, and 

31 U.S.C. 1321(a) 

Provides for contributions for public surveys. 

Act of March 3, 1891, 

Section 11 

Provides for the sale of town lots to non-Native Alaskans. This 

Act was repealed by FLPMA. 

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. 

Section XI – Miscellaneous Trust Funds Page XI - 3
Bureau of Land Management 2009 Budget Justifications 

Summary of Requirements ($000) 

 Fixed Costs & Program 2009 Inc(+) 

Comparison 2007 2008 Related Changes Changes Budget Dec(-) 

by Activity/ Enacted Enacted (+/ -) (+/ -) Request from 2008 

Subactivity FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount 

 

 Miscellaneous 

Trust Funds 76 25,057 76 21,930 +0 +0 +0 +0 76 21,930 0 0 

 

 CURRENT: 63 23,211 63 20,130 +0 +0 +0 +0 63 20,130 0 0 

 

 Conveyance of 

Omitted Lands 0 10 0 9 +0 +0 +0 +0 0 9 0 0 

 

 Resource 

Development 

Protection & 

Management - 

FLPMA 30 14,348 30 12,443 +0 +0 +0 +0 30 12,443 0 0 

 

 Resource 

Development 

Protection & 

Management - 

California OffHighway 29 8,218 29 7,127 +0 +0 +0 +0 29 7,127 0 0 

 

 Wildlife & Fish 

Conservation & 

Rehabilitation - 

Sikes Act 4 639 4 551 +0 +0 +0 +0 4 551 0 0 

 

 Rights-Of-Way 0 -4 0 0 +0 +0 +0 +0 0 0 0 0 

 

 PERMANENT: 13 1,846 13 1,800 +0 +0 +0 +0 13 1,800 0 0 

 

 Resource 

Development 

Protection & 

Management - 

Taylor Grazing Act 8 1,321 8 1,288 +0 +0 +0 +0 8 1,288 0 0 

 

 Public Survey 5 525 5 512 +0 +0 +0 +0 5 512 0 0 

 

 Trustee Funds - 

Alaska Townsites 0 0 0 0 +0 +0 +0 +0 0 0 0 0 

Section XI – Miscellaneous Trust Funds Page XI - 4
Bureau of Land Management 2009 Budget Justifications 

Appropriation: Miscellaneous Trust Funds 

Activity: Current Land and Resource Management 

Trust Fund 

Activity Summary ($000) 

 2009 

 Fixed Costs & Program Change 

 2007 2008 

Related 

Changes Changes Budget 

from 

2008 

Subactivity Enacted Enacted (+/ -) (+/ -) Request (+/-) 

 CURRENT: 

 Conveyance of 

Omitted Lands $ 10 9 0 0 9 0

 FTE 0 0 0 0 0 0

 Resource 

Development 

Protection & 

Management - FLPMA $ 14,348 12,443 0 0 12,443 0

 FTE 30 30 0 0 30 0

 Resource 

Development 

Protection & 

Management - 

California Off-Highway $ 8,218 7,127 0 0 7,127 0

 FTE 29 29 0 0 29 0

 Wildlife & Fish 

Conservation & 

Rehabilitation - Sikes 

Act $ 639 551 0 0 551 0

 FTE 4 4 0 0 4 0

 Rights-Of-Way $ -4 0 0 0 0 0

 FTE 0 0 0 0 0 0

 Subtotal Dollars - 

CURRENT $ 23,211 20,130 0 0 20,130 0

 FTE 63 63 0 0 63 0

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. 

Section XI – Miscellaneous Trust Funds Page XI - 5
Bureau of Land Management 2009 Budget Justifications 

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. The BLM must receive these monies before work begins, and 

any money remaining after the project is completed is returned to the contributor if they desire. 

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 the 

Federal Land Policy and Management Act, the BLM can accept contributed money or 

services for (1) resource development, protection, and management; (2) conveyance or 

acquisition of public lands; and (3) 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. 

• 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. 

Section XI – Miscellaneous Trust Funds Page XI - 6
Bureau of Land Management 2009 Budget Justifications 

Activity: Permanent Land and Resource 

Management Trust Fund

Activity Summary ($000) 

 2009 

 Fixed Costs & Program Change 

 2007 2008 

Related 

Changes Changes Budget 

from 

2008 

Subactivity Enacted Enacted (+/ -) (+/ -) Request (+/-) 

 PERMANENT: 

 Resource 

Development 

Protection & 

Management - Taylor 

Grazing Act $ 1,321 1,288 0 0 1,288 0

 FTE 8 8 0 0 8 0

 Public Survey $ 525 512 0 0 512 0

 FTE 5 5 0 0 5 0

 Trustee Funds - 

Alaska Townsites $ 0 0 0 0 0 0

 FTE 0 0 0 0 0 0

 Subtotal Dollars - 

PERMANENT $ 1,846 1,800 0 0 1,800 0

 FTE 13 13 0 0 13 0

 Total Dollars $ 25,057 21,930 0 0 21,930 0

 FTE 76 76 0 0 76 0

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. The BLM must receive these monies before work begins, and 

any money remaining after the project is completed is returned to the contributor if they desire. 

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: 

• Taylor Grazing Act Contributions - These contributions are permanently appropriated as 

trust funds to the Secretary for rangeland improvement. 

Section XI – Miscellaneous Trust Funds Page XI - 7
Bureau of Land Management 2009 Budget Justifications 

• Public Survey Contributions - These contributions are permanently appropriated as trust 

funds to the Secretary for cadastral survey, as authorized. 

• 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. 

