and Performance Information

Fiscal Year 2017

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

Table of Contents

 

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TABLE OF CONTENTS

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

 

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

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

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

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

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

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

National Conservation Lands ......................................................................................... IV-2 

 Funding Sources for the National Conservation Lands....................................... IV-4 

 Units of the National Conservation Lands........................................................... IV-4 

 Wild and Scenic Rivers....................................................................................... IV-7 

 National Scenic and Historic Trails ..................................................................... IV-9 

Service First................................................................................................................. IV-12 

 Engaging the Next Generation ..................................................................................... IV-13 

Education.........................................................................................................IV-14 

Interpretation ................................................................................................... IV-16 

Volunteers ....................................................................................................... IV-16 

Partnerships .................................................................................................... IV-17 

Landscape Approach to Managing the Public Lands.................................................... IV-19 

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

VI. Collections ...................................................................................................................VI-1

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

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

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

Authorizations ...............................................................................................................VII-5 

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

Justification of Fixed Costs and Related Changes ...................................................... VII-27

Activity: Land Resources.............................................................................................VII-29

 Subactivity: Soil, Water, and Air Management................................................. VII-31 

 Subactivity: Rangeland Management ..............................................................VII-35

 Subactivity: Public Domain Forest Management.............................................. VII-43

 Subactivity: Riparian Management ..................................................................VII-49

 Subactivity: Cultural Resources Management ................................................. VII-53

 Subactivity: Wild Horse & Burro Management ................................................. VII-57

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

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

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

Activity: Threatened and Endangered Species Management ...................................... VII-81

Activity: Recreation Management................................................................................VII-85

 Subactivity: Wilderness Management..............................................................VII-87
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 Subactivity: Recreation Resources Management ............................................ VII-91

Activity: Energy and Minerals Management ................................................................VII-97

 Subactivity: Oil and Gas Management............................................................. VII-99

 Subactivity: Coal Management...................................................................... VII-113

 Subactivity: Other Mineral Resources............................................................ VII-119

 Subactivity: Renewable Energy Management ............................................... VII-123

Activity: Realty and Ownership Management............................................................ VII-129

 Subactivity: Alaska Conveyance and Lands .................................................. VII-131

 Subactivity: Cadastral, Lands & Realty Management .................................... VII-135

Activity: Communication Site Management ............................................................... VII-143

Activity: Resource Protection and Maintenance ........................................................ VII-145

 Subactivity: Resource Management Planning ............................................... VII-147

 Subactivity: Resource Protection and Law Enforcement................................ VII-155

 Subactivity: Abandoned Mine Lands.............................................................. VII-159

 Subactivity: Hazardous Materials Management............................................. VII-163

Activity: Transportation and Facilities Maintenance................................................... VII-167

 Subactivity: Deferred Maintenance & Capital Improvements ......................... VII-169

 Subactivity: Annual Maintenance and Operational Costs............................... VII-173

Activity: National Conservation Lands....................................................................... VII-175

Activity: Challenge Cost Share.................................................................................. VII-181

Activity: Workforce and Organizational Support ........................................................ VII-183

 Subactivity: Administrative Support ............................................................... VII-195

 Subactivity: Bureauwide Fixed Costs............................................................. VII-199

 Subactivity: Information Technology Management ........................................ VII-203

Activity: Mining Law Administration ........................................................................... VII-205

Budget Schedules.....................................................................................................VII-211

VIII. Land Acquisition........................................................................................................VIII-1 

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

Appropriations Language Citations and Authorizations ................................................ VIII-2 

Summary of Requirements ..........................................................................................VIII-4 

Justification of Fixed Costs and Related Changes ....................................................... VIII-5 

Activity: Land Acquisition .............................................................................................VIII-7 

 Subactivity: Land Acquisition............................................................................VIII-9 

Subactivity: Emergencies, Hardships, and Inholdings..................................... VIII-59 

Subactivity: Acquisition Management ............................................................. VIII-60

Budget Schedules......................................................................................................VIII-63

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

Appropriations Language & Citations............................................................................. IX-1 

Authorization.. ...............................................................................................................IX-1 

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

Justification of Fixed Costs and Related Changes ......................................................... IX-6 

Appropriation Description............................................................................................... IX-7 

Activity: Western Oregon Acquisition ........................................................................... IX-15

Activity: Western Oregon Transportation and Facilities Maintenance........................... IX-17 

Subactivity: Annual Maintenance & Operations................................................ IX-19 

Activity: Western Oregon Resources Management...................................................... IX-23
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 Subactivity: Forest Management ...................................................................... IX-25 

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

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

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

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

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

Budget Schedules........................................................................................................ IX-43

X. Range Improvements.................................................................................................... X-1 

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

Appropriations Language Citations and Authorizations ................................................... X-2 

Summary of Requirements ............................................................................................. X-4 

Activity: Range Improvements......................................................................................... X-5 

Budget Schedules........................................................................................................... X-8 

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

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

Appropriations Language Citations and Authorizations ..................................................XI-3 

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

Appropriation: Service Changes, Deposits, and Forfeitures (Indefinite).......................... XI-5 

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

XII. Miscellaneous Permanent Payments ........................................................................XII-1 

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

Explanation...................................................................................................................XII-1 

Authorizations ...............................................................................................................XII-2 

Summary of Requirements ...........................................................................................XII-5 

Appropriation: Miscellaneous Permanent Payments .....................................................XII-6 

2016 Total Payments of BLM Receipts to States and Counties................................... XII-12

Budget Schedules.......................................................................................................XII-13

XIII. Permanent Operating Funds.....................................................................................XIII-1 

Appropriations Language, Explanation & Authorizations .............................................. XIII-1 

Summary of Requirements ..........................................................................................XIII-5 

Appropriation: Permanent Operating Funds................................................................. XIII-7 

Budget Schedules......................................................................................................XIII-17

XIV. Miscellaneous Trust Funds.....................................................................................XIV-1 

Appropriations Language & Citations...........................................................................XIV-1 

Authorizations ..............................................................................................................XIV-2 

Summary of Requirements ..........................................................................................XIV-3 

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

Budget Schedules........................................................................................................XIV-6 
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XV. Helium Fund and Operations...................................................................................XV-1 

Appropriations Language & Explanation .......................................................................XV-1 

Summary of Requirements ...........................................................................................XV-2 

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

Budget Schedules.........................................................................................................XV-5 

XVI. Abandoned Wells Remediation Fund.....................................................................XVI-1 

Appropriations Language & Citations...........................................................................XVI-1 

Summary of Requirements ..........................................................................................XVI-2 

Activity: Abandoned Wells Remediation Fund..............................................................XVI-3 

Budget Schedules........................................................................................................XVI-5 

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

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

 

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

Employee Count by Grade ........................................................................................XVIII-1

BLM Organization Chart............................................................................................XVIII-2 
Executive Summary

 

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Chapter I – Executive Summary Page I-1

EXECUTIVE SUMMARY

The Bureau of Land Management (BLM) manages public lands for the benefit of all Americans. 

Charged by Congress with managing these lands under the dual framework of multiple use and 

sustained yield, the BLM oversees some of the most spectacular landscapes in the West and 

Alaska. Today, the BLM undertakes its mission to maintain the health, diversity, and 

productivity of public lands in an increasingly complex and growing Nation. The BLM is working 

hard to develop new tools and innovative strategies to carry out our longstanding task of 

achieving balanced management of the national public lands.

The BLM’s mandate, laid out in the Federal Land Policy and Management Act of 1976 (FLPMA), 

requires the agency to manage the national public lands for multiple use and sustained yield. 

This mission emphasizes the interconnection and interdependence between people and the 

public lands. It also requires the agency to take into consideration the diversity of interests and 

values associated with the Nation’s natural and cultural resources when making land use 

decisions. This multidisciplinary approach remains one of the BLM’s greatest strengths. 

The 2017 budget request for the BLM positions the agency for success by further strengthening 

the Administration’s commitment to restoring and conserving the Nation’s 65 million acre sagesteppe ecosystem, supporting the safe and effective management of the agency’s oil and gas 

program, making historic investments in the BLM’s National Conservation Lands, and taking a 

proactive approach to better manage the unsustainable proliferation of wild horses and burros 

on western public lands. 

In 2015, the BLM’s update of nearly 70 land use plans across 10 different States, served as the 

critical underpinning for the Fish and Wildlife Service’s (FWS) decision to keep the Greater 

Sage-Grouse off the Endangered Species Act (ESA) list at this time. The Greater Sage-Grouse 

conservation effort is the largest landscape-scale conservation undertaking in U.S. history, and 

resulted from strong and sustained collaboration among State, local, tribal and Federal partners 

and private stakeholders. While this historic collaboration resulted in an outcome celebrated 

across the West, the work of the BLM to implement these plans has just begun. The future of 

sage steppe lands depends on the successful implementation of the Federal and State 

management plans and the actions of private landowners, as well as a continuing focus on 

reducing invasive grasses and controlling rangeland fire. This budget supports the BLM’s longterm commitment to successfully implementing the sage grouse plans.

The BLM made significant progress in 2015 promoting responsible energy development on 

public lands while also managing for a wide range of uses on the 245 million acres managed by 

the agency. The BLM advanced modern safety and production-measurement regulations, 

made progress developing master leasing plans for oil and gas areas, undertook new 

landscape-scale planning efforts to achieve both conservation and energy development goals, 

and made critical investments in technological upgrades to facilitate key aspects of its work. 

This budget includes investments that support the safe and effective management of the 

100,000 oil and gas production wells the BLM is responsible for overseeing and will help bolster 

BLM’s capacity to effectively respond to industry demand and manage the increasing workload 

in its Oil and Gas Management program. 
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This budget also includes historic levels of funding and investment in the BLM National 

Conservation Lands, one of the greatest gifts we can give to future generations. Through 

legislative action and Presidential initiative, special designations for these lands protect 

significant resource values, provide exceptional opportunities for recreation, and make 

significant contributions to local economies. The proposed investments will help ensure that

these legacy lands are managed for the enjoyment of all Americans and preserved in perpetuity.

When the Wild Horse and Burro Act was passed in the 1970s, approximately 25,000 wild horses 

could be found nationwide. Today, the BLM is attempting to manage the 58,000 animals that 

are on the western rangelands – more than twice as many as is sustainable for these areas – 

while also seeking to find homes for the roughly 48,000 horses and burros that have already 

been removed from the range and are living on leased pastures or in corrals. The costs of this 

program are substantial and unsustainable. The agency projects that the cost of caring for a 

horse in a corral facility is nearly $50,000 over the life of the animal, and this situation has 

created very serious challenges to effective cost management. The FY 2017 budget request 

supports new, innovative efforts to secure safe and cost-effective placement for unadopted 

animals, which will work in tandem with more proactive efforts beginning in 2016 to better 

manage the overpopulation problem. In addition to expanding use of contraceptives and spay 

and neuter treatments, the BLM is proposing legislation to better facilitate the transfer of animals 

to other public entities, including local, state, and Federal government agencies. The BLM’s

proactive efforts in 2016 and 2017 are designed to begin addressing the severe overpopulation 

via increased adoptions and better herd management, and will ultimately save money for 

American taxpayers by avoiding the significant costs of holding animals over the long-term.

Once again, the budget request includes a legislative proposal for the formation of a BLM 

Foundation that will help link Americans to their public lands and provide a vehicle for innovative 

public-private partnerships on the wide range of BLM issues and programs. The BLM is the 

Nation’s only large land management agency without a congressionally chartered foundation to 

support its work. 

Bureau Overview

About 9,700 BLM employees manage a vast 

portfolio of public lands and resources 

encompassing 245 million surface acres, 

primarily located in 12 Western States, including 

Alaska, and in scattered tracts east of the 

Mississippi. The BLM also administers 700 

million acres of sub-surface mineral estate 

throughout the Nation, as well as the mineral 

operations and cadastral surveys on 56 million 

acres of Indian trust lands. In total, the BLM is 

entrusted with 13 percent of the Nation’s 

surface land and roughly one-third of its mineral 

resources. 

These public lands serve several important functions. As population growth in the West has 

expanded, the BLM has faced a corresponding rise in public demand for uses such as 

recreation, wildlife observation, and open space. At the same time, the Nation’s public lands 

also provide energy, minerals, forage, forest products, and other goods to a growing Nation. 
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These lands support the production of natural gas, oil, and coal, as well as the solar, wind, and 

geothermal resources that are driving the Nation’s new energy economy. The BLM is a steward 

of the Nation’s public lands, helping to preserve the great American wilderness, protect 

threatened and endangered species, restore valuable habitat, manage forest and rangeland 

fires, preserve historical and paleontological resources, and administer a range of resources 

that benefit a growing economy. In these ways, the BLM’s management efforts contribute to the 

vitality of local economies, and deliver benefits to all Americans. 

As with all great responsibilities, effective public land management also entails considerable 

challenges that the BLM addresses through cooperation and creativity. Collaboration is the 

hallmark of the BLM’s management approach, engaging a wide range of stakeholders and 

communities in all its land management decisions. 

2017 Budget Request

The 2017 BLM budget request for current appropriations is $1.3 billion, $7.1 million above the 

2016 enacted level. The budget proposes $1.1 billion for the Management of Lands and 

Resources appropriation and $107 million for the Oregon and California Grant Lands 

appropriation, BLM's two main operating accounts, which represents a net increase of $2.1 

million over the 2016 enacted level. The change in total program resources for BLM operations 

from 2016 to 2017 is somewhat larger, as the budget proposes offsetting user fees in its 

Rangeland Management and Oil and Gas Management programs which reduce the total 

request by $64.5 million. The budget also proposes $44 million in discretionary funding for Land 

Acquisition, an increase $5.3 million above the 2016 enacted level. 

Recent Department of the Interior (Interior) studies indicate that BLM’s management of the 

public lands provides an outstanding economic return to the American people. For example, 

over 4.36 billion tons of coal were produced from Federal leases with a total value of $61.4 

billion. In 2014,1 activities on BLM managed lands were estimated to contribute $114 billion to 

the Nation's economic output and supported nearly 450,000 domestic jobs through extractive 

and non-extractive uses of those lands.2

This request provides sustainable benefits across the West and for the Nation as a whole. It 

maintains working landscapes for grazing, timber and recreation; it strengthens oversight of 

onshore oil and gas development while providing increased opportunities for developing these 

economic resources; and it protects unique wildlife habitat and ecosystem functions that are 

also essential sources for clean water, clean air, carbon sequestration, nutrient cycling and 

cultural preservation.

Powering Our Future & Responsible Use of the Nation’s Resources – The BLM has 

approved 55 renewable energy projects since 2009, including 32 solar projects, 11 wind farms, 

and 12 geothermal plants, with associate transmission corridors and infrastructure to connect 

with established power grids. These projects represent a total of over 14,500 MWs of capacity 

that could provide power to over 4.9 million homes and support some 24,000 construction and 

operations jobs. These approved projects have also facilitated substantial capital investments 

 

1 The most recent year for which figures are available.

2

Department of the Interior Economic Impact Report, 2014 (page 18)
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by industry in clean energy development. 

Total capital investments for projects that 

have completed construction to date are 

estimated at $8.6 billion. Total potential 

future capital investments for projects that 

are pending construction are estimated at 

28 billion. In addition to solar and wind 

energy, BLM has authorized a total of 48

geothermal projects. 

In 2015, the BLM held 22 oil and gas lease 

sales, generating more than $159 million in 

bonus bids and rental fees. Approximately 

half of this revenue, in addition to royalties, 

goes directly back to the States in which the 

development was located. In addition, BLM’s efforts to modernize its out-of-date oil and gas 

regulations began to take shape in the form of rule proposals and final regulations. 

In addition, in 2015 the BLM published its final rule on hydraulic fracturing. The rule protects 

water quality for communities by establishing standards for well construction and the handling of 

water after it is used in fracturing operations. It also increases public access to information 

about chemicals used and other aspects of the hydraulic fracturing process. The BLM also 

published three proposed rules that update its requirements for the measurement of oil and gas 

extracted from the Nation’s public lands in order to ensure those resources are properly 

accounted for and that all royalties due are paid. Public comments on the proposed rules will be 

taken into account as the final rules are written in 2016.

Six Master Leasing Plans (MLP) were completed in Wyoming and Colorado, and the draft MLP 

for Moab, the first plan in Utah to reach that stage, was published. By providing for more orderly 

development, MLPs will lend more certainty to industry while limiting the number of leasing 

protests and challenges. 

Accordingly, the 2017 budget reflects continued strong support for the Administration’s energy 

goals and further strengthens the management of onshore oil and gas development. This 

budget request proposes a net discretionary increase of $20.1 million above the 2016 enacted 

level to support implementation of oil and gas rules and regulations, make additional 

investments in technology and personnel recruitment and retention to improve program 

management and implementation, and address legacy wells on Alaska’s North Slope. This net 

increase reflects a reduction of $760,000 in the requested appropriation of APD fee revenue 

authorized, but not permanently appropriated, by the National Defense Authorization Act of 

2015. This reduction reflects a projected decrease in APD fees to be collected in 2017.

Since 2000, the BLM has permitted nearly 47,000 new oil and gas wells; however, the agency’s 

role does not end once a well goes into production. The BLM has cradle to grave oversight 

responsibility for each of the approximately 100,000 wells located on the Nation’s public lands. 

This is a significant responsibility and one that the BLM takes seriously to protect the public, the 

environment, and taxpayer interests. The 2017 budget request again proposes an inspection 

fee to cover the costs of performing those functions for industry. The BLM estimates that the 

fee schedule included in the budget will generate $48.0 million in offsetting collections for the 

inspection and oversight program. This proposed fee would bring onshore oil and gas 
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inspections and oversight in line with offshore oil and gas management, where inspection and 

related activities are presently funded through precisely the type of operator fee that the BLM is 

proposing.

In addition to the requested current appropriations and offsetting collections, permanent funds 

are also available to support the Oil and Gas Management program, as authorized by the 

National Defense Authorization Act for 2015. These are shown and discussed in the Permanent 

Operating Funds chapter, as well as in the Oil and Gas Management subactivity. All told, total 

funding resources available to the Oil and Gas Program in 2017 through current appropriations, 

offsetting collections, and permanent appropriations are estimated to be $186.6 million, an 

increase of $27.6 million over the 2016 estimate (the actual increase would be affected by any 

sequestration to permanent funds that may occur in 2017).

The BLM budget request maintains funding for Renewable Energy at essentially the 2016 

enacted level, providing the BLM with the necessary resources to continue to aggressively 

facilitate and support solar, wind, and geothermal energy development. A top priority is the 

continued implementation of the Western Solar Plan, which covers six western States and 

provides for a more efficient and predictable permitting process by focusing development in 

solar energy zones with the highest resource potential and fewest conflicts. Three new projects 

in the Dry Lake Solar Energy Zone in Nevada were approved in 2015. The success of the Dry 

Lake Solar Zone was due in part to a regional mitigation strategy developed prior to the leasing 

of the Dry Lake area. Similar Solar Regional Mitigation Strategies are being developed in 

Arizona, Colorado, and Nevada to encourage further use of solar zones established through the 

Western Solar Plan and to provide for early public input on mitigation needs and requirements. 

Also noteworthy was the release of the Final Environmental Impact Statement for the first phase 

of the Desert Renewable Energy Conservation Plan in November 2015. It was a key part of the 

BLM’s long-term, collaborative effort with the State of California to streamline renewable energy 

development in the California desert while conserving desert ecosystems and promoting 

outdoor recreation opportunities on the 10 million acres of BLM-managed lands there.

The 2017 budget request maintains funding for Coal Management at the 2016 enacted level 

and reduces Other Mineral Resources Management by $1.0 million in anticipation of the 

completion of the Minerals Tracking System. The BLM’s coal program generated about $1.1 

billion in royalties, rents, and bonuses in 2015. The agency also made progress in 2015

implementing reforms designed to provide greater transparency related to the production of coal 

on the public lands. In 2015, the BLM held 5 listening sessions (Washington, DC; Billings, MT; 

Gillette, WY; Denver CO; and Farmington, NM) to provide the public an opportunity to comment 

on the coal program and provide recommendations for enhancement of the program. As a 

result of comments expressed during the listening sessions and recommendations from 

OIG/GAO audits, in January 2016, the Secretary issued a Secretarial Order that places a pause 

on new leasing under the program (with certain limited exceptions) until the BLM completes a 

full programmatic review of the program. A programmatic review of the coal leasing program 

has not been undertaken in more than 30 years. This review will take a careful look at issues 

related to the Bureau of Land Management’s (BLM) administration of the federal coal program.

The BLM’s role in meeting the Nation’s energy needs extends to electric transmission. Across 

the public lands of the West, the BLM facilitates the efficient delivery of energy to meet growing 

demand and address the West’s aging electrical infrastructure, which currently impedes efficient 

energy transmission and inhibits renewable energy development. To continue to support 

necessary upgrades for reliability and increased capacity, the budget request maintains the $5.0 
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Chapter I – Executive Summary Page I-6

million increase enacted in 2016 for in the Cadastral, Lands and Realty Management program. 

This will help the program identify and designate energy corridors for the siting of transmission 

lines and other related infrastructure in an environmentally sensitive manner. This increase 

complements the Secretary’s Powering Our Future initiative.

Greater Sage-Grouse Conservation – In a March 2010 decision, the FWS determined that 

listing the Greater Sage-Grouse under the ESA was “warranted, but precluded.” The FWS 

stated that the BLM was not “fully implementing the regulatory mechanisms available” to ensure 

the species’ conservation. To address those concerns, the BLM initiated a formal land use 

planning process in 2011. 

In 2013, with a $15.0 million 

increase included in its 

Operating Plan, BLM began a 

multi-year effort of

implementing broad-scale 

sage-grouse planning and 

conservation activities. As 

noted above, the BLM’s 

successful update of nearly 70 

land use plans across 10 

different states in 2015 served 

as the critical underpinning for 

the FWS decision to keep the 

Greater Sage-Grouse off the 

Endangered Species List, and 

represents one of the largest 

land conservation undertakings in U.S. history. In a parallel effort, the BLM in April began to 

use a new tool—the Fire and Invasives Assessment Tool (FIAT)—to prioritize efforts to prevent 

and suppress wildfires in sage-grouse habitat in the Great Basin, a region encompassing most 

of Nevada and parts of Utah, Oregon, Idaho, and California. In the 2016 Omnibus Appropriation 

Act, Congress supported a $45.0 million requested increase to allow BLM to begin 

implementation of the new sage grouse conservation plans and ramp up on the ground

restoration and monitoring activities in support of sage-steppe habitat conservation.

Success in sage-grouse conservation will demonstrate the value of planning for conservation 

and development at a landscape level. It will also help demonstrate that working at this level – 

through landscape-level planning, interagency collaboration, and public-private partnerships – 

successful measures can be developed and implemented to effectively recover a species that 

was previously in decline. 

The 2017 budget request includes an additional $14.2 million within Wildlife Management to 

expand BLM conservation efforts for sage-grouse habitat. Integral to the success of this effort is 

a $5.0 requested increase to support implementation of the recently released National Seed 

Strategy. With these requests, BLM’s resources dedicated to sage-grouse conservation will 

total $79.2 million and represent a critical investment in preserving Western values and 

economies. The BLM unveiled the first-ever National Seed Strategy for Rehabilitation and 

Restoration in August 2015. Developed in coordination with the Plant Conservation Alliance, 

the Chicago Botanic Garden, the U.S. Department of Agriculture, western states, and many 

other partner organizations, the strategy aims to ensure that the right seed gets to the right 
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Chapter I – Executive Summary Page I-7

places at the right time. The strategy will also guide ecological restoration efforts and make 

treated lands more resilient to fires, invasive species, and drought. The BLM is requesting $5.0 

million to aggressively implement the National Seed Strategy, which will increase the native 

seed inventory and supply through 1,500 seed collections; engage youth to become the next 

generation of land stewards by training them to locate and harvest native seed; clean and store 

native seed in long-term conservation seed banks; identify areas for important native plants to 

ensure field reserves of target species; and engage federal procurement officers and native 

seed producers to analyze procurement procedures and facilitate improved Federal access to 

native seed markets.

The BLM will continue implementing new methods to measure and track the effectiveness of its 

conservation efforts for the Greater Sage-Grouse. The BLM will create measurable objectives 

for habitat management, use common criteria that can be shared with partner agencies, and 

use unbiased measures to assess and publicly report on the outcomes of mitigation. In the 

Great Basin alone, there are 17 million acres of sage-grouse habitat at risk of loss due to 

changing climate, drought, wildfire, and invasive grasses. The BLM manages about 13 million 

of those acres. The BLM’s ability to assess and monitor the results of conservation efforts 

across these large landscapes is crucial and is also consistent with a commitment to use 

adaptive management as a means of ensuring that investments in sage grouse conservation 

are effective and efficient. The importance of having accurate ongoing data and information 

extends to the Rocky Mountain region, where development pressure is greatest. 

Building a Landscape-Level Understanding of Our Resources – Understanding and 

responding to the impacts of a changing climate is an Administration priority, one in which the 

BLM plays a critical role as both the Nation’s largest land manager and a partner with States, 

Tribes, local governments, and private stakeholders. Climate change is already altering the 

structure and function of 

ecosystems, changing the 

distribution and abundance of 

plants and animals, and in many 

cases limiting the ability of lands 

and waters to provide sustainable 

ecological services to communities. 

As average temperatures rise due 

to climate change, droughts are 

increasing, wildfire is more frequent 

and catastrophic, snowpack is 

declining, water supplies are 

diminishing in key areas of the 

West, and Arctic permafrost is 

thawing in Alaska. Collectively, 

these changes are creating 

challenges, as well as 

opportunities, on the national 

landscape. 

Landscapes are large, connected geographical regions that have similar environmental 

characteristics, such as the Sonoran Desert or the Colorado Plateau. Because the issues 

affecting them are not bound by political or jurisdictional boundaries, the BLM is moving towards 

implementation of a landscape-scale management approach to better understand these 
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Chapter I – Executive Summary Page I-8

challenges and support balanced stewardship of the diverse natural resources of the public 

lands. 

To achieve this goal, the BLM recently began an effort to connect two important initiatives that 

are critical to the agency’s success: Rapid Ecoregional Assessments (REAs) and a landscape 

approach for managing public lands. These initiatives are designed to help BLM managers and 

stakeholders, both public and private, understand environmental conditions and trends from a 

broader landscape perspective and to use this information to inform, focus, and coordinate 

management efforts on-the-ground. The REAs provide a science-based information platform for 

formulating coordinated, multi-agency strategies that can respond effectively to climate change, 

wildfire, and other environmental challenges that transcend local administrative boundaries. 

Since 2010, the BLM has launched 15 REAs to improve the understanding of the existing 

condition of these landscapes and anticipate how they might change. In 2017, the BLM will 

continue to release REAs and their underlying maps and data for public use. The most recent 

assessment covers nearly 15.7 million acres of the Madrean Archipelago located mostly in 

southeastern Arizona. A newly revised public data portal contains maps and other information 

associated with BLM’s REAs and other landscape-scale initiatives. 

In 2015, the BLM also began a review aimed at creating a more dynamic and durable way of 

developing the Resource Management Plans (RMPs) that guide its efforts. Public involvement 

early in the planning process is the key to this improved approach, called Planning 2.0. 

Through this effort the BLM hopes to improve its land-use planning process so that it can more 

effectively plan across landscapes and be more responsive to environmental and social change. 

This approach will create a more dynamic, durable, and efficient planning process that can 

better honor the valuable contributions made by the public; non-government organizations; 

industry; and our partners from State; tribal, and local governments; as well as other Federal 

agencies. 

Informed decision making and adaptive management require current data about the status and 

trend of terrestrial and aquatic systems and about the location and extent of natural and humancaused disturbances. The BLM’s Assessment, Inventory, and Monitoring (AIM) Strategy 

provides the framework for consistent data collection and application of field-based AIM 

protocols. The 2017 budget request includes an increase of $4.3 million to facilitate and expand 

implementation of the AIM strategy, which is central to meeting commitments outlined in the 

Greater Sage-Grouse land use plans, Secretary Jewell’s landscape mitigation strategy, and 

other initiatives. 

The budget request also includes a $6.9 million increase in Resource Management Planning, 

Assessment, & Monitoring to support implementation of the BLM’s geospatial strategy. The 

BLM’s Enterprise Geospatial Information System (EGIS) aggregates and displays data across 

boundaries to capture ecological conditions and trends; natural and human influences; and 

opportunities for resource conservation, restoration, development, and partnering. The BLM 

geospatial proposal is integrated within the Department’s growing enterprise GIS capabilities 

and serves as a critical component of the Department’s corporate geospatial strategy.

The BLM has been the lead for the United States for the period of 2013-2017 on the Arctic 

Council’s Conservation of Flora and Fauna Working Group (CAFF) Circumpolar Biodiversity 

Monitoring Program (CBMP), which coordinates living resource monitoring among an 

international network of scientists, government agencies, indigenous organizations, and 
Bureau of Land Management 2017 Budget Justifications

Chapter I – Executive Summary Page I-9

conservation groups. For FY 2016, the Terrestrial, Marine, and Freshwater monitoring plans 

are underway, and the U.S. and Canada are leading the newly established coastal monitoring 

plan. 

During fiscal year 2017, BLM will continue to support the North Slope Science Initiative (NSSI), 

an intergovernmental effort to increase collaboration at the local, State, and Federal levels to 

address research, inventory, and monitoring on the North Slope of Alaska. BLM will pursue 

scenario planning for energy and resource extraction development on the North Slope of Alaska 

and in the offshore environments of the Chukchi and Beaufort Seas in coordination with the 

Bureau of Ocean Energy Management, the State of Alaska, the North Slope Borough, and other 

local, regional, and national stakeholders. The project will help decision makers prioritize 

monitoring and research needed to address a variety of emerging issues: weather and climate, 

increasing marine activity, permafrost, coastal and riverine erosion, hydrology and lake drying, 

coastal salinization, contaminants, fire regime, and vegetation changes. 

Celebrating and Enhancing America’s Great Outdoors – Lands managed by the BLM are 

vital to connecting Americans to outdoor opportunities. Getting Americans outdoors and onto 

their national public lands helps preserve the social fabric of the Nation, bond families across 

generations, and preserve the character of the rural American West. In 2014, 61 million 

recreational visits to the national public lands generated $5.48 billion in economic outputs, and 

supported almost 42,000 jobs3

. However, financial investment in the Recreation and Visitor 

Services program has not kept pace with the growing recreation-related demands on BLM 

lands. In 2017, the BLM would use additional funding of $2.0 million in Recreation Resources 

Management to implement the 

national recreation strategy and the 

widely shared goals of improving 

recreation access – including access 

to information, engaging youth, 

promoting healthy lifestyles, 

increasing tourism, improving the 

economies of our rural communities, 

and providing for better planning 

across landscapes and jurisdictions. 

The BLM recreation program will 

expand a multi-year, integrated effort 

to considerably expand its geospatial 

data collection, validation, and 

sharing capabilities – both internally 

and externally.

The 2017 President’s Budget request for the BLM includes a $13.6 million increase for the 

National Conservation Lands, bringing program funding to a historic $50.1 million level in the 

year following its 15th anniversary. Resources will address high priority needs in national 

monuments and national conservation areas, including developing management plans for 

recently designated units, and developing and implementing travel management plans for highuse areas. 

 

3

Department of the Interior Economic Impact Report, 2014 (page 18)
Bureau of Land Management 2017 Budget Justifications

Chapter I – Executive Summary Page I-10

A strong commitment to conservation on the public lands also means proactive management of 

the cultural and paleontological resources that reside there. America’s cultural resources 

embody a rich heritage of human experiences, architectural achievements, and cultural 

identities. The BLM manages the largest, most diverse and scientifically important collection of 

heritage resources in North America. Through the Cultural Resources Management Program, a 

proposed $1.1 million increase will enhance the BLM’s capacity to preserve and protect these 

vast heritage resources, moving from a compliance-driven support program to one that is more 

capable of addressing large-scale, cross-jurisdictional projects. Currently, only 10 percent of 

BLM lands have completed cultural resource inventories. 

The 2017 budget also includes increases for programs funded through the Land and Water

Conservation Fund, a vital component of the America’s Great Outdoors initiative. The 2017 

budget proposal includes a total of $88.7 million for BLM Federal land acquisition, including 

$44.0 million in requested discretionary appropriations and $44.8 million in permanent funding. 

Offsetting Collections for Grazing – The BLM proposes to begin a pilot project to cover a 

portion of the costs of grazing permit renewals through proposed grazing administration fees. A 

fee of $2.50 per animal unit month is estimated to generate $16.5 million in fee collections in 

2017, offsetting a decrease of $16.5 million in the request for appropriations.

The tables below summarize the BLM’s 2017 Budget Request and available permanent 

appropriations by major appropriation account:
Bureau of Land Management 2017 Budget Justifications

Chapter I – Executive Summary Page I-11

vs. 2016 Request

Management of Lands & Resources 973,819 1,072,675 +2,870 1,075,545 

Grazing Administration Mgt (offsetting collections)* - - +16,500 16,500 

Mining Law Administration* 39,696 39,696 +0 39,696

Oil & Gas Permit Processing (offsetting collections)* 28,697 - +0 -

Onshore Oil & Gas Inspection Activities (offsetting colle - - +48,000 48,000

Communication Site Management^ 2,000 2,000 +0 2,000

Management of Lands & Resources, Before Offsets 1,044,212 1,114,371 +67,370 1,181,741 

Offsetting Collections † -70,393 -41,696 -64,500 -106,196

Management of Lands & Resources 973,819 1,072,675 +2,870 1,075,545 

Oregon and California Grant Lands 113,777 107,734 -749 106,985 

Land Acquisition• 19,746 38,630 +5,329 43,959 

Service Charges, Deposit, & Forfeitures‡ 28,070 31,050 +0 31,050

Offsetting Collections -28,070 -31,050 +0 -31,050

Total, Service Charges, Deposits & Forfeitures +0 +0 +0 +0

Total, Current Discretionary 1,107,342 1,219,039 +7,450 1,226,489 

 Range Improvements◊ 9,270 9,320 +680 10,000 

Total, Current Mandatory, Federal Funds 9,270 9,320 +680 10,000 

Total, Current, Federal Funds 1,116,612 1,228,359 +8,130 1,236,489 

 Miscellaneous Trust Funds, Current Portion‡Δ◊ 21,972 24,000 -1,070 22,930 

Current Mandatory, Contributed Funds 21,972 24,000 -1,070 22,930 

Total, Current Appropriations 1,138,584 1,252,359 +7,060 1,259,419 

Δ Contributed amounts authorized to be collected under Section 307(c) of FLPMA (43 USC 1701).

 Current Appropriations 

(in $000) 2015 Actual 2016 

Enacted 

2017 President's Budget

*Direct budget authority for program activities appropriated within the Management of Land and Resources Account, but offset through 

collections (See Offsetting Collections line).

^Available budget authority, up to the amount shown, derived from offsetting collections from communication site rental fees.

†Amount for fiscal years 2015 through 2017; includes estimates of offsetting collections for direct spending authority for program activities:

Annual Maintenance (currently $155/claim) and Location Fees (currently $37/claim) for Locatable Minerals offsetting Mining Law Administration,

Application for Permit to Drill (APD) Fees ($6,500/ADP) offsetting Oil & Gas Permit Processing in 2015 (changed to permanent funding 

beginning in 2016),

Communication Site rental fees offsetting Communication Site Management,

Onshore oil and gas inspection fees proposed in this request offsetting Onshore Oil & Gas Inspection & Enforcement, and

A $2.50 per animal unit month administrative fee proposed in this request offsetting Grazing Administration Management.

‡Shown as estimated amounts for fiscal years 2016 and 2017; Authority to spend collections appropriated annually; budget authority created 

when collections are recognized. Collections authorized by the Federal Land Policy and Management Act of 1976 (FLPMA), as amended (43 

USC 1735), and the Mineral Leasing Act of 1920, as amended by the Trans-Alaska Pipeline Act of 1973 (30 USC 185).

◊ 2015 and 2016 amounts include sequesters of 7.3% and 6.8% respectively, pursuant to Section 254 of the Balanced Budget and Emergency 

Deficit Control Act of 1985, as amended.
Bureau of Land Management 2017 Budget Justifications

Chapter I – Executive Summary Page I-12

Administration Management Initiatives

Supporting the President’s Management Agenda - The President’s Management Agenda 

seeks to improve the way that government works and delivers for citizens. The BLM has been 

particularly focused on delivering world-class customer service to citizens by making it faster 

and easier for individuals and businesses to complete transactions and have a positive 

experience with government, including through the use of electronic permitting (“e-permitting”).

Within the Oil & Gas Management program, the BLM is deploying a redesigned Automated 

Fluid Minerals Support System (AFMSS) in order to further improve its review processes and 

provide the latest tools to help facilitate the program’s other important oversight responsibilities. 

The first module automates all of the internal and external processes for submitting and 

processing Notices of Staking (NOS) and Applications for Permit to Drill (APD) for Federal and 

Indian oil and gas resources. This module automates the process from the time the operator 

submits the NOS or APD, through the required BLM reviews, to the BLM’s final decision on the 

applications. The system will provide enhanced reporting capabilities that will allow the BLM to 

better track the NOS/APD through the process, identify bottlenecks, and provide increased 

transparency and accountability to external users.

vs. 2016 Request

Miscellaneous Trust Funds, Permanent Portion◊ 1,505 2,220 +0 2,220

Permanent Operating Funds◊ 128,547 167,033 -5,706 161,327 

Abandoned Well Remediation Fund 33,372 - +0 -

Miscellaneous Permanent Payment Accounts 52,521 50,829 -37,056 13,773 

Land Acquisition - - +44,818 44,818 

Helium Fund 46,747 26,975 -1,321 25,654 

Helium Fund Offsetting Collections -46,747 -26,975 +1,321 -25,654

Total, Permanent Funds 215,945 220,082 +2,056 222,138 

vs. 2015 Request

Fulltime Equivalents (FTEs) 9,451 9,641 +86 9,727

◊ 2015 and 2016 amounts include sequesters of 7.3% and 6.8% respectively, pursuant to Section 254 of the Balanced Budget and Emergency 

Deficit Control Act of 1985, as amended.

 Permanent Appropriations 

(in $000) 2015 Actual 2016 Enacted 

2017 President's Budget

Employees 2015 Actual 2016 

Enacted 

2017 President's Budget

Note: The 2016 and 2017 amounts for Permanent Operating Funds in this table are updated from the estimates in the Appendix, Budget of the 

United States Government, Fiscal Year 2017. 

Note: The 2016 and 2017 FTE are updated from the estimates included in the Appendix, Budget of the United States Government, Fiscal Year 

2017. The 2016 and 2017 estimates reflected above are eleven less than reflected in the Appendix, but accurately reflect the FTE associated 

with the budget.

 2015 amount includes 7.2% sequester of payments to States and Counties pursuant to Section 254 ofthe Balanced Budget and Emergency 

Deficit Control Act of 1985, as amended, except for Secure Rural Schools and Community Self-Determination Act payments authorized to be 

made in 2015 and 2016 to Oregon & California Grant Lands and Coos Bay Wagon Road counties under Public Law 113-40.

Note: The Helium Stewarship Act of 2013 does not authorize further appropriations to the Abandoned Well Remediation Fund until FY 2019, and 

the 2015 amount reflects sequestration of 7.3%.

Note: Does not include the BLM Working Capital Fund, nor the offsetting collections of that fund.
Bureau of Land Management 2017 Budget Justifications

Chapter I – Executive Summary Page I-13

The new APD module will enhance and eventually replace the current capabilities of the Well 

Information System (WIS) and the functionality of the current AFMSS system by automating 

workflows and having all data in electronic format. To date, the NOS/APD module has been 

implemented in 9 offices within 5 states that receive approximately 90% of the NOS/APD 

requests. The remaining BLM offices will be brought online throughout 2016. The NOS/APD 

module is the first of many that will include processing of Sundry Notices, additional reporting, 

and automation of inspections using mobile applications.

With respect to APDs, the goal of e-permitting is to continue to reduce the time spent with the 

operators fine-tuning and completing the field data required for proper surface and downhole 

technical analysis. The BLM continues to experience challenges in the permit approval 

process, and the level of analysis has grown to match the complex and sophisticated horizontal 

well completions that BLM increasingly deals with. The BLM anticipates an improvement in 

processing time and overall greater program efficiency as a result of implementing this new 

system.

The BLM also continues to pursue shared services and common infrastructure, facilitate agency 

collaboration and co-funding, and implement innovative approaches to resource management. 

The BLM's IT Transformation initiative will continue to achieve savings through labor reductions, 

consolidation of infrastructure staff, servers and data center closures, contract consolidations 

and the promotion of mobility which will allow us to reduce our overall footprint.
Bureau of Land Management 2017 Budget Justifications

Chapter I – Executive Summary Page I-14

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Summary of Program 

and Legislative Changes

Bureau of Land Management 2017 Budget Justifications

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

SUMMARY OF PROGRAM AND 

LEGISLATIVE CHANGES

Fiscal Year 2016 Enacted $ 1,252,359

2017 Fixed Costs +3,181

Program Change +3,879

America's Great Outdoors

+1,075

+2,039

+13,651

Sage-grouse Conservation

+14,150

Land Acquisition - America's Great Outdoors

+5,287

Powering Our Future

+15,227

+2,576

Oil & Gas Management - Alaska Legacy Wells +2,811

Oil & Gas Permit Processing - Updated Fee Estimate -760

-48,000

Other Mineral Resources - Mineral Tracking System -1,000

Applied Science

Resource Management Planning, Assessment, and Monitoring - Assessment Inventory Monitoring +4,300

+6,916

+5,700

Rangeland Management

-16,500

Western Oregon

-1,000

Enhancing Core Capability

+983

+1,463

Other Program Changes

+641

-572

Wildlife Management - National Seed Strategy +5,000

Alaska Conveyance - Streamline Conveyance Process -4,780

-251

-4,049

Deferred Maintenance & Capital Improvements - DOI Southwest Border Radio Initiative +1,775

Challenge Cost Share - Program Elimination -2,413

Range Improvements - Enhance Core Capability +680

Miscellaneous Trust Fund (Current) -1,070

Fiscal Year 2017 President's Budget Request, Direct Appropriations $ 1,259,419

BUREAU OF LAND MANAGEMENT

Cultural Resources Management - Safeguarding Our Irreplaceable Heritage

Recreation Resources Management - Improve Accessiblity

National Conservation Lands - New Designations and Enhanced Operations

BUDGET REQUEST SUMMARY 

(dollars in thousands)

Wildlife Management - Implementation of Greater Sage-Grouse Conservation Plans

Hazardous Materials Management - General Program Decrease

Deferred Maintenance & Capital Improvements - General Program Decrease

Resource Management Planning, Assessment, and Monitoring - High-Priority Planning Efforts

Oil & Gas Inspection Activities - Shift Cost to Fees

Wild Horse & Burro Management - General Program Decrease

O&C Resources Management, Planning, Assessment, and Monitoring - Anticpated Plan Completion

Soil, Water, & Air Management - Enhance Core Capability

Riparian Management - Enhance Core Capability

Soil, Water & Air Management - National Mitigation Team

Rangeland Management - Shift Costs to Fee

Land Acquisition - High-Priority Projects

Oil & Gas Management - Strengthening Oil and Gas Oversight and Systems AFMSS II

Oil & Gas Management - Oil & Gas Special Pay

Resource Management Planning, Assessment, and Monitoring - Enterprise Geospatial System
Bureau of Land Management 2017 Budget Justifications

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

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

changes and management efficiencies in the BLM’s 2017 budget. 

Fixed Costs

Fixed Costs Increases (+$3,181,000/+0 FTE) – Requested fixed cost increases include costs 

such as planned pay increases, space rental costs, retirement system costs, health plan costs, 

workers compensation costs, unemployment compensation costs, and specified Department of 

the Interior costs funded through the Department’s Working Capital Fund.

America’s Great Outdoors

Cultural Resources Management - Safeguarding Our Irreplaceable Heritage 

(+$1,075,000/+0 FTE) – The 2017 budget request includes a program increase of $1.1 million 

that will be focused on inventory strategies to collect baseline heritage resource data and 

enhance geospatial modeling efforts to support planning and resource management at a 

landscape scale. Ten percent of the public lands have been surveyed for heritage resources, 

largely conducted for land-use compliance, resulting in databases containing considerable 

information on high-development areas, and less information on other areas. To better 

understand the nature and extent of resources and inform predictive modeling, BLM will conduct 

baseline inventory in priority areas vulnerable to climate change, fire, looting, and vandalism. 

To further incorporate management of heritage resources in the landscape approach, BLM will 

synthesize and analyze available information at a broad scale to produce high-level, 

comprehensive, regional overviews and sensitivity maps critical for evaluating resources and 

planning at different scales.

Recreation Resources Management - Improve Accessibility (+$2,039,000/+3 FTE) – The 

2017 request includes an increase of $2.0 million to implement the national recreation strategy 

and the widely shared goals of improving recreation access – including access to information, 

engaging youth, promoting healthy lifestyles, increasing tourism, improving the economies of 

our rural communities, and providing for better planning across landscapes and jurisdictions. 

The BLM recreation program will expand a multi-year, integrated effort to considerably expand 

its geospatial data collection, validation, and sharing capabilities – both internally and 

externally. Expansion of our partnership capacity to leverage staffing so that we can move into 

the future of data collection, validation and management, and increase our ability to share 

information is critical.

 

National Monuments and National Conservation Areas - New Designations and Enhanced 

Operations (+$13,651,000/+30 FTE) – The 2017 budget request includes an increase of $13.7 

million to support critical resource protection and maintenance work on the National 

Conservation Lands. This investment addresses some of the system’s most basic infrastructure 

and maintenance needs, including signs and kiosks, campground benches, larger trash 

dumpsters, bathroom facilities, and new access-point facilities needed to ensure the public 

health and safety of visitor centers. Funding for the visitor centers will accommodate public 

demand for increased hours of operation, program offerings and greater accessibility to National 

Conservation Lands. Additional priority efforts include eradicating invasive plants that 

jeopardize native species and contribute to unnatural and increasingly difficult-to-manage fire 

regimes; protecting equipment investments from weather; conducting inventories of the worldclass and often endemic resources, objects, and values for which each unit was designated; 
Bureau of Land Management 2017 Budget Justifications

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

and implementing the provisions of the resource, science and travel management plans that the 

agency develops in cooperation with States, Tribes, local governments, partners and the public. 

The increase also supports critical staff positions, including dedicated unit managers, essential 

resources specialists, outdoor recreation planners, partnership/volunteer/youth coordinators, 

law enforcement, and seasonal park and river rangers needed to staff visitor centers and 

manage the multiple uses and unique conservation values of the units. Funds will allow the 

program to support the Secretary’s youth initiative and implement priority restoration work.

Sage-grouse Conservation

Wildlife Management - Implement Sage-Grouse Conservation Plans (+$14,150,000/+12 

FTE) – The 2017 budget request includes additional funding to implement actions to reduce 

threats to Greater Sage-Grouse habitats across the 10 Western States. A multi-year program of 

work for habitat restoration projects and treatments describes implementation, monitoring and 

reporting on the BLM’s investment in Greater Sage-Grouse conservation. As BLM continues 

implementing the 68 sage grouse plans, new information and challenges have identified further 

needed investments to keep plan implementation on schedule. For example, over the past 

year, BLM's Fire and Invasives Assessment Tool identified an additional 13.1 million acres of 

high priority habitat that need to be treated to prevent and suppress wildfires and control the 

spread of invasive species. To meet these and other needs, the 2017 budget includes an 

increase of $14.2 million for sage grouse protection, primarily supporting more on-the-ground 

vegetative treatments to protect, improve, or restore sage steppe habitat. Funds will also assist 

States in implementing their own GSG conservation plans. 

The Greater Sage-Grouse plans provide a landscape-scale approach to protecting and 

conserving Greater Sage-Grouse and its habitat. The plans seek to limit or eliminate additional 

disturbance as well as target habitat improvements to the most important areas. In addition to 

establishing protective land use allocations, the plans implement a suite of management 

actions, such as the establishment of disturbance limits, Greater Sage-Grouse habitat 

objectives, mitigation requirements, monitoring protocols, and adaptive management triggers 

and responses, as well as other conservation measures on over 60 million acres of Greater 

Sage-Grouse habitat on BLM-managed lands. Effective implementation will require a sustained 

effort by the BLM for many years. 

Land Acquisition – America’s Great Outdoors

Landscape Acquisition Projects: High Priority Projects (+$5,287,000/+0 FTE) - In 2017, the 

BLM will acquire high priority acquisition projects in the core and collaborative landscape 

planning land acquisition programs. The 2017 core program is $13.1 million and will fund nine of 

BLM’s highest priorities. The collaborative landscape planning component builds on efforts 

begun in 2011 to invest strategically in interagency landscape-scale conservation projects while 

continuing to meet bureau-specific programmatic needs. The Department of the Interior and the 

U.S. Forest Service (USFS) collaborated extensively to develop a process to more effectively 

coordinate land acquisitions with government and local community partners to achieve the 

highest priority shared conservation goals. The 2017 request includes a total of $19.2 million for 

five collaborative landscapes consisting of 12 projects. Within this total, the BLM includes $9.0

million for the High Divide landscape, $3.0 million for the Rivers of the Chesapeake landscape, 

$2.0 million for projects that are part of the National Trails System landscape, $412,000 for the 

Florida-Georgia Longleaf Pine landscape and $4.8 million for the Pathways to the Pacific 
Bureau of Land Management 2017 Budget Justifications

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

landscape. The 2017 request also includes a total of $8.0 million to benefit 

Sportsmen/Recreational access, level with the 2016 enacted level.

Permanent Appropriation: Permanent Land Acquisition – The Department of the Interior will 

submit a legislative proposal to permanently authorize annual funding, without further 

appropriation or fiscal year limitation, for the Land and Water Conservation Fund (LWCF). Starting 

in 2018, $900 million annually in permanent funds would be available. During the transition to full 

permanent funding in 2018, the budget proposes $900 million in total LWCF funding in2017, 

comprised of $500 million in permanent and $400 million discretionary funds. The amounts 

requested include the authorized levels for the Department of the Interior and the Department of 

Agriculture.

Powering Our Future

Oil and Gas Management - Strengthening Oil and Gas Oversight and System AFMSS II 

(+$15,227,000/+25 FTE) – The 2017 budget request includes an increase of $15.2 million 

(estimated in the Economic and Threshold Regulatory Impact Analysis (RIA)) to implement new 

oil and gas measurement and site security regulations and other regulations. These new oil and 

gas measurement regulations set appropriate standards, based upon current technology, to 

ensure that operators accurately measure, properly report, and account for production. The 

funding will also support: more effective implementation of existing oil and gas regulations; 

implementation of the recently finalized hydraulic fracturing regulations and currently pending 

natural gas venting and flaring regulations expected to be finalized and released in FY 2016; 

and continued support for development of additional modules of the AFMSS II database. 

Oil and Gas Management - Oil & Gas Special Pay (+$2,576,000/+0 FTE) – The 2017 budget 

request includes an increase of $2.6 million to provide up to a 35 percent pay increase for 

employees in five critical occupational series that are funded through the Oil and Gas program.

Oil and Gas Management - Alaska Legacy Well Remediation (+$2,811,000/+0 FTE) – The 

2017 budget requests an increase of $2.8 million to address legacy well remediation within the 

National Petroleum Reserve in Alaska (NPR-A). This funding will augment the existing $1.0 

million annual base funding provided to BLM Alaska as well as the permanent funding 

authorized by the Helium Stewardship Act of 2013 for legacy well remediation.

Oil and Gas Permit Processing from Fees (net change of -$760,000/-0 FTE) – The 2017 

request reflects a projected decrease in APD fees collected in 2017. The National Defense 

Authorization Act of 2015 amended the Mineral Leasing Act to authorize APD fees in 2016 

through 2026, and to permanently appropriate the majority of these fees. For fiscal years 2016 

through 2019, the NDAA permanently appropriates only 85 percent of the fee revenues, leaving 

the other 15 percent of fee revenues subject to future appropriation. The proposed reduction of 

$760,000 represents 15 percent of the projected reduction in total APD fees collected in 2017.

Oil and Gas Inspection Activities(-$48,000,000/-295 FTE) – The 2017 budget proposes to 

institute new onshore oil and gas inspection fees to cover the costs of BLM’s inspection 

activities and reduce the net cost to taxpayers of operating BLM’s oil and gas inspection 

program. The fees are similar to those already in place for offshore operations. Such authority 

will reduce the net costs to taxpayers of operating BLM’s oil and gas program and allow BLM to 

be more responsive to industry demand and increased inspection workload in the future while 

reducing the need for current appropriations that could be directed toward other priority 
Bureau of Land Management 2017 Budget Justifications

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

programs. Below is language included in the 2017 President’s Budget to authorize the onshore 

inspection fees:

ONSHORE OIL AND GAS INSPECTION FEES

SEC. 114. (a) In fiscal year 2017, the designated operator of each lease on 

Federal or Indian lands, or each unit and communitization agreement that 

includes one or more Federal or Indian leases, that is subject to inspection under 

30 U.S.C. 1718(b), and that is in force at the start of fiscal year 2017, shall pay a 

nonrefundable inspection fee that the Bureau of Land Management (BLM) shall 

collect and deposit in the "Management of Lands and Resources" account.

(b) Fees for 2017 shall be: (1) $700 for each lease or unit or communitization 

agreement with no active or inactive wells, but with surface use, disturbance or 

reclamation; (2) $1,225 for each lease or unit or communitization agreement with 

1 to 10 wells, with any combination of active or inactive wells; (3) $4,900 for each 

lease or unit or communitization agreement with 11 to 50 wells, with any 

combination of active or inactive wells; and (4) $9,800 for each lease or unit or 

communitization agreement with more than 50 wells, with any combination of 

active or inactive wells. (c) BLM will bill designated operators within 60 days of 

enactment of this Act, with payment required within 30 days of billing. (d) If the 

designated operator fails to pay the full amount of the fee as prescribed in this 

section, BLM may, in addition to utilizing any other applicable enforcement 

authority, assess civil penalties against the operator under 30 U.S.C. 1719 in the 

same manner as if this section were a mineral leasing law as defined in 30 

U.S.C. 1702(8).

Other Mineral Resources Management - Mineral Tracking System (-$1,000,000/+0 FTE) – 

The 2016 enactment included increased funding in the Other Minerals Resources Management 

program and the Coal Management program to develop the Mineral Tracking System (MTS). 

The BLM anticipates making substantial progress in the development of the MTS in FY 2016. 

The 2017 budget request eliminates this increase to focus on the program’s primary objectives. 

Applied Science

Resource Management Planning, Assessment, and Monitoring - Assessment, Inventory, 

& Monitoring (+$4,300,000/+3 FTE) – The 2017 budget request includes an increase of 

$4,300,000 to develop assessment and monitoring protocols using core indicators, standardized 

field methods, remote sensing, and a statistically valid study design to provide nationally 

consistent and scientifically defensible information. These protocols will be used to meet the 

monitoring commitments made during the Greater Sage-Grouse Conservation effort. These 

commitments include gathering information on terrestrial and aquatic site condition, ecological 

sites, special status species, vegetation treatments, disturbance of the public lands, fire, and 

land uses.

Resource Management Planning, Assessment, and Monitoring - Enterprise GIS 

(+$6,916,000/+0 FTE) – The budget request includes a $6.9 million increase in Resource 

Management Planning to support the deployment of the Enterprise Geographic Information 

System (EGIS), which is critical to help the BLM make a generational leap forward in its 

geospatial capabilities. The EGIS will support the adoption and implementation of core 
Bureau of Land Management 2017 Budget Justifications

Chapter II – Summary of Program & Legislative Changes Page II-6

indicators, standardization of data and collection methods, and the digitization of legacy data for 

inclusion in decision-making analyses.

Resource Management Planning, Assessment, and Monitoring - High Priority Planning 

Efforts (+$5,700,000/+0 FTE) – The BLM is requesting an increase of $5.7 million to support 

high-priority planning efforts that could include the initiation of new plan revisions in 2017, as 

well as plan evaluations and implementation strategies. Resource management plans provide 

the basis for every BLM management action. Keeping them current in an era of rapidly 

changing resource use and demands, such as in energy, changing ecological conditions, 

continued population growth, and increasing recreation use on the public lands is a high priority.

Rangeland Management

Grazing Permit Issuance/Shift Cost to Fees (-$16,500,000/-85 FTE) – The budget proposes 

to shift a portion of the costs of issuing and managing grazing permits from appropriated funds 

to fees. 

Permit Administrative Processing Fee (+$16,500,000/+85 FTE) – The 2017 budget includes 

appropriations language for a three-year pilot project to allow the BLM to recover some of the 

costs of issuing grazing permits/leases on BLM lands. The BLM would charge a permit 

administrative fee of $2.50 per Animal Unit Month, which would be collected along with current 

grazing fees. The budget estimates the permit administrative fee will generate $16.5 million in 

2017 and the fees will be used for monitoring, land health evaluations, and completing NEPA 

and other legal and regulatory requirements fro processing grazing permit applications.. During 

the period of the pilot, the BLM will promulgate regulations for the continuation of the 

administrative fee as a cost-recovery fee, to be in place once the pilot expires. Below is 

language included in the 2017 President’s Budget to authorize the grazing administration fees:

SEC. 417. In fiscal year 2017, beginning on March 1, 2017, and only to the 

extent and in the amount provided in advance in appropriations Acts, the 

Secretary of the Interior shall collect an administrative fee to offset the increased 

cost of administering the livestock grazing program on public lands managed by 

the Bureau of Land Management by charging $2.50 per Animal Unit Month, 

which shall be billed, collected, and subject to the penalties using the same 

process as the annual grazing fee in 43 C.F.R. 4130.8–1. Penalties assessed 

shall be deposited in the General Fund of the Treasury. Nothing in this provision 

affects the calculation, collection, distribution, or use of the grazing fee under 43 

U.S.C. 315–315rr, 43 U.S.C. 1751(b), 43 U.S.C. 1905, Executive Order 12548, 

or administrative regulation.

Western Oregon

O&C Resource Management Planning - Anticipated Plan Completion (-$1,000,000/+0 FTE)

– By July 2016, the BLM plans to issue 2 revised Resource Management Plans (RMPs) and 2 

Records of Decision (RODs) for western Oregon O&C lands: A Northwest Oregon RMP for the 

moist forests and a Southwest Oregon RMP for the drier forests. These RMPs were initiated in 

March of 2012 and will replace the six 1995 RMPs for western Oregon. As the final 

environmental impact statements are released and decisions are signed, the program’s 

emphasis will be to support plan implementation with continued collaboration both internally and 

externally. 
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Chapter II – Summary of Program & Legislative Changes Page II-7

Enhancing Core Capability

Soil, Water & Air Management - Enhance Core Capability(+$983,000/+3 FTE) – To support 

monitoring and analysis of soil, water and air resources needed to implement a landscape 

management approach, including 1) ecological site descriptions supporting land health 

treatments, 2) adaptation strategies in response to a changing climate as well as, 3) sediment 

and salinity reductions within the Colorado River Basin.

Riparian Management - Enhance Core Capability (+$1,463,000/+2 FTE) - Additional funds 

will be used to enhance core capacity and restore riparian miles not meeting land health 

standards in sage-grouse habitat. The Riparian Management program will fund restoration of 

300 of the 650 miles of stream restoration expected to be completed in 2017. This is an 

addition of 50 miles for the program. The BLM will continue to inventory 500,000 riparian areas, 

especially those in priority sage-grouse habitats where grazing permits are expected to be 

renewed to ensure that conditions meet those specified in management plans.

Other Program Changes

Wildlife Management - National Mitigation Team (+$641,000/+4 FTE) – Following guidance 

from the Council on Environmental Quality, the BLM has committed to analyze and implement 

mitigation actions to avoid, minimize and compensate for residual impacts to at-risk resources in 

the Western Solar Plan, the Greater Sage-grouse (GRSG) Conservation Strategy, and other 

permitted activities. The need to analyze and implement mitigation actions is also a 

requirement of Secretarial Order 3330, “Improving Mitigation Policies and Practices of the 

Department of the Interior”, and draft BLM regional mitigation policy. 

 

The analysis and implementation of mitigation actions is new work for the BLM and will require 

resources that are beyond the Bureau’s current capacity. The $641,000 increase would provide 

funds to establish a mitigation team. This team, which would be located in BLM State offices 

and at the Washington Office, will provide crucial expertise necessary to support field staff, work 

with Bureau partners to develop local and regional mitigation strategies, develop an all-lands 

program of work, oversee mitigation funds, interact with mitigation banks and exchanges, and 

integrate other restoration activities. Absent these funds, the BLM would likely have to curtail 

other important activities in order to fulfill the commitments made in the Western Solar Plan and 

the GRSG Conservation Strategy, and other permitted activities such as those recently 

completed for the National Petroleum Reserve – Alaska.

Wild Horse & Burro Management - General Program Reduction (-$572,000/+0 FTE) – 

A reduction of $572,000 in the Wild Horse and Burro Management program reflects the 

anticipated completion of short-term activities supported with the $3.0 million increase provided 

in 2016. The BLM will continue to maintain core functions in the Wild Horse and Burro (WHB) 

program by focusing on the highest priority work and implementing program efficiencies where 

possible. The BLM will also continue expanding the use of contraceptives and the application of 

spay and neuter treatments to begin to reduce program costs and help address the 

unsustainable proliferation of wild horses and burros on public lands.

Wildlife Management - National Seed Strategy (+$5,000,000/+9 FTE) – The requested 

increase will enable BLM to aggressively implement the recently developed National Seed 

Strategy (www.blm.gov/seedstrategy), which is critical to BLM’s ability to respond with 

appropriate restoration resources to landscape-scale ecological changes due to drought, 
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Chapter II – Summary of Program & Legislative Changes Page II-8

invasive species and catastrophic wildfires. Implementation of the National Seed Strategy will 

result in nationwide networks of native seed collectors, researchers developing wildland seed 

into commercial crops, farmers and growers increasing seed supplies, nurseries and storage 

facilities providing sufficient amounts of appropriate seed; and restoration ecologists identifying 

the appropriate timing and placement for seed and plant material to optimize treatment results.

Alaska Conveyance - Streamline Conveyance Process (-$4,780,000/+0 FTE) – The Alaska 

State Land Transfer Program is the largest remaining workload in the BLM’s cadastral survey 

program. The BLM has identified a faster, more accurate, and more cost-effective method that 

would provide a higher quality survey record than is currently available and would allow the BLM 

to more efficiently complete the survey and conveyance work for all remaining State land 

selections. This innovation provides a unique opportunity to save time and money for both the 

Federal government and the State of Alaska, while supporting economic development within the 

State. The BLM intends to implement this new survey method as quickly as possible in the 

coming months.

Hazardous Materials Management - General Program Reduction (-$251,000/+0 FTE) – A 

reduction of $251,000 in lower priority activities is proposed. The BLM will continue to maintain 

core functions in the Hazardous Materials Management Program by focusing on the highest 

priority work and implementing program efficiencies where possible.

Deferred Maintenance - General Program Reduction (-$4,049,000/+0 FTE) – The BLM will 

continue to make progress on many of its Deferred Maintenance projects, with a focus on those 

with human health and safety risk, and will look to the support received from the Department of 

Transportation’s Federal Roads program to ensure that critical infrastructure improvements are 

achieved along with the physical assets that are targeted for repair.

Deferred Maintenance - DOI Southwest Border Radio Initiative (+$1,775,000/+0 FTE) – The 

2017 budget request includes an increase of $1.8 million to implement the Department’s 

Southwest Border Radio Demonstration Project. The Southwest Border Radio Demonstration 

Project was developed in cooperation with the BLM, the National Park Service, the U.S. Fish 

and Wildlife Service, and the U.S. Forest Service (USFS) in the border region of New Mexico 

and Arizona. The Inspector General identified material deficiencies in management of the land 

mobile radio program and infrastructure. The DOI Bureaus have been working to address these 

issues and formed the DOI Radio Executive Steering Committee. An assessment of land 

mobile radio infrastructure and operations is underway and these funds would be used to 

implement priority actions. Project work will lead to integration of infrastructure, eliminate 

duplicative or obsolete infrastructure, and result in future cost avoidance for maintenance. 

Safety and effectiveness will also be enhanced with upgraded replacement communication 

hardware. Upgrading facilities and removal of duplicative or obsolete sites will be accomplished 

in coordination with DOI Bureaus and the USFS.

Challenge Cost Share - Program Elimination (-$2,413,000/-5 FTE) – The 2017 budget 

request eliminates funding for the Challenge Cost Share program to focus on other higherpriority programs and initiatives.

Other Legislative Proposals

National BLM Foundation – The budget request includes a legislative proposal to establish a 

congressionally-chartered BLM Foundation. This foundation is an opportunity to leverage 
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Chapter II – Summary of Program & Legislative Changes Page II-9

private funding to support public lands, achieve shared outcomes, focus public support of the 

BLM mission, and improve messaging. 

The legislative proposal to be transmitted soon will follow the structure of statutes establishing 

similar foundations for other land management agencies. As a charitable corporation under 

section 501(c)(3) of the Internal Revenue Code of 1986, the foundation will not be considered 

an agency of the United States and will be authorized to encourage, accept and administer 

private gifts of money for the benefit of BLM activities. It will also undertake activities that 

further the purposes of public lands and support the mission of BLM. 

As with similar organizations, the foundation will have a board of directors appointed by the 

Secretary for set terms and may receive support from the Secretary. For the purposes of 

audits, it will be treated as a private corporation under Federal law. The foundation will not be 

authorized to perform any function the authority for which is provided to BLM under any other 

provision of law.

Reform Hardrock Mining on Federal Lands – The budget proposes to institute a leasing 

program under the Mineral Leasing Act of 1920 for certain hardrock minerals, including gold, 

silver, lead, zinc, copper, uranium, and molybdenum, currently covered by the General Mining 

Law of 1872 and administered by BLM. After enactment, mining for these metals on Federal 

lands will be governed by the new leasing process and subject to annual rental payments and a 

royalty of not less than five percent of gross proceeds. Half of the receipts will be distributed to 

the States in which the leases are located and the remaining half will be deposited in the U.S. 

Treasury. Existing mining claims will be exempt from the change to leasing system but will be 

subject to increases in the annual maintenance fees under the General Mining Law of 1872. 

Holders of existing mining claims for these minerals, however, could voluntarily convert claims 

to leases. The Office of Natural Resources Revenue will collect, account for, and disburse the 

hardrock royalty receipts. The proposal is projected to generate revenues to the U.S. Treasury 

of $80.0 million over 10 years, with larger revenues estimated in following years.

Federal Oil and Gas Reforms - The 2017 budget includes a package of legislative reforms to 

bolster and backstop administrative actions being taken to reform the management of Interior's 

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

taxpayers from the sale of these Federal resources and on improving transparency and 

oversight. Proposed statutory and administrative changes fall into three general categories: (1) 

advancing royalty reforms; (2) encouraging diligent development of oil and gas leases; and (3) 

improving revenue collection processes.

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

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

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

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

production, for example, through a new per-acre fee on nonproducing leases. Revenue 

collection improvements include simplification of the royalty valuation process and permanent 

repeal of Interior's authority to accept in-kind royalty payments. Collectively, these reforms will 

generate nearly $1.7 billion in revenue to the Treasury over 10 years, of which an estimated 

$1.2 billion will result from statutory changes. Many States will benefit from higher Federal 

revenue sharing payments as a result of these reforms.
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Chapter II – Summary of Program & Legislative Changes Page II-10

Repeal Geothermal Payments to Counties - The Administration proposes to repeal Section 

224(b) of the Energy Policy Act of 2005. Prior to passage of this legislation, geothermal 

revenues were split between the Federal government and States, with 50 percent directed to 

States, and 50 percent to the Treasury. The Energy Policy Act of 2005 changed this distribution 

beginning in 2006 to direct 50 percent to States, 25 percent to counties, and for a period of five 

years, 25 percent to a new BLM Geothermal Steam Act Implementation Fund. The allocations 

to the new BLM geothermal fund were discontinued a year early through a provision in the 2010 

Interior Appropriations Act. The repeal of Section 224(b) will permanently discontinue payments 

to counties and restore the disposition of Federal geothermal leasing revenues to the historical 

formula of 50 percent to the States and 50 percent to the Treasury. The repeal of Section 

224(b) is estimated to result in savings of $41.0 million over ten years.

Federal Land Transaction Facilitation Act (FLTFA) –The budget proposes to reauthorize this 

Act which expired on July 25, 2011, to allow lands identified as suitable for disposal in recent 

land use plans to be sold using this authority. The sales revenue will be used to fund the 

acquisition of environmentally sensitive lands and to cover the Bureau of Land Management 

administrative costs associated with conducting the sales. 

Hardrock Abandoned Mine Land Fund – To provide additional resources for the reclamation 

of abandoned hardrock mines, the 2017 budget proposes a new AML fee on hardrock 

production. Just as the coal industry is held responsible for abandoned coal sites, the 

Administration proposes to hold the hardrock mining industry responsible for the remediation of 

abandoned hardrock mines. The legislative proposal will levy an AML fee on uranium and 

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

hardrock minerals will be charged on the volume of material displaced after January 1, 2017. 

The receipts would be split between Federal and non-Federal lands. The Secretary will 

disperse the share of non-Federal funds to each State and Tribe based on need. Each State 

and Tribe will select its own priority projects using established national criteria. The proposed 

hardrock AML fee and reclamation program will operate in parallel with the coal AML 

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

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

problems.

Recreation Fees Program – The budget proposes legislation to permanently authorize the 

Federal Lands Recreation Enhancement Act, which is authorized through September 30, 2017. 

The program currently brings in an estimated $335 million in recreation fees annually under this 

authority that are used to enhance the visitor experience on Federal land recreation sites. In 

addition, as a short-term alternative to proposed legislation for long-term reauthorization, the 

2017 budget proposes appropriations language to further extend authorization for the Federal 

Lands Recreation Enhancement Act through September 30, 2018.

Reauthorization of Secure Rural Schools Payments – In April 16, 2015 under the Medicare 

Access and CHIP Reauthorization Act of 2015, and the Extension of Secure Rural Schools and 

Community Self-Determination Act of 2000, the SRS payments were authorized to be made in 

2015 (for 2014) and 2016 (for 2015) to Oregon & California Grant Lands and Coos Bay Wagon 

Road counties.

The 2017 Budget reflects a five-year reauthorization of the Secure Rural Schools Act with 

funding through mandatory U.S. Forest Service (USFS) appropriations, starting with the 
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Chapter II – Summary of Program & Legislative Changes Page II-11

payments for fiscal year 2016 (which would be made in 2017). This SRS proposal revises the 

allocation split between the three portions of the program from the current authority emphasizing 

enhancement of forest ecosystems, restoration and improvement of land health and water 

quality and the increase of economic activity. For more information on this proposal, see the 

USFS 2017 Budget Justification.

If no proposal is enacted, payments to O&C and CBWR counties in 2017 would be made in 

accordance with the 1937 and 1939 statutes. For more information on this proposal, see the 

U.S. Forest Service 2017 Budget Justification.

Wild Horse and Burro Management – With more than 100,000 horses in its care, the BLM 

must find new ways to cooperatively manage horses that are on range and horses that have 

been removed from the range and are available for adoption. The 2017 request includes 

appropriations language to more efficiently facilitate the transfer of animals to other public 

entities (local, State, and Federal agencies) who have a need for domestic work animals. The 

BLM is also committed to expanding its use of contraceptives and spay and neuter 

technologies, considering improvements to existing incentive programs, pushing forward with 

on-going critical research on population control tools, and exploring other creative solutions.

Land and Water Conservation Fund -- The Department will submit a legislative proposal to 

authorize permanent annual funding, without further appropriation or fiscal year limitation, for 

the Land and Water Conservation Fund (LWCF). In 2017, the proposal includes $43.9 million in 

discretionary funding and $44.8 million in mandatory funding for the BLM’s land acquisition 

program.
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Chapter II – Summary of Program & Legislative Changes Page II-12

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Performance Overview

Bureau of Land Management 2017 Budget Justifications

Chapter III – Performance Overview Page III-1

PERFORMANCE OVERVIEW

This section discusses the BLM’s Priority Goals and their relationship to the BLM’s major 

initiatives, and the BLM’s contributions to the Department of the Interior’s Strategic Plan.

Priority Goals

The four areas where the BLM contributes to DOI’s success in meeting its priority goals are:

• Renewable Energy Resource Development,

• Climate Change Adaptation,

• Youth Stewardship of Natural and Cultural Resources, and

• Oil & Gas Resources Management.

The BLM programs affected include: Soil, Water, and Air Management; Range Management; 

Forestry; Riparian Management; Wildlife and Fisheries Management; Threatened and 

Endangered Species Management; Wild Horse and Burro Management; Recreation 

Management; National Monuments and Conservation Areas; Wilderness Management; Oil and 

Gas Management; and Renewable Energy Management.

Renewable Energy Resource Development – By September 30, 2017, increase approved 

capacity authorized for renewable (solar, wind, and geothermal, and hydropower) energy 

resources affecting Department of the Interior managed lands, while ensuring full environmental 

review, to at least 16,600 Megawatts (since end of FY 2009). 

BLM Contribution: The BLM’s Renewable Energy Management Program contributes to the 

Secretary’s Powering Our Future and Responsible Use of the Nation’s Resources Initiative. 

Public lands managed by the BLM in the western U.S. have high potential for wind, solar and 

geothermal energy production. Public lands also provide crucial transmission corridors for 

renewable energy generated on non-Federal lands. The BLM has identified approximately 20 

million acres with wind energy potential in 11 western States, 22 million acres with solar energy 

potential in six southwestern States, and 149 million acres with geothermal potential in several 

western States and Alaska. The 2017 President’s Budget requests $29.2 million for Renewable 

Energy Management, which maintains funding at the 2016 enacted level plus an increase of 

$128,000 for fixed costs.

Implementation Strategy: In 2016, the BLM anticipates initiating a competitive leasing program 

using new regulations for solar and wind energy leasing developed under Federal Land Policy 

and Management Act authority. Prior to that, it will continue to selectively offer for competitive 

leasing some lands made available by the solar energy Programmatic Environmental Impact 

Statement (PEIS). The Record of Decision on the Solar PEIS includes 17 solar energy zones, 

containing approximately 285,000 acres potentially available for solar energy development. The 

BLM has added two additional solar energy zones through land use planning efforts for the 

Arizona Restoration Design Project and the West Chocolate Mountains Renewable Energy 

Evaluation Area in California. More are anticipated with future land use planning efforts. 

Making these lands available for BLM leasing proposals provides for the best siting locations for 

environmentally-sound solar energy development projects. The BLM is continuing this leasing 
Bureau of Land Management 2017 Budget Justifications

Chapter III – Performance Overview Page III-2

program through a nomination and request for proposal process, until competitive leasing is fully 

established through rulemaking.

In 2016, a West Wide Wind Mapping Project will be available to identify wind energy exclusion 

areas and sensitive resource conflicts for wind energy development on public lands. This 

project will assist in BLM land use planning efforts and in siting reviews of proposed wind 

energy projects on BLM public lands in the western States. The wind energy constraint analysis 

methodology will further streamline the environmental review of site-specific wind projects. It 

will also broaden the analysis of additional planned transmission development. The final 

Wyoming wind analysis report will provide new information to address a greater level of wind 

energy development in Wyoming. 

Performance Metrics: The Department is presently employing a set of internal measures and 

milestones to monitor and track achievement of the priority goals. Progress in these areas is 

reported and reviewed throughout the year by the Deputy Secretary’s Principals Operations 

Group to identify and address any need for enhanced coordination or policy measures to 

overcome barriers to the achievement of the priority goal. The BLM has identified the following 

existing Strategic Plan measure that relates to this priority goal: “Number of megawatts of 

approved capacity authorized on public land for renewable energy development while ensuring 

full environmental review.” Through the end of 2015, the BLM issued decisions on solar, wind, 

and geothermal energy development project proposals with a combined capacity of more than 

15,000 megawatts under the priority goal. Projects approved by BLM are projected to provide 

sufficient additional capacity to reach the Department goal of 16,600 megawatts by the end of 

FY 2017. 

Climate Change Adaptation – By September 30, 2017, the Department of the Interior will 

mainstream climate change adaptation and resilience into program and regional planning, 

capacity building, training, infrastructure, and external programs, as measured by scoring 300 of 

400 points through the Strategic Sustainability Performance Plan scorecard. 

BLM Contribution: The BLM will work within five broad strategies developed by DOI to 

demonstrate implementation of climate change adaptation. These five broad strategies are 

mainstream and integrate climate change adaptation into both agency-wide and regional 

planning efforts; ensure agency principals demonstrate commitment to adaptation efforts 

through internal communications and policies; ensure workforce protocols and policies reflect 

projected human health and safety impacts of climate change; design and construct new or 

modify/manage existing agency facilities and/or infrastructure with consideration for the potential 

impacts of projected climate change; and update agency external programs and policies to plan 

for and address the impacts of climate change. Each of these five strategies will have a BLM 

component that will contribute to the Department’s overall goal of addressing the impacts of 

climate change. The 2017 BLM budget request includes $15.0 million for climate change 

adaptation which maintains funding at the 2016 enacted level. 

Implementation Strategy: In 2016 and 2017, the BLM will identify priority focal areas for funding 

to restore or enhance landscape resiliency as one of many efforts to integrate climate change 

adaptation into planning efforts. The Bureau will integrate national science committee 

recommendations into decision making as part of its ongoing management commitment. 

Similarly, the BLM will review design criteria for climate change considerations in deferred 

maintenance or capital improvement projects over $1.0 million to ensure they incorporate best 

available sustainable measures, reduce water use to help mitigate possible water shortages, 
Bureau of Land Management 2017 Budget Justifications

Chapter III – Performance Overview Page III-3

install photovoltaic cells where possible to help alleviate energy use, and use inspections to 

identify potential energy savings in facilities. Each of these measures helps to alleviate 

greenhouse gas emissions. Finally in working with our public land users, the BLM will develop a 

program to help visitors understand how climate change may affect their ability to use and enjoy 

the public lands. 

Performance Metrics: The Department is presently employing a set of internal measures and 

milestones to monitor and track achievement of the priority goals. Progress in these areas will 

be reported and reviewed throughout the year by the Deputy Secretary’s Principals Operations 

Group to identify and address any need for enhanced coordination or policy measures to 

overcome barriers to the achievement of the priority goal.

Engaging the Next Generation – By September 30, 2017, the Department of the Interior will 

provide 100,000 work and training opportunities over four fiscal years (FY 2014 through FY 

2017) for individuals age 15 to 35 to support Interior’s mission. 

BLM Contribution: The BLM has incorporated this priority goal into its Engaging the Next 

Generation Initiative. The Bureau will continue to focus on providing a continuum of experiences 

through its youth education, engagement, and employment programs. Special consideration is 

given to those programs that involve young people ages 15 to 35 through various student 

employment programs, the 21st Century Conservation Service Corps and other youth 

partnership organizations. The BLM is also emphasizing recruiting youth from diverse 

backgrounds. Programs for school age youth such as Hands on the Land and conservation 

corps and internship programs for high school and older youth expose young people to natural 

and cultural resources and to career pathways in those fields. The 2017 BLM budget includes 

$1.0 million for the Engaging the Next Generation initiative, which maintains funding at the 2016 

enacted level. This funding will provide youth opportunities assisting the BLM with habitat 

restoration, inventory, and monitoring in support of a wide range ofprojects, as well as climate 

change impacts.

Implementation Strategy: In 2016 and 2017, the BLM will continue to pursue opportunities to 

facilitate, develop, and sustain partnership activities to support BLM’s mission and will continue 

pursuing collaborative opportunities to educate, engage, and employ youth, particularly 

throughout the National Landscape Conservation System. 

Performance Metrics: The Department is presently employing a set of internal measures and 

milestones to monitor and track achievement of the priority goals. Progress in these areas will 

be reported and reviewed throughout the year by the Deputy Secretary’s Principals Operations 

Group to identify and address any need for enhanced coordination or policy measures to

overcome barriers to the achievement of the priority goal.
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Chapter III – Performance Overview Page III-4

Oil and Gas Resources Management – By September 30, 2017, the Bureau of Land 

Management (BLM) will complete 100 percent of the inspections for Federal and Indian 

potential high risk oil and gas production cases annually to better ensure accountability and 

safety. 

BLM Contribution: The inspection of high-risk-producing oil and gas cases ensures that 

hydrocarbon production on federally-managed lands is properly accounted for and results in 

accurate royalty payments to the public and Indian owners of the minerals. Oil and gas 

production on federally-supervised lands represents a significant part of the Nation’s 

hydrocarbon production. Operating regulations at 43 CFR 3161.3 (a) require the BLM to inspect 

at least once a year all leases which produce high volumes of oil or natural gas and those 

leases that have a history of non-compliance. By focusing on high-risk-producing cases, rather 

than randomly selecting producing cases for inspection, the BLM’s resources are more 

efficiently used. The high-risk cases comprise about 13 percent of the total cases but account 

for over 60 percent of the oil and gas produced on Federal and Indian mineral estates. This 

effort is a component of addressing the deficiencies identified in the GAO High Risk report, 

including ensuring data on production verification and royalties are consistent and reliable, 

meeting goals for oil and gas verification inspections, and ensuring that informal employee 

training is supported by formalized training courses offered on a consistent basis. The 2017 

budget includes $48.0 million in proposed inspection fees to cover the cost of the inspections, 

which continues inspection program capacity at the 2016 enacted level. The 2017 budget also 

proposes an increase to complete the final phase of the Automated Fluid Minerals Support

System (AFMSS) modernization project allowing collection of inspection and enforcement data 

across Federal onshore operations. This will strengthen BLM’s oversight and permitting 

functions and enable the BLM to effectively implement its leasing reforms.

Implementation Strategy: High-risk cases are determined by four risk factors generated by the 

BLM: production rating; number of missing Oil and Gas Operations Reports; non-compliance 

rating; and last production inspection date rating. The Field Offices inspect the cases throughout 

the year, which are then entered into AFMSS. The Washington Office then runs reports from 

AFMSS showing the number of high-risk-production inspections completed. The number of 

high-risk-production cases is determined by the individual Field Offices, based on the Bureau’s 

risk-based inspection strategy. The BLM proposes to inspect 100 percent of the high-risk cases

in 2016 and 2017. 

Performance Metrics: The BLM is presently employing the following milestones to monitor and 

track achievement of this priority goal: 1) Revising Onshore Oil and Gas Orders 3, 4, 5, and 9 

which cover how oil and gas is measured and stored in a secure facility to prevent theft and 

mishandling of production, waste, and beneficial use; 2) Evaluating and adjusting onshore 

royalty rates; and 3) Continuing to require managers and supervisors to take the revised training 

class on oversight of oil and gas operations. Progress in these areas is reported and reviewed 

throughout the year by the Deputy Secretary’s Principals Operations Group to identify and 

address any need for enhanced coordination or policy measures to overcome barriers to the 

achievement of the priority goal.
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Chapter III – Performance Overview Page III-5

The BLM’s Contribution to the Department’s Strategic Plan

The FY 2014-2018 DOI Strategic Plan, in compliance with the principles of the GPRA 

Modernization Act of 2010, provides a collection of mission objectives, goals, strategies and 

corresponding metrics that provide an integrated and focused approach for tracking 

performance across a wide range of DOI programs. While the DOI Strategic Plan for 2014 – 

2018 is the foundational structure for the description of program performance measurement and 

planning for the 2017 President’s Budget, further details for achieving the Strategic Plan’s goals 

are presented in the DOI Annual Performance Plan and Report (APP&R). Bureau-and programspecific plans for 2017 are fully consistent with the goals, outcomes, and measures described in 

the 2014-2018 version of the DOI Strategic Plan and related implementation information in the 

Annual Performance Plan and Report (APP&R).
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Chapter III – Performance Overview Page III-6

Target Codes: SP = Strategic Plan measure, BUR = Bureau specific measure

Type Codes: C = Cumulative measure, A = Annual measure

Supporting Performance Measures 2012 

Actual

2013 

Actual

2014 

Actual

2015 

Actual

2016 

Enacted

2017 

President's 

Budget

Mission Area 1: Celebrating and Enhancing America's Great Outdoors

Goal 1: Protect America's Landscapes

Strategy 1: Improve land and water health. 