Section XI – Miscellaneous Trust Funds Page XI - 8
Bureau of Land Management 2009 Budget Justifications 

Budget Schedules 

SPECIAL AND TRUST FUND RECEIPTS (N) (MILLIONS $) 

Identification code: 

14-9971 2007 Act 2008 CY 2009 BY 

Special and Trust Fund Receipts (N) 

0100 Balance, start of year 0 0 0 

0199 Balance, start of year 0 0 0 

Receipts 

0220 Contributions and Deposits, BLM 25 22 22 

0400 Total: Balances and collections 25 22 22 

Appropriations 

0500 Miscellaneous Trust Funds -25 -22 -22 

0799 Balance, end of year 0 0 0 

PROGRAM AND FINANCING (P) (MILLIONS $) 

Identification code: 

14-9971 2007 Act 2008 CY 2009 BY 

Obligations by program activity 

0001 Resource development FLPMA 8 9 9 

0002 Resource development CA OHV 7 8 8 

0003 Resource development Taylor Grazing 3 4 4 

0004 Public survey 0 1 1 

0005 Sikes Act 0 1 1 

1000 Total new obligations 18 23 23 

Budgetary resources available for obligation 

2140 

Unobligated balance carried forward, start of 

year 17 24 23 

2200 New budget authority (gross) 25 22 22 

2390 

Total budgetary resources available for 

obligation 42 46 45 

2395 Total new obligations -18 -23 -23 

2440 

Unobligated balance carried forward, end of 

year 24 23 22 

New budget authority (gross), detail 

Mandatory 

6026 Appropriation (trust fund) 25 22 22 

Change in obligated balances 

7240 Obligated balance, start of year 12 7 10 

7310 Total new obligations 18 23 23 

7320 Total outlays (gross) -23 -20 -24 

7440 Obligated balance, end of year 7 10 9 

Outlays (gross), detail 

8697 Outlays from new mandatory authority 11 11 11 

8698 Outlays from mandatory balances 12 9 13 

8700 Total outlays (gross) 23 20 24 

Net budget authority and outlays 

8900 Budget authority 25 22 22 

9000 Outlays 23 20 24 

Section XI – Miscellaneous Trust Funds Page XI - 9
Bureau of Land Management 2009 Budget Justifications 

PROGRAM AND FINANCING (P) (MILLIONS $) 

Identification code: 

14-9971 2007 Act 2008 CY 2009 BY 

9502 Unpaid obligation, end of year 6 0 0 

OBJECT CLASSIFICATION (O) (MILLIONS $) 

Identification code: 

14-9971 2007 Act 2008 CY 2009 BY 

Direct obligations 

Personnel compensation 

1111 Full-time permanent 3 3 3 

1113 Other than full-time permanent 1 1 1 

1115 Other personnel compensation 1 1 1 

1119 Total personnel compensation 5 5 5 

1121 Civilian personnel benefits 1 1 1 

1252 Other services 4 6 6 

1253 

Other purchases of goods and services from 

Government accounts 1 1 1 

1260 Supplies and materials 2 4 4 

1310 Equipment 1 2 2 

1320 Land and structures 2 2 2 

1410 Grants, subsidies, and contributions 2 2 2 

9999 Total new obligations 18 23 23 

BA, LIMITATIONS, AND OUTLAYS (A) (MILLIONS $) 

Identification code: 

14-9971 2007 Act 2008 CY 2009 BY 

Appropriation (total) [010-04-9971] 

6250 Mandatory, Appropriations Committee 25 22 22 

Outlays from new authority [Text] 

9111 Mandatory, Appropriations Committee 11 11 11 

Outlays from balances [Text] 

9121 Mandatory, Appropriations Committee 12 9 13 

Memo: Outlays frm end of PY balances [Text] 

9122 Mandatory, Appropriations Committee 0 9 2 

BA, LIMITATIONS, AND OUTLAYS (S) (MILLIONS $) 

Identification code: 

14-9971 2007 Act 2008 CY 2009 BY 

Appropriation (total) [010-04-9971] 

Mandatory, Appropriations Committee 

6250 Baseline Non-Pay 0 14 14 

6250 Baseline Civilian Pay 0 8 8 

Outlays from new authority [Text] 

9111 Mandatory, Appropriations Committee 0 11 11 

Outlays from balances [Text] 

9121 Mandatory, Appropriations Committee 0 9 13 

Memo: Outlays frm end of PY balances [Text] 

9122 Mandatory, Appropriations Committee 0 9 2 

Section XI – Miscellaneous Trust Funds Page XI - 10
Bureau of Land Management 2009 Budget Justifications 

CHARACTER CLASSIFICATION (C) (MILLIONS $) 

Identification code: 

14-9971 2007 Act 2008 CY 2009 BY 

NON-INVESTMENT ACTIVITIES 

Direct Federal programs 

2004-01 Budget Authority 25 22 22 

2004-02 Outlays 23 20 24 

EMPLOYMENT SUMMARY (Q) 

Identification code: 

14-9971 2007 Act 2008 CY 2009 BY 

Direct 

1001 Civilian full-time equivalent employment 76 76 76 

APPROPRIATIONS REQUESTS IN THOUSANDS OF DOLLARS (T)

Identification code: 

14-9971 2007 Act 2008 CY 2009 BY 

1000 Budget year budgetary resources [14-9971] 0 0 20130 

Section XI – Miscellaneous Trust Funds Page XI - 11
Bureau of Land Management 2009 Budget Justifications 

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Section XI – Miscellaneous Trust Funds Page XI - 12
Bureau of Land Management 2009 Budget Justifications

Section XII – Helium Fund Page XII - 1

Appropriation: Helium Fund and Operations 

APPROPRIATION LANGUAGE SHEET

No Appropriation Language Sheet 

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, discontinued production and sale of refined 

helium. Regulations have been drafted to facilitate administration 

and implementation of other provisions granted under 50 U.S.C. 

167. 
Bureau of Land Management 2009 Budget Justifications

Section XII – Helium Fund Page XII - 2

Summary of Requirements ($000) 

 Fixed Costs & Program 2009 Inc(+) 

Comparison 2007 2008 Related Changes Changes Budget Dec(-) 

by Activity/ Enacted Enacted (+/ -) (+/ -) Request from 2008 

Subactivity FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount 

 

 Helium Fund 50 0 50 0 +0 +0 +0 +0 50 0 0 0 

 

 Helium Fund 50 167,000 50 159,000 +0 +0 +0 +5,000 50 164,000 0 +5,000 

 Offsetting 

Collections -167,000 -159,000 +0 -5,000 

-

164,000 -5,000 

 

 OPERATING 

PROGRAMS: 50 167,000 50 159,000 +0 +0 +0 +5,000 50 164,000 0 +5,000 

 

 Production & 

Sales 15 14,000 15 15,000 +0 +0 +0 +0 15 15,000 0 0 

 

 Transmission & 

Storage 

Operations 19 2,000 19 4,000 +0 +0 +0 +0 19 4,000 0 0 

 