Percent of DOI stream/shoreline miles that have 

achieved desired conditions where condition is 

known and as specified in management plans. (SP) 

86% 

133,055/ 

155,274

86%

133,866

155,151

85% 

132,344/ 

154,976

86% 

133,070/ 

154,976

86% 

133,090/ 

154,976

86% 

134,010/ 

154,976

Contributing Programs: Land Resources; Wildlife and Fisheries Management; O&C Resources; Contributed Funds; Challenge Cost Share; and Other 

Subactivities. 

Percent of DOI acres that have achieved desired 

conditions where condition is known and as 

specified in management plans. (SP)

66% 

163,558,379/ 

248M

63% 

155,210,537/ 

248M

63% 

155,317,905/ 

248M

63% 

155,861,568/ 

248M

63% 

156,650,000/ 

248M

64% 

158,000,000/ 

248M

Contributing programs: Land Resources; Wildlife Management; O&C Resources Management; Contributed Funds/Reimbursables; and Other Subactivities. 

Percent of baseline acres infested with invasive 

plant species that are controlled. (SP)

0.57% 

204,667/ 

35,762,000

0.68%

246,710/

35,762,000

0.58% 

210,395/ 

35,762,000

1.6% 

1,237,360/ 

79,236,079

1.3% 

1,050,000/ 

79,236,079

1.3% 

1,050,000/ 

79,236,079

Contributing Programs: Land Resources; Burned Area Rehabilitation; O&C Resources Management; Challenge Cost Share; and Other Subactivities.

Number of DOI riparian (stream/shoreline) miles 

restored to the condition specified in management 

plans. (BUR)

867 671 510 639 650 700

Contributing Programs: O&C Resources Management; Land Resources; Wildlife Management; Reimbursables; Challenge Cost Share and Contributed Funds; and 

Range Improvements.

Number of DOI acres restored to the condition 

specified in management plans. (BUR) 556,457 502,787 487,770 543,663 500,000 540,000

Contributing Programs: Land Resources; Wildlife Management; O&C Resources Management; Range Improvements; Forest Ecosystems; SNPLMA Conservation; 

Resource Management Planning; Forestry Pipeline Restoration; NM&NCA's; Other Reimbursables. 
Bureau of Land Management 2017 Budget Justifications

Chapter III – Performance Overview Page III-7

Target Codes: SP = Strategic Plan measure, BUR = Bureau specific measure

Type Codes: C = Cumulative measure, A = Annual measure

Supporting Performance Measures 2012 

Actual

2013 

Actual

2014 

Actual

2015 

Actual

2016 

Enacted

2017 

President's 

Budget

Percent of surface waters (acres) managed by BLM 

that meet State (EPA-approved) water quality 

standards. (BUR)

91% 

335,765/ 

371,060 

90% 

11,631,022/ 

12,923,358

89% 

3,049,333/ 

3,426,217

89% 

3,049,333/ 

3,426,217

89% 

3,049,333/ 

3,426,217

89% 

3,049,333/ 

3,426,217

Contributing Programs: Land Resources; Wildlife Management; O&C Resources Management; Range Improvements; Forest Ecosystems; SNPLMA Conservation; 

Resource Management Planning; Forestry Pipeline Restoration; NM&NCA's; Other Reimbursables. 

Percent of surface waters (stream miles) managed 

by BLM that meet State (EPA-approved) water 

quality standards. (BUR)

89% 

103,700/ 

116,937 

91% 

221,722/ 

243,706

91% 

142,583/ 

143,959

91% 

131,003/ 

143,959

91% 

131,003/ 

143,959

91% 

131,003/ 

143,959

Percent of Wild Horse and Burro Herd Management 

Areas (HMAs) achieving appropriate management 

levels. (BUR)

40% 

72/179

26% 

47/179

17% 

31/179

15% 

26/179

15% 

26/179 TBD

Percent of Resource Management Plans completed 

within four years of start. (BUR)

39% 

28/72 

39% 

29/75

38% 

29/77

31% 

30/95

36% 

38/104

35% 

39/110

Percent of Resource Management Plan evaluations 

completed within 5 years. (BUR) 

44% 

65/149

42%

66/157

45% 

73/164

47% 

78/164

49% 

81/164

60% 

100/164

Percent of Resource Management Plans with 

Implementation Strategies. (BUR)

38% 

56/149

37%

58/157

34% 

55/164

35% 

58/164

40% 

66/164

48% 

79/164

Percent of Resource Management Plans evaluated 

as making significant progress toward achieving 

riparian condition goals. (BUR)

22% 

33/149

22% 

34/157

25% 

41/164

28% 

44/164

32% 

52/164

43% 

71/164

Percent of public lands where Visual Resource 

Management data have been recorded in digital 

format for both inventory and management classes. 

(BUR)

76% 

187,663,813/ 

248M

80%

198,541,465/

248M

82% 

201,506,063/ 

248M

82% 

201,506,063/ 

248M

85% 

211,706,063/ 

248M

90% 

224,406,063/ 

248M
Bureau of Land Management 2017 Budget Justifications

Chapter III – Performance Overview Page III-8

Target Codes: SP = Strategic Plan measure, BUR = Bureau specific measure

Type Codes: C = Cumulative measure, A = Annual measure

Supporting Performance Measures 2012 

Actual

2013 

Actual

2014 

Actual

2015 

Actual

2016 

Enacted

2017 

President's 

Budget

Percent of sites (acres) reclaimed or mitigated from 

the effects of degradation from past mining. (BUR)

51% 

4,723/ 

9,262 

64% 

8,834/ 

13,747

9% 

2,982/ 

34,510

8% 

2,851/ 

35,434

8% 

2,925/ 

36,000

7% 

2,720/ 

37,500

Percent of known contaminated sites remediated on 

BLM-managed land. (BUR)

39% 

108/ 272

46% 

126/ 272

49% 

131/269 9% 15/175 9% 

15/175

9% 

16/175

Percent of physical and chemical hazards mitigated 

in appropriate time to ensure visitor or public safety. 

(BUR)

91% 

9601/1,052

92% 

1,026/1,112

85% 

980/1,159

100% 

1,398/1,398

85% 

1,037/1,220

83% 

1,000/1,1210

Number of incidents/investigations closed for 

natural, cultural, and heritage resources 

offenses.(BUR)

4,450 6,330 6,774 10,613 10,613 10,613

Number of natural, cultural, and heritage resource 

crimes detected that occur on BLM lands.(BUR) 9,434 15,307 17,640 15,941 15,941 15,941

Strategy 2: Sustain fish, wildlife, and plant species by protecting and recovering the Nation’s fish and wildlife, in cooperation with partners, including States. 

Number of threatened and endangered species 

recovery activities implemented. (SP) 1,921 1,844 1,519 1,740 1,680 1,680

Contributing Programs: Threatened and Endangered Species Management; O&C Wildlife Habitat Management, and NM&NCA's.

Number of stream/shoreline miles of habitat restored 

or enhanced that directly support the conservation of 

Bureau species of management concern. (BUR)

225 307 510 263 237 263

Contributing Programs: Fisheries; Wildlife Management; Threatened and Endangered Species Management; O&C Wildlife Management; and NM&NCA's. 
Bureau of Land Management 2017 Budget Justifications

Chapter III – Performance Overview Page III-9

Target Codes: SP = Strategic Plan measure, BUR = Bureau specific measure

Type Codes: C = Cumulative measure, A = Annual measure

Supporting Performance Measures 2012 

Actual

2013 

Actual

2014 

Actual

2015 

Actual

2016 

Enacted

2017 

President's 

Budget

Number of acres of habitat restored or enhanced 

that directly support the conservation of Bureau 

species of management concern. (BUR) 

250,000 250,000 218,500 293,200 394,216 448,000

Contributing Programs: Wildlife; Fisheries ; T&E Management; O&C Wildlife Management; and NM&NCA's. 

Goal 2: Protect America’s Cultural and Heritage Resources

Strategy 1: Protect and maintain the Nation's most important historic areas and structures, archeological sites, and museum collections.

Percent of archaeological sites on DOI inventory in 

good condition (SP)

86% 

69,362/ 

80,653

85% 

64,562/ 

75,918

85%

68,588/

80,685

85% 

72,267/ 

84,788

87% 

80,400/ 

92,000

87% 

84,000/ 

97,000

Comments: Archaeological sites are evaluated to be in good condition when they are intact and maintains their character and material, with no noticeable 

deterioration.

Percent of historic structures on DOI inventory in 

good condition (SP)

48% 

197/410

52% 

217/421

51% 

221/431

51% 

218/429

53% 

230/435

54% 

234/435

Comments: Historic structures are evaluated to be in good condition when they are intact, structurally sound, and maintain character and material.

Percent of collections on DOI inventory in good 

condition. (SP) 

83% 

120/144

86% 

123/ 143

84% 

132/158

85% 

135/159

87% 

139/160

87% 

142/163

Comments: Collections are considered to be in good condition when professional environmental and security controls employed by the facility are in place to 

secure and stabilize the artifacts and specimens. 

Percent of paleontological localities in BLM inventory 

in good condition. (BUR) 

99% 

26,376/ 

26,621

98% 

19,259/ 

19,609

36%

6,191/17,129

22% 

6,191/ 

27,629

45% 

9,000/ 

20,000

22% 

6,690/ 

30,413

Comments: Paleontological localities are assessed to be in good condition when they are intact with no noticeable deterioration and potential impacts are being 

mitigated.
Bureau of Land Management 2017 Budget Justifications

Chapter III – Performance Overview Page III-10

Target Codes: SP = Strategic Plan measure, BUR = Bureau specific measure

Type Codes: C = Cumulative measure, A = Annual measure

Supporting Performance Measures 2012 

Actual

2013 

Actual

2014 

Actual

2015 

Actual

2016 

Enacted

2017 

President's 

Budget

Number of units of National Scenic and Historic Trail 

inventory completed to standards. (BUR) 222 106 91 70 43 45

Number of units of National Scenic and Historic Trail 

monitoring completed to standards. (BUR) 2,542 153% 718/ 469 units 189 197 167 165

Percent of designated Wild and Scenic River miles 

achieving goals, objectives, and desired conditions 

in maintaining, protecting, and/or enhancing riverrelated values. (BUR)

 

88%

2,371/2,681

61%

1,505 / 2,450

62% 

1,526/ 2,450

64% 

1,562/2,450

64% 

1,562/2,450

64% 

1,562/2,450 

Percent of Wilderness Areas under BLM 

Management with Completed Baseline Wilderness 

Character Monitoring. (BUR)

New Measure in 

2015

New Measure 

in 2015

Baseline to be 

established

50% 

112/223

73% 

162/223

84% 

187/223

Percent of designated Monuments and NCAs 

inventoried for the resources, objects, and values for 

which they were designated, (BUR) 

New Measure in 

2014

New Measure 

in 2014

47% 

4,557,999/ 

9,697,871

53% 

5,140,384/ 

9,698,841

55% 

5,333,829/ 

10,546,766

60% 

5,819,305/ 

10,546,766

Goal 3: Provide Recreation and Visitor Experience

Strategy 1: Enhance the enjoyment and appreciation of our natural and cultural heritage by creating opportunities for play, enlightenment, and inspiration.

Percent of visitors satisfied with the quality of their 

experience. (SP)

94% 

94/100

96% 

96/100

96% 

96/100

96% 

96/100

96% 

96/100

96% 

96/100

Percent satisfaction among visitors served by 

facilitated programs. (SP) 

97% 

97/100

94% 

94/100

95% 

95/100

94% 

94/100

94% 

94/100

95% 

95/100

Percent of customers satisfied with the value for fee 

paid. (BUR) 70% 83% 83/100

75% 

75/100

74% 

74/100

74% 

74/100

74% 

74/100
Bureau of Land Management 2017 Budget Justifications

Chapter III – Performance Overview Page III-11

Target Codes: SP = Strategic Plan measure, BUR = Bureau specific measure

Type Codes: C = Cumulative measure, A = Annual measure

Supporting Performance Measures 2012 

Actual

2013 

Actual

2014 

Actual

2015 

Actual

2016 

Enacted

2017 

President's 

Budget

Percent of recreation fee program receipts spent on 

fee collection. (BUR) 3% 3% 3% 3% 3% 3%

Mission Area 3: Powering Our Future and Responsible Use of the Nation's Resources 

Goal 1: Secure America's Energy Resources

Strategy 1: Ensure environmental compliance and the safety of energy development.

Percent of oil and gas acres reclaimed to 

appropriate final land condition. (SP) 

23% 

1,949/ 

8,651

24%

1,661/

6,992

24% 

2,122/ 

8,822

41% 

2,328/ 

5,643

38%

1,920/

5,078

38%

1,900/

5,000

Percent of producing fluid mineral cases that have a 

completed inspection during the year. (SP)

33% 

10,297/ 

27,419

37%

10,204/

27,719

27%

7,915/

29,321

27% 

7,758/ 

29,212

31% 

9,000/ 

29,200

31% 

9,000/ 

29,200

Percent of required coal inspection and enforcement 

reviews completed. (BUR)

101% 

2,731/ 

2,700

95%

2,467/

2,600

91% 

2,353/ 

2,600

103% 

2,277/ 

2,212

100% 

2,100/ 

2,100

100% 

2,200/ 

2,200

Percent of Federal oil and gas lease assignments 

processed. (BUR)

90%

12,706/

14,087

80%

12,140/

15,361

87% 

12,194/ 

14,000

91% 

10,800/ 

11,844

92% 

12,000/ 

13,000

92% 

12,000/ 

13,000

Strategy 2: Develop Renewable Energy Potential

Number of megawatts of approved capacity 

authorized on public land and the Outer Continental 

Shelf (OCS) for renewable energy development 

while ensuring full environmental review. (SP)

9,844 15,767 16,534 17,526 18,360 19,000

Strategy 3: Manage Conventional Energy Development
Bureau of Land Management 2017 Budget Justifications

Chapter III – Performance Overview Page III-12

Target Codes: SP = Strategic Plan measure, BUR = Bureau specific measure

Type Codes: C = Cumulative measure, A = Annual measure

Supporting Performance Measures 2012 

Actual

2013 

Actual

2014 

Actual

2015 

Actual

2016 

Enacted

2017 

President's 

Budget

Percent of coal lease applications processed. (SP) 18% 

8/45

15% 

6/40

10% 

4/41

23% 

9/39

10% 

4/42

11% 

4/35

Percent of pending fluid mineral Applications for 

Permit to Drill (APDs) which are processed. (SP)

61% 

5,861/ 

9,549

60% 

4,892/ 

8,180

56% 

4,924/ 

8,862

57% 

4,913/ 

8,596

56% 

4,500/ 

7,885

56% 

4,500/ 

7,852

Number of coal post-leasing actions approved for 

energy minerals. (BUR) 375 325 263 270 260 260

Percent of pending cases of right-of-way grant 

applications. (BUR)

47% 

1,380/ 

2,965

47% 

1,402/ 

3,000

49% 

1,458/ 

2,989

54% 

1,675/ 

3,110

50% 

1,500/ 

3,000

50% 

1,500/ 

3,000

Percent of oil and gas Reservoir Management 

Agreements processed. (BUR)

82% 

3,605/4,385

86%

3,443/ 4,000

91% 

4,089/4453

111% 

4,468/4,009

91% 

3,557/4,044

91% 

3,557/4,044

Goal 2: Sustainably Manage Timber, Forage, and Non-Energy Minerals

Strategy 1: Manage Timber and Forest Products Resources

Percent of allowable sale quantity timber offered for 

sale consistent with applicable resource 

management plans. (SP)

85% 

172/ 203

80% 

162/ 203

77% 

155/ 203

80% 

162/ 203

80% 

162/ 203

80% 

162/ 203

Volume of wood products offered consistent with 

applicable management plans (Public Domain & 

O&C) (SP)

242 243 269 251 228 228

Contributing Programs: O&C Forest Management; Forestry Management
Bureau of Land Management 2017 Budget Justifications

Chapter III – Performance Overview Page III-13

Target Codes: SP = Strategic Plan measure, BUR = Bureau specific measure

Type Codes: C = Cumulative measure, A = Annual measure

Supporting Performance Measures 2012 

Actual

2013 

Actual

2014 

Actual

2015 

Actual

2016 

Enacted

2017 

President's 

Budget

Administrative cost per thousand board feet of 

timber offered for sale. (BUR) $194 $207 $182 $164 $200 $200 

Volume of wood products offered (biomass for 

energy) consistent with applicable management 

plans. (BUR)

157,751 137,347 116,559 125,076 100,000 100,000 

Contributing Programs: Forestry Management; Hazardous fuels; O&C Resources Management ; and Forest Ecosystem Health . 

Percent of forestry improvements (acres) completed 

as planned. (BUR)

62% 

15,906/ 

25,700

100% 

16,050/ 

16,000

111% 

17,720/ 

16,000

106% 

16,946/ 

16,000

91% 

14,500/ 

16,000

91% 

14,500/ 

16,000

Strategy 2: Provide for Sustainable Forage and Grazing

Percent of grazing permits and leases processed as 

planned consistent with applicable resource 

management plans. (SP)

22% 

1,491/ 

6,685

21% 

1,344/ 

6,300

22% 

1,374/ 

6,300

18% 

1,213/ 

6,900

20% 

1,350/ 

6,800

22% 

1,500/ 

6,800

Contributing Programs: Range Land Management; National Monuments and National Conservation Areas; O&C Range Management . 

Number of grazing administration actions conducted. 

(BUR)

108% 

34,200/ 

31,617

115% 

35,298/ 

30,752

120% 

33,738/28,000

111% 

35,717/ 

31,994

100% 

32,016/ 

32,016

100% 

34,500/ 

34,500

Contributing Programs: Range Land Management; National Monuments and National Conservation Areas; O&C Range Management . 

Strategy 3: Manage Non-Energy Mineral Development

Percent of non-energy mineral exploration and 

development requests processed. (SP)

11% 

73/ 645

25% 

114/475

22% 

105/475

12% 

58/482

27%

110/415

30%

125/415
Bureau of Land Management 2017 Budget Justifications

Chapter III – Performance Overview Page III-14

Target Codes: SP = Strategic Plan measure, BUR = Bureau specific measure

Type Codes: C = Cumulative measure, A = Annual measure

Supporting Performance Measures 2012 

Actual

2013 

Actual

2014 

Actual

2015 

Actual

2016 

Enacted

2017 

President's 

Budget

Number of mined acres reclaimed to appropriate 

land condition and water quality standards. (SP) 1,408 2,279 1,554 5,637 1,500 1,500

Percent of Mineral Material permits and contracts 

processed for non-energy minerals. (BUR)

37% 

740/ 2,000

21% 

503/ 2,028

47% 

513/1,082

42% 

511/1,224

45% 

710/1,565

40% 

400/1,000

Percent of Reclamation Bond Adequacy. (BUR)

98% 

$2,363,046,865/ 

$2,404,511,715

99%

2,543,000,000/

2,563,000,000

96%

2,590,000,000/

2,697,000,000

97% 

2,801,567,645/ 

2,875,053,978

98% 

1,960,000,000/ 

2,000,000,000

98% 

1,960,000,000/ 

2,000,000,000

Average time for processing Plans of Operation for 

locatable minerals. (BUR) 14 mo 14 mo 17 mo 23 mo 15 mo 16 mo

Percent of Notices and Plans of Operations 

inspected. (BUR)

44% 

1,338/3,039

47% 

1,393/ 2,954

48% 

1,293/ 2,674

65% 

1,624/ 2,514

50% 

1,525/ 3,050

50% 

1,525/ 3,050

Percent of Mineral Material trespass actions 

resolved for non-energy minerals. (BUR)

23% 

42/ 180

13% 

15/ 117

27% 

12/ 44

44% 

31/71

44% 

31/71

27% 

19/70

Number of mining notices processed. (BUR) 525 516 521 454 460 450

Percent of time the Crude Helium Enrichment Unit 

(CHEU) was operating during the fiscal year. (BUR)

105% 

357/340

105% 

356/ 340

102% 

347/ 340

100% 

340/ 340

100% 

340/ 340

100% 

340/ 340

Number of Mineral Material inspections and 

production verifications. (BUR) 3,076 2,969 3,106 2,899 2,770 2,770

Number of Non-energy Solid Mineral inspections 

and production verifications. (BUR) 1,817 1,757 1,684 1,651 1,474 1,500

Mission Area 6: Building a Landscape Level Understanding of Our Resources 
Bureau of Land Management 2017 Budget Justifications

Chapter III – Performance Overview Page III-15

Target Codes: SP = Strategic Plan measure, BUR = Bureau specific measure

Type Codes: C = Cumulative measure, A = Annual measure

Supporting Performance Measures 2012 

Actual

2013 

Actual

2014 

Actual

2015 

Actual

2016 

Enacted

2017 

President's 

Budget

Goal 1: Provide Shared Landscape-Level Management and Planning Tools

Strategy 1: Ensure the use of landscape level capabilities and mitigation actions

Number of landscape-scale mitigation actions taken 

that directly expand the conservation of natural 

resources. (SP)

New in 2014 New in 2014 2 6 21 4 

Management Initiatives : Building a 21st Century Department of the Interior 

Goal 4: Improving Acquisition & Real Property Management

Percent of buildings maintained in adequate 

condition, determined by Facilities Condition Index 

(FCI) < 0.15. (BUR)

92% 

4,546/4,971

90% 

3,978/ 4,323

92% 

3,976/4327

93% 

3,960/4,288

92% 

3,967/4,294

92% 

3,967/4,294

Percent of sites maintained in adequate condition, 

determined by Facilities Condition Index (FCI) < 

0.15. (BUR)

89% 

3,079/3,464

88% 

3,128/3,490

89% 

3,120/3,499

89% 

3,137/3,535

89% 

3,141/3,542

89% 

3,141/3,542

Number of lane miles of roads maintained in 

adequate condition. (BUR) 34,376 33,765 33,625 33,568 33,600 33,600

Number of Deferred Maintenance and Construction 

projects completed. (BUR) 311 70 220 220 220 220

Increase the percentage of BLM organizational units 

rated in good safety, health, and environmental 

condition (CASHE). (BUR)

96% 

115/ 120

95% 

114/ 120

94% 

113/ 120

94% 

113/ 120

95% 

114/ 120

95% 

115/ 120
Bureau of Land Management 2017 Budget Justifications

Chapter III – Performance Overview Page III-16

Target Codes: SP = Strategic Plan measure, BUR = Bureau specific measure

Type Codes: C = Cumulative measure, A = Annual measure

Supporting Performance Measures 2012 

Actual

2013 

Actual

2014 

Actual

2015 

Actual

2016 

Enacted

2017 

President's 

Budget

Number of public land title records posted on the 

Internet to assist title, survey, historical, and 

genealogical research and retrieval. (BUR)

250,844 235,590 191,202 264,798 160,000 200,000

Percent of survey projects of Federal and Indian 

Trust lands that are funded. (BUR)

20% 

317/1,570

14% 

258/1,862

16% 

248/1,570

20% 

319/1,575

18% 

291/1,639

18% 

291/1,639

Percent of cadastral surveys approved within 18 

months of the funding date. (BUR)

82% 

335/409

69% 

388/559

59%

241/409

52% 

219/409

37% 

227/606

37% 

227/606

Percent of land entitlements patented to the State 

and Alaskan Native Corporations as required by 

statute. (BUR)

63% 

94,244,957/ 

150,149,836

65%

97,000,457

150,149,836

65%

97,544,793/

150,149,836

66%

99,150,624/

150,262,087

67%

100,344,793/

150,149,836

67%

101,544,793/

150,148,836

Number of acres conveyed out of public ownership 

through sale or exchange. (BUR) 20,491 114,924 58,363 41,884 40,000 40,000

Number of acres acquired to consolidate ownership 

and improve management. (BUR)

1% 

111/ 11,849

62% 

7,371/ 11,849

144% 17,054/

11,849 

82% 

20,292/ 24,696

50% 

12,000/ 24,000

50% 

12,000/ 24,000

Number of land exchange cases completed to 

consolidate ownership, improve management, and 

acquire important resources. (Bureau Measure)

New Measure in 

2014

New Measure 

in 2014 12 0 10 10
Crosscutting Programs

Bureau of Land Management 2017 Budget Justifications

Chapter IV – Crosscutting Programs Page IV-1

CROSSCUTTING PROGRAMS

The BLM has a number of programs that are funded through multiple sources. The National 

Conservation Lands is one such example; its components are described below. In addition, the 

BLM has partnership, education, and volunteer programs that are supported by a number of 

funding sources. Service First and BLM’s partnership program provide tools to BLM managers 

to more efficiently and effectively use funding and to provide results on the ground.
Bureau of Land Management 2017 Budget Justifications

Chapter IV – Crosscutting Programs Page IV-2

The National Conservation Lands

The BLM is unique in its mission

within the Department of managing 

the public lands for multiple use and 

sustained yield of resources, including 

conservation. More than 30 million 

acres of BLM land is recognized for 

outstanding conservation values and 

designated for special management 

by Acts of Congress or Presidential 

Proclamations. 

The BLM manages these special 

areas to maintain and enhance their 

conservation values with the goal to 

conserve, protect, and restore these 

important landscapes and their outstanding cultural, ecological, and scientific values. These 

areas range from broad Alaskan tundra to red-rock deserts and from deep river canyons to 

rugged ocean coastlines and include some of America’s finest natural and cultural treasures. 

The National Conservation Lands include the following unit designations. Each of these unit 

designations and information about each unit type can be found in the following sections.

• National Monuments and National Conservation Areas and similar designations;

• Wilderness/Wilderness Study Areas;

• National Wild and Scenic Rivers; and

• National Scenic and Historic Trails. 

Natural and Cultural Benefits - The diverse ecosystems designated in the National 

Conservation Lands protect a myriad of endangered species and habitats, and the ecosystems 

help ensure that the Nation’s extraordinary biodiversity will be sustained for present and future 

generations to enjoy. National Conservation Lands also are a refuge for native plant 

communities that are important for species adapting to a changing climate. As landscape 

pressures associated with drought, climate change and the effects of landscape stressors on 

species habitat and migration corridors continue to be of concern, units of the National 

Conservation Lands offer opportunities for scientists to conduct important research and data 

collection. Additionally, the National Conservation Lands contain over 30 percent of all specialstatus animal species found on BLM lands.

Also preserved within the National Conservation Lands are priceless artifacts from our Nation’s 

history, including explorer William Clark’s 1806 signature on a sandstone bluff in Montana. This 

signature is the only on-site physical evidence of the Lewis and Clark expedition. Dinosaurs 

and other prehistoric species left countless evidence of their passing through the National 

Conservation Lands and many of their fossils are now displayed in visitor centers and 

cooperating museums. New species of dinosaurs have been discovered in the past decade on 

National Conservation Lands, including Nasutoceratops titusi, a type of big-bodied horned 

dinosaur in the same family as the famous Triceratops, at the Grand Staircase-Escalante 

National Monument. 

Cashe Creek Natural Area, Barryessa Snow Mountain

2015 Newly Designated National Monument, BLM California
Bureau of Land Management 2017 Budget Justifications

Chapter IV – Crosscutting Programs Page IV-3

Recreation Benefits - As wide-open 

spaces and opportunities for natural 

exploration continue to dwindle, the 

National Conservation Lands conserve 

over 30 million acres of rugged 

landscapes for the public to explore and 

enjoy and host more than one-fourth of 

all recreation on BLM lands. These 

diverse lands provide opportunities for 

recreationists of all kinds, from whitewater rafters and rock climbers to 

hunters and fishermen, hikers and 

mountain bikers to boaters and offhighway vehicle riders. The BLM 

manages units that include over 2,700 

recreation sites and 22 visitor centers, and 

serve approximately 14 million visitors annually. Because of the high rate of visitation, the 

communities surrounding the National Conservation Lands reap significant economic benefits 

through tourism services. In southeast Nevada, Red Rock Canyon National Conservation Area 

alone serves over one million visitors each year. These visitors generate more than $1.7 million 

in recreation fees that are reinvested in the unit and directly contribute to the regional tourist 

economy, benefitting local communities and businesses located there.

The BLM, in cooperation with local communities, supports the creation of recreation and visitor 

facilities in nearby gateway communities rather than building extensive facilities within the units. 

In New Mexico, the BLM worked with the Las Cruces Museum of Nature and Science to 

establish exhibits on the Prehistoric Trackways National Monument. The new visitor center will 

provide educational opportunities highlighting BLM-managed resources at the nearby 

Prehistoric Trackways National Monument. These facilities also draw additional tourism which

supports the local economy and creates economic diversity. 

These lands are critical to the implementation of important Administration initiatives, including 

America’s Great Outdoors, Engaging the Next Generation, Let’s Move Outside, and the 

Department of the Interior’s Every Kid in a Park Initiative. For example, the National 

Conservation Lands connect youth, veterans, and families to the outdoors through a number of 

programs and recreational opportunities including internship opportunities for students, 

employment and training opportunities for veterans, and volunteer opportunities on designated 

units of the National Conservation Lands. The incredible beauty and sense of adventure 

provided by these lands entice both individuals and families to be a part of these public lands.

In addition to the revenue generated by tourism, the National Conservation Lands also provide 

revenue from energy development, ranching, mineral extraction, and art. The BLM promotes 

the sustainable use of these lands as supported through the proclamation or designating 

legislation to conserve these lands for present and future generations.

Silver Lake Aquatic Camp, BLM Alaska
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Chapter IV – Crosscutting Programs Page IV-4

The following table displays the amount of funding allocated to the National Conservation

Lands. These amounts represent recurring base funding only. 

Units of the National Conservation Lands

The following table displays the individual units, by designation type, included in BLM’s National 

Conservation Lands System (NCL). The NCL includes National Monuments, National Conservation Areas 

and Similar Designations, Wilderness Areas, Wilderness Study Areas, National Wild and Scenic Rivers, 

National Historic Trails, National Scenic Trails, and Other Congressional Designations.

23 National Monuments

Arizona

Agua Fria 70,980 acres

Grand Canyon-Parashant 808,747 acres

Ironwood Forest 128,734 acres

Sonoran Desert 486,600 acres

Vermilion Cliffs 279,568 acres

California

Berryessa Snow Mountain 133,566 acres

California Coastal 3937 acres along 840 miles of 

coastline

Carrizo Plain 208,698 acres

Fort Ord National Monument 7,205 acres

Santa Rosa-San Jacinto Mountains 94,055 acres

Colorado Browns Canyon 9,783 acres

Canyons of the Ancients 174,560 acres

Idaho Craters of the Moon 274,693 acres

National Conservation Lands

2015 

Actual

2016 

Enacted

2017 

Request

Program 

Change 

from 2016

Management of Land & Resources:

NMs & NCAs 31,819 36,819 50,645 +13,826

Wilderness Management

 18,264 18,264 18,392

 

+128 

Oregon & California Grant Lands:

NMs & NCAs 753 767 779 +12 

Crosscutting Programs:

National Wild & Scenic River Program 6,948 6,948 6,948 +0 

National Scenic & Historic Trails 

Program 6,358 6,358 6,358 +0 

Total, National Conservation Lands 64,142 69,156 83,122 +13,966
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Chapter IV – Crosscutting Programs Page IV-5

23 National Monuments cont.

Montana Pompeys Pillar 51 acres

Upper Missouri River Breaks 374,976 acres

New Mexico

Kasha-Katuwe Tent Rocks 4,124 acres

Prehistoric Trackways 5,255 acres

Organ Mountains-Desert Peaks 496,330 acres

Rio Grande del Norte 242,555 acres

Nevada Basin and Range 703,585 acres

Oregon/Washington

Cascade-Siskiyou 63,977 acres

San Juan Islands 970 acres

Utah Grand Staircase-Escalante 1,866,134 acres

21 National Conservation Areas and Similar Designations

Alaska Steese NCA 1,208,624 acres

Arizona

Gila Box Riparian NCA 21,767 acres

Las Cienegas NCA 41,972 acres

San Pedro Riparian NCA 55,495 acres

California

King Range NCA 56,167 acres

Headwaters Forest Reserve 7,542 acres

Piedras Blancas Historic Light Station Outstanding National Area 

(ONA) 18 acres

Colorado

McInnis Canyon NCA 123,430 acres

Gunnison Gorge NCA 62,844 acres

Dominguez-Escalante NCA 210,172 acres

Florida Jupiter Inlet Lighthouse ONA 63 acres

Idaho Morley Nelson Snake River Birds of Prey NCA 482,100 acres

Nevada

Black Rock Desert High Rock Canyon Emigrant Trails NCA 799,165 acres

Red Rock Canyon NCA 198,065 acres

Sloan Canyon NCA 48,438 acres

New Mexico

Fort Stanton-Snowy River Cave NCA 24,977

El Malpais NCA 230,000 acres

Oregon Steens Mountain Cooperative Management and Protection Area 428,446 acres

Yaquina Head ONA 95 acres

Utah

Red Cliffs NCA 44,825 acres

Beaver Dam Wash NCA 63,478 acres
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Chapter IV – Crosscutting Programs Page IV-6

• 223 Wilderness Areas 8,760,029 acres

• 517 Wilderness Study Areas 12,607,811 acres

• 69 National Wild and Scenic Rivers 2,423 miles

• 18 National Scenic and Historic Trails

(1,001,353 acres or/ 20% of the national system)

5,761 miles

13 National Historic Trails

5,078 miles 

(Majority of all Federal miles)

California 1,493 miles

Captain John Smith Chesapeake 2 miles

El Camino Real de Tierra Adentro 60 miles

Iditarod 149 miles

Lewis and Clark 369 miles

Mormon Pioneer 498 miles

Nez Perce 70 miles

Oregon 848 miles

Pony Express 596 miles

Juan Bautista De Anza 103 miles

Old Spanish 887 miles

Star Spangled Banner National Historic Trail 2 miles

Washington-Rochambeau Revolutionary Route 1 mile

5 National Scenic Trails

683 miles

Arizona 46 miles

Continental Divide 389 miles

Pacific Crest 233 miles

Pacific Northwest 12 miles

Potomac Heritage 3 miles

Other Congressional Designations

California Desert* 10,671,080 acres

*The lands of the California Desert are congressionally designated, but are not a part of 

the National Landscape Conservation System.
Bureau of Land Management 2017 Budget Justifications

Chapter IV – Crosscutting Programs Page IV-7

National Wild and Scenic Rivers System

The National Wild and Scenic Rivers (WSR) System was created by Congress on October 2, 

1968, to preserve rivers with 

outstanding natural, cultural, and 

recreational values in a freeflowing condition for the 

enjoyment of present and future 

generations. The BLM plans to 

commemorate the Act and WSR 

System through special public 

events and activities through the 

50th anniversary in 2018. 

The Act is notable for 

safeguarding the special 

character of these rivers, while also recognizing the potential for their appropriate use and 

development. It encourages river management that crosses political boundaries and promotes 

public participation in developing goals for river protection. Through the America’s Great 

Outdoors (AGO) initiative, the President emphasized the value of rivers and waterways to our 

Nation’s history, economy, and way of life. Rivers connect people and communities to America’s 

great outdoors and are vital migration corridors for fish and wildlife. In the 21st century, healthy 

rivers will enhance the resilience of human and natural communities. Millions of people visit 

WSRs annually either on their own or through hundreds of permitted commercial outfitters and 

the associated use provides significant economic impact to local communities and helps them to 

sustain the natural heritage of their wild and scenic rivers.

The BLM WSR program is part of the National Conservation Lands and engages local 

communities to help them foster a sense of shared stewardship and pride in their local WSRs. 

The BLM has the responsibility to protect and enhance river values (free flowing condition, 

water quality, and outstandingly remarkable values) on 69 designated rivers in seven States 

covering over 2,400 miles and 1,001,353 acres (about 20 percent of the WSR) and on hundreds 

of eligible and suitable rivers across the western States. The BLM WSR Program focuses on 

the protection and enhancement of river values with the following activities:

• Evaluate free flowing rivers to determine if they are eligible and suitable for inclusion 

within the WSR System and determine tentative classifications (wild, scenic or 

recreational);

• Submit recommendations resulting from studies on potential WSRs;

• Manage eligible, suitable and designated WSRs to protect and enhance their free 

flowing condition, water quality and outstandingly remarkable values;

• Develop and implement statutorily required comprehensive river management plans that 

reflect the requirements of the WSR Act and national policies and guidance;

• Monitor designated WSR and eligible and suitable river segments to minimize noxious 

weed infestations, trespass activities, and the impacts from commercial and noncommercial recreation activities;

• Provide visitor services and public information and interpretation through publications, 

wayside exhibits, appropriate instructional signage, and river-related visitor centers;

 Quartsville Creek, BLM Oregon
Bureau of Land Management 2017 Budget Justifications

Chapter IV – Crosscutting Programs Page IV-8

• Restore riparian habitats to healthy and functioning condition by removing or modifying 

activities creating unacceptable impacts along rivers;

• Protect or enhance water quality on WSRs by requiring and implementing best 

management practices for new land use authorizations and activities, changing current 

management practices where appropriate, and restoring degraded watershed function;

• Make determinations regarding the impacts of proposed water resources projects on 

designated WSRs, congressionally authorized study rivers, and on rivers identified for 

study by the BLM; and

• Maintain relationships with tribal governments, other Federal agencies, State and local 

governments, friends’ groups and other non-profit organizations, and the general public 

concerned with comprehensive river-related plans, studies, and/or management.

The BLM’s revised Wild and Scenic Rivers Manual provides policy and program direction for 

identification, evaluation, planning, and management of designated rivers, congressionally 

authorized study rivers, and BLM-identified eligible and suitable rivers. The BLM will continue to 

implement this updated policy and program guidance by providing training courses that enable 

staff and managers to work collaboratively with partners and communities to protect river values 

and manage river uses. The BLM will coordinate with other programs, agencies and 

organizations to strengthen and improve monitoring strategies and best management practices; 

using partnerships, science and outreach to help monitor and manage river values. 

The WSR program works to implement the AGO initiative through collaborative landscape and 

watershed protection and restoration work, improved recreation access and opportunities, and 

community partnerships that enhance quality of life outcomes for residents and visitors. The 

WSR program also supports the Department of the Interior’s Every Kid in a Park initiative. The 

BLM will focus on protecting and restoring rivers for people and wildlife; enhancing river 

recreation which supports jobs in tourism and outdoor recreation; working with communities to 

take action to secure economic, social and ecological benefits of having a healthy river; and 

working collaboratively with local, State, tribal and other Federal agencies on river protection, 

restoration, and recreation access. 

The WSR program is funded by multiple subactivities at $6.9 million within the MLR and O&C 

appropriations (see table below). Fees collected at specific recreation sites and for Special 

Recreation Permits are returned to those locations to support management of WSRs. The BLM 

also leverages base funding by matching volunteer labor and contributions; cooperating with the 

National Park Service (NPS), the U.S. Forest Service (USFS) and State agencies where river 

areas are co-managed. Donations of labor and contributed funds from river and other 

partnership organizations increase BLM’s capability and improve outcomes. The BLM plans to 

align funding and performance to increase program efficiencies and transparency.
Bureau of Land Management 2017 Budget Justifications

Chapter IV – Crosscutting Programs Page IV-9

National Scenic and Historic Trails Program

The U.S. Congress authorized the Nation’s National Trails System through the National Trails 

System Act on October 2, 1968. The BLM plans to commemorate the Act and the National 

Trails System through special public events and activities through the 50th anniversary in 2018. 

As part of the National Trails System, and as BLM National Conservation Lands, National 

Scenic and Historic Trails are protected as corridors of cultural heritage, resource conservation, 

and outstanding recreation opportunities. National Trail corridors span thousands of miles in 

nearly all 50 States, crossing Federal, State, tribal, local government, and private lands. 

Program responsibilities include managing eighteen National Trails (five scenic and 13 historic) 

on the ground, crossing nearly 6,000 miles of BLM public lands in 15 States. The BLM serves 

as interagency Trail Administrator, or trail-wide lead, for the Iditarod, Old Spanish, and El 

Camino Real de Tierra Adentro National Historic Trails. The BLM coordinates closely with the 

NPS and the USFS Trail Administrators and other National Trail managing agencies to promote 

a seamless system of public trails. The BLM also supports five National Trail-related visitor 

centers which tell the stories of the trails, fostering public enjoyment, appreciation, volunteerism, 

and learning, while inspiring people to get outside to experience these National Trail treasures. 

The BLM safeguards the nature and purposes of National Trails, and protects the scenic, 

historic, natural, and cultural resources and qualities of the areas through which the trails pass 

for recreational and conservation purposes. The BLM strives to model the America’s Great 

National Wild & Scenic River Program

2015 

Actual

2016 

Enacted

2017 

Request

Change 

from 

2016

Soil, Water & Air Management 181 181 181 +0 

Rangeland Management 457 457 457 +0 

Public Domain Forest Mgmt 118 118 118 +0 

Riparian Management 419 419 419 +0 

Cultural Resources Mgmt 320 320 320 +0 

Wild Horse & Burro Mgmt 9 9 9 +0 

Wildlife Management 214 214 214 +0 

Fisheries Management 352 352 352 +0 

Threatened & Endangered Species 213 213 213 +0 

Recreation Resources Management 2,947 2,947 2,947 

Oil & Gas Management 31 31 31 +0 

Alaska Conveyance 113 113 113 +0 

Cadastral, Lands & Realty Mgmt 50 50 50 +0 

Land & Realty Management 0 0 - +0 

Hazardous Materials Management 121 121 121 +0 

Annual Maint. & Ops 1,220 1,220 1,220 +0 

Administrative Support 59 59 59 +0 

O&C Other Forest Resource Mgmt 124 124 124 +0 

National Wild & Scenic Rivers 6,948 6,948 6,948 +0 
Bureau of Land Management 2017 Budget Justifications

Chapter IV – Crosscutting Programs Page IV-10

Outdoors initiative along these trails in its work with volunteers, nonprofit trail groups, long-term 

partners, and willing landowners and supports the Secretary’s Youth Initiative by providing 

opportunities for recreation, education, and volunteerism. National Trail work is guided by the 

15-year National Conservation Lands Strategy and the National Trails Strategy.