 Administrative & 

Other Expenses 16 151,000 16 140,000 +0 +0 +0 +5,000 16 145,000 0 +5,000 

 

 Closure 0 0 0 0 +0 +0 +0 +0 0 0 0 0 

 

 CAPITAL 

INVESTMENT: 0 0 0 0 +0 +0 +0 +0 0 0 0 0 

 

 Land, Structures, 

& Equipment 0 0 0 0 +0 +0 +0 +0 0 0 0 0 

Carry Forward 

Balance 18,000 0 0 

* Because the amount of the helium fund is dependent on actual sale of helium and production by-products and the 

amount paid per requirements of the Helium Privatization Act of 1996 to the U.S. Treasury to offset part of the helium 

debt, the cost of administrative expenses is increased by $5,000,000 from 2008. The increase is the amount that is 

in the helium fund over the $2,000,000 that the Act specifies to be left for operating at the end of the environmental 

clean-up portion. 
Bureau of Land Management 2009 Budget Justifications

Section XII – Helium Fund Page XII - 3

Activity: Helium Fund and Operations 

Activity Summary ($000) 

 2009 

 Fixed Costs & Change 

 2007 2008 

Related 

Changes Budget 

from 

2008 

Subactivity Enacted Enacted (+/ -) 

Program 

Changes 

(+/ -) Request (+/-) 

 Helium Fund 167,000 159,000 0 5,000 164,000 5,000

 Offsetting Collections -167,000 -159,000 0 -5,000 -164,000 -5,000

 Production & Sales $ 14,000 15,000 0 0 15,000 0

 FTE 15 15 0 0 15 0

 Transmission & 

Storage Operations $ 2,000 4,000 0 0 4,000 0

 FTE 19 19 0 0 19 0

 Administrative & 

Other Expenses $ 151,000 140,000 0 +5,000 145,000 +5,000

 FTE 16 16 0 0 16 0

 Closure $ 0 0 0 0 0 0

 FTE 0 0 0 0 0 0

 Subtotal Dollars - 

OPERATING 

PROGRAMS $ 167,000 159,000 0 +5,000 164,000 +5,000

 FTE 50 50 0 0 50 0

 

 Land, Structures, & 

Equipment $ 0 0 0 0 0 0

 FTE 0 0 0 0 0 0

 Subtotal Dollars - CAPITAL 

INVESTMENT $ 0 0 0 0 0 0

 FTE 0 0 0 0 0 0

 Subtotal Dollars - CARRYFORWARD BALANCE $ 18,000 0 0 0 0 0

 Total Dollars $ 167,000 159,000 0 +5,000 164,000 +5,000

 FTE 50 50 0 0 50 0
Bureau of Land Management 2009 Budget Justifications

Section XII – Helium Fund Page XII - 4

JUSTIFICATION OF 2009 PROGRAM CHANGES

The 2009 budget request for the Helium Fund and Operations program is $164,000,000 and 

50 FTE. This is a net program decrease of $5,000,000 from the 2008 level, based on the 

scheduled closure completion. The Helium Privatization Act of 1996, P.L. 104-273 specifies 

that all monies in the helium fund in excess of $2,000,000 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 revenue from the sale of open market 

crude, natural gas and liquid gas sales operations of the Crude Helium Enrichment Unit. Sales 

of helium are cyclical. Sales in 2008 and 2009 are projected to be comparable to the 2007 level. 

PROGRAM OVERVIEW

Program Components – The BLM New Mexico Field Office located in Amarillo, Texas 

accomplishes this objective through crude helium transmission and storage of Federal and 

private crude helium via the helium storage system; the administration of the sale of crude 

helium (coordinated with the private helium industry so as not to disrupt the helium market); the 

evaluation of helium resources; and the administration of helium extracted from Federal lands. 

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 

gas containing marketable helium reserves will be identified and contracted for sale or royalty to 

enhance conservation of crude helium already in storage. 

The Helium Privatization Act of 1996, P.L. 104-273, significantly changed the objectives and 

functions of this program. This legislation established revised guidelines for the helium 

program. Specifically, it directed BLM to: 

• Continue the storage and transmission of crude helium. 

• Sell the crude helium reserve over an extended period. 

• Oversee production of helium on Federal lands. 

• Conduct a National Academy of Sciences study on helium issues. 

The legislation has resulted in the reduction of personnel from 173 (in 1997) to 51, cessation of 

refining functions, and the initiation of orderly disposal of excess property. 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. Divestiture of the Amarillo and Exell plant sites will be influenced, in part, on 

the results of the Environmental Site Assessments. Based on findings from Phase One 

Environmental Site Assessments, no significant environmental cost increases are expected. 

Strategic Plan - The Helium program supports the Resource Use mission goal from the 

Department’s Strategic Plan by providing the helium requirements essential to Federal 

government programs. 
Bureau of Land Management 2009 Budget Justifications

Section XII – Helium Fund Page XII - 5

2009 PROGRAM PERFORMANCE

In 2009, the program will continue to meet the needs of Federal customers through “in-kind” 

crude helium sales to Federal helium suppliers and open market sales in accordance with the 

Helium Privatization Act of 1996. All the income derived from crude helium sales, from private 

helium storage, and from fee sales/royalty payments for helium extracted from Federal lands 

will pay the full costs of the program. 

In 2009, the Helium program will: 

• Continue storage and transmission of crude helium. 

• Administer helium fee and royalty contracts for helium extracted from gas produced on 

Federal lands. 

• Administer the in-kind and open market crude helium gas sale programs. 

• Conduct helium resource evaluation and reserve tracking to determine the extent of 

helium resources. 

• Complete the disposal of helium refining-related facilities not needed for the storage and 

transmission of crude helium. 

In 2008, the Helium program plans to conduct sales and activities of approximately $169.0 

million to implement the Helium Privatization Act of 1996. Open market and in-kind sales are 

expected to generate $137.0 million. Natural and liquid gas sales are expected to generate 

$21.0 million. The helium storage program will generate over $4.0 million for the program. In 

addition to this revenue, the Helium program will receive an estimated $7.0 million from helium 

royalties and fee sales. The program estimates that payments to the Helium Debt will be 

approximately $167.0 million in 2008. BLM estimates its Helium Enrichment Unit will operate 

at least 340 days. Also planned for 2008 is the completion of the environmental cleanup of the 

Exell Helium Plant and the disposal process initiated through the General Services 

Administration. 