National Scenic Trails 

provide outdoor recreation 

opportunities, public 

enjoyment, and promote 

conservation. They are 

planned, constructed, and 

maintained by the BLM and 

volunteers to provide visitors 

with long-distance hiking, 

backpacking, day hiking, and 

horseback riding 

opportunities, and to support 

related recreational activities 

such as camping, fishing, 

hunting, wildlife observation, 

nature study, and 

photography. National Scenic 

Trails provide public access to 

some of the Nation’s most spectacular vistas, guiding visitors through canyons, along arid 

deserts, across windswept alpine, and to the summit of snowcapped peaks.

National Historic Trails tell the iconic stories of America, including exploration, western 

expansion and settlement, economic development, cultural divides, and the pursuit of religious 

freedom. These pathways of history and the associated settings are identified, protected, 

restored, stabilized, and interpreted by the BLM and volunteers for future generations. Physical 

remnant and artifact discoveries include wagon

ruts, swales, wagon train encampments, structures, signature rocks, pioneer grave sites, and 

skirmish sites, and artifacts such as period coins, weapons, household items, and tools. Public 

land visitors can experience National Historic Trails and the stories of the trails at visitor centers, 

wayside exhibits, historic sites, recreational trails, auto tour routes, and along intact trail 

segments. The BLM manages more miles of National Historic Trails than any other Federal 

agency.

Capacity-building and leveraging limited funding is critical to program success. The BLM 

recognizes its charge under the National Trails System Act of 1968 in encouraging and assisting 

nonprofit organizations, and provides limited support for training, education, workshops, 

conferences, publications, and youth apprenticeships. National Trails stewardship work is 

effected through cooperative agreements to acknowledge, support, and leverage resources. As 

part of this effort, approximately twenty major nonprofit trail organizations, such as the Nez 

Perce Trails Foundation, Oregon-California Trails Association, National Pony Express 

Association, and the Pacific Crest Trail Association, contribute thousands of hours working with 

the BLM in National Trail planning, development, operations, maintenance, and acquisition. 

National Trail organizations estimate that volunteer organizations contribute more than $35.0 

million in annual program value through volunteer hours and fiscal contributions.

Moab Brand Trails, BLM Utah
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Chapter IV – Crosscutting Programs Page IV-11

BLM National Trail inventory and monitoring work is a BLM performance requirement, critical for 

the establishment of National Trail management corridors in land use planning and for proposed 

project review for priority renewable and nonrenewable energy development and transmission 

projects. Based on the current policy, the BLM plans to develop a standard methodology for 

this work and to engage agency professionals, partners, contractors, and universities. 

The BLM National Trails Program remains funded by multiple subactivities within the MLR 

appropriation (see table below). The budget proposes $6.4 million in 2017, the same as the 

2016 level. Fees collected at National Trail Visitor Centers and specific recreation sites are 

returned to those locations. The BLM also leverages base funding by matching volunteer labor 

and contributions; applying for grants or other Federal or State funding; and through cooperative 

agreements at the local, State, and national level. The BLM plans to align funding and 

performance to increase program efficiencies and transparency. 

National Scenic & Historic Trail Program*

2015 

Actual

2016 

Enacted

2017 

Request

Change 

from 2016

Soil, Water & Air Management 112 112 112 +0 

Rangeland Management 68 68 68 +0 

Riparian Management 20 20 20 +0 

Cultural Resources Mgmt. 557 557 557 +0 

Wildlife Management 93 93 93 +0 

Threatened & Endangered Species 99 99 99 +0 

Recreation Resources Management 4,397 4,397 4,397 +0 

Annual Maint. & Ops 1,012 1,012 1,012 0

National Scenic & Historic Trails 6,358 6,358 6,358 0

*Several additional subactivities have provided funding, but to increase budget efficiencies they are no 

longer included in the table.
Bureau of Land Management 2017 Budget Justifications

Chapter IV – Crosscutting Programs Page IV-12

Service First

Service First is a partnership authority (P.L. 106-291, as amended by P.L. 109-54, P.L. 112-74, 

and further amended by P.L 113-76) between the agencies and offices of the Department of the 

Interior and the agencies and offices of the Department of Agriculture. Service First authority 

was made permanent in the Consolidated Appropriations Act, 2012 (P.L. 112-74) and further 

expanded to include all agencies and offices in both the Department of the Interior and 

Department of Agriculture in the Consolidated Appropriations Act, 2014 (P.L. 113-76).

The BLM continues to strengthen partnerships among the NPS, the U.S. Fish and Wildlife 

Service (FWS), and the USFS to attain the three Service First goals of improving natural and 

cultural resource stewardship, enhancing customer service, and increasing operational 

efficiency. The four agencies provide national leadership, direction, and counsel on 

implementing the authorities and promoting the principles of Service First through the Service 

First Leadership Team (SFLT). The SFLT’s goals include enhancing each agency’s ability to 

meet its mission; increasing collective capacity to manage Federal resources on a landscape 

basis; overcoming institutional barriers that hinder interagency programs and initiatives; and 

improving constituent and customer service and resource management through streamlined 

processes, increased efficiencies, and use of emerging technologies.

Discussions are already underway with the legal community in both Departments about 

implementing the expanded authority in the new agencies. Further, both Departments and other

agencies are exploring how and where to use the newly expanded authority in existing and new 

partnerships. 

In 2017, Service First will continue to focus on opportunities for co-location of agency facilities 

where feasible and appropriate. Co-location better facilitates inter-agency communication and 

results in integration of natural resource management across the landscape. It is one method for 

increasing coordination across resource programs that include conserving water, hazardous 

fuels reduction, landscape-scale species conservation, sustaining rural communities, nurturing 

youth through education and connections to the outdoors, and recreation management, 

including off-highway vehicle use and trail management.

Service First will also continue to make advances in creating an integrated information 

technology system where employees will be able to access other agencies’ data and systems 

while maintaining appropriate security levels. Joint access to the more complex databases 

including geographic information systems, invasive weed inventories, and other natural 

resource data will result in more seamless customer service and improve operational efficiency 

for shared employees and co-located offices.

Finally, the agencies plan to build a strong interagency network with focused tools and regular 

outreach and information exchange such as best practices on Service First opportunities, 

challenges and successes.
Bureau of Land Management 2017 Budget Justifications

Chapter IV – Crosscutting Programs Page IV-13

Engaging the Next Generation

The BLM has a long history of working with its Federal and non-Federal partners to engage 

young people and veterans in projects that protect, restore, and enhance America’s Great 

Outdoors. Building on youth education 

and engagement programs that foster 

personal connections with our Nation’s 

public lands, the BLM is engaging 

millennials, including veterans and 

members of the 21st Century 

Conservation Service Corps (21CSC), in 

work that supports the multiple-use 

mission of the Bureau. Young people are 

employed in priority projects such as trail 

construction and maintenance, habitat 

restoration, and inventorying and 

monitoring in support of a wide range of 

program needs, including archaeological 

resources; wilderness characteristics; 

soil, water, air and climate resources; 

and renewable energy compliance. 

The BLM’s National Strategy on Education, Interpretation, and Youth Engagement envisions 

young people involved from an early age in learning and recreation on public lands, who then go 

on to become active stewards and conservation leaders as adults. The BLM’s strategic focus 

aligns well with the four pillars of the Secretary’s youth platform announced early in FY 2014. 

The Secretary has pledged that the Department will engage the next generation by providing 

opportunities to play, learn, serve, and work on public lands by: 

• Creating recreational opportunities for more than 10 million young people by 2017;

• Providing educational opportunities in the natural classrooms that our public lands 

provide to at least 10 million K-12 students annually;

• Engaging one million volunteers in support of public lands; and

• Providing 100,000 work and training opportunities over four fiscal years, 2014 through 

2017, for individuals ages 15 to 35 to support the mission of the Department.

The 2017 President’s budget request supports the Secretary’s goals for the Engaging the Next 

Generation initiative. Funding will be used to support the BLM’s capacity to offer educational 

and recreational programs for 4th graders involved in Every Kid in a Park, a White House 

initiative. Funding will also support engagement of youth interns and crews in rivers and trails 

projects as part of the upcoming anniversary celebrations of the Wild & Scenic Rivers Act and 

the National Trails System Act. 

By supporting work and training opportunities for young people across a broad range of 

resource programs, the funding will enable the bureau to accomplish high-priority projects in a 

cost-effective way. 

The BLM will continue to partner with youth corps organizations, with a special emphasis on 

those organizations that meet the needs of underserved youth, including those from Tribes and 

rural communities. In 2017, the BLM will also continue to identify science and resource priorities 

Meadowood Special Recreation Management Area

BLM Eastern States
Bureau of Land Management 2017 Budget Justifications

Chapter IV – Crosscutting Programs Page IV-14

that can be addressed through short- or long-term projects involving the 21 CSC and other 

youth corps and veteran’s crews, as well as volunteers, field schools, and interns. 

In 2017, the BLM will also focus on identifying mission-critical jobs and skills that are needed for 

entry-level positions in those occupations. This includes continued support for the Direct Hire 

Authority/Resource Assistant Internship program, which is focused on hiring students and 

recent graduates from diverse backgrounds into mission-critical jobs. In addition, by expanding 

partnerships with universities and professional organizations, the Bureau will enable more 

young people to explore careers in Science, Technology, Engineering, and Mathematics 

(STEM). Opportunities to pursue field-based investigations and experiences, such as those 

provided to college interns and to K-12 students involved in the BLM Hands on the Land 

network of outdoor classrooms, can nurture and sustain student interest in pursuing STEM 

degrees and careers. 

The BLM will also support the DOI/VISTA volunteers who have been engaged in several States 

to serve impoverished communities with programs that engage youth in outdoor educational 

experiences and STEM education, foster economic opportunities in conservation and land 

management, and promote healthy futures for underserved populations.

Education

In 2017, the BLM will complete development 

of the education manual section, formalizing 

policy and guidance on the role of education in 

supporting the BLM’s land management 

mission, expand competency training 

opportunities for staff, volunteers, and partners 

who deliver educational programming, and 

continue evaluating the effectiveness of 

education products, programs, and partners to 

enhance and guide improvements in the 

education program. 

The BLM offers a range of education programs for youth and adults, including the following 

signature programs:

• Hands on the Land: Through the national HOL network of outdoor classrooms, the 

BLM’s 80 HOL sites collaborate with local schools and communities to educate 70,000 

students on the public lands each year. Launched in 2013, the HOL Teachers on the 

Public Lands program, which engages classroom teachers as summer interns in BLM 

offices, will further ensure even stronger connections with schools and standards-based 

classroom curriculum. Field-based educational programming at HOL sites fosters 

connections to nature, exposes students to issues confronting 21st-century land 

managers, and creates broad-based community support for the BLM to address the 

Department’s STEM Education and Employment Pathways Strategic Plan and other 

Interior Department and national youth initiatives. In order to achieve the BLM’s goal of 

108 HOL sites by 2017, the BLM will continue to expand the number of sites involved in 

the HOL program, as well as the number of Teachers on the Public Lands.

Water Discovery Days, BLM Alaska
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Chapter IV – Crosscutting Programs Page IV-15

• Project Archaeology: Since its inception, Project Archaeology, the BLM’s primary 

heritage education program, has served more than 13,000 educators through 

professional development for classroom teachers and informal educators, and through 

high-quality curricular materials. These educators reach an estimated 260,000 learners 

every year with high-quality cultural resource materials and programs. In addition to 

hosting professional development 

workshops for teachers, BLM field 

offices incorporate Project 

Archaeology materials into 

programs such as HOL and into 

materials and programs for local 

schools and the general public.

• Take It Outside! Opportunities for 

young people and families to get 

outdoors and informally learn about 

the public lands are offered through 

Take It Outside! activities and 

partnerships with over 300 

organizations annually, including 

the Boy Scouts of America and Girl Scouts of the USA. Annually, Take It Outside! 

reaches over 70,000 youth and families through more than 200 different types of 

activities on BLM lands, including overnight and day camps; National Public Lands Day 

projects; and recreational outings such as fishing, hiking, and paleontology explorations. 

• Stewardship: For over 20 years, the BLM has partnered with the Leave No Trace 

Center for Outdoor Ethics and Tread Lightly!, Inc., to teach BLM staff and visitors how to 

behave responsibly on public lands through outdoor ethics education. Outdoor ethics 

education, training, and materials help the public learn to take care of the lands they visit 

and foster a sense of stewardship for public lands. BLM visitors also learn outdoor 

ethics through Take It Outside! activities, educational signs, printed materials, 

and informal training. 

• Public Education Opportunities: Field trips, classroom visits by resource 

professionals, and service learning opportunities not only educate but also foster 

conservation and stewardship ethics. Additionally, BLM lands provide a rich opportunity 

for collegiate-level research, professional development opportunities for teachers and 

continuing education for seniors.

The BLM’s increased use of technology helps the agency reach a broad array of audiences to 

enhance public understanding, achieve management goals, foster stewardship, and build public 

support. BLM offices also use social media, web, and mobile technologies to provide 

educational programs, information, and materials to an ever-expanding virtual audience.
Bureau of Land Management 2017 Budget Justifications

Chapter IV – Crosscutting Programs Page IV-16

Interpretation

Serving audiences with diverse 

backgrounds, viewpoints, and needs, 

BLM interpretive programs and 

services connect public land visitors to 

BLM’s natural and cultural resources, 

enhance understanding of resource 

management issues, add to the quality 

of visitor experiences, and build public 

interest in conserving and protecting 

America’s public lands. In 2015, 

interpretive programs and products 

served over 4 million people at 160 

sites. 

In 2017, the interpretation program as outlined in the BLM Education, Interpretation and Youth 

Engagement National Strategy will complete the development of the interpretation manual 

section, formalizing policy and guidance on the role of interpretation in supporting the BLM’s 

land management mission. The program will continue to expand training opportunities in 

interpretation for staff, volunteers, and partners who deliver interpretive programming, and 

continue to evaluate the effectiveness of interpretive products, programs, and partners to 

enhance and guide improvements in the interpretation program. 

Junior Explorers/Junior Ranger: The BLM’s Junior Explorer program was formally launched 

in 2013 with the goal of encouraging awareness of the BLM and public land stewardship, and 

informally educating children about the natural and social sciences. In 2016, the program 

began a transition over to a Junior Ranger program, which included creation of an 

implementation plan, execution of some actions under that plan, and the publication of three 

national level Junior Ranger booklets. The purpose will remain the same and provide an 

avenue for BLM district and field offices to develop and provide engaging, high-quality 

educational materials and activities to elementary-age children, as well as their parents and 

teachers. 

Artist in Residence: The BLM's Artist in Residence (AIR) program began in 2011. AIR 

participants are encouraged to use their skills to depict the variety of cultural and natural 

resources on BLM lands, including historic structures, artifacts, cultural landscapes, geologic 

features, and plant and animal life. These artists "translate" the resources--the heart of BLM's 

mission--into images, objects, and performances that bring others enjoyment and a deeper 

understanding of the public lands. 

Volunteers

Volunteer contributions to the BLM are highly valued and vitally important to achieving agency 

goals. In 2015, more than 25,000 volunteers (about one-quarter of them youth) provided over 

one million hours of service valued at approximately $23.5 million to BLM lands and resources, 

including national monuments and national conservation areas, recreation areas and trails, wild 

and scenic rivers, rangelands, cultural resources, and wild horses and burros. The return on 

investment was more than 34:1 in 2015; in other words, for every dollar invested in volunteer 

Jupiter Environmental Research and Field Studies Academy 

Jupiter Inlet Outstanding Natural Area, Florida
Bureau of Land Management 2017 Budget Justifications

Chapter IV – Crosscutting Programs Page IV-17

program management, which includes volunteer recruitment, training, and recognition, as well 

as costs such as the purchase of volunteer uniforms, the agency received $34 worth of service. 

National Public Lands Day: National Public Lands Day (NPLD) is the Nation’s largest 

volunteer workday on behalf of the public lands and a contributor to the America’s Great 

Outdoors, Let’s Move, and Take It Outside! initiatives. In 2015 alone, the 22nd celebration of this 

annual service day, the BLM coordinated 195 projects in 16 States, and over 10,000 volunteers 

participated in a variety of enhancement and restoration activities. The BLM is a leading Federal 

partner this and every year on NPLD. 

The BLM’s Annual “Making a Difference” National Volunteer Awards: The BLM’s National 

Volunteer Awards take place each year in late May. In 2015, the BLM marked the 

20th anniversary of this program, which has recognized scores of volunteers from around the 

country. States submit nominations for volunteers in three categories (outstanding achievement, 

lifetime achievement, and outstanding youth) as well as a separate category for outstanding 

efforts to support volunteers by BLM employees. This cost-effective program brings agency 

leadership and volunteers together across the Nation by linking senior agency and Department 

leadership with State office leadership in their home offices as they host their winners via the 

use of BLM’s extensive video teleconferencing system, allowing for both a national ceremony 

and individual State-based celebrations. 

BLM Volunteer Administration Training: The BLM holds an average of four in-person, 

instructor-led training classes each year for BLM employees who work with volunteers. Field, 

District and State offices nominate their site to host a training course based on local demand, 

and seasoned volunteer coordinators and State leads within the BLM travel to their offices to 

instruct, offering a needs-based, highly cost-effective training course for maximum results. In 

2015 over 75 staff members received training through these courses as well as through a newly 

developed, self-paced, on-line introductory training course. 

In 2017, the BLM will focus on scaling up citizen science initiatives, rolling out new national 

policy to guide the agency's volunteer programming, and continuing to expand the slate of 

available volunteer administration training tools in order to both strengthen the skill sets of 

agency volunteer coordinators and staff working with volunteers and increase the capacity of 

long-term, highly-skilled volunteers.

Partnerships

The BLM has long depended on working with others, through partnerships, to enhance public 

lands and to carry out its multiple-use mission. Meaningful engagement with diverse partners 

helps ensure that management decisions and efforts reflect the interests of affected 

communities while accomplishing shared or complementary goals. Working with partners also 

helps improve rangeland health, guard fragile biological and cultural resources, support a wide 

range of recreational activities, and tackle other stewardship goals.

In 2017, the BLM will further bolster its capacity to support partnerships to continually improve 

the management, stewardship, and public enjoyment of the Nation’s public lands. To achieve 

these objectives, the BLM will continue implementing its national partnerships strategy, which 

provides a framework to support and coordinate the use of partnerships across the BLM. Areas 

of focus include staffing and training, guidance and tools, practitioner networks, and data 
Bureau of Land Management 2017 Budget Justifications

Chapter IV – Crosscutting Programs Page IV-18

collection and reporting. The strategy and implementation plan build on the BLM’s successful 

partnership history and will help advance and strengthen partnerships across BLM programs. 

Successful and diverse partnerships across the BLM address agency and Department priorities. 

Some recent examples include:

• Seeds of Success (SOS) is a national native seed collection partnership program 

composed of a network of more than 50 collection teams, with participation from Federal 

and non-Federal partners. Since 2001, these partners have made over 

16,000 wildland native seed collections representing more than 5,000 species. These 

collections provide a hedge against native plant loss from climate change and help to 

ensure that iconic American species and their plant communities are preserved for future 

generations. SOS collections are the basis for much of the work that is conducted under 

the BLM's Native Plant Materials Development Program, whose mission is to increase 

the quality and quantity of native plant materials available for restoring and supporting 

resilient ecosystems, especially after wildfire, flooding and other disturbances. SOS also 

supports national pollinator goals as seed collecting teams across BLM field offices 

contribute to the seed reserve of pollinator friendly species. 

• The Burly Landscape Sage-Grouse Habitat Restoration Partnership in Idaho works 

to restore sage-grouse habitat by removing juniper to allow healthy sage-brush 

communities to thrive in southern Idaho. The public-private partnership has treated more 

than 8,000 acres and engaged youth and volunteers in planting sagebrush seedlings in 

areas burned by wildfire adjacent to or near treated junipers. Lek counts provide 

evidence that sage-grouse are returning to areas once overgrown with juniper. 

Removing juniper also improves recreational opportunities such as hunting, 

photography, and bird watching and lessens wildfire impacts created by the flammable 

plant. Wildfire is currently the foremost threat to sustaining sage-grouse populations in 

Idaho. The project’s goal is to treat 38,000 acres of BLM land by 2017 in addition to 

treating State and private lands.

• The Phoenix District Youth Initiative in Arizona is a model youth engagement 

partnership that encourages urban and Native American youth involvement in natural 

resource careers. The partnership delivers hands-on certification, environmental 

education, and employment programs on public lands; natural resource course and 

degree offerings; and tribal internships. Youth gain valuable work experience monitoring 

riparian habitats, removing invasive plants, performing stewardship and conservation 

projects, and participating in field-based science programs. Their work fosters 

sustainable youth engagement in the stewardship of America’s natural and cultural 

heritage. 
Bureau of Land Management 2017 Budget Justifications

Chapter IV – Crosscutting Programs Page IV-19

In 2017, the BLM will move forward with the 

implementation of a number of major Executive and 

Secretarial orders including: 

• Secretarial Order 3289: Addressing the Impacts of 

Climate Change (September 2009) which 

establishes DOI’s Energy and Climate Change 

Task Force and Climate Change Working Group.

• Executive Order 13514: Federal Leadership in 

Environmental, Energy and Economic Performance 

(October 2009) which directs agencies to reduce 

GHG emissions and support the development of 

renewable energy.

• Executive Order 13604: Improving Performance of 

Federal Permitting and Review of Infrastructure 

Projects (March 2012) which directs agencies to 

significantly reduce the aggregate time required to 

make decisions in the permitting and review of 

infrastructure projects and improve environmental 

and community outcomes.

• The President’s Climate Action Plan (June 2013) 

which outlines executive actions to cut carbon 

pollution in America; prepare the United States for 

the impacts of climate change, and lead 

international efforts to combat global climate 

change and prepare for its impacts. 

• Executive Order 13653: Preparing the United 

States for the Impacts of Climate Change 

(November 2013) which directs Federal agencies to 

help improve climate preparedness and resilience 

through deliberate preparation, close cooperation, 

and coordinated planning. 

• Secretarial Order No. 3330: Improving Mitigation 

Policies and Practices of the Department of the 

Interior (October 2013) which promotes a 

landscape-scale approach to identify and facilitate 

investments in key regional conservation priorities. 

• The President’s Priority Agenda for Enhancing the 

Climate Resilience of America’s Natural Resources 

(October 2014) which identifies strategies to: foster 

climate-resilient lands and waters; manage and 

enhance US carbon sinks; enhance community 

preparedness and resilience by utilizing and 

sustaining natural resources; and modernize 

Federal programs, investment, and delivery of 

services to build resilience and enhance 

sequestration of biological carbon.

• Secretarial Order No. 3336: Rangeland Fire 

Prevention, Management, and Restoration (January 

2015) which enhance the protection, conservation, 

and restoration of a healthy sagebrush-steppe 

ecosystem, and to address important public safety, 

economic, cultural, and social concerns.

 

Landscape Approach to Managing the Public Lands

The 2017 budget request enhances 

BLM’s capacity to effectively use regional 

information to manage the public lands to 

achieve conservation and development 

priorities in the face of compounding 

stressors such as prolonged drought, 

catastrophic wildland fire, invasive 

species and urban growth. 

Over the last ten years, the BLM has 

developed a number of tools to help 

manage the public lands on a landscape 

basis. These tools include creating the 

capacity to systematically synthesize 

large amounts of geospatial information 

to help the BLM and its partners develop 

a shared understanding of regional 

trends and regional conservation and 

development opportunities; working with 

public land users to institutionalize the 

“mitigation hierarchy” to help achieve 

conservation and development goals; 

developing regional partnerships to 

coordinate and focus multiple funding 

streams to help achieve regional 

conservation goals; and identifying core 

indicators, standard methods and multiscale sampling frameworks to monitor 

changes in terrestrial and aquatic 

condition across a region.

The BLM is incorporating the use of 

these tools into a number of major 

initiatives including the California Desert 

Renewable Energy Conservation Plan 

(DRECP), the Greater Sage-Grouse 

Conservation Plans, the Western Solar 

Energy Plan, and the plan for the 

National Petroleum Reserve – Alaska 

(NPRA). 

In 2017, the BLM will build on these 

successes by moving forward with the 

development of critical corporate 

geospatial data and a multi-scale 

approach to planning for the public lands. 
Bureau of Land Management 2017 Budget Justifications

Chapter IV – Crosscutting Programs Page IV-20

The Landscape Approach:

The BLM is working with Federal, State, 

tribal and non-governmental partners to 

develop a landscape approach to 

managing the public lands. This 

approach will use broad ecological 

assessments to better understand 

resource conditions and trends and to 

identify opportunities for resource 

conservation and development. As 

shown on the diagram to the right, the 

landscape approach to managing the 

Nation’s public lands consists of several 

interconnected actions, including 

regional assessments, regional 

conservation and development 

strategies, land use plans, projects and 

permits, monitoring for adaptive

management, science integration, and 

geospatial services. Taken together, these components will enable the BLM and its partners to 

more effectively evaluate and address conservation and development needs across 

programmatic, organizational and administrative boundaries. 

Regional Assessments: The BLM released ten Rapid Ecoregional Assessments (REAs) 

between 2013 and 2015 and is planning to release five additional REAs in 2016 and 2017. 

Taken together, these 15 REAs cover over 700 million acres of public and non-public lands. The 

REAs are peer-reviewed science products that synthesize existing information (including a 

significant amount of non-BLM data) about resource conditions and trends. They highlight and 

map areas of high ecological value; gauge potential risks from stressors including climate 

change; and establish landscape-scale baseline ecological data to gauge the effect and 

effectiveness of future management actions. The REAs provide the BLM with a large amount of 

information about current and projected resource condition, which the Bureau can then use 

along with similar information from other large-scale assessments to help identify potential 

development and conservation priorities; prepare land use plans and plan amendments; 

conduct cumulative impact analyses; develop best management practices; and authorize public 

land uses. The REAs and other sources for regional information, such as the Western 

Governors Association’s Crucial Habitat Assessment Tool, are foundational to the landscape 

management approach. 

To help address the President’s priority to manage and enhance US carbon sinks, the BLM will 

work with USGS and the other natural resource management agencies to ensure that the public 

lands managed by the BLM are covered by the Nation’s inventory of land carbon. This will 

include completing baseline assessments of ecosystem carbon sequestration and greenhouse 

gas fluxes and conducting studies to better understand how land management practices affect 

carbon stocks. 

Additionally, the BLM will continue working with partners to understand the interaction of 

changes in climate with the major habitat types that sustain the ecological and economic health 

of our Nation. The spatial analysis will identify spatial and temporal trends of climate change 

that have already occurred across the Western US landscapes. For specific ecosystems, e.g., 
Bureau of Land Management 2017 Budget Justifications

Chapter IV – Crosscutting Programs Page IV-21

sagebrush, ‘leading’ and ‘losing’ edges will be identified. Potentially resilient systems will be 

mapped, along with those with highest chances for transition. The resulting web-based 

mapping interface will support decision making for resource management across the West.

Regional Conservation and Development Strategies are critical bridges between ecoregional 

assessments and land use planning and other decision making processes. The BLM is working 

with partners to inventory and compile existing assessments and cross-walk the priority areas 

identified in each assessment. 

In 2014 and 2015, the BLM began work with a number of Landscape Conservation 

Cooperatives (LCCs) and other regional partnerships to develop shared understandings of the 

conservation and development opportunities highlighted by the REAs and other large-scale 

assessments, to identify what the BLM and its partners are already doing to address regional 

challenges and opportunities, and to 

outline additional actions that could be 

undertaken over the next five to ten years 

to help achieve regional goals. These 

regional strategies will significantly help 

the BLM implement the recent Secretarial 

Order on Improving Mitigation Policies 

and Practices. Because the REA 

information will be applied to many 

different types of management concerns, 

it is likely that more than one ecoregional 

strategy will be developed in each 

ecoregion. In 2016 and 2017, the BLM 

will continue work with the LCCs, as well 

as the Climate Science Centers and other 

regional partnerships, to complete 

ongoing regional strategies with a 

geographic emphasis on the Great Basin, 

the Southern Rockies, and the 

Southwestern Deserts.

In 2016-2017, the BLM will complete and 

begin to implement the regional mitigation 

strategies mandated by the approved 

Greater Sage Grouse Conservation Plans. 

And, in a closely related effort, the BLM 

will also complete and begin to implement phase one of the Conservation and Restoration 

Strategy mandated by the Department’s 2015 Integrated Rangeland Fire Strategy. This will set 

the stage for developing multi-year programs of work to more effectively focus and integrate 

conservation and restoration projects funded from multiple appropriated and non-appropriated 

funding sources.

Land Use Plans: BLM field offices are incorporating these regional assessments and strategies 

as appropriate into ongoing planning and other resource management activities. For example, 

data from completed REAs is being used to inform the Desert Renewable Energy Conservation 

Plan in California, to develop regional mitigation plans for Solar Energy Zones in Arizona, 

Colorado and Nevada, and to identify where National Conservation Lands units are important 

The landscape approach to public land management is a multiyear investment. The BLM anticipates that in each ecoregion it 

will take several years to implement this multi-scale approach to 

management.

• The first two to three years focuses on conducting 

REAs. In these assessments, the BLM and its partners: 

identify management questions; develop conceptual 

models; evaluate significant ecological values such as 

native fish, wildlife, and plants; evaluate terrestrial 

condition and aquatic condition; and identify four 

potential change agents (climate change, fire, invasive 

plants and animals, and urban and industrial 

development).

• In the third and fourth years, efforts to develop 

Regional Conservation and Development strategies are 

kicked-off. To provide a solid understanding of the 

components of REAs and the data, scientific 

approaches, modeling tools, and results for each 

ecoregion, the BLM is offering hands-on workshops 

and on-line content delivery, such as YouTube videos, 

to staff, partners, and the public that will increase our 

ability to utilize the vast amount of data and 

information in the REAs to enhance decision making.

 

• The next three to ten years are devoted to 

implementing planned actions, effectiveness 

monitoring, and data analysis and review for adaptive 

management. 
Bureau of Land Management 2017 Budget Justifications

Chapter IV – Crosscutting Programs Page IV-22

for resource protection and conservation within a broader landscape context. The BLM Division 

of Planning, Assessment and Monitoring has provided guidance on the use of REAs and other 

large-scale assessments for planning purposes, 

and is developing an efficient and adaptive 

approach to landscape level land use planning in 

which plans are more responsive to changing 

ecological systems over political and jurisdictional 

boundaries. This effort, referred to as Planning 

2.0, facilitates the ability to effectively conduct 

land use planning across landscapes. Planning

2.0 will focus the planning process on 

collaborative work with partners at different scales 

to produce highly useful decisions that readily 

address the rapidly changing environment and 

conditions posed by the changing climate, rapid 

growth and development and other ecological 

stressors. 

Projects and Permits: Field implementation puts the management strategies into practice 

through existing BLM programs, including the public participation and intergovernmental 

coordination opportunities associated with implementation planning and environmental impact 

assessment procedures. Examples of field implementation include authorizing land use, 

constructing facilities, and implementing on-the-ground treatments and projects. As a matter of 

policy, the BLM is committed to using the “mitigation hierarchy” to help site and design new 

developmental projects and focus off-site mitigation in areas with high value and high probability 

of success. 

Healthy Landscapes (HL) is a critical effort to integrate and focus on-the-ground restoration 

projects. The HL effort helps target project dollars from multiple BLM programs, partner 

contributions, and compensatory mitigation to fund conservation and restoration work in 

identified, cross-jurisdictional, priority areas. For example, HL funds may be combined or 

coordinated with other funds to complete a portfolio of projects in one focus area, such as 

vegetation treatments, travel management planning, Land and Water Conservation Fund 

acquisitions, and applied regional mitigation funds, when each project contributes to the 

objective of conserving intact habitat or defragmenting habitat. Coordinating and focusing 

integrated resource stewardship investments can help to generate added value, over and above 

what individual programs or mitigation funds could accomplish. Since its inception in 2007, HL 

has supported: more than 1.7 million acres of treatments in New Mexico through the Restore 

New Mexico program; more than 1 million acres of treatments in Utah in partnership with the 

Utah Watershed Initiative; and hundreds of thousands of acres of restoration projects through 

such partnerships as the Wyoming Landscape Conservation Initiative, the Great Basin 

Restoration Initiative and many lesser known projects coordinated at District Office levels. 

Although exact rates vary project to project, the BLM’s HL funds are typically leveraged by at 

least a 3:1 ratio. 

The BLM has developed a proposal to address the reforestation/afforestation backlog on the 

public lands. When implemented, it will enhance carbon sequestration on western BLM lands.

Monitoring for Adaptive Management: Informed decision making and adaptive management 

require current data about the status and trend of terrestrial and aquatic systems, about the 

General guidance about BLM’s Landscape Approach to 

Managing the Public Lands can be found in the 

following locations: 

• Climate Change: 

http://www.blm.gov/wo/st/en/prog/more/climatech

ange.html

• Landscape Approach: 

http://www.blm.gov/wo/st/en/prog/more/Landscape

Approach.html

• Rapid Ecoregional Assessments (REAs):

http://www.blm.gov/wo/st/en/prog/more/Landscape 

Approach/reas.html

• Monitoring for Adaptive Management: 

http://www.blm.gov/wo/st/en/prog/more/Landscape

Approach/Monitoring_for_Adaptive_Management.

html
Bureau of Land Management 2017 Budget Justifications

Chapter IV – Crosscutting Programs Page IV-23

location and extent of natural and human-caused disturbances, and about the location and 

effectiveness of land treatments. The BLM’s Assessment, Inventory, and Monitoring (AIM) 

Strategy is the framework for this data collection. This strategy outlines a process for using core 

indicators, standardized field methods, remote sensing, and a statistically valid study design to 

provide nationally consistent and scientifically defensible information to determine the status of 

and track changes to natural resources on the public lands over time. The AIM Strategy is 

currently being implemented through five sets of interrelated projects. The first three are 

designed to implement West-wide monitoring that is coordinated, and where possible, 

integrated with the monitoring activities of other Federal, State and non-governmental partners. 

The West-wide projects include the BLM Rangeland Assessment, the BLM Western Rivers and 

Streams Assessment, and the BLM Grass-Shrub Fractional Mapping Project. Some of the 

Federal partners included in these efforts are the National Resources Conservation Service, 

U.S. Environmental Protection Agency, U.S. Geological Survey, and U.S. Forest Service. The 

two remaining projects are designed to help support immediate multi-State and field office 

priorities. These projects include efforts to monitor the effectiveness of BLM land use plans and 

to determine the effectiveness of BLM treatments and actions. In 2016 and 2017, these five 

interrelated monitoring efforts will be implemented to inform the regional mitigation and 

monitoring strategies for the Solar Programmatic EIS and for the Greater Sage-Grouse 

Conservation Plans. 

Adapting to Climate Change: In 2016 BLM issued policy on Adapting to Climate Change that 

identifies six priorities: sustain basic ecological processes; conserve and enhance areas with 

significant resource values; manage new development to avoid, minimize and when necessary 

compensate for direct, indirect and cumulative impacts; identify the potential effects of climate 

change on public land users and adjacent communities and help them develop and implement 

strategies to adapt to these changes; identify and manage risks from landscape scale change 

agents to cultural, paleontological and tribal resources; and foster an understanding of the role 

of protected area networks in climate change adaptation. In 2017, BLM will continue to 

incorporate these priorities in its land use planning and other decision making processes. 
Bureau of Land Management 2017 Budget Justifications

Chapter IV – Crosscutting Programs Page IV-24

Map of Rapid Ecoregional Assessments and Landscape Conservation Cooperatives

The BLM initiated seven REAs in 2010, two assessments in 2011, and six more in 2012. The BLM published 10 

completed REAs in 2013-2015 and is planning to publish 5 more REAs in 2016-2017. BLM is coordinating with other 

agencies and partners to keep the REAs updated and fresh. 
Budget at a Glance

Bureau of Land Management 2017 Budget Justifications

Chapter V – Budget At A Glance Page V-1

BUDGET AT A GLANCE

 Management of Lands and Resources

Soil, Water & Air Management 43,239 43,609 +145 - +1,624 45,378 

Enhance Core Capability - - +0 - +983 -

National Mitigation Team - - +0 +641 -

Rangeland Management 79,000 79,000 +332 - -16,500 62,832 

Shift Cost to Fee - - +0 - -16,500 -

Grazing Administration Management - - +0 - +0 16,500

Grazing Administration Fee - - +0 - +16,500 -

Grazing Administration Fee Offset - - +0 - -16,500 (16,500) 

Public Domain Forest Mgmt 9,838 9,980 +96 - +0 10,076

Riparian Management 21,321 21,321 +136 - +1,463 22,920 

Enhance Core Capability - - +0 - +1,463 -

Cultural Resources Mgmt 15,131 16,131 +122 - +1,075 17,328 

Safeguarding Our Irreplaceable Heritage - - +0 - +1,075 -

Wild Horse & Burro Mgmt 77,245 80,555 +125 - -572 80,108 

General Program Decrease - - +0 - -572 -

Activity Total, Land Resources 245,774 250,596 +956 - -12,910 238,642 

Budget at a Glance

(dollars in thousands)

 2015 

Actual 

 2016 

Enacted 

2017 President's Budget

 Fixed 

Costs Transfers Program Change

 Requested 

Amount 
Bureau of Land Management 2017 Budget Justifications

Chapter V – Budget At A Glance Page V-2

 Fixed 

Costs Transfers Program Change

 Requested 

Amount 

 Management of Lands and Resources

Wildlife Management 52,338 89,381 +160 - +19,150 108,691 

Sage-grouse Conservation - - - - +14,150 -

National Seed Strategy - - - - +5,000 -

Fisheries Management 12,530 12,530 +98 - - 12,628

Subtotal Wildlife & Fisheries 64,868 101,911 +258 - +19,150 121,319 

Threatened & Endangered Species 21,458 21,567 +131 - - 21,698

Wilderness Management 18,264 18,264 +128 - - 18,392

Recreation Resources Management 48,697 51,197 +229 - +2,039 53,465 

Improve Accessibility - - - - +2,039 -

Subtotal, Recreation Resource Management 66,961 69,461 +357 - +2,039 71,857 

(continued)

Budget at a Glance

(dollars in thousands)

 2015 

Actual 

 2016 

Enacted 

2017 President's Budget
Bureau of Land Management 2017 Budget Justifications

Chapter V – Budget At A Glance Page V-3

 Fixed 

Costs Transfers Program Change

 Requested 

Amount 

 Management of Lands and Resources

Oil & Gas Management 53,183 59,671 +289 - +20,614 80,574 

Strengthening Oil and Gas Oversight and Systems AFMSS II - - - - +15,227 - 

Oil & Gas Special Pay - - - - +2,576 - 

Alaska Legacy Wells - - - - +2,811 - 

Oil & Gas Permit Processing 32,500 7,125 - - -760 6,365 

Updated Fee Estimate -760 

Oil & Gas Inspection Activities 41,126 48,000 - - - 48,000 

Less: Offsetting Fees (Permit Processing and Inspection) (28,697) - - - -48,000 -48,000 

Coal Management 9,595 10,868 +94 - - 10,962 

Other Mineral Resources 10,586 11,879 +99 - -1,000 10,978 

Anticipated Completion of Mineral Tracking System - - - - -1,000 - 

Renewable Energy 29,061 29,061 +128 - - 29,189 

Subtotal, Energy and Minerals Management 147,354 166,604 +610 - -29,146 138,068 

Alaska Conveyance 22,000 22,000 +107 - -4,780 17,327 

Streamline Conveyance Process - - +0 - -4,780 -

Cadastral, Lands & Realty Management 45,658 51,252 +228 - - 51,480

Communication Site Management 2,000 2,000 - - - 2,000

Comm Site Offset (2,000) -2,000 - - - (2,000)

Activity Total, Realty & Ownership Management 67,658 73,252 +335 - -4,780 68,807 

(continued)

Budget at a Glance

(dollars in thousands)

 2015 

Actual 

 2016 

Enacted 

2017 President's Budget
Bureau of Land Management 2017 Budget Justifications

Chapter V – Budget At A Glance Page V-4

 Fixed 

Costs Transfers Program Change

 Requested 

Amount 

 Management of Lands and Resources

Resource Mgmt Planning, Assessment & Monitoring 38,125 48,125 +162 - +16,916 65,203 

Assessment, Inventory, & Monitoring Strategy - - - - +4,300 -

Enterprise Geospatial System - - - - +6,916 -

High-Priority Planning Efforts - - - - +5,700 -

Abandoned Mine Lands 16,987 19,946 +90 - - 20,036

Law Enforcement 25,325 25,495 +121 - - 25,616

Hazardous Materials Management 15,612 15,612 +102 - -251 15,463 

General Program Decrease -251

Activity Total, Resource Prot. & Maint. 96,049 109,178 +475 - +16,665 126,318 

Annual Maint. & Ops 38,637 38,942 +183 - - 39,125

Def. Maint. & Cap. Improvements 26,995 31,387 +88 - -2,274 29,201 

General Program Decrease - - - - -4,049 -

DOI Southwest Border Radio Initiative - - - - +1,775 -

Activity Total, Trans. & Fac. Maintenance 65,632 70,329 +271 - -2,274 68,326 

(continued)

Budget at a Glance

(dollars in thousands)

 2015 

Actual 

 2016 

Enacted 

2017 President's Budget
Bureau of Land Management 2017 Budget Justifications

Chapter V – Budget At A Glance Page V-5

 Fixed 

Costs Transfers Program Change

 Requested 

Amount 

 Management of Lands and Resources

Challenge Cost Share 2,413 2,413 - - -2,413 -

Program Elimination - - - - -2,413 -

National Conservation Lands 31,819 36,819 +175 - +13,651 50,645 

New Designations and Enhanced Operations - - - - +13,651 -

Administrative Support 47,127 50,942 +197 - - 51,139

Bureauwide Fixed Costs1 91,010 93,645 -996 - - 92,649

IT Management 25,696 25,958 +119 - - 26,077

Activity Total, Workforce & Organizational Support 163,833 170,545 -680 - - 169,865

Mining Law Administration 39,696 39,696 - - - 39,696

Mining Law Offset (39,696) (39,696) - - - (39,696)

Total, Management of Lands & Resources 973,819 1,072,675 +2,888 - -18 1,075,545 

(continued)

Budget at a Glance

(dollars in thousands)

 2015 

Actual 

 2016 

Enacted 

2017 President's Budget
Bureau of Land Management 2017 Budget Justifications

Chapter V – Budget At A Glance Page V-6

 Fixed 

Costs Transfers Program 

Change

 Requested 

Amount 

 Land Acquisition

Land Acquisition 16,226 35,014 - - +5,287 40,301 

Line-item Projects - - - - +5,287 -

Emergency & Hardships 1,616 1,616 - - - 1,616

Acquisition Management 1,904 2,000 +42 - - 2,042

Total, Land Acquisition 19,746 38,630 +42 - +5,287 43,959 

(continued)

Budget at a Glance

(dollars in thousands)

 2015 

Actual 

 2016 

Enacted 

2017 President's Budget
Bureau of Land Management 2017 Budget Justifications

Chapter V – Budget At A Glance Page V-7

 Fixed 

Costs Transfers Program Change

 Requested 

Amount 

 Oregon and California Grant Lands

Deferred Maintenance - - - - - -

Annual Maintenance & Operations 9,517 9,602 +26 - - 9,628

Activity Total, Trans. & Facilities Maint. 9,517 9,602 +26 - - 9,628

Forest Management 33,447 33,752 +73 - - 33,825

Reforestation & Forest Development 23,851 24,023 +43 - - 24,066

Other Forest Resource Mgmt 36,985 33,495 +61 - - 33,556

Resource Mgmt Planning 7,140 3,985 +13 - -1,000 2,998 

Anticipated Plan Completion - - - - -1,000 -

Activity Total, Resources Management 101,423 95,255 +190 - -1,000 94,445 

Info. & Resource Data Systems 1,772 1,786 +12 - - 1,798

Construction & Acquisition 312 324 +11 - - 335

NMs & NCAs 753 767 +12 - - 779

Total, Oregon & California Grant Lands 113,777 107,734 +251 - -1,000 106,985 

(continued)

Budget at a Glance

(dollars in thousands)

 2015 

Actual 

 2016 

Enacted 

2017 President's Budget
Bureau of Land Management 2017 Budget Justifications

Chapter V – Budget At A Glance Page V-8

 Fixed 

Costs Transfers Program Change

 Requested 

Amount 

Range Improvements 9,270 9,320 - - +680 10,000 

Miscellaneous Trust Funds (Current) 21,972 24,000 - - -1,070 22,930 

Service Charges, Deposits & Forfeitures 28,070 31,050 - - - 31,050

Service Charges, Deposits & Forfeitures (Offset) (28,070) (31,050) - - - (31,050)

Total, Service Charges, Deposits & Forfeitures - - - - - -

TOTAL, DIRECT APPROPRIATIONS 1,138,584 1,252,359 +3,181 - +3,879 1,259,419 

Notes:

- Change in Range Improvements between 2016 and 2017 reflects the change in available appropriations due to a sequester of 6.8% in 2016, not a 

request for an increase in appropriated funds.