In 2007, the Helium program conducted sales of approximately $166.7 million. Included were 

open market and in-kind sales for $130.6 million. Natural and liquid gas sales were $22.7 

million. The helium storage program generated $5.5 million during 2007. In addition to this 

revenue, the Helium program received $7.9 million from helium royalties and fee sales. The 

larger amount sold was due to the uncertain aspect of the amount of helium that will be 

purchased once it is offered for sale to private industry. During 2007 the largest amount of 

sales to date occurred since the Helium Privatization Act of 1996 was enacted. Other 

accomplishments for 2007 were the disposal of the Amarillo Helium Plant and the continuation 

of the environmental cleanup process of the Exell Helium Plant. 
au of Land Management 2009 Budget Justifications

Section XII – Helium Fund Page XII - 6

HELIUM PROGRAM OPERATIONS PERFORMANCE Overview 

 Measure 2004 Actual 2005 Actual 2006 Actual 2007 Planned 2007 Actual 2008 Plan 2009 President's Budget Change from 2008 Plan to 

2009 

Long -t

targe

(2012

Cumulative percent of original helium debt repaid at end of fiscal year. (Bur) 

17% 

$234M/ 

$1,373M 

22% 

$299M/ 

$1,373M 

33% 

$459M/ 

$1,373M 

40% 

$544M 

$1,373M 

44% 

$609M/ 

$1,373M 

46% 

$626M 

$1,373M 

56% 

$769M/ 

$1,373M 

+10% 

78% 

$1,069

$1,373

Comments: Percent of time the Crude Helium Enrichment Unit (CHEU) was operating during the fiscal year. (Bur) 

79% 

268/ 340 

99% 

335/ 340 

95% 

322/ 340 

100% 

340/ 340 

97% 

330/ 340 

100% 

340/ 340 

100% 

340/ 340 +0% 100% 340/ 3

Total Actual/Projected Cost ($000) $85,286 $90,346 $205,380 $0 $183,422 $182,270 $181,663 -$607 $181,6Actual/Projected Cost per day (in dollars) $318,233 $269,689 $637,827 $0 $555,826 $536,087 $534,304 -$1,783 $534,3Comments: 

This measure was revised in 2007 to remove the standard maintenance days from the denominator. There are only possible operating days during the year because of scheduled maintenance. Prior year data is provided using the denominator. In 2007, unanticipated equipment failure reduced the number of days that the plant could operate. 

Manage Helium (MMcf) 790.0 1,390.0 1,495.0 2,100.0 1,683.0 2,100.0 2,100.0 0% 2,100The Target of 2,100.0 is set by Congress through the Helium Act. BLM reports the actuals. 

Bure
Bureau of Land Management 2009 Budget Justifications

Section XII – Helium Fund Page XII - 7

Budget Schedules

Program and Financing (P) (MILLION $) 

Identification code: 

14-4053 2007 Act 2008 CY 2009 BY 

Obligations by program activity 

0901 Production and sales 14 16 14 

0902 Transmission and storage 2 2 2 

0903 Administration and other expenses 152 169 146

1000 Total new obligations 168 187 162

Budgetary resources available for obligation 

2140 

Unobligated balance carried forward, start of 

year 21 20 2

2200 New budget authority (gross) 167 169 162

2390 

Total budgetary resources available for 

obligation 188 189 164

2395 Total new obligations -168 -187 -162

2440 

Unobligated balance carried forward, end of 

year 20 2 2

New budget authority (gross), detail 

Mandatory 

Spending authority from offsetting collections 

6900 Offsetting collections (cash) 167 169 162

Change in obligated balances 

7240 Obligated balance, start of year 0 5 5

7310 Total new obligations 168 187 162

7320 Total outlays (gross) -163 -182 -157

7440 Obligated balance, end of year 5 5 5

Outlays (gross), detail 

8697 Outlays from new mandatory authority 21 20 2

8698 Outlays from mandatory balances 142 162 155

8700 Total outlays (gross) 163 182 157

Offsets 

Against gross budget authority and outlays 

Offsetting collections (cash) from 

8840 Non-Federal sources 167 169 162

Net budget authority and outlays 

8900 Budget authority 0 0 0 

9000 Outlays 4 -13 5

9502 Unpaid obligation, end of year 5 5 5

Balance Sheet (F) (MILLION $) 
Bureau of Land Management 2009 Budget Justifications

Section XII – Helium Fund Page XII - 8

Identification code: 

14-4053 2007 Act 2008 CY 2009 BY 

ASSETS 

Federal assets 

1101 Fund balances with Treasury 21 20 2

Other Federal assets 

1802 Inventories and related properties 257 255 255

1803 Property, plant and equipment, net 17 15 15

1999 Total assets 295 290 272

LIABILITIES 

Federal liabilities 

2102 Interest payable 512 345 201

2103 Debt 252 252 252

2999 Total liabilities 764 597 453

NET POSITION 

3300 Cumulative results of operations -469 -307 -181

4999 Total liabilities and net position 295 290 272

Object Classification (O) (MILLION $) 

Identification code: 

14-4053 2007 Act 2008 CY 2009 BY 

Reimbursable obligations 

Personnel compensation 

2111 Full-time permanent 3 3 3 

2121 Civilian personnel benefits 1 1 1 

2233 

Communications, utilities, and miscellaneous 

charges 4 3 3 

2252 Other services 4 4 4 

2260 Supplies and materials 3 2 2 

2410 Grants, subsidies, and contributions 2 2 2 

2430 Interest and dividends 152 169 146

9999 Total new obligations 168 187 162

BA, Limitations, and Outlays - Policy (A) (MILLION $) 

Identification code: 

14-4053 2007 Act 2008 CY 2009 BY 

Spending authority from offsetting collections 

(total) [Text] 

6990 Mandatory, authorizing committee, regular 167 169 162

Offsetting collections, Non-Federal sources 

[Text] 

8840 Mandatory, authorizing committee, regular 167 169 162

Outlays from new offsetting collections [Text] 

9311 Mandatory, authorizing committee, regular 21 20 2

Outlays from balances of offsetting collections 

[Text] 