Budget at a Glance

(dollars in thousands)

 2015 

Actual 

 2016 

Enacted 

2017 President's Budget
Collections 

Bureau of Land Management 2017 Budget Justifications

Chapter VI – Collections Page VI-1

COLLECTIONS

BLM Collections, 2014 - 2017 ($000)

Collection Source 2014

Actual

2015

Actual

2016

Estimated

2017

Estimated

Sale of Public Lands 76,580 99,861 96,057 88,597

Miscellaneous Filing Fees 122 56 60 60

Mineral Leasing National Grasslands 1,897 1,159 1,780 1,780

Grazing Fees & Land Utilization Project Lands 12,117 14,516 12,755 11,704

Timber Sales & Vegetative Material 43,708 48,897 34,260 28,770

Recreational Use Fees 18,645 21,842 18,662 19,204

Earnings on Investments 369 275 2,200 5,260

Sale of Helium 242,111 181,699 207,297 125,811

Mining Claim & Holding Fees 57,437 57,341 54,981 55,117

Service Charges, Deposits and Forfeitures 29,998 28,070 31,050 31,050

Application for Permit to Drill Fees 35,413 28,698 38,950 42,437

Grazing Administrative Processing Fees 0 0 0 16,500

Onshore Oil and Gas Lease Inspection Fees 0 0 0 48,000

Other Collections 94,220 106,584 105,682 126,195

Total 612,617 588,998 603,734 597,485

2017 Collections

In 2017, the Bureau of Land Management (BLM) will directly collect an estimated total of $600.3

million in revenue. Revenue is collected by the BLM from sources such as the sale of land and 

materials, grazing fees, timber sales, recreation use fees, and various filing fees. These 

collections assist State and local governments, support all programs funded from the General 

Fund of the U.S. Treasury, and offset charges for program operations where certain fees 

collected can be retained by the BLM. 

In addition, the Office of the Natural Resources Revenue (ONRR) will collect an estimated $2.7

billion in receipts from BLM’s onshore mineral leasing activities (bonuses, rents, and royalties). 

Because ONRR collects them, these mineral leasing receipts are reflected in the ONRR budget 

materials (within the Office of the Secretary Budget Justification). 

The amount of revenue expected to come from some sources varies for the reasons described 

below. 

Sales of Public Land – This category includes receipts from the sale of public land, including 

land sales in Clark County, Nevada. Excluded from this collection source are the sales of 

timber and vegetative materials from the public domain land, sale of land and timber and 

vegetative materials from the Oregon & California Grant Lands and Coos Bay Wagon Road 
Bureau of Land Management 2017 Budget Justifications

Chapter VI – Collections Page VI-2

Lands, sale of land from Land Utilization project lands, sale of land and materials from 

reclaimed lands (reserved or withdrawn), and sale of town sites and reclamation projects. 

The main sources of collections in the Sale of Public Land category are described below. The 

collection amounts described here represent 100 percent of the funds collected. In many cases, 

portions of the funds collected are distributed to State governments, to the U.S. Treasury, or 

other entities, before the remaining portion is distributed to the BLM. The Management of 

Lands and Resources, Permanent Operating Funds, Miscellaneous Permanent Payments, and 

Miscellaneous Trust Funds chapters describe the portions allocated to the BLM and how the 

BLM uses the funds. 

• Southern Nevada Public Land Management Act (SNPLMA) Sales Proceeds –SNPLMA, 

as amended, provides a process for the orderly sale of certain public lands in Clark County, 

Nevada, near the city of Las Vegas. Approximately 50,000 acres of public land are within 

the disposal boundary area. The BLM has conducted land sales for 15 years under the 

authority of this statute. Collections in 2014 and 2015 were $61,430,000 and $78,441,000 

respectively. Sales in 2016 are projected to produce $75,065,000. The increase is due to 

an increase in estimates of acres sold offsetting a lower price per acre. Estimated 

collections for 2017 are expected to be $66,660,000 mainly coming from final payments 

received from the spring 2016 sale less 15% payments on the estimated total gross 

revenue. Collections are reported when payments are received regardless of when sales 

are held and the estimates make allowance for the normal lag of 180 days between sales 

and collections. For more information see SNPLMA, P.L. 105-263, as amended by P.L. 

107-282.

• Southern Nevada Public Land Management and Lincoln County – Earnings on 

Investments – SNPLMA authorizes the Secretary to manage the collections account for the 

purposes set out above, and is also authorized to use interest generated from the abovementioned funds. The BLM is authorized to invest the unspent balance of collections from 

SNPLMA and Lincoln County Lands Act land sale receipts. Earnings on investments for 

2014 and 2015 were $369,000 and $275,000 respectively. Interest estimated to be earned 

in 2016 and 2017 is $2,200,000 and $5,260,000 respectively. Projected investment 

earnings take into account revenue from land sales, earnings on investments, and projected 

interest rates and outlays. 

• Federal Land Transaction Facilitation Act (FLTFA) – No receipts were collected from the 

sale of land under FLTFA, Title II of P.L. 106-248 in 2013 or 2014 because the authority 

expired in July 2011; the unobligated balance was transferred to the Land and Water 

Conservation Fund as required by law. The 2017 Budget includes a proposal to reauthorize 

FLTFA and allow lands identified as suitable for disposal in current land use plans to be sold 

using the FLTFA authority. FLTFA sales revenues would continue to be used to fund the 

acquisition of environmentally-sensitive lands and the administrative costs associated with 

conducting sales. Estimated collections for 2017 are $5,000,000. The Permanent 

Operating Funds section provides more information on the proposal. Four percent of FLTFA 

collections are paid to the State in which the land is sold. 

• Lincoln County Land Sales – Revenue in the amount of $3,353,000 was collected in 2015 

from land sales under the Lincoln County Land Sales Act, P.L. 106-298, as amended. 

Receipts, mainly from Coyote Springs sales, are estimated to be $436,000 and $427,000 in 

2016 and 2017, of which five percent and ten percent will be paid to the State and County. 
Bureau of Land Management 2017 Budget Justifications

Chapter VI – Collections Page VI-3

• Owyhee Land Acquisition Account – Revenue collected prior to the enactment of the 

Omnibus Public Land Management Act of 2009 in the amount of $2,451,000 was deposited 

to this account in 2010. No revenue was collected in the account since then, but $100,000 

is estimated to be collected in 2016; and sales in 2017 are estimated to produce 

$1,500,000. Four percent of those amounts are paid to the State. 

• Washington County, Utah Land Acquisition Account – Revenue in the amount of 

$806,000 was collected in 2015 from the sale of land under the Washington County, Utah 

Acquisition Account, P.L. 111-11, (Section 1978). Estimated collections in 2016 are 

$4,432,000. No revenue is estimated in 2017.

• Silver Saddle Endowment Account – Revenue in the amount of $375,000 was collected in 

2015 from the sale land under the Silver Saddle Endowment Account, P.L. 111-11, (Section 

2601). Estimated collections in 2016 are $823,000. Four percent of collections will be paid 

to the State. No revenue is estimated in 2017.

• Carson City Special Account – Revenue in the amount of $55,000 was collected in 2015

from the sale of land under the Carson City Special Account, P.L. 111-11, (Section 2601). 

None is estimated to be collected in 2016 and 2017. 

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 the BLM to retain and spend those collections. 

Mineral Leasing-National Grasslands – The Office of Natural Resources Revenue, formerly a 

component of the Minerals Management Service, is responsible for the collection and 

distribution of most mineral leasing receipts; however, the BLM administers and collects rentals 

from oil and gas pipeline rights-of-way associated with lands leased under the Mineral Leasing 

Act and the Mineral Leasing Act for Acquired Lands. Also, the BLM pays 25 percent of mineral 

leasing collections on acquired lands to counties where the collections were generated. The 

BLM continues to collect first-year rentals and initial bonuses from mineral leasing but transfers 

these receipts to ONRR accounts. 

Grazing Fees from Public Lands and Land Utilization Project Lands – This category 

includes all grazing fees collected from public lands and Land Utilization Project lands 

administered by the BLM. It also includes mineral leasing and other receipts from Land 

Utilization Project lands. Grazing fees are collected under the authority of the Taylor Grazing 

Act, Federal Land Policy and Management Act, and the Public Rangelands Improvement Act of 

1978. For more information on the use of these fees see the Range Improvements section. 
Bureau of Land Management 2017 Budget Justifications

Chapter VI – Collections Page VI-4

Timber and Vegetative Material Sales – 

• Receipts from the Oregon and California (O&C) and Coos Bay Wagon Road Grant 

(CBWR) Lands – In 2015, the BLM collected $47,571,000, mostly from timber receipts 

from Oregon and California and Coos Bay Wagon Road lands. 

• Under the Medicare Access and CHIP Reauthorization Act of 2015, and the Extension of 

Secure Rural Schools and Community Self-Determination Act of 2000 (P.L 114-10), 

Secure Rural Schools payments were authorized for two years. The payments were 

authorized to be made in 2015 (for 2014) and 2016 (for 2015). The 2017 Budget 

proposes a five-year reauthorization of the Secure Rural Schools Act with funding 

through mandatory U.S. Forest Service (USFS) appropriations. The USFS will make the 

Secure Rural Schools (SRS) payments to western Oregon counties. This SRS proposal 

revises the allocation split between the three portions of the program from the current 

authority emphasizing enhancement of forest ecosystems, restoration and improvement 

of land health and water quality and the increase of economic activity. (Please refer to 

the Miscellaneous Permanent Payments section for more information about the SRS 

and the USFS budget for more information on the reauthorization proposal.) 

• Timber Receipts from the Public Domain Forest Lands – In 2016, the BLM expects 

to offer for sale 25 million board feet of timber products from public domain lands, and 

estimates collections of $1,154,000 in timber sales receipts from public domain lands. 

Collections in 2014 and 2015 were $1,920,000 and $2,185,000 respectively, and the 

estimates for 2016 and 2017 are $2,600,000 and $1,550,000. Collections from salvage 

timber sale on public domain lands were $1,270,000 in 2014 and $1,099,000 in 2015. 

Estimates are $2,000,000 in 2016 and $1,000,000 in 2017. 

• Stewardship Contracting Fund – With stewardship contracting, the BLM may apply the 

value of timber or other forest products removed as an offset against the cost of services 

received, and monies from a contract under subsection (a) may be retained by the USFS 

and the BLM. These monies are available for expenditure without further appropriation 

at the project site from which the monies are collected or at another project site. In 2014 

and 2015, the BLM deposited $175,000 and $237 to this fund. The authority expired on 

September 30, 2013, but was extended by the Agriculture Act of 2014, Public Law No: 

113-79. The BLM estimates deposits will be $20,000 in 2016 and 2017. 

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 2014, 

and 2015 recreation fee collections were $18,645,000 and $21,842,000. The BLM anticipates 

collecting $18,662,000 in 2016 and $19,204,000 in 2017 under its recreation fee collection 

authorities. The use of recreation fee collections is described in the Permanent Operating 

Funds section. Under current law, authority for these collections expires in December, 2016. 

The 2017 Budget proposes to permanently extend the authority to collect and spend these fees. 

Naval Oil Shale Reserve – On August 7, 2008, the Secretaries of the Interior and Energy 

certified that sufficient funds had been collected to cover the cost of the cleanup and of 

equipment installed on the oil shale reserve. Because of the certification, no more deposits 

were to be made to the Naval Oil Shale Reserve Fund. New revenue from operations at the site 

is now distributed under the Mineral Leasing Act. The unappropriated account balance is 

$76,665,506 which will not change unless new legislation is enacted.
Bureau of Land Management 2017 Budget Justifications

Chapter VI – Collections Page VI-5

Sales of Helium – The Helium Privatization Act of 1996 required the Secretary to offer for sale 

a portion of the Conservation Helium stored underground at the Cliffside Field north of Amarillo, 

Texas. Revenue from sales in 2014 was $242,111,000. That amount was sufficient to pay the 

remaining debt owed to the Treasury, and the authority for the Helium Revolving Fund expired 

after that payment was made. Authority for the helium program was reauthorized by the Helium 

Stewardship Act of 2013, P.L. 113-40. Collections from annual sales were $181,699,000 in 

2015 and are projected to be $207,297,000 and $125,811,000 in 2016 and 2017. Revenues in 

excess of the cost of operating the helium program will be deposited to the General Fund. 

Additional information is available in the helium program section.

Mining Claim-Related Fees – Authority to collect these fees was initially enacted in the

Department of the Interior and Related Agencies Appropriations Act for 1989, which provided 

that fees established by the Secretary of the Interior for processing actions relating to the 

administration of the General Mining Laws shall be immediately available to BLM for Mining Law 

Administration program operations. 

The Omnibus Budget Reconciliation Act of 1993, P.L. 103-66, (Section 10101) provided for the 

annual $100 per claim maintenance fee for unpatented mining claims and sites to continue 

through 1998. The authority has been modified and extended by Interior appropriations acts. 

The law allows a waiver from the fee for those claimants who hold 10 or fewer claims. The 

authority also established a $25.00 per claim location fee for new claims, to be paid at the time 

of recordation. The law requires that the fee be adjusted for inflation. The maintenance fee is 

currently $155.00 per claim and the location fee is currently $37.00 per claim. Collections in 

2014 and 2015 were $57,437,000 and $57,341,000. They are estimated to be $54,981,000 in 

2016 and $55,117,000 in 2017. Additional information is included in the Mining Law 

Administration section. 

A $20.00 processing fee is required for new mining claim locations in addition to the initial 

maintenance fee and location fee. BLM collects this fee under its cost recovery regulations (see 

43 CFR 3000.12). These fees are accounted for separately from the maintenance and location 

fees and therefore are not included in the above total. Additional information is included in the 

Activity: Mining Law Administration section. 

Service Charges, Deposits, and Forfeitures – These receipts include revenue from providing 

special program services, such as rights-of-way application processing fees; wild horse and 

burro adoption fees; fees charged to timber sale purchasers when the BLM performs work 

required by the contract; reimbursement to the government for damage to lands and resources; 

collections for processing disclaimers of interest applications; and photocopying fees. The 

collection and retention of each of these receipts are authorized through legislation. Collections 

in 2015 were $28,070,000 and are estimated to be $31,050,000 in 2016 and in 2017. Additional 

information is included in the Service Charges, Deposits and Forfeitures section. 

Application for Permit to Drill Fees – For several years, the annual Interior, Environment, and 

Related Agencies Appropriations Act authorized the BLM to collect a fee when an application for 

a permit to drill for oil and natural gas was submitted. The fee in 2014 and 2015 was $6,500 per 

application. In 2014 and 2015, $35,413,000 and $28,698,000 were collected. Up to $32,500,000 

from those collections were authorized to be credited to the Management of Lands and 

Resources appropriation. Collections in excess of that amount were deposited to the General 

Fund. The National Defense Authorization Act, P.L. 113-291, now requires that in 2016 and 

beyond that the fee per application be increased to $9,500 and be adjusted for inflation. It also 
Bureau of Land Management 2017 Budget Justifications

Chapter VI – Collections Page VI-6

requires that the fees be deposited to the Permit Processing Improvement Fund. Estimated 

APD fees are $38,950,000 in 2016 and $42,437,000 in 2017. For more information, please 

refer to the discussion in the Oil and Gas Management Program and the Permanent Operating 

Funds Chapter. 

Onshore Oil and Gas Lease Inspection Fees – The 2017 budget continues to propose that 

inspection fees be instituted for onshore oil and gas leases, similar to the fees already collected 

from offshore oil and gas operations. The fees would support Federal efforts to provide services 

to ensure the proper reporting of oil and gas production, protect human safety and the 

environment, and conserve energy resources. These fees will be credited to the Management 

of Lands and Resources appropriation. The estimate for 2017 is $48,000,000. 

Grazing Administrative Processing Fees – The Budget includes appropriations language for 

a three-year pilot project to allow the BLM to recover some of the costs of issuing grazing 

permits/leases on BLM lands. The BLM would charge a fee of $2.50 per Animal Unit Month, 

which would be collected along with current grazing fees. The fee will assist the BLM in 

processing pending applications for grazing permit renewals. During the period of the pilot, the 

BLM would work through the process of promulgating regulations for the continuation of the 

grazing administrative fee as a cost recovery fee after the pilot expires. The fees will be 

credited to the Management of Lands and Resources appropriation. The estimate for 2017 is 

$16,500,000. 

Other Collections – Other receipts collected by the BLM are from land rentals for authorized 

commercial, industrial, and residential purposes; annual rentals from rights-of-way permits 

(except those issued under the authority of the Mineral Leasing Act); and from contributions. 

These consist of funds contributed to the BLM from non-Federal sources for projects or work 

authorized by the Federal Land Policy and Management Act, Taylor Grazing Act, Sikes Act, and 

other laws. Additional information on other collections is included in the Miscellaneous 

Permanent Payments, Permanent Operating Funds, and Miscellaneous Trust Fund sections. In 

2015, the BLM collected $17,500,000 from wind and solar renewable energy rights-of-way 

rents. Estimates for 2016 and 2017 are of $17,500,000 and $21,900,000 respectively. 

Amounts Not Included in Collections – Payments to western Oregon counties under the

Secure Rural Schools and Community Self-Determination Act of 2000, as amended, were made 

partially from receipts produced in those counties in the preceding year. Over half of the 

amounts paid, however, are derived from an appropriation from the General Fund. Of the total 

of payments of $38,291,000 to the western Oregon counties for 2014 in 2015, $7,731,000 

million were appropriated from the General Fund. The estimated payments for 2015 (to be 

made in 2016) are $36,377,000. At this time, the amount that will be appropriated from the 

General Fund is not known. The 2016 payment is the final payment authorized under the 

current law. 

SRS payments were enacted by P.L. 106-393 for Fiscal Years 2002 through 2006. They were 

extended for one year (FY 2007) by Public Law 110-28, extended for Fiscal Years 2008 through 

2011 by Public Law 110-343; extended 2012 by Public Law 112-141; extended for 2013 by 

Public Law 113-40; and were extended for 2014 and 2015 by Public Law 114-10. (Payments 

are made in the year following the year for which the payments are authorized.) The 2017 

Budget reflects a five-year reauthorization of funding through mandatory USFS appropriations.
Management of Lands 

and Resources

Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-1

MANAGEMENT OF

LANDS AND RESOURCES

Appropriations Language

For necessary expenses for protection, use, improvement, development, disposal, cadastral 

surveying, classification, acquisition of easements and other interests in lands, and performance 

of other functions, including maintenance of facilities, as authorized by law, in the management 

of lands and their resources under the jurisdiction of the Bureau of Land Management, including 

the general administration of the Bureau, and assessment of mineral potential of public lands 

pursuant to section 1010(a) of Public Law 96–487 (16 U.S.C. 3150(a)), [$1,072,675,000]

$1,075,545,000, to remain available until expended, including all such amounts as are collected 

from permit processing fees, as authorized but made subject to future appropriation by section 

35(d)(3)(A)(i) of the Mineral Leasing Act (30 U.S.C. 191), except that amounts from permit 

processing fees may be used for any bureau related expenses associated with the processing 

of oil and gas applications for permits to drill and related use of authorizations; of which 

$3,000,000 shall be available in fiscal year [2016] 2017 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 lumpsum grant without regard to when expenses are incurred. 

 In addition, 

 (1) $48,000,000, to remain available until expended, is for conducting oil and gas inspection 

activities, to be reduced by amounts collected by the Bureau and credited to this appropriation 

that shall be derived from onshore oil and gas inspection fees that the Bureau shall collect, as 

provided for in this Act, except that, for fiscal year 2017, inspection fees collected by the Bureau 

of Land Management may be used to fund personnel and mission-related costs to expand 

capacity and expedite orderly energy development subject to environmental safeguards, on 

Federal land, pursuant to the Federal Land Policy and Management Act of 1976 (43 U.S.C. 

1701 et seq.), including the review of applications for permits to drill; 

 (2) $16,500,000, to remain available until expended, is for the processing of grazing permits 

and leases, to be reduced by amounts collected by the Bureau and credited to this 

appropriation, which shall be derived from the $2.50 per animal unit month administrative fee, 

as provided for in this Act; and

 (3) $39,696,000 is for Mining Law Administration program operations, including the cost of 

administering the mining claim fee program, to remain available until expended, to be reduced 

by amounts collected by the Bureau and credited to this appropriation from mining claim 

maintenance fees and location fees that are hereby authorized for fiscal year [2016] 2017, so as 

to result in a final appropriation estimated at not more than [$1,072,675,000] $1,075,545,000, 

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, 2016.)
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-2

Appropriation Language Citations

1. 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

Appropriates funds to implement the Federal Land Policy and Management Act of 1976, as 

amended (43 U.S.C. 1701 et seq.) for management of the public lands on a multiple-use and 

sustained yield basis and such laws applicable to the management of the public lands. 

2. and assessment of mineral potential of public lands pursuant to section 1010(a) of 

Public Law 96–487 (16 U.S.C. 3150(a))

The Alaska National Interest Lands Conservation Act, Public Law 96-487 (16 U.S.C. 3150(a)) 

established the Alaska mineral resource assessment program to assess the oil, gas, and other 

mineral potential on all public lands in the State of Alaska in order to expand the data base with 

respect to the mineral potential of such lands. The appropriations language provision allows the 

funds appropriated under this section to also be used for the Alaska mineral resource 

assessment program to assess the oil, gas, and other mineral potential on all public lands in the 

State of Alaska in order to expand the database with respect to the mineral potential of such 

lands.

3. $1,075,545,000 to remain available until expended

The language makes the appropriations to the account available on a no-year basis. This type 

of account allows BLM a valuable degree of flexibility needed to support multi-year contracts, 

maintenance, construction, operations, and rehabilitation of public lands.

4. including all such amounts as are collected from permit processing fees, as 

authorized but made subject to future appropriation by section 35(d)(3)(A)(i) of the 

Mineral Leasing Act (30 U.S.C. 191), as amended, except that amounts from permit 

processing fees may be used for any bureau-related expenses associated with the 

processing of oil and gas applications for permits to drill and related use 

authorizations,

Included within the appropriated amount is 15 percent of the fees collected from applications 

for permits to drill (APD) not permanently appropriated by the National Defense Authorization 

Act for Fiscal Year 2015 (P.L. 113-291), Section 3021(b), BLM Oil and Gas Permit Processing 

Fee, which amended the Mineral Leasing Act to authorize a fee of $9,500 per APD (in 2016) 

on lands under the management of the BLM. The NDAA authorizes the fee for fiscal years 

2016 through 2026. For years 2016 through 2019, the NDAA permanently appropriates 85 

percent of the fees collected, and makes the remaining 15 percent of fee revenues subject to 

appropriation. For years 2020 through 2026, 100 percent of the fee revenues are permanently 

appropriated.

5. of which $3,000,000 shall be available in fiscal year 2016 subject to a match by at 

least an equal amount by the National Fish and Wildlife Foundation for cost-shared 
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-3

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.

Provides authority for the BLM to transfer $3.0 million to the National Fish and Wildlife 

Foundation (NFWF) for the purposes described and that the grant is advanced to NFWF as a 

lump sum in advance of them incurring or planning the expenses associated with the projects, 

provided NFWF matches the grant on a dollar for dollar basis from other funds.

6. $48,000,000, to remain available until expended, is for conducting oil and gas 

inspection activities, to be reduced by amounts collected by the Bureau and credited 

to this appropriation that shall be derived from onshore oil and gas inspection fees 

that the Bureau shall collect, as provided for in this Act, 

This new provision appropriates to the BLM an amount to be offset by revenues generated by 

new fees to be assessed for oil and gas inspection activities. The appropriations language 

authorizes the BLM to spend the estimated $48.0 million in fee collections on inspection 

activities, and this $48.0 million appropriation is then reduced by the amount of inspection fees 

actually collected. The fee schedule is located in Section 114 of the General Provisions, and is 

also shown in the Summary of Program Changes and Legislative Proposals chapter of the 

BLM Budget Justification.

7. except that, for fiscal year 2017, inspection fees collected by the Bureau of Land 

Management may be used to fund personnel and mission-related costs to expand 

capacity and expedite orderly energy development subject to environmental 

safeguards, on Federal land, pursuant to the Federal Land Policy and Management 

Act of 1976 (43 U.S.C. 1701 et seq.), including the review of applications for permits 

to drill;

This language provides BLM a valuable degree of flexibility by permitting the $48 million for oil 

and gas inspection activities to also be used to support orderly, rational development of oil and 

gas on public lands. In 2017, BLM’s Oil and Gas Management program will be increasingly 

dependent on permanent appropriations, in the form of lease rental revenues and APD fees 

deposited into the Permit Processing Improvement Fund, which are not provided at the 

beginning of the year, but instead only become available as they are collected over the course 

of the fiscal year. The appropriations language will assist BLM in executing all of its oil and 

gas management responsibilities effectively throughout the year.

8. $16,500,000, to remain available until expended, is for the processing of grazing 

permits and leases, to be reduced by the amounts collected by the Bureau and 

credited to this appropriation, which shall be derived from a $2.50 per animal unit 

month administrative fee, as provided for in this Act;

This new provision appropriates the BLM an amount to be offset by revenues generated by an 

administrative processing fee to offset the increased cost of administering the livestock grazing 

program on public lands managed by the BLM. BLM would charge a fee of $2.50 per Animal 

Unit Month, which would be collected along with current grazing fees. The fee will assist the 

BLM in processing pending applications for grazing permit renewals. The proposed fee 
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-4

authority is located in Section 416 of the General Provisions and is also shown in the Summary 

of Program Changes and Legislative Proposals chapter of the BLM Budget Justification.

9. $39,696,000 is for Mining Law Administration program operations including the cost 

of administering the mining claim fee program, to remain available until expended, 

to be reduced by amounts collected by the Bureau and credited to this appropriation 

from mining claim maintenance fees and location fees that are hereby authorized for 

fiscal year 2016, 

This continued provision appropriates to the BLM an amount to be offset by revenues 

generated by mining claim fees (maintenance fees and location fees) to offset the cost of 

managing BLM’s hardrock minerals program, incluiding providing access to mineral resources 

in an environmentally responsible manner on public lands managed by the BLM.

10. so as to result in a final appropriation estimated at not more than $1,075,545,000,

This is the final budget authority, net of offsetting collections for oil and gas inspection and 

enforcement, mining law administration, and grazing permit administration.

 

11. $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. 

This continued provision authorizes the BLM to spend revenues (actual collections, but not to 

exceed $2.0 million) generated by a fee on rights-of-way authorizations under Title V of the

Federal Land Policy and Management Act of 1976, as amended (43 U.S.C. 1701 et seq.). 
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-5

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, 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.

Omnibus Public Land 

Management Act, 2009 

(P.L. 111-11):

• Codifies the 26 million acre National Landscape Conservation 

System as a permanent program in the BLM.

• Established one new National Monument in New Mexico.

• Established four new National Conversation Areas: two in Utah, 

one in Colorado, and one in New Mexico.

• Added approximately 2 million acres to the National Wilderness 

Preservation System.

• Added approximately 1,000 miles to the National Wild and Scenic 

River System.

• Directed eight conveyances of public land out of Federal 

ownership.
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Chapter VII – Management of Lands & Resources Page VII-6

National Environmental 

Policy Act of 1969 (42 

U.S.C. 4321 et seq.)

Requires the preparation of environmental impact statements for 

Federal projects which may have a significant effect on the 

environment. It requires systematic, interdisciplinary planning to 

ensure the integrated use of the natural and social sciences and the 

environmental design arts in making decisions about major Federal 

actions that may have a significant effect on the environment.

The Endangered Species 

Act of 1973, as amended 

(16 U.S.C. 1531 et seq.)

Directs Federal agencies to ensure that their actions do not jeopardize 

threatened and endangered species and that through their authority 

they help bring about the recovery of these species.

Energy Policy Act of 2005 

(P.L. 109-58)

Directs Federal agencies to undertake efforts to ensure energy 

efficiency, and the production of secure, affordable, and reliable 

domestic energy.

An Act to Amend the 

Reclamation Recreation 

Management Act of 1992 

(P.L. 107-69)

Provides for the security of dams, facilities and resources under the 

jurisdiction of the Bureau of Reclamation. Authorizes the Secretary of 

the Interior to authorize law enforcement personnel from the 

Department of the Interior to enforce Federal laws and regulations 

within a Reclamation Project or on Reclamation lands.

The Civil Service Reform 

Act of 1978 (5 U. S. C. 

1701)

Requires each executive agency to conduct a continuing program to 

eliminate the under-representation of minorities and women in 

professional, administrative, technical, clerical, and other blue collar 

employment categories within the Federal services.

The Civil Rights Act of 

1964, as amended (42 

U.S.C. 2000)

Requires development and maintenance of affirmative action programs 

to ensure non-discrimination in any employment activity.

The Paperwork Reduction 

Act of 1980 (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 Electronic FOIA Act of 

1996 (P.L. 104-231)

Requires that government offices make more information available in 

electronic format to the public.

The Information 

Technology Management 

Reform Act of 1996 (P.L. 

104-106 §5001)

Requires agencies to more effectively use Information Technology to 

improve mission performance and service to the public, and 

strengthen the quality of decisions about technology and mission 

needs through integrated planning, budgeting, and evaluation.

The Chief Financial 

Officers Act of 1990 

(U.S.C. 501)

Requires that a Chief Financial Officer be appointed by the Director of 

OMB and that this CFO will provide for the production of complete, 

reliable, timely and consistent financial information for use by the 

executive branch of the Government and the Congress in the 

financing, management, and evaluation of Federal programs.

The Government 

Performance and Results 

Act of 1993 (P.L. 103-62)

Requires 10 federal agencies to launch a 3-year pilot project 

beginning in 1994, to develop annual performance plans that specify 

measurable goals, and produce annual reports showing how they are 

achieving those goals.
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Chapter VII – Management of Lands & Resources Page VII-7

P.L. 101-512, November 5, 

1990

Authorizes BLM to negotiate and enter into cooperative 

arrangements with public and private agencies, organizations, 

institutions, and individuals to implement challenge cost share 

programs.

Notification and Federal 

Employee Antidiscrimination and 

Retaliation Act of 2001 

(P.L. 107-174)

Requires Federal agencies be accountable for violations of 

antidiscrimination and whistleblower protection laws, and for other 

purposes.

Safe Drinking Water Act 

Amendments of 1977 (42 

U.S.C. 201) 

Requires compliance with all Federal, State, or local statutes for 

safe drinking water.

E-Government Act of 2002

(P.L. 107-374)

Requires the use of internet-based information technology to 

improve public access to information and to promote electronic 

services and processes.

Specific Authorizing Legislation - In addition to the above laws that provide general authorization and 

parameters, a number of laws authorize specific program activities, or activities in specific or designated 

areas.

 Soil, Water and Air Management

Consolidated 

Appropriations Act, 2005 

(P.L. 108-447) – including 

the authorizations:

• Watershed Restoration Projects (P.L. 106-291,Section 331, as 

amended by P.L. 108-447, Division E, Section 336) - permits the 

Colorado State Forest Service to perform watershed restoration 

and protection services on BLM lands in the State of Colorado 

when similar and complementary work is being performed on 

adjacent state lands.

• Snake River Water Rights Act of 2004(P.L. 108-447, Division J, 

Title X) – Directs BLM to transfer, at the selection of the Nez 

Perce Tribe, certain land managed by the BLM in northern Idaho 

to the Bureau of Indian Affairs to be held in trust for the Tribe. 

Existing rights and uses on the selected lands remain in effect 

until the date of expiration of the lease or permit. The fair market 

value of the parcels of land selected by the Tribe is not to exceed 

$7 million.

Burnt, Malheur, Owyhee, 

and Powder River Basin 

Water Optimization 

Feasibility Study Act of 

2001 (P.L. 107-237)

Authorizes the Secretary of the Interior to conduct feasibility studies 

on water optimization in the Burnt River, Malheur River, Owyhee 

River, and Powder River Basins.

Colorado River Basin 

Salinity Control Act 

Amendment of 1984 (43 

U.S.C. 1593)

Directs the Department to undertake research and develop 

demonstration projects to identify methods to improve the water 

quality of the Colorado River. The amendment requires BLM to 

develop a comprehensive salinity control program, and to undertake 

advanced planning on the Sinbad Valley Unit.
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Chapter VII – Management of Lands & Resources Page VII-8

Soil and Water Resources 

Conservation Act of 1977 

(16 U.S.C. 2001)

Provides for conservation, protection and enhancement of soil, 

water, and related resources.

The Clean Air Act of 1990, 

as amended (42 U.S.C. 

7401, 7642)

Requires BLM to protect air quality, maintain Federal and State 

designated air quality standards, and abide by the requirements of 

the State implementation plans.

The Clean Water Act of 

1987, as amended (33 

U.S.C. 1251)

Establishes objectives to restore and maintain the chemical, 

physical and biological integrity of the nation’s water.

P.L. 107-30 Provides further protections for the watershed of the Little Sandy 

River as part of the Bull Run Watershed Management Unit, Oregon, 

and adds responsibilities for the Secretary of the Interior and the 

Bureau of Land Management.

 Range Management

Taylor Grazing Act of 1934 

(43 U.S.C. 315), as 

amended by the Act of 

August 28, 1937 (43 U.S.C. 

1181d)

Authorizes the establishment of grazing districts, regulation and 

administration of grazing on the public lands, and improvement of 

the public rangelands. It also authorizes the Secretary to accept 

contributions for the administration, protection, and improvement of 

grazing lands, and establishment of a trust fund to be used for these 

purposes.

Public Rangelands 

Improvement Act of 1978 

(43 U.S.C. 1901-1908)

Provides for the improvement of range conditions to assure that 

rangelands become as productive as feasible for watershed 

protection, livestock grazing, wildlife habitat, and other rangeland 

values. The act also authorizes: 

• Research on wild horse and burro population dynamics, and 

facilitates the humane adoption or disposal of excess wild free 

roaming horses and burros, and 

• Appropriation of $10 million or 50 percent of all moneys 

received as grazing fees, whichever is greater, notwithstanding 

the amount of fees collected.

Bankhead Jones Farm 

Tenant Act of 1937 (7 

U.S.C. 1010 et seq.)

Authorizes management of acquired farm tenant lands, and 

construction and maintenance of range improvements. It directs the 

Secretary of Agriculture to develop a program of land conservation 

and utilization to adjust land use to help control soil erosion, conduct 

reforestation, preserve natural resources, develop and protect 

recreational facilities, protect watersheds, and protect public health 

and safety.

Carl Levin and Howard P. 

“Buck” McKeon National 

Defense Authorization Act 

for Fiscal Year 2015 (P.L. 

113-291)

Provides authority to continue the terms and conditions of a grazing 

permit or leases that has expired until any environmental analysis 

and documentation has been completed. 
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Chapter VII – Management of Lands & Resources Page VII-9

 Forest Management

Healthy Forests 

Restoration Act of 2003 

(P.L. 108-148) – 16 U.S.C. 

6501 et seq.

Authorized the BLM and the U.S. Forest Service to conduct 

hazardous fuels reduction projects on federal land in wildland-urban 

interface areas and on certain other federal lands using expedited 

procedures.

Forest Ecosystem Health 

& Recovery Fund (P.L. 

102-381)

The initial purpose of this fund was to allow quick response to fire 

and reforestation of forests damaged by insects, disease, and fire. 

Expanded authorization in the 1998 Interior and Related Agencies 

Appropriations Act allows activities designed to reduce the risk of 

catastrophic damage to forests in addition to responding to damage 

events. Funds in this account are derived from the Federal share 

(defined as the portion of receipts not paid to the counties under 43 

U.S.C. 1181f and 43 U.S.C. 1181-1 et seq., and P.L. 106-393) of 

receipts from all BLM timber salvage sales and all BLM forest health 

restoration treatments funded by this account. The authority to 

make deposits and to spend from this fund was provided in the 

2010 Interior Appropriations Act (P.L. 111-88, 123 STAT. 2906) and 

expires at the end of fiscal year 2015. 

Sec. 347 of Public Law 

105-277, as amended by 

Public Law 108-7 and 

Public Law 113-79

Permanently authorizes the Bureau of Land Management, via 

agreement or contract as appropriate, to 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 forests and the public lands that meet local and rural 

community needs. 

 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. 
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Chapter VII – Management of Lands & Resources Page VII-10

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 

(25 U.S.C. 3001)

Requires agencies to inventory archaeological and ethnological 

collections in their possession or control (which includes non-federal 

museums) for human remains, associated funerary objects, sacred 

objects, and objects of cultural patrimony; identify them 

geographically and culturally; and notify appropriate tribes within 5 

years.

Galisteo Basin (New 

Mexico) Archaeological 

Sites Protection Act (P.L. 

108-208)

Authorizes the Secretary of the Interior to administer the designated 

sites under this Act and other laws to protect, preserve, provide for 

research on, and maintain these archaeological resources.

 Wild Horse and Burro Management

Wild Free-Roaming Horse 

and Burro Act of 1971 

(P.L. 92-195), as amended

The Secretary is authorized and directed to protect and manage 

wild free-roaming horses and burros as components of the public 

lands, and he may designate and maintain specific ranges on public 

lands as sanctuaries for their protection and preservation, where the 

Secretary after consultation with the wildlife agency of the State 

wherein any such range is proposed and with the Advisory Board 

established in section 7 of this Act deems such action desirable. 

The Secretary shall manage wild free-roaming horses and burros in 

a manner that is designed to achieve and maintain a thriving natural 

ecological balance on the public lands.
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Chapter VII – Management of Lands & Resources Page VII-11

Federal Land Policy and 

Management Act of 1976, 

as amended (43 U.S.C. 

1701 et seq.)

For the purpose of furthering knowledge of wild horse and burro 

population dynamics and their interrelationship with wildlife, forage 

and water resources, and assisting the Secretary in making his 

determination as to what constitutes excess animals, the Secretary 

shall contract for a research study of such animals with such 

individuals independent of Federal and State government as may 

be recommended by the National Academy of Sciences for having 

scientific expertise and special knowledge of wild horse and burro 

protection, wildlife management and animal husbandry as related to 

rangeland management.

Public Rangelands 

Improvement Act of 1978 

(43 U.S.C. 1901-1908)

Based on the information available to him at the time, if the 

Secretary determines that overpopulation of wild free-roaming 

horses and burros exists on a given area of the public lands and 

that action is necessary to remove excess animals, he shall 

immediately remove excess animals from the range so as to 

achieve appropriate management levels. Such action shall be 

taken until all excess animals have been removed so as to restore a 

thriving natural ecological balance to the range, and protect the 

range from the deterioration associated with overpopulation.

The Secretary shall cause such number of additional excess wild 

free-roaming horses and burros to be humanely captured and 

removed for private maintenance and care for which he determines 

an adoption demand exists by qualified individuals, and for which he 

determines he can assure humane treatment and care (including 

proper transportation, feeding, and handling).