9321 Mandatory, authorizing committee, regular 142 162 155

Memo: Outlays frm end of PY bal. from 
Bureau of Land Management 2009 Budget Justifications

Section XII – Helium Fund Page XII - 9

BA, Limitations, and Outlays - Policy (A) (MILLION $) 

Identification code: 

14-4053 2007 Act 2008 CY 2009 BY 

offsetting coll [Text] 

9322 Mandatory, authorizing committee, regular 142 162 155

BA, Limitations, and Outlays - Baseline (S) (MILLION $)

Identification code: 

14-4053 2007 Act 2008 CY 2009 BY 

Spending authority from offsetting collections 

(total) [Text] 

6990 Mandatory, authorizing committee, regular 167 169 162

Offsetting collections, Non-Federal sources 

[Text] 

8840 Mandatory, authorizing committee, regular 167 169 162

Outlays from new offsetting collections [Text] 

9311 Mandatory, authorizing committee, regular 21 20 2

Outlays from balances of offsetting collections 

[Text] 

9321 Mandatory, authorizing committee, regular 142 162 155

Memo: Outlays frm end of PY bal. from 

offsetting coll [Text] 

9322 Mandatory, authorizing committee, regular 142 162 155

Employment Summary (Q) 

Identification code: 

14-4053 2007 Act 2008 CY 2009 BY 

Reimbursable 

2001 Civilian full-time equivalent employment 55 55 54
Bureau of Land Management 2009 Budget Justifications

Section XII – Helium Fund Page XII - 10

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Bureau of Land Management 2009 Budget Justifications 

Appropriation: Administrative Provisions 

APPROPRIATIONS LANGUAGE SHEET

Appropriations for the Bureau of Land Management 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 costsharing 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.

[Section 28 of title 30, United States Code, is amended: (1) in section 28 by striking the 

phrase ``shall commence at 12 o'clock meridian on the 1st day of September'' and 

inserting ``shall commence at 12:01 ante meridian on the first day of September''; (2) in 

section 28f(a), by striking the phrase ``for years 2004 through 2008''; and (3) in section 

28g, by striking the phrase ``and before September 30, 2008,''. 

 Sums not to exceed 1 percent of the total value of procurements received by the Bureau 

of Land Management from vendors under enterprise information technologyprocurements that the Department of the Interior and other Federal Government 

agencies may use to order information technology hereafter may be deposited into the 

Management of Lands and Resources account to offset costs incurred in conducting the 

procurement. ] (Department of the Interior, Environment, and Related Agencies 

Appropriations Act, 2008.) 

The 2009 President’s Budget proposes changes from the prior year’s appropriation 

language as described below: 

(1) The language describing Section 28 of Title 30 is not needed because the 2008 

Appropriations Act amended Section 28 and the language is now permanently included 

in Title 30. 

(2) Congress included the language concerning information technology procurements in 

the 2008 Appropriations Act. Because the language includes the word “hereafter”, it 

does not have to be repeated in 2009. The language is in effect in 2009 and 

subsequent years until amended. 

Section XIII -Administrative Provisions Page XIII-1
Bureau of Land Management 2009 Budget Justifications 

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Section XIII -Administrative Provisions Page XIII-2
Bureau of Land Management 2009 Budget Justifications 

BLM Research and Development

2009 RESEARCH AND DEVELOPMENT ACTIVITIES ($000) 

Conduct of R&D by 2007 2008 2009

Activity B.A. Outlay B.A. Outlay B.A. Outlay

Basic Research 0 0 0 0 0 0

Applied Research 12,926* 12,926* 10,877* 10,877* 7,877* 7,877*

* There is a discrepancy between the 2007, 2008, and 2009 Budget Authority and Outlay amounts listed in this 

table versus the Budget Authority and Outlay amounts listed in the MLR budget schedule (1422-01 and 1422-

02). The B.A. and Outlay amounts listed in this R&D table are true in value. 

Budget Authorities and Outlays differ from the 2008 Justification due to a continuing effort to assure that 

projects reported are consistent with reporting requirements; fewer projects are being reported now than in the 

past. Another significant factor is changing priorities as the fiscal year progresses. 

Management of Lands and Resources (MLR): 

R&D conducted under the MLR seeks to gather fundamental data and knowledge to generate a better 

understanding of the variety and nature of the resources on the Public Lands managed by the BLM and also to 

provide information needed to improve management, conservation and development of these resources. 

Emphasis is focused on utilizing the resources and productivity of these lands for the current benefit of the 

American people while maintaining the ecological integrity of the lands for the benefit of future generations. 

National Landscape Conservation System (NLCS) Research: 

The NLCS research program seeks information on the unique resources of BLM’s national monuments, 

national conservation areas and other exceptional lands to understand better their distinctive nature and also to 

improve management and conservation of these lands and their resources.

Development 748 748 820 820 578 578

R&D Facilities 1 1 1 1 1 1

Conduct of R&D 

performed by Colleges 

and Universities* 

8,049 8,049 5,105 5,105 3,899 3,899

Indirect Costs Related to 

R&D Performed by 

Colleges and Universities* 

1,610 1,610 1,021 1,021 770 770

Merit Reviewed Scientific 

Research* 

0 0 0 0 0 0

Total** 13,675 13,675 11,698 11,698 8,456 8,456

**Total amount includes Applied Research, Development, and R&D Facilities amounts. Excludes R&D by 

Colleges/Universities, Indirect Costs, and Merit Reviewed. 

- Total amounts differ from the 2008 Justification due to a continuing effort to assure that projects reported are 

consistent with reporting requirements; fewer projects are being reported now than in the past. Another significant 

factor is changing priorities as the fiscal year progresses. 

- Numbers inclusive in Applied Research and Development totals listed above. 

- Estimated distribution (by percentage) of funding by R&D performers: In-house Activity (BLM, Federal and State 

agency partners) - 50%, private industry - 0%, colleges-university - 50%, other non-profit - 0% 

PROGRAM OVERVIEW

Program Components – The Department is using the Administration’s Research and 

Development investment criteria to assess the value of its Research and Development 

(R&D) programs. The criteria are used rigorously to justify new programs and to 

reevaluate existing programs for modification, redirection, or termination, in keeping the 

Section XIV– Research and Development Page XIV-1 
Bureau of Land Management 2009 Budget Justifications 

national priorities and needs. The investment criteria evaluate the relevance, quality, 

and performance for all R&D programs. 

The BLM has numerous scientific interests related to its responsibilities for improving the 

management of the resources on the Nation’s Public Lands. The BLM is a founding 

partner in the network of Cooperative Ecosystem Studies Units (CESU) that has been 

established in 17 regions of the Nation by leading universities with a number of Federal 

agencies. The BLM is increasingly making use of these CESU partnerships to meet its 

science needs and involve U.S. universities and colleges to a greater extent in providing 

sound science for managing the public lands and resources. Investigators participating 

in the CESU network are highly qualified and experienced; their products are of the 

highest quality in scientific research. 

Long-Term Vision – The ultimate objective of the BLM Research and Development 

program is to make relevant use of new data, information, and knowledge in support of 

the BLM’s mission of improving the management of the Nation’s lands and resources. 

The BLM’s Research and Development program supports improvements in 

organizational effectiveness, and furthers the long-term goal of working with partners to 

identify scientific information needs. Ultimately, it communicates these needs to 

research agencies, universities and other non-governmental organizations. 

Critical Factors - Most of our research activities involve considerable field work 

associated with natural resources, which is subject only to the limitations of weather, but 

is also dependent on such factors as seasonality, antecedent moisture conditions, and 

changes to environmental conditions such as drought or wild fire. Furthermore, the 

preliminary results of a research project may cause re-evaluation of the research design 

and mid-course changes or even cancellation of a project. Recent publication of similar 

research or awareness of similar research may impact a project. 

Means and Strategies – The R&D program will work within various programs on data, 

information gathering, and knowledge to improve the management of the public lands 

and resources. Efforts will be continued in: 

• Northwest Forest Plan 

• Nation’s energy security planning 

• Improved understanding of changing environments to enable the BLM to better 

respond to national and global environmental issues and natural disasters 

through better observation, data, analysis, modeling and applied research. 

Most of the projects are accomplished by the BLM staff or through individual 

arrangements with science providers, such as United States Geological Survey (USGS), 

United States Forest Service (USFS), non-profit educational institutions, universities, 

and through CESU partnerships where BLM partners with the Nation’s universities to 

acquire research, education and technical support for improving the management of 

resources and uses of the public lands. BLM also participates in the newly created DOI 

Research and Development Council and in establishing standard criteria for peer 

reviews. 

Other Funding Sources - The BLM receives assistance in research and development 

program from numerous funding sources. Although these sources may change from 

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year to year, they usually include grants from foundations such as the National Fish and 

Wildlife Foundation; other Interior bureaus (primarily the USGS); other agencies, such as 

the Department of Energy and Department of Agriculture; and private organizations. In 

addition to joint funding of projects, BLM will also benefit from in-kind contributions as 

well as projects funded by other organizations which provide information applicable to 

BLM managed lands, to which we provided information, coordination, and/or they were 

conducted on BLM managed lands.

Strategic Plan – The Research and Development program supports the Department’s 

Strategic Plan through use of partnerships (a “supporting pillar” of the Plan), and 

science, the foundation for the plan. Many of the results of the program will fall within 

the mission goals of the Strategic Plan: Resource Protection, Resource Use, Recreation, 

and Serving Communities. 

2009 PLANNED PROGRAM PERFORMANCE

2007 Accomplishments - Many of the 2007 accomplishments involve on-going, 

multiyear projects, such as impacts of energy development in the Rocky Mountain West, 

protection of threatened and endangered and special status species, research on 

invasive species and restoration of native communities, and impacts from the increase in 

the incidence of wildland fire and recreation activities, particularly vehicle use. 

Projects completed in 2007 include: 

• Trans Alaska pipeline corridor on Dall Sheep 

• Effect of hazardous fuel reduction and fire rehabilitation on permafrost 

• Recreation travel management in Alaska 

• Regeneration of the knobcone pine 

• Salinity impacts to the Gunnison Gorge National Conservation Area 

• Reproductive success of Greater Sage Grouse 

• Effects of coal bed natural gas activities on fish assemblages 

• Lifecycle of the Dalmation Toadflax 

• Treatment of acid mine drainage 

• Native grassland restoration in the Great Basin 

• Effectiveness of replaced or retrofitted culverts for fish passage 

• Upslope in-stream channel relationships study 

• Effect of management on landslide frequency 

• Pre-settlement versus current vegetation and fire regimes on oak woodlands 

• Evaluation of impacts of timber salvage 

• Ecology of Mardon Skipper butterflies 

• Effects of mature stand thinning 

• Raptor range radii study 

• OHV travel on BLM roads 

• Inventory of past Pinyon Juniper management treatments 

• Symbiotic relationships between soil mycorrhizae and vegetative communities 

• Distribution and ecology of invasive New Zealand Mudsnail 

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2008 Planned Program Performance - Major science program areas in 2008 include: 

Impacts of Energy Development in the Rocky Mountain West - The need to find and 

develop new sources of energy on the Public Lands creates conflicts with other 

resources and resource management in the Rocky Mountain West and adjacent areas. 

The BLM needs better understanding of the effects of increased oil and gas exploration, 

coal and coal bed methane development, and abandoned mines on other resources of 

the area. Particular concern is focused on hydrology and impacts to ground and surface 

water resources, air pollution, and acid mine drainage. The effects of noise and habitat 

disturbance on wildlife and other species of concern are also the subject of BLM studies 

in this area. In Alaska, the effects of oil and gas exploration and development on tundra 

vegetation, tundra wildlife, and permafrost are all areas of concern. 

Section 353 of the Energy Policy Act of 2005 contains provisions intended to promote 

natural gas production from natural gas hydrate resources through royalty incentives. 

The Act requires the Secretary to review opportunities to enhance production of natural 

gas from gas hydrate resources. BLM’s role, in cooperation with USGS and industry 

partners, is to assist in gathering the information to prepare a gas hydrate leasing 

program. BLM’s current gas hydrate research effort is being conducted in Alaska. 