 Wildlife Management

National Fish and Wildlife 

Foundation Establishment 

Act, as amended, (16 

U.S.C. 3701)

Established the National Fish and Wildlife Foundation as a nonprofit 

corporation to encourage, accept and administer private gifts of 

property, and to undertake activities to further the conservation and 

management of fish, wildlife, and plant resources of the U.S.

The Migratory Bird 

Conservation Act of 1929, 

as amended (16 U.S.C. 

715) and treaties 

pertaining thereto

Provides for habitat protection and enhancement of protected 

migratory birds.

The Sikes Act of 1974, as 

amended (16 U.S.C. 670 et 

seq.)

Provides for the conservation, restoration, and management of 

species and their habitats in cooperation with State wildlife 

agencies.

Wilderness Management

Defense Department FY 

2006 Authorization Bill 

(P.L. 109-63)

Provides for the designation and management of Cedar Mountain 

Wilderness in Utah.

Tax Relief and Health Care 

Act of 2006

Designates wilderness in White Pine County, Nevada.
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Chapter VII – Management of Lands & Resources Page VII-12

Otay Mountain Wilderness 

Act of 1999

Establishes the Otay Mountain Wilderness Area in California, to be 

managed by the Secretary, acting through the Director of the 

Bureau of Land Management.

Clark County 

Conservation of Public 

Land and Natural 

Resources Act of 2002 

(P.L. 107-282) (16 USC 

460qqq)

Establishes Wilderness Areas, including Sloan Canyon National 

Conservation Area, and to promote conservation, improve public 

land, and provide for high quality development in Clark County, 

Nevada, and for other purposes.

Ojito Wilderness Act (P.L. 

109-94)

Designates New Mexico’s Ojito Wilderness Study Area as 

wilderness, to take certain land into trust for the Pueblo of Zia, and 

for other purposes.

P.L. 107-361 Authorizes the Secretary of the Interior to convey certain public 

lands within the Sand Mountain 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.

Carl Levin and Howard P. 

“Buck” McKeon National 

Defense Authorization Act 

for Fiscal Year 2015 (P.L. 

113-291)

Establishes the Rocky Mountain Front Conservation Management 

Area in Montana including 13,087 acres of BLM land; withdraws 

certain lands in the North Fork Federal Lands Withdraw Area from 

all forms of location, entry, and patent under mining laws, and 

disposition under all laws relating to mineral leasing and geothermal 

leasing; and designates 26,000 acres of land as wilderness. 
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Chapter VII – Management of Lands & Resources Page VII-13

 Recreation Resources Management

Federal Lands Recreation 

Enhancement Act (P.L. 

104-134)

Provides authority to the Bureau of Land Management for collection 

of recreation fees to maintain and improve the quality of visitor 

amenities and services.

The Land and Water 

Conservation Fund Act of 

1965, as amended (16 

U.S.C. 460 et seq.)

Provides for the establishment of the Land and Water Conservation 

Fund, special BLM accounts in the Treasury, the collection and 

disposition of recreation fees, the authorization for appropriation of 

recreation fee receipts, and other purposes. Authorizes planning, 

acquisition, and development of needed land and water areas and 

facilities.

 Oil & Gas Management

The Act of March 3, 1909, 

as amended, and the Act 

of May 11, 1938 (25 U.S.C. 

396, 396(a))

Provides the basic mandate under which BLM supervises minerals 

operations on Indian Lands. Provides that lands allotted to Indians, 

and unallotted tribal Indian lands, may be leased for mining 

purposes, as deemed advisable by the Secretary.

The Federal Oil and Gas 

Royalty Management Act 

of 1982 (30 U.S.C. 1701) 

(FOGRMA)

Comprehensive law dealing with royalty management on Federal 

and Indian leases. In addition to revenue accountability, it includes 

provisions pertaining to onshore field operations, inspections, and 

cooperation with State and Indian tribes; duties of lessees and other 

lease interest owners, transporters, and purchasers of oil and gas; 

reinstatement of onshore leases terminated by operation of law; and 

a requirement that the Secretary study whether royalties are 

adequate for coal, uranium, and non-energy leasable minerals.

Energy Policy and 

Conservation Act 

Amendments of 2000 (P.L. 

106-469, Section 604) – 

Directs the Secretary of the Interior, in consultation with the 

Secretaries of Agriculture and Energy, to conduct an inventory of all 

onshore Federal lands to determine reserve estimates of oil and gas 

resources underlying the lands and the extent and nature of any 

impediments to development of the oil and gas resources.

The Federal Onshore Oil 

and Gas Leasing Reform 

Act of 1987 (30 U.S.C. 226, 

et seq.)

Establishes a new oil and gas leasing system, and changes certain 

operational procedures for onshore Federal lands.

The Combined 

Hydrocarbon Leasing Act 

of 1981 (30 U.S.C. 181,

351)

Permits the owners of oil and gas leases issued after November 16, 

1981, to explore, develop, and produce tar sands. Authorizes the 

issuance of combined hydrocarbon leases in specified areas 

designated by the Department of the Interior on November 20, 

1980.

Reorganization Plan No. 3 

of 1946, §402 (60 Stat. 

1099)

Transferred mineral leasing functions to the Secretary, 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.
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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 Mining and Minerals 

Policy Act of 1970 (30 

U.S.C. 21a)

Establishes policy of fostering development of economically stable 

mining and minerals industries, their orderly and economic 

development, and studying methods for disposal of waste and 

reclamation.

The Act of March 3, 1879, 

as amended (43 U.S.C. 

31(a))

Provides for the inventory and classification of the public lands, and 

examination of the geologic structure, mineral resources, and 

products of the national domain.

Consolidated and Further 

Continuing Appropriations 

Act, 2015 (P.L. 113-235)

Provides authority for an Internet-based oil and gas leasing 

program.

Carl Levin and Howard P. 

“Buck” McKeon National 

Defense Authorization Act 

for Fiscal Year 2015 (P.L. 

113-291)

Authorizes processing fee for applications for permit to drill (APD) 

for 2016 through 2026, with collections deposited into and 

permanently appropriated from the BLM Permit Processing Fund 

(PPIF),except in years 2016 through 2019 when only 85 percent of 

APD fee revenues are permanently appropriated. The NDAA also 

permanently extends BLM access to the mineral lease rent 

revenues deposited in the PPIF. Prior to enactment of the NDAA, 

BLM access to the PPIF would have expired at the end of 2015, in 

accordance with Section 365 of the Energy Policy Act of 2005, 

which created the PPIF. Amends the Mineral Leasing Act to 

provide authority for establish and implement internet leasing for onshore oil and gas leases.

 Coal Management

The Surface Mining 

Control and Reclamation 

Act of 1977 (30 U.S.C. 

1201 et seq.)

Provides that lands may be declared unsuitable for surface coal 

mining where significant adverse impacts could result to certain 

wildlife species.

The Federal Coal Leasing 

Amendments Act of 1976 

(30 U.S.C. 201, et seq.)

Requires competitive leasing of coal on public lands, and mandates 

a broad spectrum of coal operations requirements for lease 

management.

The Mining and Minerals 

Policy Act of 1970 (30 

U.S.C. 21a)

Establishes policy of fostering development of economically stable 

mining and minerals industries, their orderly and economic 

development, and studying methods for disposal of waste and 

reclamation.

The Act of March 3, 1879, 

as amended (43 U.S.C. 

31(a))

Provides for the inventory and classification of the public lands, and 

examination of the geologic structure, mineral resources, and 

products of the national domain.
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Other Mineral Resources

Mineral Materials Act of 

1947 (30 U.S.C. 601)

Authorizes the BLM to sell sand, gravel, crushed stone, clay and 

pumice at fair market value and to grant free-use permits to 

Government agencies and nonprofit organizations, so long as public 

land resources, the environment and the public are protected.

The Multiple Surface Use 

Act (30 U.S.C. 611) 

Specified that sand, gravel, and certain other minerals were no 

longer locatable under the General Mining Law of 1872 but were 

subject to disposal by sale under the Materials Act of 1947.

 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 Native Allotment 

Subdivision Act (P.L. 108-

337)

Allows Native Alaskans to subdivide their restricted allotment lands 

with the approval of the Secretary of the Interior.

Alaska Land Acceleration 

Act of 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.

43 U.S.C. 2 Provides that the Secretary shall perform all executive duties 

pertaining to the surveying and sale of public lands, private claims 

of public lands, and the issuing of patents for all grants of land 

under the authority of the Government.

43 U.S.C. 52 Provides that the Secretary shall cause all public lands to be 

surveyed and monumented, that all private land claims shall be 

surveyed after they have been confirmed, and that the Secretary 

shall transmit plats of all lands surveyed to such officers as he may 

designate.
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 Cadastral Survey

Executive Order 12906 The executive branch is developing, in cooperation with State, local, 

and tribal governments, and the private sector, a coordinated 

National Spatial Data Infrastructure to support public and private 

sector applications of geospatial data. BLM is charged with 

developing data standards, ensuring the capability to share 

cadastral data from the Public Land Survey System of the U.S. with 

partners.

 Lands & Realty

Native American Technical 

Corrections Act of 2004 

(P.L. 108-204, Title II)

Placed in trust for the Pueblo of Santa Clara in New Mexico 

approximately 2,484 acres of BLM-managed land. Placed in trust 

for the Pueblo of San Ildefonso in New Mexico approximately 2,000 

acres of BLM-managed land.

P.L. 107-374 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.

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.
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Chapter VII – Management of Lands & Resources Page VII-17

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.

Consolidated

Appropriations Act, 2005 

(P.L. 108-447) – including 

the authorizations:

• Foundation for Nevada’s Veteran’s Land Transfer Act of 2004 

(P.L. 108-447, Division E, Section 144) – authorizes the transfer 

of public lands from the BLM to the Veteran’s Administration for 

the construction and operation of medical and related facilities.

• To Resolve a Minor Boundary Encroachment on Lands of the 

Union Pacific Railroad Company in Tipton, CA (P.L. 108-447, 

Division E, Section 139) – relinquishes the Federal government’s 

reversionary interest in an abandoned railroad right-of-way in 

order to clear the cloud on the title of a small parcel of private 

land.

• Federal Land Recreation Enhancement Act (P.L. 108-447, 

Division J, Title VIII) – Gives the BLM authority to collect entrance 

fees at certain recreation areas for ten years beginning in 2005.

P.L. 107-324 A bill to direct the Secretary of the Interior to convey certain land to 

the City of Haines, Oregon.

T’uf Shur Bien 

Preservation Trust Area 

Act (P.L. 108-7, Division F, 

Title IV)

Amended 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.

P.L. 107-371 Directs the Secretary of the Interior to disclaim any Federal interest 

in lands adjacent to Spirit Lake and Twin Lakes in Idaho resulting 

from possible omission of lands from an 1880 survey.

P.L. 107-350 Provides for the conveyance of certain public land in Clark County, 

Nevada, for use as a shooting range.

P.L. 107-138 Require the valuation of non-tribal interest ownership of subsurface 

rights within the boundaries of the Acoma Indian Reservation, and 

for other purposes.

P.L. 106-206 Revised authority for commercial filming and still photography 

activities. In doing so, it clarifies authority on the requirements for 

commercial filming and still photography permits and establishes 
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-18

limitations on filming activities for the protection of resources.

Ivanpah Valley Airport 

Public Land Transfer Act 

(P.L. 106-145)

Authorizes sale at fair market value of certain lands in Clark County, 

Nevada to Clark County, for use as an airport. Provides that the 

funds be deposited in the special account for the 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.

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.

The Utah School Lands 

Act (P.L. 103-93)

Authorizes the Secretary to enter into land exchanges for certain 

purposes.

Federal Land Exchange 

Facilitation Act of 1988 (43 

U.S.C. 1716)

Amends FLPMA to provide for the streamlining of Federal land 

exchange procedures.

The Arkansas-Idaho Land 

Exchange Act of 1992 

(P.L. 102-584)

Authorizes the Secretary to enter into land exchanges for certain 

purposes.
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-19

Carl Levin and Howard P. 

“Buck” McKeon National 

Defense Authorization Act 

for Fiscal Year 2015 (P.L. 

113-291)

Authorizes the Secretary to enter into land exchanges and to 

convey land for certain purposes.

 Hazard Management and Resource Restoration

The Clean Water Act of 

1987, as amended (33 

U.S.C. 1251)

Establishes objectives to restore and maintain the chemical, 

physical and biological integrity of the nation’s water.

The Resource 

Conservation and 

Recovery Act as amended 

by Federal Facility 

Compliance Act of 1992 

(42 U.S.C. 6901-6992)

Authorizes 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 

life and property. 
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Chapter VII – Management of Lands & Resources Page VII-20

 National Conservation Lands

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.

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.
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Chapter VII – Management of Lands & Resources Page VII-21

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 

and Gunnison Gorge 

National Conservation 

Area Act of 1999 (6 USC 

410fff), as amended (PL 

106-76 & 108-128)

Establishes the Gunnison Gorge National Conservation Area to be 

managed by the Secretary, acting through the Director of the 

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. 
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-22

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

Presidential Proclamation 

7263 of 2000

Established the California Coastal National Monument. The 

Secretary of the Interior shall manage the monument through the

Bureau of Land Management.

Established the Agua Fria National Monument. The Secretary of 

the Interior shall manage the monument through the Bureau of Land 

Management.

P.L. 107-213 Re-designate certain lands within the Craters of the Moon National 

Monument, and for other purposes.

The Wild and Scenic 

Rivers Act of 1968, as 

amended (16 U.S.C. 1271 

et seq.)

Provided for the development and management of certain rivers. 

Authorized 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.

The National Trails 

System Act of 1968, as 

amended (16 U.S.C. 1241-

1249)

Established 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)

Established a number of national historic trails which cross public 

lands.

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.

Presidential Proclamation 

8803 of 2012 

Established the Fort Ord National Monument. 

Presidential Proclamation 

8946 of 2013

Established the Rio del Norte National Monument. 

Presidential Proclamation 

8947

Established the San Juan Islands National Monument.

Presidential Proclamation 

9131

Established the Organ Mountains-Desert Peaks National 

Monument.

Presidential Proclamation 

9297

Established the Basin and Range National Monument.

Presidential Proclamation 

9298

Established the Berryessa Snow Mountain National Monument.
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-23

Mining Law Administration

The Omnibus Budget 

Reconciliation Act of 1993 

(P.L. 103-66)

Establishes an annual $100 per claim maintenance fee for 

unpatented mining claims and sites through 1998 and requires that 

the fee be adjusted for inflation. The law allows a waiver from the 

fee for those claimants who hold 10 or fewer claims. It also 

establishes a $25 per claim location fee for new claims, to be paid 

when they are recorded with BLM. The Act also broadened the 

BLM’s authority to collect recreation use fees.

The General Mining Law of 

1872, as amended (30 

U.S.C. 22, et seq.), as 

amended by P.L. 108-447, 

Division E, Section 120, 

(30 U.S.C. 23 et seq.)

Provides for locating and patenting mining claims where a discovery 

has been made for locatable minerals on public lands in specified 

States, mostly in the western U.S.

The Act of March 3, 1879, 

as amended, (43 U.S.C. 

31(a))

Provides for the inventory and classification of the public lands, and 

examination of the mineral resources and products of the national 

domain.

The Mining and Minerals 

Policy Act of 1970, (30 

U.S.C. 21a) (30 U.S.C. 

1601, et seq.)

Sets out the policy of fostering development of economically stable 

mining and mineral industries, and studying methods for waste 

disposal and reclamation.

The Department of the 

Interior and Related 

Agencies Appropriations 

Act for 1989 (43 U.S.C. 

1474)

Provides that receipts for 1989 and thereafter from administrative

fees (service charges) established by the Secretary for processing 

actions relating to the administration of the General Mining Laws 

shall be immediately available to BLM for mining law administration 

program operations.

The 1994 Interior and 

Related Agencies 

Appropriations Act (P.L. 

103-138)

Provides that funds shall be available to BLM for mining law 

administration program operations, to be reduced by amounts 

collected from annual mining claim fees. 

The 1999 Interior and 

Related Agencies 

Appropriations Act 

( P.L. 105-277)

Reauthorizes the collection of annual mining claim maintenance 

fees through 2001. Extends the recreation fee demonstration 

program through fiscal year 2001, with collected funds remaining 

available through fiscal year 2004.

The 2002 Interior and 

Related Agencies 

Appropriations Act ( P.L. 

107-63)

Reauthorizes the collection of annual mining claim maintenance 

fees through 2003. Extends the recreation fee demonstration 

program through fiscal year 2004, with collected funds remaining 

available through fiscal year 2007.

 
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-24

Other Authorizations

The Food Security Act of 

1985 (7 U.S.C. 148f)

Provides for the transfer of funds to the Secretary of Agriculture for 

Mormon cricket and grasshopper control.

Indian Self Determination 

And Education Assistance 

Act (P.L. 93-638)

Provides for non-competitive contracts, grants, or cooperative 

agreements entered into between a tribal organization and the 

Federal government for the planning, conduct, and administration of 

programs which enhance Indian educational achievement or 

provide other Federal services more responsive to the needs and 

desires of those communities.

Oregon Land Exchange 

Act of 2000 (P.L. 106-257)

Authorizes exchange of specified parcels of public and national 

forest lands in Oregon for specified parcels of private lands.

P.L. 109-127 Revokes a Public Land Order with respect to certain lands 

erroneously included in the Cibola National Wildlife Refuge, 

California.
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-25

 FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount

Land Resources

Soil, Water & Air Management 218 43,239 218 43,609 +145 - - +7 +1,624 225 45,378 +7 +1,769 

Rangeland Management 634 79,000 634 79,000 +332 - - -85 -16,500 549 62,832 -85 -16,168 

Grazing Administration Management - - - - - - - +85 +16,500 85 16,500 +85 +16,500 

Grazing Administration Management Offset - - - - - - - - -16,500 - -16,500 - -16,500 

Public Domain Forest Mgmt 75 9,838 75 9,980 +96 - - - - 75 10,076 - +96 

Riparian Management 146 21,321 146 21,321 +136 - - +2 +1,463 148 22,920 +2 +1,599 

Cultural Resources Mgmt 104 15,131 104 16,131 +122 - - - +1,075 104 17,328 - +1,197 

Wild Horse & Burro Mgmt 153 77,245 153 80,555 +125 - - - -572 153 80,108 - -447 

Total, Land Resources 1,330 245,774 1,330 250,596 +956 - +0 +9 -12,910 1,339 238,642 +9 -11,954 

Wildlife & Fisheries

Wildlife Management 237 52,338 257 89,381 +160 - - +21 +19,150 278 108,691 +21 +19,310 

Fisheries Management 77 12,530 77 12,530 +98 - - - - 77 12,628 - +98 

Total, Wildlife & Fisheries 314 64,868 334 101,911 +258 - +0 +21 +19,150 355 121,319 +21 +19,408 

Threatened & Endangered Species 131 21,458 131 21,567 +131 - +0 - +0 131 21,698 - +131 

Recreation Management

Wilderness Management 134 18,264 134 18,264 +128 - - - - 134 18,392 - +128 

Recreation Resources Management 349 48,697 349 51,197 +229 - - +3 +2,039 352 53,465 +3 +2,268 

Total, Recreation Management 483 66,961 483 69,461 +357 - +0 +3 +2,039 486 71,857 +3 +2,396 

Energy & Minerals Management

Oil & Gas Management 326 53,183 326 59,671 +289 - - +25 +20,614 351 80,574 +25 +20,903 

Oil & Gas Permit Processing from Fee Collection 268 32,500 41 7,125 - - - - -760 41 6,365 - -760 

Oil & Gas Inspection Activities 295 41,126 295 48,000 - - - - - 295 48,000 - - 

Less: Offsetting Fees (Permit Processing and Inspection) - -28,697 - - - - - - -48,000 - -48,000 - -48,000 

Coal Management 71 9,595 71 10,868 +94 - - - - 71 10,962 - +94 

Other Mineral Resources 81 10,586 81 11,879 +99 - - - -1,000 81 10,978 - -901 

Renewable Energy 145 29,061 145 29,061 +128 - - - - 145 29,189 - +128 

Total, Energy & Minerals Management 1,186 147,354 959 166,604 +610 - +0 +25 -29,146 984 138,068 +25 -28,536 

Summary of Requirements

(dollars in thousands)

2015 Actual 2016 Enacted Transfers Program Change Change from 2016 

2017 President's Budget

 Fixed Costs

 Requested Amount 
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-26

 FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount

Realty & Ownership Management

Alaska Conveyance 109 22,000 109 22,000 +107 - - - -4,780 109 17,327 - -4,673 

Cadastral Survey 3 - - - - - - - - - - - - 

Land & Realty Management 8 - - - - - - - - - - - - 

Cadastral, Lands & Realty Mgmt 319 45,658 319 51,252 +228 - - - - 319 51,480 - +228 

Total, Realty & Ownership Management 439 67,658 428 73,252 +335 - +0 - -4,780 428 68,807 +0 -4,445 

Communication Site Management 17 2,000 17 2,000 - - - +0 - 17 2,000 +0 - 

Offsetting Collections - -2,000 - -2,000 - - - - - - -2,000 +0 - 

Resource Protection & Maintenance

Resource Mgmt Planning, Assessment, & Monitoring 207 38,125 210 48,125 +162 - - +3 +16,916 213 65,203 +3 +17,078 

Abandoned Mine Lands 75 16,987 75 19,946 +90 - - - - 75 20,036 - +90 

Law Enforcement 124 25,325 124 25,495 +121 - - - - 124 25,616 - +121 

Hazardous Materials Management 85 15,612 85 15,612 +102 - - - (251) 85 15,463 - -149 

Total, Resource Protection & Maintenance 491 96,049 494 109,178 +475 - +0 +3 +16,665 497 126,318 +3 +17,140 

Transportation & Facilities Maintenance

Annual Maint. & Ops 243 38,637 243 38,942 +183 - - - - 243 39,125 - +183 

Def. Maint. & Cap. Improvements 49 26,995 49 31,387 +88 - - - -2,274 49 29,201 - -2,186 

Total, Trans & Facilities Maint. 292 65,632 292 70,329 +271 - +0 - -2,274 292 68,326 +0 -2,003 

Mining Law Administration 308 39,696 308 39,696 - - - - - 308 39,696 +0 - 

Offsetting Collections - -39,696 - -39,696 - - - - - - -39,696 +0 - 

Workforce & Organizational Support

Administrative Support 284 47,127 284 50,942 +197 - - - - 284 51,139 - +197 

Bureauwide Fixed Costs - 91,010 - 93,645 -996 - - - - - 92,649 - -996 

IT Management 109 25,696 109 25,958 +119 - - - - 109 26,077 - +119 

Total, Workforce & Organizational Support 393 163,833 393 170,545 -680 - - - +0 393 169,865 +0 -680 

Challenge Cost Share 5 2,413 5 2,413 - - - -5 -2,413 - - -5 -2,413 

National Monuments and National Conservation Areas 240 31,819 250 36,819 +175 - - +30 +13,651 280 50,645 +30 +13,826 

Total, Management of Lands & Resources 5,629 973,819 5,424 1,072,675 +2,888 - - +86 -18 5,510 1,075,545 +86 +2,870 

 Program Change Requested Amount 

Summary of Requirements (continued)

(dollars in thousands)

2015 Actual 2016 Enacted Transfers Change from 2016 

 Fixed Costs

2017 President's Budget
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-27

Fixed Cost Changes and Projections 2016 Total 

or Change

2016 to 2017 

Change

Change in Number of Paid Days +2,079 -4,008

Pay Raise +6,815 +7,893

Departmental Working Capital Fund +25,402 +1,662

Worker's Compensation Payments +8,153 -62

Unemployment Compensation Payments +6,981 -930

Rental Payments 66,298 -1,667

Baseline Adjustments for O&M Increases +0 +0

Justification of Fixed Costs and Internal Realignments

Management of Lands and Resources

The amounts reflect projected changes in the costs of compensating injured employees and dependents of employees who suffer 

accidental deaths while on duty. Costs for the BY will reimburse the Department of Labor, Federal Employees Compensation 

Fund, pursuant to 5 U.S.C. 8147(b) as amended by Public Law 94-273.

The amounts reflect projected changes in the costs of unemployment compensation claims to be paid to the Department of Labor, 

Federal Employees Compensation Account, in the Unemployment Trust Fund, pursuant to Public Law 96-499.

The amounts reflect changes in the costs payable to General Services Administration (GSA) and others for office and non-office 

space as estimated by GSA, as well as the rental costs of other currently occupied space. These costs include building security; in 

the case of GSA space, these are paid to Department of Homeland Security (DHS). Costs of mandatory office relocations, i.e. 

relocations in cases where due to external events there is no alternative but to vacate the currently occupied space, are also 

included.

In accordance with space maximization efforts across the Federal Government, this adjustment captures the associated increase to 

baseline operations and maintenance requirements resulting from movement out of GSA or direct-leased (commercial) space and 

into Bureau-owned space. While the GSA portion of fixed costs will go down as a result of these moves, Bureaus often encounter 

an increase to baseline O&M costs not otherwise captured in fixed costs. This category of funding properly adjusts the baseline 

fixed cost amount to maintain steady-state funding for these requirements.

(Dollars In Thousands)

This column reflects changes in pay associated with the change in the number of paid days between the 2016 and 2017. 

The change reflects the salary impact of the 1.6% programmed pay raise increases as provided in the June, 2015 Circular A-11.

The change reflects expected changes in the charges for centrally billed Department services and other services through the Working 

Capital Fund. These charges are detailed in the Budget Justification for Department Management.
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-28

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Land Resources

Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-29

Activity: Land Resources

2015 

Actual

2016 

Enacted

2017 President's Budget Change 

from 

2016

Fixed 

Costs Transfers Program Change

Requested 

Amount

Soil, Water & Air 

Management

$000 43,239 43,609 +145 +0 +1,624 45,378 +1,769 

FTE 218 218 +0 +7 225 +7

Rangeland Management $000 79,000 79,000 +332 +0 -16,500 62,832 -16,168 

FTE 634 634 +0 -85 549 -85

Grazing Administration 

Management

$000 0 0 +0 +0 +16,500 16,500 +16,500 

Offset 0 0 +0 +0 -16,500 -16,500 -16,500 

FTE 0 0 +0 +0 +85 85 +85

Public Domain Forest 

Mgmt

$000 9,838 9,980 +96 +0 +0 10,076 +96 

FTE 75 75 +0 +0 75 +0

Riparian Management $000 21,321 21,321 +136 +0 +1,463 22,920 +1,599 

FTE 146 146 +0 +2 148 +2

Cultural Resources Mgmt $000 15,131 16,131 +122 +0 +1,075 17,328 +1,197 

FTE 104 104 +0 +0 104 +0

Wild Horse & Burro Mgmt $000 77,245 80,555 +125 +0 -572 80,108 -447 

FTE 153 153 +0 +0 153 +0

Total, Land Resources $000 245,774 250,596 +956 +0 +3,590 255,142 +4,546 

FTE 1,330 1,330 +0 +9 1,339 +9 

Justification of 2017 Program Changes

The 2017 budget request for the Land Resources activity is $238,642,000 and 1,254 FTE. This 

reflects net program changes totaling -$12,910,000 and -76 FTE from the 2016 enacted level. 

In terms of total program resources, including proposed grazing administration fees, the budget 

represents a program increase of +$3,950,000 over the 2016 enacted level.

Activity Description

This activity provides for integrated management of public land renewable and cultural 

resources. The BLM manages these resources on a landscape basis, with each program 

contributing to the overall health of the land. Conserving, restoring, and sustaining land health is 

the foundation for the BLM’s renewable resources management and is key to the agency’s longterm strategic vision. Livestock grazing, timber harvesting and other resource uses can be 

sustained over time only if the land is managed to restore or sustain a healthy condition.

The programs in this activity, in concert with other BLM programs, work together to support the 

BLM mission by providing renewable resources, commercial and recreational uses and 

aesthetic benefits through healthy forests, healthy rangeland ecosystems, functioning 

watersheds and properly functioning riparian habitat. The BLM provides forage for livestock, 

protects cultural values, and manages wild horse and burro herds.
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Chapter VII – Management of Lands & Resources Page VII-30

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Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-31

Activity: Land Resources

Subactivity: Soil, Water & Air Management

2015 

Actual

2016 

Enacted

2017 President's Budget Change 

from 

2016 Fixed 

Costs

Transfers Program 

Change

Requested 

Amount

Soil, Water & Air 

Management

$000 43,239 43,609 +145 +0 +1,624 45,378 +1,769

FTE 218 218 +0 +7 225 +7

 

Summary of 2017 Program Changes/Internal Transfers for Soil, Water & Air Management: ($000) FTE

Enhance Core Capability +983 +3 

National Mitigation Team +641 +4 

Total +641 +7 

Justification of 2017 Program Changes

The 2017 budget request for the Soil, Water & Air Management Program is $45,378,000 and 

225 FTE, a program change of +$1,624,000 and +7 FTE from the 2016 enacted level.

Enhance Core Capability (+$983,000/+3 FTE) – To support monitoring and analysis of soil, 

water and air resources needed to implement a landscape management approach including 1) 

ecological site descriptions supporting land health treatments, 2) adaptation strategies in 

response to a changing climate, as well as, 3) sediment and salinity reductions within the 

Colorado River Basin. 

National Mitigation Team (+$641,000/+4 FTE) – Following guidance from the Council on 

Environmental Quality, the BLM has committed to analyze and implement mitigation actions to 

avoid, minimize and compensate for residual impacts to at-risk resources in the Western Solar 

Plan, the greater sage-grouse (GRSG) Conservation Strategy, and other permitted activities. 

The need to analyze and implement mitigation actions is also a requirement of the May 2013 

Presidential Memorandum, “Modernizing Federal Infrastructure Review and Permitting 

Regulations, Policies, and Procedures”, Secretarial Order 3330, “Improving Mitigation Policies 

and Practices of the Department of the Interior”, and draft BLM regional mitigation policy. 

 

The analysis and implementation of mitigation actions is new work for the BLM and will require 

resources that are beyond the Bureau’s current capacity. The $641,000 increase would provide 

funds to establish a mitigation team. This team, which would be located in BLM State offices 

and at the Washington Office, will provide crucial expertise necessary to support field staff, work 

with Bureau partners to develop local and regional mitigation strategies, develop an all-lands 

program of work, oversee mitigation funds, interact with mitigation banks and exchanges, and 

integrate other restoration activities. Absent these funds, the BLM would likely have to curtail 

other important activities in order to fulfill the commitments made in the Western Solar Plan and 

the GRSG Conservation Strategy, and other permitted activities such as those recently 

authorized for the National Petroleum Reserve – Alaska.
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-32

Program Overview

The Soil, Water & Air Management Program supports the full suite of BLM activities and use 

authorizations focused on the priority of compliance with existing laws and regulations. These 

actions and authorizations include energy development, endangered species recovery, grazing, 

recreation, and fire rehabilitation that rely on the appropriate management of soil, water and air 

resources. The Soil, Water & Air Management Program collects and analyzes the soil, water, 

and air resource data needed to manage these foundational resources effectively, as well as

apply expertise to assess, sustain, protect, and improve the productivity and resiliency of public 

lands. This data is a key component of sustainable BLM decisions and can be used to 

implement a landscape management approach. The program relies heavily on collaborative 

public-private partnerships to address, improve and enhance watershed, landscape, and airshed conditions. 

The Soil, Water & Air Management Program is responsible for:

• Compliance with anti-pollution laws such as the Clean Water Act and the Clean Air Act;

• Conducting cooperative soil surveys to understand soil distribution, properties and 

responses to various uses, as well as to understand important processes related to a 

changing climate such as terrestrial carbon capture and sequestration;

• Developing ecological site descriptions to understand the processes that influence the 

type, amount, and distribution of vegetation within defined landscapes as well as provide 

key information to land managers for climate adaptation strategies;

• Monitoring and managing soils to support current land-health standards, sustain plant 

and animal productivity, maintain associated water and air quality, as well as reduce 

threats to human health and safety;

• Monitoring water resource conditions and trends, protecting Federal water rights and, 

where appropriate, acquiring water rights to ensure adequate quantities of water for 

public land management purposes;

• Monitoring water quality as well as identifying, promoting and implementing bestmanagement practices to maintain and improve functioning aquatic ecosystems;

• Reducing salt and sediment discharge to waters particularly in the Colorado River Basin 

in order to ensure usable water supplies for millions of downstream users;

• Monitoring, assessing and analyzing air quality, visibility and noise impacts of current 

and proposed BLM authorized uses ; 

• Reporting greenhouse gas emissions as required under Executive Order 13514. 

 

Means and Strategies

• The Soil Water & Air Management Program will continue to promote local and landscape 

scale watershed function, soil stability and air quality compliance as the primary means 

to achieve BLM performance goals. Priority will be placed on providing land managers 

with access to the expertise needed to identify, assess and monitor the environmental 

effects of BLM actions, use authorizations and their associated decisions.

A five-year soil resource strategy was completed in 2015. The goals of this strategy include: (1) 

update soil resource policy guidance; (2) improve the availability of soil information used in 

planning and decisions; (3) support the landscape approach with soil resource guidance; (4) 

support the use of soil measurements and effect analysis; (5) limit the transport of soil into water 

and air; (6) improve relationships with other programs, agencies and stakeholders; and, (7) 
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-33

enhance BLM’s technical expertise relevant to understanding, assessing and managing soil 

resources.

A five-year water resource strategy was completed in 2015. The goals highlighted in this 

strategy include: (1) increase proactive measures taken to reduce traditional pollutants; (2) 

incorporate collaborative, regional assessments into BLM standard practices; (3) improve the 

breadth, depth and efficiency of water quality monitoring and analysis; (4) improve the 

availability of water quality monitoring data; (5) improve relationships with other agencies and 

stakeholders; and, (6) enhance and maintain BLM’s expertise relevant to water resources.

Drought conditions continue to affect the western U.S. and are exacerbating soil erosion, air 

quality issues and water availability. The Soil, Water & Air Program developed its water 

strategy with these threats at the forefront, and is working with other BLM programs and 

partners to develop approaches that assist in managing this valuable fundamental resource 

under a changing climate. 

• The BLM issued a manual for water quality and drafted one for groundwater with plans 

to finalize it in 2016. 

• The BLM issued guidance in 2015 which improves water quality analysis in the Colorado 

River Basin by reporting data and descriptions of actions across programs that assist in 

reducing sediments and controlling salinity.

• The BLM is drafting a comprehensive strategy to improve the implementation of salinity 

control and outreach efforts within the Colorado River Basin.

A five-year air resource strategy was completed in 2015. The goals of this strategy include: (1) 

reduce and mitigate emissions to promote environmental stewardship; (2) improve air quality 

analyses on a regional level in collaboration with stakeholders; (3) strengthen BLM’s abilities to 

address emerging air quality issues; (4) build relationships with stakeholders to promote 

collaborative air quality efforts; (5) improve availability and access to air quality monitoring data; 

and, (6) enhance and maintain technical expertise relevant to air resources.

• An air resource handbook has been drafted and will be completed in 2016.

 

Critical Factors and Demands 

The BLM addresses a number of critical factors and demands in its Soil, Water and Air 

Program. These include the following:

• A changing climate and its potential to alter landscapes; the quantity, quality and 

distribution of water resources; soil quality; air quality; vegetative conditions and wildlife 

habitat; as well as associated socioeconomic values; 

• Many uncertainties remain regarding groundwater flows, soil properties and air resource 

impacts that, in many areas, influence BLM decision-making; 

• The establishment of significant renewable energy development opportunities on public 

lands is a BLM priority. Hydrologists, soil scientists and air resource specialists are 

needed to assess, analyze and manage the resource impacts associated with this 

development. 

• Greater water demands for economic development and requirements for ecosystem 

function are increasing the need to perfect and protect water right interests on public 

lands. 

• Stricter air quality standards, existing and emerging non-attainment areas, as well as 

more stringent visibility regulations are increasing the monitoring and analysis workload 
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-34

as well as technical demands associated with ensuring that authorized uses that emit 

dust, ozone, smoke and other pollutants comply with the Clean Air Act.

• Increases in landscape disturbances magnify the challenges associated with meeting 

applicable water and air quality standards.

2017 Program Performance

The Soil, Water & Air Management Program will continue to make progress towards key 

performance goals in 2017. Primary focus areas will include: 

Water Quality - Improving or maintaining water quality on public lands remains an important 

objective. Efforts will continue to focus on implementing and refining best management 

practices for new and existing land use authorizations and activities, changing current 

management practices where appropriate, and restoring degraded watershed function in 

conjunction with incorporating a landscape approach to implementing actions and assessing 

results. Increasing core capabilities will allow the program to support integrated watershed 

assessment and implementation pilot projects. 

Ecological Site Descriptions (ESD) - ESDs are considered the best analytical approach for 

predicting how vegetation will respond to changes in management or climate conditions at the 

local and landscape scales. The Soil, Water & Air Management Program will fund multiple 

projects to aid in the development of ESDs needed for sage-grouse habitat management 

implementation actions as well as conventional and renewable energy development planning. 

The BLM will continue to collaborate with the Natural Resources Conservation Service and the 

U.S. Forest Service through an Interagency Workgroup to address ESD development and uses 

as they relate to soils, as well as developing interagency training opportunities. The Interagency 

Workgroup will remain active in 2017. Increasing core capabilities will allow BLM’s full 

participation in the implementation of ESDs across the landscape at all levels of the Bureau and 

provide funding for completion of ESDs in critical planning areas as well as in support of climate 

change priorities. 

Water Rights – Demands for processing reserved and appropriative water rights actions with 

related litigation activities are expected to remain high. The typical workload ranges from 3,000 

to 5,000 actions per year nationwide. 

Colorado River Salinity Control - Efforts to reduce the transport of sediment and salts in the 

Colorado River Basin will continue. The BLM performance goal associated with the Colorado 

River Salinity Control Program aims to reduce the transport of sediment and salts from public 

lands into the Colorado River system as well as support the improvement of land health within 

the basin. 

Air Resources – The BLM expects to increase monitoring and assessment work in 2017 by 

approximately 20 percent above 2016 levels, with the focus on regional and landscape scale 

projects. 

Groundwater Resources - Efforts to understand the impacts of hydraulic fracturing and energy 

developments on groundwater will continue in 2017. 
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-35

Activity: Land Resources

Subactivity: Rangeland Management

2015 Actual 2016 Enacted

2017 President's Budget Change 

from 

2016 Fixed 

Costs

Transfers Program 

Change

Requested 

Amount

Rangeland 

Management $000 79,000 79,000 +332 +0 -16,500 62,832 -16,168

FTE 634 634 +0 -85 549 -85

Grazing 

Administration 

Management

$000 0 0 +0 +0 +16,500 16,500 +16,500

Offset

FTE 0 0 +0 +85 85 +85

Notes: "The Range Improvements current mandatory appropriation is a collaborative activity of the Rangeland Management program. The 2015 

and 2016 enacted amounts (post-sequester) for Range Improvements are $9.27 million. The 2016 President's budget request for Range 

Improvements is $10 million.

- The Resource Development Protection & Management permanent mandatory appropriation is a collaborative activity of the Rangeland 

Management program. The 2014 estimated new budget authority amount (post-sequester) for Resource Development Protection & 

Management is $1.059 million. The 2015 estimated actual new budget authority amount for Resource Development Protection & 

Management is was $1.141 5 million, and the 2016 and 2017 estimated amounts are $2.2 million.. 

- More information on these collaborative activities is found at the end of this section in a table titled Other Resources Supporting 

Rangeland Management and in the Range Improvements and Miscellaneous Trust Funds chapters, respectively.

Justification of 2017 Program Changes

The 2017 budget request for the Rangeland Management Program is $62,832,000 and 549 

FTE, a program change of -$16,500,000 and -85 FTE from the 2016 enacted level.

Grazing Permit Issuance/Shift Cost to Fees (-$16,500,000/-85 FTE) – The budget proposes 

to shift a portion of the costs of issuing and managing grazing permits from appropriated funds 

to fees. (Reference the Legislative Changes section below for a detailed description of the 

proposed administrative fee).

Legislative Changes

Permit Administrative Processing Fee (+$16,500,000) – The 2017 budget includes 

appropriations language for a three-year pilot project to allow the BLM to recover some of the 

costs of issuing grazing permits/leases on BLM lands. The BLM would charge a permit 

administrative fee of $2.50 per Animal Unit Month, which would be collected along with current 

grazing fees. The budget estimates the permit administrative fee will generate $16.5 million in 

2017 and that it will assist the BLM in processing pending applications for grazing permit 

renewals. During the period of the pilot, the BLM will promulgate regulations for the 

continuation of the administrative fee as a cost-recovery fee, to be in place once the pilot 

expires.

SEC. 417. In fiscal year 2017, beginning on March 1, 2017, and only to the 

extent and in the amount provided in advance in appropriations Acts, the 

Secretary of the Interior shall collect an administrative fee to offset the increased 

cost of administering the livestock grazing program on public lands managed by 
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-36

the Bureau of Land Management by charging $2.50 per Animal Unit Month, 

which shall be billed, collected, and subject to the penalties using the same 

process as the annual grazing fee in 43 C.F.R. 4130.8–1. Penalties assessed 

shall be deposited in the General Fund of the Treasury. Nothing in this provision 

affects the calculation, collection, distribution, or use of the grazing fee under 43 

U.S.C. 315–315rr, 43 U.S.C. 1751(b), 43 U.S.C. 1905, Executive Order 12548, 

or administrative regulation.

Program Overview

Program Components

The Rangeland Management Program focuses on efforts to maintain or improve public land 

health through monitoring and land health evaluations; administration of grazing use through 

permit renewals (largely 10-year permits); development of grazing systems and range 

improvements; grazing permit compliance inspections; management of permittee, allotment and 

resource data; and management of invasive species and noxious weeds. Priorities are placed 

on processing the most environmentally sensitive permits first, in order to best manage livestock 

use and improve or maintain healthy land conditions.

The BLM manages approximately 17,750 livestock grazing permits and leases on the public 

lands. Livestock grazing is an integral part of the BLM multiple-use mission and is authorized by 

the Taylor Grazing Act (1934) as amended, the Federal Land Policy Management Act (1976) as 

amended, and the Public Rangeland Improvement Act (1978) as amended.