Wyoming Landscape Cooperative Conservation Initiative – Under the Secretary’s 

Healthy Lands Initiative, the BLM is working with the U. S. Fish and Wildlife Service, the 

U. S. Geological Survey and the Wyoming Game and Fish Department in developing a 

program to ensure southwest Wyoming’s wildlife and habitats remain viable over time in 

areas facing energy development pressure. Although focused on assessment, 

inventory, monitoring and study of mitigation and restoration of wildlife and other 

renewable resources, the Wyoming Initiative will also include assessments and 

evaluations of energy, mineral and non-renewable resources. 

Inventory, monitoring, and protection of threatened and endangered species and species 

of special concern – The BLM has responsibilities for protecting both animal and plant 

species on the public lands that are either declining or threatened in some way by 

activities on public lands, such as grazing, energy development, or increasing human 

occupancy and use. BLM receives support through programs like Challenge Cost Share 

and organizations such as the National Fish and Wildlife Foundation for research on 

species such as the desert tortoise, peregrine falcon, snowy plover, pygmy rabbit, bull 

trout, sage-grouse and many others which are of concern to the BLM because of 

threatened or declining conditions. 

Rangeland restoration and protection – In an effort to improve the condition of the 

Nation’s rangelands, BLM’s scientific programs focus on a wide range of resources and 

how they may be protected and restored. Special emphasis is given to understanding 

the ecology and problems of the shrub-steppe ecosystem of the Great Basin and 

adjacent areas. Efforts are underway to restore native vegetation to much of this 

degraded area through development of sources of seeds for native plants, and studies to 

determine how best to reestablish native vegetation. Other studies focus on 

understanding soil ecology system and the importance of biological soil crusts in the 

shrub-steppe ecosystem. Impacts of mining and energy development are significant in 

the Great Basin. BLM science projects target the potential impacts on some animal 

species, such as the sage grouse, as well as on recreation, water, and other resources. 

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Invasive weeds – Introduction of exotic (non-native) weeds and the rapid spread across 

public lands is a major concern. In many cases, the spread has been facilitated by 

habitat changes. Changing climate may also be a factor. An important part of the BLM 

science program is to understand the ecology of these invasive species, and learn how 

to control their spread and limit the habitat damage they cause. 

In 2005, the BLM began developing a national strategy to improve the collection, 

storage, and use of data about assessments, inventories, and monitoring. The initiative 

is described in the General Statement of this budget request. Many of the efforts funded 

under the strategy support research and development, including: 

• The Owyhee Uplands project, which is designed to provide information on the utility 

of a regional approach to collecting, organizing, and using assessment, inventory, 

and monitoring data, focusing on the Owyhee Uplands. Objectives include: 1) 

documenting the potential and current distribution of sagebrush and evaluating 

fragmentation/connectivity changes over time; 2) documenting and evaluating the 

threats to the integrity of the sagebrush communities; 3) tracking treatments 

implemented to reduce threats to or to restore sagebrush habitat; and 4) sharing 

assessment, inventory, and monitoring data and improving communication and 

coordination among BLM administrative units and with the public. 

• A regional energy project that is designed to address air quality, water quality and 

quantity, wildlife habitat, and surface disturbance related to energy development at a 

regional (EPCA Basin) level. The overall objective of this project is to review current 

monitoring efforts and provide recommendations regarding data sources, data 

collection and assessment, protocol refinement, and applications that will provide the 

desired land health-related information. The Regional Energy Team will highlight 

changes that are necessary to address any gaps in policy regarding air, water, or 

wildlife resources, or surface disturbance, especially as it relates to energy 

development, at any scale. The Regional Energy Team’s method will include pilot 

testing of monitoring frameworks, development of a national water resources 

protocol and a database management system for water resources, and 

recommendations on the BLM-wide application of the wildlife framework and the 

water resources protocol and database. 

• A 'science portal,' which is designed to create a tool for BLM to: 1) outreach science 

needs & priorities to science providers, 2) track science projects occurring on public 

lands, and 3) share annual reports of projects. This work will be completed in 

partnership with NPS and the Colorado Plateau CESU to facilitate soliciting research 

proposals that support assessment, inventory, and monitoring. 

• A project to develop a consistent ecological site description protocol, which will 

produce an interagency manual between BLM, USFS, and the National Resources 

Conservation Service (NRCS). The manual will consistently stratify the landscape 

into management units called ecological sites. These management units can be 

inventoried for resource condition and monitored for trends in resource condition. 

The manual will be developed to incorporate multidisciplinary needs. 

• A project to improve documentation of recreational user impacts, by developing and 

testing integrated monitoring protocols and tools to support comprehensive 

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recreation management within an informed ecological and sociological context. The 

tasks and methods used will collectively contribute to the development of connected 

local, regional, and national monitoring strategies. 

• Remote sensing in Box Elder County, UT. This project is part of a statewide 

cooperative effort to focus management on the shrub-steppe ecosystem. From using 

remote sensing and Geographic Information System technology, the end product will 

be the development of a semi-automated, objective, and transparent monitoring 

protocol for semi-arid rangelands in Box Elder County, Utah. The monitoring 

protocol integrates references to land cover conditions, land use, current land cover, 

field based measurements, and standardized remote sensing imagery. This 

integration of references will extract indices indicative to land cover change to track 

trend, identify areas of potential status changes, assist in the identification of priority 

sites for restoration, and evaluate rangeland health. 

2009 Planned Program Performance - Major science program areas in 2009 include: 

Anthropogenic Change – BLM will document the impacts of anthropogenic change 

(human influences) on natural populations and provide decision-makers with a regional 

picture of the biological issues facing sage-grouse conservation. An understanding of 

these issues will then be used to develop a comprehensive strategy for sage-grouse 

conservation related to energy development. This large-scale mapping and modeling 

exercise will span the eastern range of sage-grouse across Wyoming, eastern Montana, 

western North and South Dakota, and northwest Colorado. Various GIS layers will be 

developed or compiled for use in the analyses. Landscape analyses will be conducted 

that address these management issues: assess current habitat conditions and predict 

future impacts of multiple stressors facing sage-grouse populations; identify landscapes 

in greatest and most immediate need of conservation action in Montana, Wyoming and 

Colorado; use coarse-filter predictions to develop a conservation strategy for sagegrouse populations across their eastern range. The strategy will include 

recommendations for protecting at-risk populations and ways to include off-site 

mitigation into comprehensive strategies. Partners will include State fish and wildlife 

agencies, the U.S. Forest Service, USGS, the University of Montana, NGOs and 

industry. 

State of the Atmosphere - The purpose of this study is to develop the full design and 

operational support of the Wyoming State of the Atmosphere air quality dispersion 

modeling project in cooperation with the National Park Service. The objective is to 

assess the cumulative impact of development in Wyoming that is subject to the National 

Environmental Policy Act (NEPA). The BLM Wyoming State Office is interested in 

implementing a state-wide air quality dispersion modeling system to determine the 

current state of the atmosphere and to estimate how various mitigation scenarios could 

affect air quality. 

The regional Habitat Fragmentation/Connectivity project - The BLM Division of Science 

and Resource Services is developing, testing, and institutionalizing an approach for 

analysis of connectivity and fragmentation of landscapes and habitat at the regional 

scale. The regional fragmentation analysis provides information about the location and 

extent of terrestrial habitat fragmentation in support of BLM's multiple-use decision 

making in assessment, inventory, and monitoring, land use planning, NEPA, and 

conservation planning activities. The GIS analysis links regional habitat data with data 

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on land use activities and disturbances. The regional fragmentation analysis approach 

is spatially explicit and repeatable, thus allowing for monitoring and reporting of sitespecific changes of landscape conditions in broad regions over time. 

Water Monitoring - Pieance Basin - The USGS, in partnership with the BLM, has 

completed a preliminary feasibility study to determine the most cost effective measures 

for achieving desired monitoring goals. Implementation of the project will include 

installation of up to nine real-time stream-flow gages. The project also calls for 

installation of up to five water quality monitoring stations. Placement of stream-flow 

gages and water quality monitoring stations has been designed to bracket specific 6th 

and 7th order perennial streams within the Piceance Basin that are targeted by industry 

to undergo intense energy development. Periodic water quality sampling will supplement 

real-time water quantity data obtained at select monitoring stations to provide a more 

complete water quality and quantity analysis of the affected environment, and assess the 

impacts of proposed development. 

Raptor Disturbance Radius Impact Research - The project will help the BLM institute an 

improved and scientifically-based raptor protective measure to be used for the 

management of oil and gas activities on the public lands. It should also clarify for 

industry, and possibly modify, raptor protective measures applied to energy development 

authorizations. The project was originally advanced by the American Petroleum Institute 

(API), and was initially funded by the Department of Energy (DOE) as a three year 

(2006-2008) research effort. The BLM is providing supplemental funding for the effort to 

assure its completion. Operational support is also being provided by the U.S. Fish and 

Wildlife Service, U.S. Geological Survey - BRD, and the wildlife agencies of Colorado, 

Utah, and Wyoming. 

Sagebrush Obligates Research – The sage grouse and pygmy rabbit are currently 

BLM’s sensitive species. Petitions for the listing of both species have been received by 

the USFWS. Federal and State agencies are gathering data to better understand the 

species and the habitat that they occupy. This research project will continue sampling 

areas that have been studied in the past and will allow BLM to assess habitats of many 

species dependent on sage-brush habitat at a landscape level. The data will allow BLM 

to determine habitat trends that can then be applied to the needs of each species. 

Great Basin Native Plant Selection and Increase Project - This project is a regional 

(Great Basin) effort to increase the availability of native plants, especially native forbs, 

for BLM restoration and fire rehabilitation efforts. 25 key native forbs important for sagegrouse diet were identified by BLM resource specialists in a survey conducted in 1999. 

A cooperative effort between BLM offices in Idaho, Nevada, and Utah with the Forest 

Service’s Intermountain Research Station, Shrub Sciences Lab in Provo, Utah resulted 

in a long-term plan to increase the availability of these native forbs and additional native 

grasses and shrubs. Included in this project are private growers with expertise in 

growing native plants, research on bee pollinators of native forbs, plant disease experts, 

experiment stations evaluating techniques to reduce weeds in native seed fields, and 

research personnel that collect and evaluate seed sources from across the Great Basin. 

To date, over 500 field sites have been visited where seeds were collected for the 

project. 

Some of the native seeds collected and evaluated have now been distributed to farmers 

interested in growing native plants for seed. This has benefited local economies, 

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especially where food crop prices are low. Recently a new release was made of 

‘Anatone’ bluebunch wheatgrass, an important component of many sage-grouse 

habitats. Several farmers in the Boise area are now producing seeds which are 

purchased by BLM for habitat restoration and fire rehabilitation. The availability of this 

important grass has increased and the price has declined as a result. 

Density Management Study (DMS) - This study was initiated by BLM and partners in 

1994 following the adoption of the Northwest Forest Plan. The study investigates 

alternative means for managing young forests for biodiversity & timber production. The 

treatments are complex and include varying thinning densities, leave island sizes, patch 

cut sizes, and riparian buffer widths. Study sites are broadly distributed across four BLM 

districts. DMS is a collaborative effort between BLM, USGS, Pacific Northwest 

Research Station (PNW), and Oregon State University (OSU). 

Vegetation Dynamics & Fire Hazard in Experimental Mixed Species Restoration 

Plantings - This study investigates mixed species planting and varied vegetation 

treatments in a post-fire environment. The fire occurred in a late-successional reserve 

on the Timbered Rock Fire area in Southwestern Oregon (Medford District). This 

research will provide a greater understanding of reforestation & forest development 

within late-successional reserves. 

In addition to the areas of concern for the BLM as expressed by the research and 

development projects discussed above, there will be planning for numerous other areas 

of investigation related to our responsibilities of protecting the resources on the Nation’s 

Public Lands. Among these are: 

• Impacts of increasing public recreational activities on Public Lands, particularly 

the rapid increase in mechanized vehicle use during all seasons of the year, 

including: vehicles, motorcycles, mountain bikes, snowmobiles, and more 

recently, hovercraft. These uses are not only having a significant impact on 

wildlife habitat, but also on the wildlife itself, including sensitive and listed 

species. 

• Impacts to cultural resources resulting from all activities. These resources are not 

only being inadvertently damaged by such activities, but are also being lost 

through theft and vandalism. 

• Economic impacts of Public Land management. This includes both the benefits 

to local economies from increasing and changing uses, and the impacts from 

restrictions placed on uses as a result of management decisions. 

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