Livestock grazing serves as an important tool that provides environmental benefits such as 

preservation of open space, managing fuel loads to reduce wildfire risks and enhancing 

distribution of available water for wildlife. Ranchers often serve as the eyes and ears for public 

land managers and assist with public health and safety. They provide public lands information, 

report wildfires, assist in wildfire suppression when appropriate, restore land health, and assist 

in search and rescue operations.

The BLM also leverages grazing receipts with funds from local permittees/lessees to construct 

range improvement projects (reference the Range Improvement Account section for additional 

information). As described in the 2014 DOI Economic Report, the BLM’s management of 

livestock grazing had a positive impact of $1.38 billion on the economy and supported 16,008

jobs nationwide.

Noxious weed and invasive species management is a critical component of the Rangeland 

Management Program. Cooperative Weed Management Area partnerships and other 

cooperative efforts leverage funding to assist with weed inventory, land treatments, monitoring, 

and project work to improve land health. The BLM is also striving to create Coordinated Invasive 

Species Management partnerships to leverage partnerships that will target invasive species on 

the public lands.

Critical Factors

Critical factors affecting the Rangeland Management Program include the following:

• Commitments to monitoring and managing sage-grouse habitat will require additional 

monitoring, coordination, and review of existing and potential range improvements needed 
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-37

to meet habitat objectives

• A changing climatic regime, resulting in more frequent and severe floods and extended 

droughts, requires aggressive pursuit of adaptive management strategies.

• Frequent and severe wildfires have reduced the diversity of the western rangelands and 

have accelerated the spread of invasive species and noxious weeds.

• Changing and competing public demands require continuous assessment and modification 

of grazing practices and have made environmental reviews more complex.

• Development of public lands as part of the Secretary’s Powering Our Future initiative for 

renewable and non-renewable energy and mineral resources may require mitigation efforts 

to offset loss of rangeland resources.

• Limited baseline data about soils, ecological sites, and factors associated with land health 

stressors, combined with limited monitoring data, have led to a large number of 

environmental lawsuits.

• Invasive and noxious weeds spreading over seventy-nine million acres of BLM-managed 

lands require greater efforts to control and manage.

• Commitments to improving sage-grouse habitat will require additional weed and invasive 

species inventory, treatments and coordination with other BLM resource programs. 

• The complexity of permit processing has increased due to heightened National 

Environmental Policy Act complexity and legal challenges, mitigation and monitoring 

requirements, severe weather patterns, drought, catastrophic fire and other multiple-use 

public land challenges.

• Catastrophic outbreaks of grasshopper and Mormon cricket populations that impact 

vegetation require emergency responses by the BLM and other Federal agencies.

Means and Strategies 

The Rangeland Management Program coordinates with other BLM programs and partner 

organizations to achieve integrated vegetation management at the landscape level. In this 

coordinated effort, the Rangeland Management Program is addressing critical factors through 

multiple avenues, including:

• Using eco-regional assessments to identify conservation, development and restoration 

opportunities and strategies;

• Monitoring the effectiveness of grazing management in achieving land use plan and activity 

plan objectives, and in meeting land health standards;

• Collecting core indicator data in upland habitats and supporting landscape-level land health 

and condition monitoring;

• Conducting interdisciplinary land health evaluations on a watershed or landscape scale to 

help ensure a balanced approach to livestock grazing;

• Promoting adaptive management strategies;

• Ensuring that land health considerations and resource conflicts are the primary factors used

to prioritize allotments for processing livestock grazing permit renewals;

• Using the permit issuance process, the Allotment Management Plans, and the Coordinated 

Resource Management Plans (RMP) to ensure scientifically-based livestock grazing 

management;

• Tiering permit renewals to RMPs and larger-scale NEPA documents;

• Tiering vegetation treatments to larger-scale NEPA and Section 7 consultation documents;
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-38

• Coordinating with other programs to work towards a national land treatment geospatial 

dataset that documents the location of treatments on the landscape and tracks their 

effectiveness;

• Educating youth about the importance and complexity of rangeland resources;

• Leveraging program funds with other Federal, State, and local agencies, permittees, and 

non-governmental organizations to implement on-the-ground Healthy Landscape and 

invasive species and noxious weed projects;

• Continuing research efforts in the use of livestock as a tool to decrease fuel loads, 

especially annual cheatgrass, to prevent catastrophic wildfire and restore desirable 

perennial grasses and forbs; and

• Launching an external web portal through the National Invasive Species Information 

Management System (NISIMS) to collect and share weed and invasive species inventory 

data to identify weed and invasive species infestation locations, with Federal, State, county 

partners. Issue pesticide use proposals (PUP’s) and collect pesticide use data through 

NISIMS from partners and private contractors.

Grazing Permit Renewal

In 2017, the BLM will continue to focus on processing the most environmentally sensitive 

grazing permits, particularly those authorizing grazing in priority sage-grouse habitat. Focusing 

on the most environmentally sensitive allotments allows for increased land health assessment 

and quantitative data collection efforts; improves the usefulness of RMP/EIS and site-specific 

NEPA analyses; and results in grazing management decisions that guide land health solutions 

for the future. This strategy will assist in ensuring that the backlog of unprocessed permits 

consists of the least environmentally-sensitive allotments where management is more custodial 

in nature or allotments that are already meeting land health standards.

Chart 1

Chart 1 illustrates the status of processing grazing permits since 1999. Processing permits includes, at a minimum, 

NEPA and Endangered Species Act (ESA) compliance. Unprocessed permits are those issued in accordance with 

General Provision language in Appropriations Acts.

0

2000

4000

6000

8000

Number of Permits

1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015

Fiscal Year

BLM Annual Grazing Permit Renewal Status

Permits Expired Permits Fully Processed Permits in Unprocessed Status
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-39

Chart 2

Chart 2 illustrates the cumulative number of permits processed since 1999. The number of permits processed per 

year is greater than the number of permits administered because some permits have expired more than once since 

1999.

Invasive Species and Weed Management 

Land areas that contain fire-adapted ecosystems and 

surface disturbance activities are most vulnerable to 

noxious weed and invasive species. The Noxious Weed 

and Invasive Species Management Program, within the 

BLM Rangeland Management Program, addresses these 

issues on BLM lands throughout the West. The BLM 

manages invasive species and weeds to improve habitat in 

the riparian areas that are critical to 60 percent of the 

wildlife species in semi-arid environments and to improve 

the terrestrial habitat areas that are critical for the Greater 

Sage-Grouse. As part of the President’s Priority Agenda on “Enhancing the Climate Resilience 

of America’s Natural Resources”, the BLM will continue to prioritize its ongoing Early Detection

and Rapid Response efforts and focus on areas where invasive species were previously 

unknown or limited in their expansion on public lands.

Internal and external partners are critical for the BLM to succeed in detecting, controlling and 

managing noxious weeds and invasive species. The Partners Against Weeds Action Plan, 

Pulling Together, National Strategy for Invasive Plant Management, and the National Invasive 

Species Management Plan assist in education, prevention, inventory, and monitoring efforts 

while using an Integrated Pest Management approach to control and restore areas impacted by 

weeds and invasive species. The 2016 Department of the Interior Invasive Species Strategy will 

provide Interior agencies further guidance for forming partnerships and leveraging resources 

across agencies to implement an Early Detection Rapid Response plan 

0

5000

10000

15000

20000

25000

30000

35000

1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015

Number of Permits

Fiscal Year

BLM Cumulative Grazing Permit Renewal Status

Permits Expired Permits Processed Permits in Unprocessed Status
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-40

Chart 3

BLM’s Weed Inventory, Monitoring and Treatments of Weeds

Chart 3 illustrates the number of acres of invasive and noxious weeds inventoried, treated, and monitored by the 

Rangeland Management program since 2010.

Other Program Resources

Other Resources Supporting Rangeland Management:

2015 Actual 2016 

Estimate

2017 

Estimate

Change 

from 2016

Resource Development Protection & 

Management

$000 1,505 2,220 2,220 +0

FTE 3 3 3 +0

Range Improvements $000 9,270 9,320 10,000 +0

FTE 35 35 35 +0

Notes:

- Resource Development Protection & Management amounts are shown as new budget authority derived from non-federal sources (contributed funds); the 

Taylor Grazing Act of 1934, as amended (43 USC 315h, 315i) appropriates these funds on a permanent basis. More information on Resource Development 

Protection & Management is found in the Miscellaneous Trust Funds chapter

- Range Improvements amounts are shown as new budget authority derived from 50 percent of the grazing fees collected on BLM-managed lands, with any 

difference appropriated from the General Fund; the annual Interior, Environment, and Related Agencies Appropriation Act appropriates these funds on a current 

basis. More information on Range Improvements budget request is found in the Range Improvements chapter

- Actual and estimated obligations, by year, for Resource Development Protection & Management and Range Improvements are found in President's Budget 

Appendix under the BLM section

"Amounts for Rangeland Management in 2015 and 2016 are shown net of sequestration

0.00

1.00

2.00

3.00

4.00

5.00

6.00

7.00

2010 2011 2012 2013 2014 2015

Millions

Millions

Fiscal Year

Weed Program Accomplishments

2010-2015

Inventory for Presence Invasive

Plants and/or Noxious Weed

(Acres)

Apply Weed Treatments

(Acres)

Evaluate Weed Treatments

(Acres)
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-41

2017 Program Performance

Permit Renewal: The BLM will continue to prioritize permit renewals based on environmental 

sensitivities and continue to review and use existing NEPA analyses as appropriate. When 

necessary, the BLM will supplement or tier to existing NEPA to address changes or analyze 

new information. When new NEPA is needed, BLM will analyze grazing use on an allotment or 

multiple allotment basis where appropriate. The BLM will continue to emphasize the collection 

of quantitative resource data for more defensible decisions, and will work closely with 

stakeholders, local governments, and the public during allotment plan development, evaluations 

and the NEPA process. 

The BLM will use authorities provided in Federal Land Policy and Management Act, as 

amended by PL 113-291, to continue to process the most environmentally sensitive allotments 

in preparation for renewing grazing permits. Through a combination of appropriations and 

proposed grazing administration fee revenues, total program resources in 2017 will remain level 

with the 2016 enacted level. The BLM plans to use the $16.5 million collected under the 

proposed permit administrative fee to process 235 of the 1500 grazing permits and leases, 

monitor 200 of the 1277 allotments, assess 1.5 of the planned 9.6 million acres of watersheds,

and complete 185 of the 1180 planned land health evaluations. 

The grazing permit/lease processing work is included within DOI Strategic Measure ‘Percent of 

grazing permits and leases processed as planned consistent with applicable resource 

management plans. Barring a catastrophic fire season in 2017, BLM field offices would be able 

to utilize the monitoring and land health assessment data collected from the past few years to

complete NEPA and other work related to grazing permits renewals.

Noxious and Invasive Weeds and other invasive species: The BLM will continue to 

inventory invasive and noxious weeds and other invasive species infestation on BLM lands. The 

BLM will identify and treat high-priority areas and monitor treated areas to determine the 

effectiveness of treatments. These efforts contribute to the DOI Strategic Measure ‘Percent of 

baseline acres infested with invasive plant species that are controlled.’ 

Land Health Assessment and Monitoring: BLM-managed rangelands are assessed and 

monitored to direct management actions to areas not meeting desired conditions. Data collected 

during rangeland assessment and monitoring activities are used as one component in 

determining the DOI Strategic Measure ‘Percent of DOI acres that have achieved desired 

conditions where condition is known and as specified in management plans.’

Land Restoration: Land treatments and project completion data will be used to determine the 

DOI Strategic Measure ‘Number of DOI acres restored to the condition specified in management 

plans’.
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Activity: Land Resources

Subactivity: Public Domain Forest Management

2015 

Actual

2016 

Enacted

2017 President's Budget Change 

from 

2016 Fixed 

Costs

Transfers Program 

Change

Requested 

Amount

Public Domain Forest 

Management

$000 9,838 9,980 +96 +0 +0 10,076 +96

FTE 75 75 +0 +0 75 +0

Other Resources Supporting Public Domain Forest Mgmt:

2015 Actual 2016 

Estimate

2017 

Estimate

Change 

from 2016

Forest Ecosystem Health & Recovery $000 12,018 14,633 7,942 -6,691

FTE 48 48 48 +0

USFS Forest Pest Control $000 357,695 500,000 500,000 +0

FTE 0 0 0 +0

Notes:

- Forest Ecosystem Health & Recovery amounts are shown as new budget authority derived from the federal share of receipts from all BLM timber salvage sales, 

and from BLM forest health restoration treatments funded by this account; 43 USC 1736a appropriates these funds on a permanent basis. Forest Ecosystem 

Health & Recovery is used on both Public Domain Forestry and Oregon and California Grant Lands. More information on Forest Ecosystem Health & Recovery is 

found in the Permanent Operating Funds chapter. 

- Amount in for Forest Ecosystem Health & Recovery shown net of sequestration and funds previously not available due to sequestration (i.e. pop-ups).

- Actual and estimated obligations, by year for Forest Ecosystem Health & Recovery are found in President's Budget Appendix under the BLM section

- USFS Forest Pest Control amounts are shown as estimated transfers. More information on USFS Forest Pest Control is found in the U.S. Forest Service 

Budget Justifications. USFS Forest Pest Control is used on both Public Domain Forestry and Oregon and California Grant Lands

Justification of 2017 Program Changes

The 2017 budget request for the Public Domain Forest Management Program is $10,076,000 

and 75 FTE. 

Program Overview

Program Components 

The PD Forest Management Program manages and conserves 58 million acres of forests in 12 

western States, including Alaska. The PD Forests have broad uses and serve the public, both 

directly and indirectly. Forests store and filter water for aquifers and reservoirs; offer 

opportunities for recreation; provide habitat for thousands of species; support timber and other 

jobs; provide millions of board feet of lumber and thousands of tons of biomass for alternative 

energy. Maintaining resilient forests and woodlands also plays an important role in carbon 

sequestration and providing clean air. According to the Department of the Interior’s 2014 

Economic Impact Report, timber harvested from PD forests supported $142.6 million in 

economic activity, and biomass from BLM forests has become part of the feedstock that meets 

various State and Federal renewable energy portfolio standards.

In coordination with other vegetation management programs, the PD Forest Management 

Program seeks large landscape approaches to managing land resources. The program 

maintains and improves the resilience of forest and woodland ecosystems. Density 
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Chapter VII – Management of Lands & Resources Page VII-44

management through timber sales and stewardship contracts is essential to maintaining resilient 

forests. The program also administers various requirements of the Department of the Interior 

such as regulation, accounting and record keeping, volume estimation, appraisal, and permitting 

of vegetative materials under the Materials Act of 1947.

Healthy, resilient forests provide habitat for a variety of flora and fauna, including whitebark 

pine, an Endangered Species Act (ESA) candidate currently classified as “warranted, but 

precluded.” Maintaining healthy and productive forests requires active management. A century 

of wildfire suppression has left forests choked with fuels that contribute to costly, catastrophic 

fires, while changing climate and drought reduces the resiliency of the forests and leaves the 

trees vulnerable to damage from insects and disease.

The BLM leverages Forest Ecosystem Health and Recovery funding, USDA Forest Health 

Protection funding, and stewardship authority to maximize program accomplishments. The 

program also coordinates with the Wildland Fire Management Program to leverage funds for 

hazardous fuels reduction projects.

Critical Factors

Critical factors affecting the Public Domain Forest Management program include:

• Approximately 14 million acres (or 24 percent) of PD forests are overstocked and at 

increased risk of insect and disease attacks and catastrophic wildfire. Prime among 

these risks are the mountain pine beetle and the spruce budworm, which are currently 

killing intermountain pine and fir on BLM forestlands. In addition, an invasive fungus, 

white pine blister rust, has infiltrated the colder altitudes where whitebark pine thrives. 

The U.S. Fish and Wildlife Service (FWS) judges that these factors, along with fire and 

warming climate, undermine species’ viability and may cause the whitebark pine to 

disappear within two to three generations. Other high elevation species such as limber 

pine and bristlecone pine are likely to face similar threats soon.

• The capacity of BLM foresters to plan and 

implement treatments on the ground to take 

advantage of the increase in demand for 

wood products as economic conditions are 

improving, sawmills are reopening, and 

bioenergy facilities are coming online is 

critical to increasing forest resilience. Since 

most forest health and restoration treatments 

are accomplished through the sale of timber 

and by-products resulting from the 

treatments, purchasers of forest product raw 

materials decrease the BLM’s cost of 

conducting treatments and restoration on a 

per acre basis.

• Maintaining support and supply to local industry infrastructure is critical to accomplishing 

necessary forest management treatments over the long term.

• Demand for firewood in rural areas continues, and in the past has led to illegal taking of 

woodland resources. For example, in Cuba, New Mexico, thousands of local individuals, 

including many Native Americans, use pinyon-juniper forests for cooking and heating 

their homes, cutting trees with a legal permit. Illegal woodcutting has occurred in areas 

Drought, Wildfire, and Forests

Extreme drought and drought-fueled 

wildfires plagued much of the West over 

the past decade, impacting forest health 

and local economies. In 2015, fire 

impacted over 883,000 acres of BLM 

forest. Each year, fire can impact 

hundred of thousands of acres of forest 

managed by BLM. Over 1.7 million 

acres of forest mortality exists due to 

bark beetles and insect attack. Many of 

these acres are salvageable for timber, 

 
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-45

popular for hiking and valued for scenic and resource values. BLM New Mexico foresters 

quickly moved to develop more legal firewood areas to meet local demand; inventory 

stolen trees for timber theft reports and citations; patrol both legal firewood areas as well 

as areas of illegal woodcutting; and conduct community outreach and educational 

meetings. As a result, Farmington and Rio Puerco Field Office Law Enforcement 

Rangers have seen a decline in illegal woodcutting. 

• Collaborating with local communities and partners is critical to implementing successful 

forest conservation projects that support rural economies and provide outstanding 

customer service.

• Biomass from BLM forest and woodland projects has become part of the feedstock that

energy companies are relying on to meet various State and Federal renewable energy 

portfolio standards. 

Means and Strategies

The BLM coordinates the strategies of PD Forest Management with other BLM programs and 

partner organizations to achieve integrated vegetation management at the landscape level 

using a corporate approach to managing ecosystem functions and services by emphasizing 

shared on-the-ground vegetation goals across programs, processes, and scales.

The BLM integrated the national-level coordination of vegetative management, including 

forestry, rangeland management, riparian management, plant conservation, invasive weeds, 

and fire rehabilitation into a cohesive team that leverages resources to make policy 

development more collaborative at a landscape scale. In this coordinated effort, the BLM is 

addressing forest management critical factors through multiple activities, including using results 

from the BLM’s Rapid Ecoregional Assessment process to identify focal areas for forest 

management activities at the ecoregional scale. 

The PD Forest Management Program achieves land use goals by:

• Implementing science-based forest restoration projects to improve forest health and 

resilience, which increases resistance to wildfires, disease, drought, invasive pests, and 

climate change at the landscape scale;

• Sustainably harvesting and regenerating forests and woodlands to produce a continuous 

supply of wood products and renewable energy feedstocks;

• Salvaging dead and dying timber to promote forest health and reduce hazardous fuels, 

in balance with the need for wildlife habitat, watershed function, and soil stability, while 

supporting local economies;

• Providing the public with commercial and personal use opportunities to harvest products 

such as firewood, Christmas trees, boughs, greenery, medicinal plants, fence posts, and 

pinyon pine nuts from forests and woodlands. In 2015, over 10,000 firewood permits, 

with a market value of over $13.5 million, were sold that continue to provide a renewable 

energy source for heating thousands of households in rural communities;

• Inventorying 58 million acres of forest resources through a national database;

• Utilizing the Good Neighbor authority to achieve forest health treatments on a landscape 

level across BLM, State, and private lands to increase forest resiliency;

• Utilizing stewardship contracting authority, a vital tool for forest and woodland 

conservation. From 2008 - 2015, Stewardship contracting offered approximately 93 

MMBF from Public Domain (PD) land, which is approximately 25 percent of the total 

volume offered in the PD over that period. Stewardship contracting is also an effective 
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Chapter VII – Management of Lands & Resources Page VII-46

tool for increasing biomass utilization. During the same period, the BLM offered 493,000 

tons of biomass through Stewardship contracts. These volumes are essentially byproducts of forest health treatments implemented through Stewardship contracts with 

acreage totaling over 86,000 acres.

• Collaborating with conservation districts to implement forest restoration, support rural 

economies, and meet multiple use objectives. For example, in Weaverville, California the 

BLM and Trinity County Conservation District are expanding a community forest. 

Through a stewardship agreement, the BLM works with the community to manage the 

forest, including reducing hazardous fuels, providing timber to meet local industry needs, 

preserving the scenic view from downtown Weaverville, maintaining and building 

recreational trails, using the forest as an outdoor classroom, and protecting cultural and 

historical resources.

• Engaging, employing, and educating youth, Native Americans, and veterans in forestry. 

BLM continues to engage students, interns, and volunteer youth in forestry project work. 

In 2015, BLM held a forester intern recruitment using the Pathways hiring authority at the 

Society of American Foresters national convention. Four college students were hired of 

which two were veterans of the US Military.

• Implementing stewardship agreements which exchange harvested forest products for 

the forest health treatments and use matching funds to treat greater acreage;

• Expediting NEPA processes to accelerate the removal of beetle-killed timber to reduce 

the risk of catastrophic fire and minimize risks to the recreating public. In 2015 two field 

offices in Colorado completed a pilot project to contract out the NEPA and cultural 

surveys . Field work on the project area began in FY 2015 and will continue into 2016.

• Investing in new technology to improve efficiencies. In 2016, the forestry program is 

continuing to consolidate national forestry applications into one system and is 

developing a national forest inventory platform. Also, in FY 2016, the forestry program is 

piloting a project to sell special forest products to the public on the web, to improve 

customer service.

• Working with NatureServe on a project to analyze how climate change is currently 

affecting pinyon and juniper ecosystems in an effort to identify and appropriately 

prioritize sustainable treatments;

• Supporting renewable energy goals by promoting the direct conversion and use of 

woody biomass for energy within BLM-owned facilities, as a part of an interagency 

bioenergy facility initiative;

• Requiring that all measurable biomass by-products from forest treatments such as 

timber sales, stewardship contracts, and hazardous fuels reduction are offered for 

utilization when ecologically appropriate and where biomass markets exist; and

• Implementing the Biomass Crop Assistance Program with the Farm Services Agency to 

allow for matching payments towards delivery of biomass to bioenergy facilities.

2017 Program Performance

The BLM will accomplish program performance through sales and stewardship contracts to 

work toward achieving and maintaining desired future conditions on the 58 million acres of 

forests and woodlands in the public domain, offering economic benefits for the present and 

managing forest health for the future.
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Chapter VII – Management of Lands & Resources Page VII-47

In 2017, the PD Forest Management program will address several DOI strategic and Bureau 

plan performance measures:

• Forest and woodland areas are assessed and monitored to direct management actions 

to areas not meeting desired conditions. Data collected during forest and woodland 

assessment and monitoring are used as one component in determining the Bureau plan 

measures “Percent of DOI acres that have achieved desired conditions where condition 

is known and as specified in management plans” and “Number of DOI acres restored to 

the condition specified in management plans.” Annual increases in forest and woodland 

acreages continue to contribute to achievement of these performance measures.

• The BLM will continue to use timber sales to achieve desired future conditions of forest 

stands to meet the Strategic Plan measure “Volume of Wood Products Offered.” 

Similarly, to the extent possible, the BLM will use forest product sales and permits to 

achieve desired future conditions of forest and woodland stands by offering wood 

products as biomass, a Bureau plan measure.
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Chapter VII – Management of Lands & Resources Page VII-48

Spokane District Project Improves Forest Health and Resiliency to Wildfire

The Huckleberry Stewardship project, which has completed 4800 acres of forest thinning as of FY 

2015, was impacted by the Carpenter Road fire in August 2015. The fire burned 63,972 acres 

northwest of Spokane, Washington under extreme fire weather conditions was observed to have a 

reduced rate of spread and intensity as it burned into the thinned forest. The success of this project 

extends beyond the forest resilience benefit to economic benefits including timber for local mills and a 

net zero cost to the BLM due to the offset and integration of commercial sized timber into the fuels 

reduction. This project involved collaboration with a diverse group of stakeholders including the 

Spokane Tribe, Washington DNR, and adjacent land owners.

The foreground shows part of the thinned stand where the fire burned at low severity in the 

understory and resulted in high tree survival. The background is outside the Huckleberry project area 

where the unmanaged, dense forest experienced high severity fire.
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-49

Activity: Land Resources

Subactivity: Riparian Management

2015 

Actual

2016 

Enacted

2017 President's Budget Change 

from 

2016 Fixed 

Costs

Transfers Program 

Change

Requested 

Amount

Riparian Management $000 21,321 21,321 +136 +0 +1,463 22,920 +1,599

FTE 146 146 +0 +2 148 +2

 

Summary of 2017 Program Changes/Internal Transfers for Riparian Management: ($000) FTE

Enhance Core Capability +1,463 +2 

Total +1,463 +2 

Justification of 2017 Program Changes

The 2017 budget request for the Riparian Management Program is $22,920,000 and 148 FTE, a 

program change of +$1,463,000 and +2 FTE from the 2016 enacted level.

Enhance Core Capability (+$1,463,000/+2 FTE) - Additional funds will be used to enhance 

core capacity and restore riparian miles not meeting land health standards in sage-grouse 

habitat. The Riparian Management program will fund 300 of the 650 miles of stream restoration 

expected to be completed by BLM in 2017. This is an increase of 50 miles over the 250 miles of 

restoration planned to be completed by the program in 2016. The BLM will continue to 

inventory 500,000 riparian acres especially those in priority sage-grouse habitats where grazing 

permits are expected to be renewed to ensure that conditions meet those specified in 

management plans.

Program Overview

Program Components

Riparian-wetland areas are important components in every landscape type. In the arid West, 

these moist, green areas are especially critical to sustaining ecosystem functions and services, 

providing terrestrial and aquatic wildlife habitat, reducing erosion, improving water quality, and 

providing recreational opportunities. Although they are a small component of landscapes in the 

West, the diversity of uses and functions of riparian-wetland resources and their geographical 

position on the landscape make these areas indicators of overall ecosystem function. 

Healthy riparian areas play a prominent role in the Bureau’s ability to maintain working 

landscapes on public lands while managing for sage-grouse populations by providing shelter 

from predators and supplying the critical foods necessary for the species’ survival, especially 

during the brood rearing life phase. 

Highly functioning riparian areas can also help prevent the spread of wildfires. The BLM’s 

Riparian Management Program provides the framework for managing over 150,000 miles of 

riparian areas and nearly 13 million acres of wetlands. In coordination with the other BLM 
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Chapter VII – Management of Lands & Resources Page VII-50

programs, the Riparian Management Program pursues a landscape approach to managing BLM 

vegetation resources.

Critical Factors

A number of external factors impact the Riparian Management Program, including: 

• Increasing urgency to restore and protect habitats as the number of sensitive and 

special status species grows. Many of these species, including sage-grouse, southwest 

willow flycatcher, cutthroat trout, bullhead trout, and numerous plant species have a 

critical nexus with riparian resources. There is a continued need to improve the 

condition of riparian streams that are not meeting the standards set forth in land health 

evaluations 

• Increasing need to understand the location and condition of lentic resources on public 

lands and develop standard protocols to monitor their conditions.

• A changing climatic regime resulting in more frequent and severe floods and extended 

droughts, and requiring aggressive adaptive management strategies.

• Growing demands upon water resources and impacts from land-use changes, which 

increase monitoring workloads and necessitate adaptive management strategies. 

• Development of public lands as part of the Powering Our Future initiative, requiring 

mitigation efforts to offset water discharge, water pollution, and water loss.

• Spread of invasive terrestrial and aquatic species, such as tamarisk and quagga 

mussel, requiring additional monitoring and treatment to prevent degradation of 

functioning ecosystems and native plant and animal communities. 

• Urban growth and increasing public use of riparian-wetland areas, requiring additional 

monitoring to detect degradation from trails, transportation routes, and visitor use 

activities and to prioritize restoration activities.

• Catastrophic wildfires that negatively impact riparian resources, increasing the workload 

associated with stabilizing and rehabilitating burned areas and monitoring treatment 

success, land condition, and trends.

Means and Strategies

To better achieve program goals and provide improved management of public lands, the BLM 

has adopted a corporate approach to managing ecosystem functions and services by 

emphasizing shared on-the-ground vegetation goals across programs, processes, and scales. 

In this coordinated effort, the Riparian Management Program is addressing critical factors 

through multiple activities, including:

• Incorporating Rapid Ecoregional Assessment information, where appropriate, into 

riparian-wetland planning and management activities;

• Implementing riparian restoration in high-priority focal areas especially for sage-grouse 

using step-down strategies developed from the BLM’s Landscape Approach for 

Managing Public Lands and priorities set by the Fire and Invasive Species Assessment 

Tool (FIAT); 

• Conducting qualitative Proper Functioning Condition Assessments and collecting 

quantitative core aquatic and terrestrial indicator data per the Assessment, Inventory and 

Monitoring (AIM) Strategy in coordination with land health assessments on a watershed 

or landscape-scale basis; 
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Chapter VII – Management of Lands & Resources Page VII-51

• Supplementing AIM data with critical program data through multiple indicator monitoring 

to begin devising a quantitative, statistically-robust methodology for landscape-scale 

riparian monitoring;

• Prioritizing riparian treatments to improve the condition of streams in areas functionally 

at-risk (especially those with high resource values), in order to protect sage-grouse and 

ecologically important plant and animal communities; 

• Coordinating with the Fisheries Management and Soil, Water & Air Management 

Programs to devise cross-cutting, watershed-scale strategies and policies that will 

address water resource impacts from drought, development, and other stressors;

• Educating youth about the importance and complexity of riparian-wetland resources;

• Capturing legacy and new assessment and AIM monitoring data into a national 

geospatial dataset in order to more efficiently analyze and report on the conditions and 

trends of riparian resources;

• Using the interagency Creeks and Communities Strategy to cooperate with diverse 

stakeholders across jurisdictional boundaries and to provide training and coaching to the 

field; and

• Leveraging Riparian Management Program funds with funds from other Federal, State, 

and local agencies and NGOs to implement on-the-ground projects, especially in priority 

sage-grouse habitats. 

2017 Program Performance

In 2017, the Riparian Management Program will continue to improve land and water health 

through ongoing management of wetlands and riparian areas. Program activities will contribute 

to three DOI performance measures:

• On-the-ground restoration and management activities conducted by the program 

contribute directly to the improvement of degraded riparian areas. These actions are 

essential to meeting the Department’s performance measure concerning the number of 

DOI riparian (stream/shoreline) miles restored to the condition specified in management 

plans. In 2017, the Program will restore approximately 300 miles of riparian area. 

• Assessment and monitoring of riparian areas are crucial activities of the Program, 

directing management actions to those areas not meeting desired conditions as part of 

an adaptive management strategy. The DOI Strategic Plan measures the percentage of 

DOI riparian (stream/shoreline) miles that have achieved desired condition.

• Similar to riparian areas, wetland areas also are assessed and monitored in order to 

direct management actions to areas not meeting desired conditions. Data collected 

during wetland assessment and monitoring are used to measure the percentage of DOI 

acres that have achieved desired conditions where condition is known and as specified 

in management plans.
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Activity: Land Resources

Subactivity: Cultural Resources Management

2015 

Actual

2016 

Enacted

2017 President's Budget Change 

from 

2016 Fixed 

Costs

Transfers Program 

Change

Requested 

Amount

Cultural Resources 

Management

$000 15,131 16,131 +122 +0 +1,075 17,328 +1,197

FTE 104 104 +0 +0 104 +0

Summary of 2017 Program Changes/Internal Transfers for Cultural Resources Management: ($000) FTE

Safeguarding Our Irreplaceable Heritage +1,075 +0 

Total +1,075 +0 

Justification of 2017 Program Changes

The 2017 budget request for the Cultural Resources Management Program is $17,328,000 and 

104 FTE, a program change of +$1,075,000 and a 0 FTE increase from the 2016 enacted level.

Safeguarding Our Irreplaceable Heritage (+$1,075,000/0 FTE) – The 2017 budget request 

includes a program increase of $1.075 million that will be focused on inventory strategies to 

collect baseline heritage resource data and enhance geospatial modeling efforts to support 

planning and resource management at a landscape scale. Ten percent of the public lands have 

been surveyed for heritage resources, largely conducted for land-use compliance, resulting in 

databases containing considerable information on high-development areas, and less information 

on other areas. To better understand the nature and extent of resources and inform predictive 

modeling, BLM will conduct baseline inventory in priority areas vulnerable to climate change, 

fire, looting, and vandalism. To further engage heritage resources in the landscape approach, 

BLM will synthesize and analyze available information at a broad scale to produce high-level, 

comprehensive, regional overviews and sensitivity maps critical for evaluating resources and 

planning at different scales.

Program Overview

The BLM is responsible for the largest, most diverse 

and scientifically important aggregation of cultural, 

historical, and paleontological resources on the public 

lands, as well as the museum collections and data 

associated with these heritage resources. These 

cultural resources represent all major periods, events, 

and communities in the broad sweep of human 

habitation in the West over a 10,000 year period. 

These heritage resources are managed to ensure the 

cultural, educational, aesthetic, inspirational, and 

scientific values are preserved, and the recreational and 

economic benefits are realized for today’s communities 

The BLM’s heritage resources include:

• 374,434 recorded cultural properties

• 4,851 cultural properties protected

• 133 historic properties listed on the 

National Register, 2,187 contributing 

properties, and 54,629 properties 

eligible for listing

• 5,569 monitored archaeological sites

• 429 maintained historic structures

• 27,629 recorded paleontological 

localities

• 10 million documented artifacts and 

specimens in 158 museums and 

universities.
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Chapter VII – Management of Lands & Resources Page VII-54

NHPA Section 106 Casework

Section 106 of the NHPA requires the BLM to take into 

account the effects of its actions on historic properties 

and provides the Advisory Council on Historic 

Preservation (ACHP) with a reasonable opportunity to 

comment. Annually, the BLM reviews up to 9,500 land 

use proposals for their potential effect on properties listed 

on, or eligible for listing on, the National Register of 

Historic Places. The BLM’s national Programmatic 

Agreement with the ACHP and National Conference of 

State Historic Preservation Officers is the primary 

mechanism for achieving cost efficiencies and flexibility in 

the NHPA Section 106 review process.

Regional Cultural Resource Overviews

The landscape approach and the large-scale projects 

planned on the public lands necessitates that the BLM 

maintains high-level, comprehensive, regional overviews 

that synthesize available information and analysis at a 

broad scale. The BLM has the tools and processes for 

meeting this need and will complete or update overviews 

in key areas. These inventory overviews help identify 

cultural resources on the ground, inform sampling 

strategies and predictive modeling, identify areas where 

cultural resource conflict may occur, and provide a 

framework for National Register evaluations. They are 

meant to significantly reduce the cost of subsequent 

projects or planning efforts.

as well as future generations in compliance with Federal laws and regulations. 

The program also provides expertise and capabilities to facilitate compliance with Section 106 of 

the National Historic Preservation Act (NHPA) required for other BLM programs and land-use 

proponents to implement proposed actions on the public lands that will effect historic properties, 

such as energy development, recreation, grazing, and other planned activities. Up to 9,500 

land-use proposals are reviewed annually for potential effects to historic properties. 

Compliance costs are to be funded by the benefitting subactivity program or the proponent. The 

tools and processes developed by the Cultural Resources Management Program streamline the 

compliance process, providing significant cost-savings and efficiencies.

The Cultural Resource Management Program:

• Manages and protects archaeological sites and historic properties as directed by the 

Archaeological Resources Protection Act (ARPA) and NHPA, including inventorying the 

public lands for cultural resources, stabilizing and monitoring sites.

• Manages and protects paleontological 

localities and implements the 

Paleontological Resources 

Preservation subtitle of the Omnibus 

Public Lands Act of 2009 (PRPA), 

including inventorying the public lands 

for fossils, and stabilizing and 

monitoring localities. 

• Curates the 10 million documented 

artifacts, specimens, and associated 

records in the BLM’s three museum 

facilities and in coordination with the 

155 State, tribal, and non-profit partner 

museums and universities.

• Facilitates Government-to-Government 

consultation with Indian Tribes and 

Alaska Native Governments 

concerning traditional tribal activities 

and places of special meaning on the 

public lands, such as sacred sites and 

places of religious significance.

• Complies with the Native American 

Graves Protection and Repatriation 

Act (NAGPRA) to inventory and 

repatriate Native American human 

remains and cultural items held in collections and respond to new discoveries of such on 

the public lands.

• Develops and implements educational and interpretative opportunities for the public to 

engage with cultural and paleontological resources.

• Facilitates academic and scientific research on cultural and paleontological resources to 

enhance scientific understanding and support decision-making.
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Chapter VII – Management of Lands & Resources Page VII-55

Critical Factors 

The program faces a broad range of challenges and critical factors, including: 

• Increased development of energy resources and 

transmission facilities, and opportunities for 

regional mitigation challenge the BLM to compile 

and synthesize data at a broad scale and provide 

efficient and effective NHPA Section 106 

compliance.

• Theft, destruction, and vandalism of heritage 

resources as a result of increased accessibility of 

once-remote public lands, and urban and 

suburban encroachment.

• Enhanced protection of paleontological resources under the new statutory mandates for the 

management, preservation, and protection of fossils under PRPA. 

• Inventorying Native American cultural items held in museum collections and consulting with 

Indian Tribes to determine disposition leading toward repatriation as highlighted by a 2010 

audit of NAGPRA compliance by the Government Accountability Office.

• Identifying and curating artifacts and specimens recovered from the public lands, upgrading 

preservation and documentation for accountability, ensuring access and use for research 

and public benefit, and enhancing partnerships with repositories that curate BLM 

collections.

Means and Strategies

The program prioritizes proactive management and achieves efficiencies for NHPA Section 106 

compliance by: 

• Creating efficiencies in NHPA Section 106 compliance requirements by streamlining the 

review process for other BLM programs and land-use proponents.

• Enhancing tribal participation in decision-making processes through Government-toGovernment consultation with Indian Tribes and Native Alaska villages and corporations, 

and drafting a new tribal consultation and coordination manual and handbook that 

addresses government-to-government tribal consultation across all BLM programs.

• Incorporating the BLM’s landscape approach to public land management to address 

landscape-scale concerns associated with the inventory, assessment, mitigation and 

monitoring of heritage resources.

• Maintaining active working relationships with State Historic Preservation Offices as part of 

the BLM’s Cultural Resources Data Sharing Partnership in order to share costs to automate 

and digitize site records, and to analyze this information for use in planning and expediting 

review of land use undertakings as part of NHPA Section 106 compliance at a significant 

cost savings for the bureau and proponents.

• Supporting Law Enforcement efforts to curb criminal acts prohibited by ARPA, NAGPRA, 

PRPA and other Federal statutes protecting cultural and paleontological resources. 

• Partnering with universities, museums, and other scientific organizations to leverage 

public/private investments.

• Creating volunteer and youth experiences for community-based conservation and 

educational activities, and entry-to-journeyman-level opportunities, as seasonal hires, 

utilizing students and recent graduates. 

Sloan Canyon Petroglyph Site, BLM Nevada
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Chapter VII – Management of Lands & Resources Page VII-56

2017 Program Performance

In 2017, the primary performance program goals for the condition of Archaeological Sites, 

Historic Structures, and Museum Collections will be to inventory, monitor, and stabilize heritage 

resources to improve their condition, focusing on the highest priority and most vulnerable 

resources. Efforts will focus on inventory strategies to conduct baseline inventory, synthesize 

available data to produce regional overviews, modeling, and sensitivity mapping tools for 

cultural and paleontological resources. Bureau-wide heritage resource monitoring techniques 

will be evaluated to develop tools for consistency in data collection and to inform prioritization of 

treatments and management decisions, ensuring stabilization and protection projects are 

focused on those resources at the greatest risk to improve resource conditions.
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-57

Activity: Land Resources

Subactivity: Wild Horses & Burro Management

2015 

Actual

2016 

Enacted

2017 President's Budget Change 

from 

2016 Fixed 

Costs

Transfers Program 

Change

Requested 

Amount

Wild Horse & Burro 

Management

$000 77,245 80,555 +125 +0 -572 80,108 -447

FTE 153 153 +0 +0 153 +0

Summary of 2017 Program Changes/Internal Transfers for Wild Horse & Burro Management: ($000) FTE

General Program Decrease -572 

Total -572 +0 

Other Resources Supporting Wild Horse & Burro Mgmt:

2015 Actual 2016 

Estimate

2017 

Estimate

Change 

from 2016

USFS Wild Horses $000 1,386 1,000 1,000 +0

FTE 0 0 0 +0

Adopt-A-Horse Program $000 405 400 400 +0

FTE 0 0 0 +0

Notes:

- USFS Wild Horses amounts are shown as estimated transfers reported by the U.S. Forest Service in its 2015 Budget Justification (March 2014); the annual 

Interior, Environment, and Related Agencies Appropriation Act appropriates these funds in the U.S. Forest Service National Forest System appropriation; Public 

Law 113-76 authorizes the transfer of these funds in 2014

- Adopt-A-Horse Program amounts are shown as new budget authority derived from a minimum $125 per horse or burro fee under a competitive bidding process 

for adoption of animals gathered from the public lands, conducted under The Wild Free-Roaming Horse and Burro Act of 1971, as amended by the Public 

Rangelands Improvement Act of 1978 (16 USC 1331-1340); the annual Interior, Environment, and Related Agencies Appropriation Act appropriates these funds 

on a current basis. More information on Adopt-A-Horse Program is found in the Service Charges, Deposits, & Forfeitures chapter

- Actual and estimated obligations, by year for Adopt-A-Horse Program are found in President's Budget Appendix under the BLM section

Justification of 2017 Program Changes

The 2017 budget request for the Wild Horse & Burro Management Program is $80,108,000 and 

153 FTE, a program change of -$572,000 from the 2016 enacted level.

General Program Decrease (-$572,000) – A reduction of $572,000 in the Wild Horse and 

Burro Management program reflects the anticipated completion of short-term activities 

supported with the $3.0 million increase provided in 2016. The BLM will continue to maintain 

core functions in the Wild Horse and Burro (WHB) program by focusing on the highest priority 

work and implementing program efficiencies where possible. The BLM will also continue 

expanding the use of contraceptives and the application of spay and neuter treatments to begin 

to reduce program costs and help address the unsustainable proliferation of wild horses and 

burros on public lands.
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-58

Program Overview

Program Components

The WHB Program is responsible for managing wild horses and burros in accordance with 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 in combination with other public land 

uses. Traditional WHB Program activities include maintaining an accurate current population 

inventory; establishing appropriate management levels (AML) and when necessary, achieving 

or maintaining AML by removing animals from the range; and facilitating adoptions and other 

transfers. Over the past several years, BLM has conducted extensive scientific research to 

develop effective strategies for the management of wild horses and burros, and this work will 

help BLM as it takes more aggressive action in 2016 on various activities to better manage this 

program. 

When the Act was passed, approximately 25,000 wild horses and burros existed on public lands 

managed by the BLM. Today, that population has more than doubled; there are now more than 

58,000 wild horses and burros found on 26.9 million acres of public lands, which has led to 

overpopulation in many herds. Overpopulation on the range, in addition to prolonged drought 

conditions, has serious practical effects on effective land management, and can lead to the 

deterioration of the land and of the animals’ health. Exacerbating the problems related to 

population growth, over the last 10 years, adoption rates for wild horses and burros have 

dropped nearly 70 percent – in the early 2000’s, the BLM was able to adopt out nearly 8,000 

horses each year; more recently, the annual adoption totals have been closer to 2,600 per year. 

As a result, the BLM now houses nearly 48,000 unadopted horses and burros in off-range 

pastures and corrals. As the total lifetime cost for caring for an unadopted animal is nearly 

$50,000, this situation has created very serious challenges to effective cost management.

To reduce the need for off-range pastures and corrals, the BLM is broadening its efforts to 

increase adoptions, including seeking new authority to transfer animals to local, State, and other 

Federal agencies, as well as extending its use of contraceptives and spay and neuter 

treatments. Much of this direct action will begin in 2016, and will continue to be supported by 

on-going general research efforts. For example, the BLM will continue working with leading 

university and U.S. Geological Survey scientists to better refine its population growth 

suppression methods and overall herd management techniques. The BLM has also made 

significant progress in ensuring the humane treatment of wild horses and burros, including 

ongoing work to strengthen its comprehensive animal welfare program.

Elements for Reforming and Managing the Wild Horse and Burro Program

Existing wild horse and burro populations on the range far exceed what the land can sustain. 

The activities described above will develop new tools for managing horses and burros on 

healthy rangelands, including safe and effective ways to slow the population growth rate of the 

animals and reduce the need to remove animals from the public lands. Doing so will reduce the 

number of animals in off-range corrals, and reduce program costs. Major proactive reforms in 

herd management both on and off the range are critical to meet program goals. The following 

actions and reforms will contribute to a more sustainable program, and are consistent with and 

complementary to the June 2013 National Academy of Science (NAS) report: 
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-59

Jump Starting Adoptions

• Adoption Incentive Program: The BLM will consider efforts to increase adoptions 

through cooperative agreements that will facilitate and increase adoptions of animals of 

specific disposition and explore other potential methods for encouraging adoptions.

• Transfer of Animals to Other Agencies: The budget includes a legislative proposal 

that provides authority for the immediate transfer of wild horses and burros to local, 

State and other Federal agencies that use them in their programs. 

• Reducing Holding Costs: The BLM will continue efforts to acquire less expensive 

pasture holding facilities and partner with eco-sanctuaries to reduce holding costs for 

animals removed from public rangelands. The Bureau will also continue investing in

partnerships that increase adoptions by training animals and placing them with new 

adopters. 

Controlling On-Range Populations

• Reducing Population Growth (NAS Recommended): The BLM will increase its use of 

available fertility control methods including contraceptive vaccines and spay and neuter 

techniques. The BLM has initiated pilot population growth suppression projects and will 

continue to prioritize aggressive application of current techniques, consistent with 

available budget and humane treatment.

• Developing Herd Management Area (HMA) Sustainability Plans: The BLM will 

continue to develop herd management area sustainability plans in the highest priority 

areas. Each sustainability plan will define a management prescription for appropriate 

population growth suppression methods and the maintenance of AML, including 

consideration of low-reproducing and non-reproducing herds.

• Continuing Research (NAS Recommended): In tandem with the proactive application 

of spay and neuter pilot treatments in 2016, the BLM will continue laboratory, pen and 

field studies to develop even more effective population growth suppression methods that 

better refine its contraception and spay and neuter methods; continue to assess public 

knowledge, attitudes, preferences and values of wild horse and burro populations and 

management; and evaluate demand for wild horses and burros by adoptees and longterm sanctuary providers.

Other Program Components

• Comprehensive Animal Welfare Program: The BLM will continue appropriate policy 

administration and oversight to ensure humane animal care and handling practices. The 

BLM will continue to refine a Comprehensive Animal Welfare Program that established 

program-wide standard operating procedures; create universal training requirements; 

and institute a Care and Welfare Assessment Tool. This auditing system will help the 

BLM identify areas of emphasis for future training and ensure humane treatment of wild 

horses and burros.

• Conducting Population Surveys (NAS Recommended): The BLM will continue to 

conduct surveys utilizing the methods developed by U.S. Geological Survey (USGS) to 

acquire more accurate population estimates.

• Promoting Volunteerism in the Management of Wild Horses and Burros: The BLM 

will continue public engagement by enhancing outreach, recruiting local volunteers and 

organizations to assist in range and herd monitoring and management, and encouraging 

partnerships to increase ecotourism. 
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-60

• Continuing Transparency and Openness: The BLM is committed to transparency in 

all facets of the WHB Program. This includes providing public viewing opportunities 

during gather operations and at holding facilities without compromising the safety of 

staff, members of the public, or the animals. The BLM is also committed to a proactive 

public information system that is both accurate and prompt.

Critical Factors

Critical factors affecting the efficiency of the WHB Program include:

• Increased pasture costs will continue to affect holding costs;

• Wild horses and burros have few natural predators and herds increase at a rate of 15-20 

percent each year and may double in size every four years; 

• Current wild horse and burro populations exceed AML in nearly all HMAs (~93 percent). 

Prolonged overpopulation could result in wild horse and burro population die-offs as well 

as rangeland degradation that may require decades to restore. 

• Existing contraceptive vaccines are only effective for one year, and varying terrain, 

wildness, and the size of herds and HMAs present logistical challenges associated with 

applying vaccines; 

• Adoptions have steadily declined since the early 2000’s which has increased the number 

of animals in off-range holding corrals; 

• Lifetime (estimate of 25 years) care for un-adopted animals in off-range holding corrals 

is nearly $50,000 per animal; and

• The BLM is experiencing increased litigation, correspondence, Freedom of Information 

Act requests and the need to provide additional personnel at gathers to host public and 

media visitation, all of which contribute to increased expenses.

In response to these critical factors, the BLM will increase the use of population growth methods 

including spay and neuter techniques, conduct removals at a substantially reduced level until 

holding costs can be reduced, and initiate actions to increase adoptions. Removals will be 

prioritized and will primarily occur in response to public health and safety (i.e., animals on the 

highway, in agricultural fields); private land encroachment; emergencies; Greater Sage-Grouse 

Focal Areas; research; and court orders.
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-61

Note: Future removal and holding numbers are estimated as of January 6, 2016. 

2017 Program Performance

In 2017, the BLM estimates that it will remove fewer numbers of wild horses and burros from the 

range (about 2,500 to 3,000), thus exacerbating the existing overpopulation; this number is 

comparable to the annual mortality in facilities and the number that is adopted and sold each 

year. When animals are imperiled, resources may not be adequate to respond to all emergency 

removal needs. The BLM will continue planning and NEPA analysis to implement broad scale 

aggressive fertility control. The BLM will also conduct population surveys, continue to 

implement the comprehensive animal welfare program, and continue supporting partnerships 

that help increase adoptions and reduce short-term holding costs by establishing less expensive 

additional long-term holding contracts and eco-sanctuaries. 

The BLM began implementation of the recommendations received from the NAS in 2014. 

Population growth suppression research trials initiated in fiscal year 2015 will continue through 

2020 with varying completion dates. The BLM will continue refining its scientific foundation that 

serves as the basis for an ecologically and financially sustainable Wild Horse and Burro 

Program. The BLM will initiate aggressive application of the most effective available fertility 

control methods including multiple spay and neuter techniques and contraceptive vaccines. 

Methods used will vary and may change as research results provide information on 

effectiveness.

FY 2013

(ACTUAL)

FY 2014

(ACTUAL)

FY 2015

(ACTUAL)

FY 2016

ENACTED

FY 2017

(Estimate)

Adoptions 2,671 2,118 2,631 2,500 2,500

Total Removals 4,232 2,158 3,819 2,500 2,500

Animals in Holding (Sep 30) 49,151 48,478 47,545 48,000 48,000

45,000

45,500

46,000

46,500

47,000

47,500

48,000

48,500

49,000

49,500

50,000

0

500

1,000

1,500

2,000

2,500

3,000

3,500

4,000

4,500

5,000

Wild Horse & Burro Funding, Removals, Holding and Adoptions 
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-62

Additional planned performance for 2017 includes:

• Increase the application of the most effective available fertility control methods including 

contraceptive vaccines and spay and neuter.

• Reduce holding costs by transferring animals from corral facilities to newly acquired, less 

expensive eco-sanctuaries and private pasture holding contracts;

• Continue research to develop longer acting contraceptive vaccines and spay and neuter 

methods, including the effects of spay and neuter on herd genetics, animal behavior and 

rangeland use;

• Continue land use plan revisions, herd management area plan development, and NEPA 

analysis for HMA sustainability plans;

• Continue to conduct USGS recommended population surveys to obtain more accurate 

population estimates;

• Conduct removals, primarily limiting removals to those needed in response to public 

health and safety issues (i.e., animals on the highway, in agricultural fields); private land 

encroachment; emergencies; Greater sage-grouse Focal Areas; research; and court 

orders;

• Explore cooperative agreements to increase adoptions and implement as appropriate;

• Increase partnerships with non-governmental organizations, and correctional institutions 

to increase the number of trained animals for placement in private care;

• Continue herd management/rangeland health monitoring to support AML evaluation;

• Continue compliance inspections of previously adopted animals;

• Continue to develop and conduct comprehensive animal welfare program training and 

audits for gathers, transportation, corral and pasture holding facilities and adoption 

events; and

• Continue the maintenance of water developments on public lands.

 
Wildlife and Fisheries 

Management 

Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-63

Activity: Wildlife and Fisheries Management

2015 

Actual

2016 

Enacted

2017 President's Budget Change 

from 

2016

Fixed 

Costs Transfers Program Change

Requested 

Amount

Wildlife Management $000 52,338 89,381 +160 +0 +19,150 108,691 +19,310 

FTE 237 257 +0 +21 278 21

Fisheries Management $000 12,530 12,530 +98 +0 +0 12,628 +98 

FTE 77 77 +0 +0 77 +0 

Total, Wildlife & Fisheries $000 64,868 101,911 +258 +0 +19,150 121,319 +19,408 

FTE 314 334 +0 +21 355 +21 

Notes: The Miscellaneous Trust Funds, Wildlife & Fish Conservation and Rehabilitation (Sikes Act) 

current mandatory appropriation is a collaborative activity of the Wildlife program. The 2014 

enacted amount (post-sequester) for Wildlife & Fish Conservation and Rehabilitation (Sikes Act) 

was $0.347 million. The 20156President's budget request for Wildlife & Fish Conservation and 

Rehabilitation (Sikes Act) is $0.354 million.

 

More information on these collaborative activities is found in the Miscellaneous Trust Funds 

chapter.

Justification of 2017 Program Changes

The 2017 budget request for the Wildlife and Fisheries Management activity is $121,319,000 

and 355 FTE, a program change of +$19,150,000 and +21 FTE above the 2016 enacted level. 

Activity Description

The Wildlife and Fisheries Management activity maintains and restores fish, wildlife, and their 

habitats by conserving and monitoring habitat conditions, conducting inventories of fish and 

wildlife resources, and developing cooperative management plans, while providing for 

environmentally responsible recreation and commercial uses. Funding for this program supports 

the staff that develops program policy and projects at all levels within the BLM. Management 

actions emphasize on-the-ground and in-the-water actions that measurably increase the health 

of fish and wildlife populations to sustain recreational and commercial uses that enhance or 

maintain many local economies in the West. In addition, these actions reduce the need to 

federally list species.

This activity supports Cooperative Landscape Conservation activities and the Healthy 

Landscapes Program by improving the health of watersheds and sustaining biological 

communities. The overall goal of Fisheries Management and Wildlife Management programs is 

to restore and maintain proper functioning conditions in aquatic, riparian, wetland and upland 

systems managed by the BLM, with the goal of providing suitable conditions for biological 

communities to flourish. 

The lands that the BLM manages include numerous wildlife habitat types across a large 

proportion of America’s western landscapes, including major portions of all American arid

ecosystems, including the sagebrush biome, and portions of the Colorado Plateau. The BLM is 

also responsible for managing 15 million acres of short and mid-grass prairies and nearly 55 

million acres of forest and woodland habitats. This habitat includes 43 million acres of elk 

habitat and 131 million acres of mule deer habitat. The BLM manages 23 million acres of 
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-64

bighorn sheep habitat which include most of the desert bighorn sheep habitat. In addition, the 

BLM's diverse land base includes over 117,000 miles of fishable streams and rivers, over three 

million acres of lakes and reservoirs, and an abundance of wetlands. Because of their isolation, 

BLM lands include many of America’s rarest habitats which support many rare plant and animal 

communities.
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-65

Activity: Wildlife and Fisheries Management

Subactivity: Wildlife Management

2015 

Actual

2016 

Enacted

2017 President's Budget Change 

from 

2016 Fixed 

Costs

Transfers Program 

Change

Requested 

Amount

Wildlife Management $000 52,338 89,381 +160 +0 +19,150 108,691 +19,310

FTE 237 257 +0 +21 278 +21

Summary of 2017 Program Changes/Internal Transfers for Wildlife Management: ($000) FTE

Sage-grouse Conservation +14,150 +12 

National Seed Strategy +5,000 +9 

Total +19,150 +21 

Justification of 2017 Program Changes

The 2017 budget request for the Wildlife Management Program is $108,691,000 and 278 FTE, 

a program change of +$19,150,000 and +21 FTE from the 2016 enacted level.

Implement Sage-Grouse Conservation Plans (+$14,150,000/+12 FTE) – The Greater SageGrouse plans encompass approximately 60 million acres, nearly 25 percent of BLM-managed 

public lands, and require the active engagement and coordination of hundreds of employees 

across a myriad of disciplines. Plan implementation will be the single most complex land 

management effort undertaken by the Bureau in its history and will require a sustained 

commitment of resources over many years in order to be successful. Effective implementation 

will also have corollary benefits to rangeland health, supporting the productivity of lands for 

wildlife and ranching alike.

The Greater Sage-Grouse plans provide a landscape-scale approach to protecting and 

conserving the Greater Sage-Grouse and its habitat. The plans seek to limit or eliminate 

additional disturbance as well as target habitat improvements to the most important areas. In 

addition to establishing protective land use allocations, the plans implement a suite of 

management actions, such as the establishment of disturbance limits, Greater Sage-Grouse 

habitat objectives, mitigation requirements, monitoring protocols, and adaptive management 

triggers and responses, as well as other conservation measures on Greater Sage-Grouse 

habitat on BLM-managed lands. 

The plans focus on avoiding, minimizing, and compensating for surface disturbance and provide 

for assessments on the threat of fire and invasive species (known as the FIAT assessments) to 

Greater Sage-Grouse habitats. The 2017 budget request includes additional funding to 

implement actions to reduce those threats in Greater Sage-Grouse habitats across 10 Western 

States. Projects and treatments associated with habitat restoration have a multi-year program 

of work to describe each step towards implementation, monitoring and reporting on the BLM’s 

investment in Greater Sage-Grouse conservation. Increased funding will allow the program to 

implement on-the-ground projects and monitor habitat treatments at a greater pace. 
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-66

Of the $14.15 million increase requested:

• $6.2 million would be directed to removal of encroaching conifers;

• $1.4 million for eradication and control of invasive weeds; 

• $1.0 million for restoration of riparian habitats; 

• $2.3 million for reduction of fuel loads;

• $850,000 to augment post-fire stabilization and rehabilitation efforts through the 

Sustainability in Prison program that would fund an additional 10 prisons in the SageGrouse focal areas habitats to grow 200,000 locally adapted sagebrush plugs for use in 

restoration of habitat after wildfires or other disturbances. In addition to establishing new 

prison programs, the funds would be used to maintain the existing ten prison programs 

that would provide another 320,000 sagebrush plugs annually; and,

• $1.2 million to support 12 additional permanent FTE. Two FTE at the National 

Operations Center would assist in managing and training for data management, 

geospatial support and contracting and agreements, with the remaining ten positions 

being located in the State, district and/or field offices to implement the programs of work 

for habitat restoration.

The remaining $1.2 million would be directed towards additional support for the implementation 

needs of the States along with additional support for training for field staff, in coordination with 

State and Federal partners, to help implement the new provisions for habitat conservation and 

to deploy new tools. 

National Seed Strategy (+$5,000,000/+9 FTE) – The requested increase will enable BLM to 

build upon actions started in 2016 and continue to aggressively implement the National Seed 

Strategy (www.blm.gov/seedstrategy), which is critical to BLM’s ability to respond with 

appropriate restoration resources to landscape-scale ecological changes, such as those due to 

drought, invasive species and catastrophic wildfires. The National Seed Strategy is integral to 

the success of the Administration’s Sage Grouse protection efforts, its wildland fire rehabilitation 

efforts, and the Secretary’s Integrated Rangeland Fire Management Strategy. The National 

Seed Strategy includes four overarching goals: 

• Identify Seed Needs and Ensure the Reliable Availability of Genetically Appropriate 

Seed Reserves

• Identify Research Needs and Conduct Research to Provide Genetically Appropriate 

Seed and Improve Technology for Native Seed Production and Ecosystem Restoration

• Develop Tools that Enable Managers to Make Timely, Informed Seeding Decisions for 

Ecological Restoration

• Develop strategies for internal and external communication

Implementing the National Seed Strategy will result in much needed nationwide networks of 

native seed collectors, researchers developing wildland seed into commercial crops, farmers 

and growers increasing seed supplies, nurseries and storage facilities providing sufficient 

amounts of appropriate seed; and restoration ecologists identifying the appropriate timing and 

placement for seed and plant material to optimize treatment results. Successful implementation 

of the strategy will depend on close cooperation with partner federal agencies and the private 

sector entities under the Plant Conservation Alliance.

Within the amount requested, the BLM will increase the supply of native seed by expanding the 

native seed inventory by 1,500 seed collections; engage youth to become the next generation of 
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-67

land stewards by training them to locate and harvest native seed; clean and store native seed in 

long-term conservation seed banks; identify areas for important native plants to ensure field 

reserves of these species; and engage federal procurement officers and native seed producers 

to analyze procurement procedures and facilitate improved federal access to native seed 

markets.

Implementing the National Seed Strategy will support a number of other major national 

initiatives, including: 

• The President’s Climate Action Plan (2013);

• Executive Order 13112 – Invasive Species;

• Department of the Interior Secretarial Order 3330 – Improving Mitigation Policies and 

Practices of the Department of the Interior;

• Department of the Interior Secretarial Order 3336 – Rangeland Fire Prevention, 

Management and Restoration;

• National Fish, Wildlife and Plants Climate Adaptation Strategy (NFWPCAP 2012); and

• Pollinator Health Task Force - National Strategy to Promote the Health of Honey Bees 

and Other Pollinators (2015).

Wildlife Management Program 

Program Components

The BLM is responsible for managing more wildlife habitat than any other Federal or State 

agency. The BLM conducts activities to support healthy and diverse populations of wildlife 

species on behalf of the American people. Over 3,000 species of wildlife occur on BLMmanaged lands, including big game, upland game birds, and waterfowl, as well as amphibians, 

reptiles, and other birds and mammals. Numerous species occur nowhere else in the country. 

For all of these species the BLM has important stewardship responsibilities. 

The BLM Wildlife Management Program conserves and restores wildlife habitat as an integral 

part of the bureau’s multiple use and sustained yield mission. Priority program activities include: 

• Developing science-based strategies and conducting essential conservation actions to 

maintain sustainable populations of wildlife of local and regional economic importance 

and sensitive wildlife species;

• Restoring and maintaining habitats to maintain and enhance populations of native 

wildlife and plants;

• Collecting data to provide a solid foundation for land management planning; and

• Implementing on-the-ground conservation in priority areas which are identified as part of 

a larger, landscape-scale strategy in partnership with others.

The Wildlife Management Program supports the development and application of science-based 

management to reduce or minimize the adverse effects of climate change on wildlife and 

habitats. Working with DOI’s network of Landscape Conservation Cooperatives (LCCs) and 

Climate Science Centers, the BLM will engage with other Federal and State agencies, tribal 

authorities, and nonprofit conservation organizations to:

• Optimize the quality and quantity of priority habitats to minimize negative effects on 

wildlife in the face of climate change,
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-68

• Expand the availability of climate-related resource management training for staff to 

identify appropriate impact thresholds on wildlife habitat in the face of permitted use and 

climate change.

Critical Factors

The BLM addresses a number of critical factors and demands in its Wildlife Management 

Program. These include the following:

• Wildlife habitat loss and fragmentation continue to occur, resulting in significant declines 

for many wildlife species. 

• Beyond reducing available surface water and forage for wildlife, drought can have a 

profound influence on wildfire cycles, which can alter habitat conditions over large areas 

for many years. According to the National Interagency Fire Center, over 4.26 million 

acres of sage-grouse habitat have burned since 2012 (according to BLM geospatial data 

from 2012-2015). Restoring sage-grouse habitat after fire is a complex and difficult 

undertaking.

• Authorization of land uses that impact wildlife habitat have significantly increased in 

conjunction with new energy initiatives. 

• Other authorized uses such as grazing, logging, and recreation have not substantially 

changed due to the additional stresses of drought and other factors related to climate 

change.

Means and Strategies

• The BLM is working to standardize and integrate data across landscapes and 

jurisdictions to gain a fuller understanding of changes to wildlife populations across 

geographic regions and better coordinate actions to mitigate species decline. 

• The BLM is working to enhance fish, wildlife and plant conservation by engaging in multisector collaborations for data sharing to better understand the conservation needs and 

trends of fish, wildlife, and native plants.

• In keeping with Secretarial Order 3330, the BLM is developing the tools and directives 

needed to implement compensatory mitigation at broad landscape scales that will be 

designed to offset the residual impacts of public land use on wildlife species and their 

habitats.

• Most species and habitats present on BLM lands do not occur exclusively on lands 

administered by the BLM. Additionally, BLM land ownership is often not spatially 

contiguous, either at regional and site scales. Therefore, the BLM works closely with its 

partners across jurisdictional boundaries to ensure that wildlife conservation measures 

applied on BLM lands are effective. As a result, the BLM has:

o Improved coordination and collaboration with important conservation partners, 

including Federal, State, tribal, academia and non-governmental organizations;

o Supported development and implementation of standardized wildlife monitoring 

protocols to ascertain population trends across jurisdictional boundaries; and

o Developed standardized regionally-specific habitat management guidelines for 

reptile and amphibian habitats that have been distributed to all BLM field offices;
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-69

• Consistent with BLM policy direction, the BLM works closely with State fish and wildlife 

agencies on natural resource issues, particularly in furtherance of State Wildlife Action 

Plans, which establish broad-scale wildlife priorities and identify the species of greatest 

conservation need as well as the habitats necessary for their protection.

2017 Program Performance

In 2017, the BLM Wildlife Management Program will: 

• Significantly expand its role in implementing the National Greater Sage-Grouse 

Conservation Strategy across 11 States; 

• Conduct Greater Sage-grouse habitat restoration activities through implementation of 

the National Seed Strategy for Rehabilitation and Restoration

• Emphasize wildlife habitat improvements in order to reduce the number of species of 

concern (game and non-game) failing to meet objectives, while maintaining a sufficient 

level of monitoring to ensure the effectiveness of those improvements;

• Emphasize performance of actions under agency-endorsed plans for the purpose of 

conserving non-federally listed species to prevent the need for listing under the 

Endangered Species Act and to maintain the ecosystems they depend upon; 

• Accomplish substantial habitat assessment and monitoring to provide an understanding 

of the range and distribution of priority species, to describe existing conditions, and to 

determine if management decisions have been implemented and objectives are being 

met; and

• Partner with FWS, States, and NGOs to accomplish substantial population monitoring to 

determine if habitat projects are achieving desired outcomes (maintenance and 

enhancement of priority species populations).

• Maintain and enhance partnerships with States, non-government agencies, and sister 

Federal agencies to continue to support rural community economies through game and 

non-game habitat management where the use and appreciation of these species is a 

high-value component of local economies.

Plant Conservation Program

Program Components

Public lands contain a diversity of native plant communities that are the habitats for fish, plants, 

pollinators, and wildlife such as the sage-grouse and desert tortoise. These native plant 

communities make up over 50 ecoregions across the BLM and each ecoregion contains native 

plants that have adapted to those environments. The BLM Plant Conservation Program is 

responsible for protecting, maintaining, and restoring Western native plant communities and 

rare plants on public lands. The Program provides national leadership in seed collection, seed 

conservation, seed procurement and storage, and native plant materials development/use for 

restoration and rehabilitation of public land. This aspect of the program is part of the broader, 

interagency National Seed Strategy (see above). New funding to implement the National Seed 

Strategy will enhance and increase the current program of work. In addition, the Plant 

Conservation Program is responsible for rare plant work.
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-70

The Plant Conservation Program consists of the following elements:

• Identifying, evaluating, and protecting rare plants on public lands, including National

Conservation Lands units; 

• Understanding the effects of climate change on native plant species and native plant 

communities on public land; 

• Developing genetically appropriate native plant materials for restoring and maintaining 

habitat for sage-grouse and other animal and plant species; 

• Providing leadership and infrastructure on native plant materials development by 

coordinating with all BLM programs and by establishing ecoregional native plant 

programs to ensure locally adapted native plant material needs are met; 

• Providing national leadership for Seeds of Success; 

• Developing seed transfer zones and guidelines;

• Coordinating a national network of seed storage warehouses with environmentally 

controlled conditions to protect our seed investment;

• Monitoring the effectiveness of native plant materials that have been developed; 

• Implementing on-the-ground habitat conservation and restoration treatments on a 

landscape scale; and

• Enhancing partnerships and volunteer opportunities for plant conservation. 

Seeds of Success is the national seed collection program and is the foundation of the native 

plant materials development process. Over 16,000 native seed collections have been made 

since 2001 when Congress directed the BLM to establish a Native Plant Materials Development 

Program. The number of seed collections has remained relatively stable (see graph below) 

except for an increase in 2010, due to additional funds provided through the American Recovery 

and Reinvestment Act.
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Chapter VII – Management of Lands & Resources Page VII-71

1,012

1,208

1,044 1,058

1,474 1,504

3,335

1,807

1,615 1,585

1,300

0

500

1000

1500

2000

2500

3000

3500

4000

2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014

10 Years of Seeds of Success Collections

For more information on BLM’s Plant Conservation Program please see the following websites: 

http://www.blm.gov/wo/st/en/prog/more/fish wildlife_and/plants.html

BLM Native Plant Materials Development:

http://www.blm.gov/wo/st/en/prog/more/fish wildlife_and/plants/1.html

Colorado Plateau Native Plant Program:

http://www.blm.gov/ut/st/en/prog/more/CPNPP.html

Great Basin Native Plant Program:

http://www.fs.fed.us/rm/boise/research/shrub/greatbasin.shtml
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Chapter VII – Management of Lands & Resources Page VII-72

Critical Factors

 

• The effects of landscape health stressors such as drought, disease, catastrophic wildfire, 

and urban growth and development are altering native plant communities across the 

West. As rainfall and temperatures change, native plant species and communities may 

not adapt as fast as the environment changes, thus affecting sage-grouse and other 

species’ ability to survive.

• Healthy, resilient, functioning native sagebrush communities play a significant role in the 

Bureau’s ability to maintain sage-grouse populations in the West. The diversity of native 

forbs and grasses within the sagebrush communities is vital to the survival of sagegrouse. These native plants provide food and shelter for the sage-grouse, especially the 

young chicks.

• Healthy landscapes in the West today are at greater risk due to more intense and 

extended droughts, increasing wildfire frequency, and continuing migration of invasive 

species. Historically, resilient Western native plant communities burned on average 

once every 40 years; however, with monocultures of invasive plants and drought, fire 

frequency is closer to once every five to seven years. Because of these factors, more 

aggressive development of native plant materials are needed for rehabilitation after fire

and restoration of habitats for fish, plants, pollinators, and wildlife.

The Plant Conservation Program has made approximately 2,200 native seed collections 

within sage-grouse priority habitat and sage-grouse general habitat. These collections will 

be used to develop genetically appropriate native plant materials for restoration on sagegrouse habitat.
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Chapter VII – Management of Lands & Resources Page VII-73

• Native plant materials, like agronomic crops, take an average of 10 to 20 years to 

develop as consistent and reliable commercially available seed. Therefore, the BLM 

must plan ahead for native plant materials to be available for landscape level restoration.

• Development of public lands for renewable energy, non-renewable energy, and mineral 

resources requires mitigation efforts to offset loss and fragmentation of native plant 

communities.

• Spread of invasive terrestrial species requires additional monitoring and treatment to 

prevent degradation of functioning ecosystems and native plant and animal 

communities.

Means and Strategies

The Plant Conservation Program coordinates with other BLM programs and partner 

organizations to conserve, protect, and restore native plant communities at the landscape level. 

To better achieve program goals and provide improved management of public lands, the Plant 

Conservation Program is working to implement the National Seed Strategy at a landscape 

scale. In this coordinated effort, the Plant Conservation Program is addressing critical factors 

through multiple activities, including:

• Supporting the Department’s youth education investments and the America’s Great 

Outdoors (AGO) Initiative by employing recent college graduates in the biological and 

environmental sciences, through the Conservation and Land Management Internship 

Program. Over 1,000 recent college graduates have gone through this program.

• Educating America’s youth through the development of a high school curriculum on 

native plants. The BLM will use this model to develop elementary and middle school 

curricula for younger students.

• Supporting the renewable and conventional energy programs by encouraging use of 

local genotypes and developing native plant materials for use in reclamation projects. 

http://www.blm.gov/wy/st/en/programs/pcp/mgmt.html.

• Identifying national priority focal areas for native plant community conservation and 

restoration, as well as developing native plant materials for management activities at the 

eco-regional scale.

• Coordinating development of native plant materials for restoration with step-down 

strategies developed from the BLM’s landscape approach and implementing restoration 

within Healthy Landscapes focal areas.

• Supporting ecoregional native plant materials development programs, such as the 

Colorado Plateau Native Plant Program, the Great Basin Native Plant Program, the 

Pacific Northwest Native Plant Program, and the Mojave Native Plant Program, to 

develop locally adapted seed for commercial availability. 

• Leveraging Plant Conservation Program funds with other Federal, State, and local 

agencies and NGOs to implement on-the-ground projects and conduct research in native 

plant development and restoration techniques.

2017 Program Performance

In 2017, BLM will continue to lead the Interagency Native Plant Materials Development 

Program, including Seeds of Success, Plant Conservation Alliance Federal Committee and 

regional interagency native plant materials development programs in the Colorado Plateau, 

Great Basin, Pacific Northwest, Wyoming Basin and Mojave Desert. These programs will work 

with partners to focus research on native plant materials development and to get more diversity 
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of native plant materials to the growers in the various ecoregions. In 2017, BLM will expand its 

ecoregional native seed efforts by developing a Sonoran Desert Native Plant Program

The BLM will implement the National Seed Strategy, developed in 2015, which will assess BLM 

seed use, stabilize BLM seed requests, integrate native seed collection across the Bureau, and 

address seed procurement and storage to ensure the highest quality seed for restoration and 

rehabilitation. 

The BLM Plant Conservation Program worked with The Institute for Applied Ecology to develop 

a protocol for working with State prisons to grow locally sourced sagebrush plants to support 

restoration of GSG habitat. A pilot project to produce 20,000 sagebrush plants was established 

in 2014 at the Snake River Correctional Facility in eastern Oregon. The plants grown at this 

facility were planted into a site damaged by wildfire on nearby BLM lands. In 2015 and 2016, the 

Plant Conservation Program used the protocol and pilot project to address the lack of locally 

adapted sagebrush seedlings for restoration and expanded the program to a total of ten prisons 

within the sagebrush steppe. This program will continue in 2017.
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Activity: Wildlife and Fisheries Management

Subactivity: Fisheries Management

2015 

Actual

2016 

Enacted

2017 President's Budget Change 

from 

Fixed 2016

Costs

Transfers Program 

Change

Requested 

Amount

Fisheries Management $000 12,530 12,530 +98 +0 +0 12,628 +98

FTE 77 77 +0 +0 77 +0

Justification of 2017 Program Changes

The 2017 budget request for the Fisheries Management Program is $12,628,000 and 77 FTE.

Program Overview

Program Components

The BLM manages the Nation’s most ecologically diverse range of aquatic habitat, totaling more 

than 132,000 miles of fish bearing streams and rivers, over three million acres of lake and 

reservoir habitat, over 150,000 miles of riparian areas and nearly 13 million acres of wetlands. 

From isolated desert springs to Alaska’s North Slope tributaries, BLM aquatic resources support 

public recreation and subsistence fisheries that sustain Native American cultural heritages and 

are critical for sustaining the Nation’s native aquatic biodiversity and sport fishing heritages. 

The fisheries program, in close partnership with other federal, state, and non-governmental 

organizations, is responsible for protecting and restoring BLM managed aquatic habitat for 

aquatic vertebrate and invertebrate organisms. 

The BLM Fisheries Program:

• Designs and implements lake, wetland, stream, and riparian treatments to restore and 

reconnect native, resident game, and nongame aquatic species habitat on public and 

private lands;

• Assists in special status aquatic species and habitat improvement to prevent the need 

for federal threatened or endangered listing;

• Assists and contributes to other BLM program areas to ensure fish, other aquatic 

species, and their habitats receive full consideration;

• Conducts aquatic resource research, inventory, and monitoring to support BLM 

management decisions and assess effectiveness of management actions;

• Leads and participates in efforts to prevent and limit the spread of Aquatic Invasive 

Species, including developing materials for education and outreach; 
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Chapter VII – Management of Lands & Resources Page VII-76

• Enhances anadromous fisheries by increasing habitat integrity and productivity in 

coastal drainages of the states of Alaska, California, Idaho, Oregon, and Washington. 

• Maintains and restores unobstructed routes of movement and passage for all species of 

native vertebrate and invertebrate aquatic organisms;

• Enhances the quality and quantity of recreational fishing opportunities on BLM managed 

lands by increasing public access, quality of experience and productivity. 

• Works with partners including state agencies, universities, non-governmental 

organizations such as Trout Unlimited, National Fish and Wildlife Foundation, Wildlife 

Forever and National Fish Habitat Partnerships; 

• Leads and provides support for youth employment opportunities activities and promotes 

and enhances BLM aquatic recreation, education and rehabilitation experiences for 

veterans and their families; and

• Creates and establishes Bureau-wide policy, guidance and directives for BLM’s aquatic 

resources.

Critical Factors

Challenges affecting aquatic resources on BLM lands: 

 

• Climate Change and Other Stressors: Aquatic and wetland ecosystems are among 

the most imperiled on earth. Landscape alterations due to climate change pose serious 

risks, management challenges, and changes for BLM managed inland freshwater 

ecosystems (lakes, streams, rivers, wetlands) and coastal wetlands as predicted 

changes to temperature regimes, precipitation, and flow patterns occur across the 

United States. The success of fish and other aquatic species will depend largely on the 

ability to move across landscapes and the availability of connecting dispersal corridors. 

In addition, new combinations of native and non-native species will interact in new ways 

which may compromise the reliability with which ecosystem goods and services are 

provided by BLM managed aquatic and wetland ecosystems. A greater focus on 

proactive conservation of these habitats will be essential for their long term persistence. 

The Fisheries program has defined and established management priorities for 

implementing actions for climate change resiliency for aquatic species and habitats on 

BLM administered lands. These are to: 1) provide aquatic organism passage and 

stream network connectivity; 2) ensure adequate water quality and quantity at 

appropriate times; 3) reduce nutrient loads; and 4) limit the introduction and spread of 

invasive/exotic aquatic species.

• Renewable Energy Development: The priority for developing renewable energy 

(hydropower, wind, solar, and geothermal) as part of the Powering Our Future initiative 

places increasing demands on fisheries and aquatics personnel. The program is 

working to ensure sites of high potential for energy development, and the transmission 

corridors linking these sites to the energy grid, are developed in a responsible manner 

consistent with the short and long-term conservation needs of aquatic resources. 
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Chapter VII – Management of Lands & Resources Page VII-77

• FERC Relicensing: The licensing and relicensing of hydropower projects creates a 

significant opportunity to direct the development of license conditions to conserve 

fisheries resources so that Federal trust responsibilities are met for the next 30-50 years. 

It is imperative that the bureau is engaged during these licensing processes.

• Aquatic Organism Passage (AOP): The program continues to focus on fish-passable 

culvert and bridge replacements. Culvert upgrades or removals reconnect high quality 

habitat for numerous aquatic species. AOP projects have the ability to immediately 

restore natural stream process and return fish to mature, functioning riparian and instream habitats.

• Legacy Roads: Road treatments are addressed to stabilize and reduce catastrophic 

sediment input from historic, poorly planned or failing roads made of soft fill material, 

which cannot adequately pass downstream water or deposit sediment laden runoff 

directly into fish bearing streams. Ponding and failure occurs as the standing water 

upstream overtops or erodes the road, 

resulting in severe erosion that inundates 

and smothers downstream fish habitat 

with sediment.

• Aquatic Invasive Species: The Fisheries

program is responsible for working with 

State and other Federal agency partners 

to develop strategies and programs to 

combat the ecological and economic 

threats caused by aquatic nuisance 

species nationwide. The Fisheries

program role is to minimize the threats 

from aquatic invasive species, such as the 

quagga and zebra mussel, New Zealand mudsnail, and multiple other non-native plants, 

vertebrates, and invertebrates. Aquatic invasive species pose a serious threat to our 

Nation’s economy as well as the viability of native fish communities.

 

Means and Strategies

BLM Fisheries is meeting these challenges by:

• Managing for the natural chemical, physical, and biological integrity and function of 

aquatic ecosystems to which species, populations, and communities are adapted;

• Restoring and reconnecting the natural diversity of aquatic biota and watershed features 

(flow amount and timing, substrate recruitment and transport, and bank and channel 

configuration);

• Managing habitat for native resident and migratory species and game species that are of 

high ecosystem, social, economic, or scientific value;

• Expanding and balancing recreational and native fish conservation by strengthening 

partnerships, developing fishing opportunities and responding to attitudes, values, and 

desires of the public;
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Chapter VII – Management of Lands & Resources Page VII-78

• Implementing activities to promote awareness of and prevent the spread of invasive 

aquatic species;

• Completing aquatic habitat research, inventory and monitoring for planning, prioritization 

of conservation activities, and evaluation of restoration projects; 

• Educating youth about the importance and complexity of fisheries and fisheries habitat; 

and

• Working with partners including state agencies, universities, and non-governmental 

organizations. 

2017 Program Performance

The BLM Fisheries program will continue to support the bureau’s mission-critical goals of 

maintaining and restoring aquatic ecosystems and related species and their habitats and play a 

significant role in the identification and implementation of these actions. This includes a special 

emphasis on salmon and steelhead fisheries resources, Colorado River desert fishes, cutthroat 

trout conservation, prairie fishes, Alaska stream resources, and riparian areas.

The Fisheries program will continue to work closely with the Aquatic Nuisance Species Task 

Force, including its Western Regional Panel, the Association of Fish and Wildlife Agencies, the 

Western Association of Fish and Wildlife Agencies, Trout Unlimited, the National Fish and 

Wildlife Foundation and the American Fisheries Society.

Numerous active fish habitat restoration activities will benefit native fish, including placer mining 

reclamation demonstration projects in Alaska; the Escalante, San Rafael River watershed 

restorations in Utah; Overflow Wetland Pecos pupfish and least chub conservation agreement 

restoration, San Juan River Basin Recovery Implementation Program; and road 

decommissioning and instream habitat restoration in Oregon and California. Additional fisheries 

inventory and monitoring work will take place and inform management decisions via the 

Gulkana River subsistence monitoring project in Alaska, and Coho salmon monitoring in the 

Mattole River, California.

Aquatic invasive species work will continue such as through the Lake Havasu Fisheries Habitat 

improvement program’s zebra/quagga mussel outreach program in Arizona, Didemnum vexillum

tunicate eradication in Alaska, Paynes Creek Wetlands in California and bullfrog eradication in 

Montana and Arizona. Nationally, the BLM plans to continue its Aquatic Invasive Species 

outreach work with Wildlife Forever. The program’s invasive species prevention messages 

reach four million people annually through a successful advertising campaign in Western fishing 

and hunting regulation books. 

The program continues to work with irrigators and farmers in Utah, Wyoming, and Idaho on one 

of the most successful fish passage programs in the country. It is one of the largest scale Trout 

Unlimited-BLM projects (600 mile river crossing three states). Over the last nine years, the BLM

has reconnected 151 miles of critical migration corridors, linking tributary and main stem 

habitats by removing fish passage barriers, installed over 35 fish passage structures to restore 

upstream access to critical spawning and rearing habitats in headwater tributaries, and 

reintroduced cutthroat trout throughout their range.
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During 2017, in addition to fish and amphibian eDNA applications in Alaska and Nevada, the 

program will continue riparian and wetland restoration efforts, such as the ongoing 22-year old 

Maggie Creek Watershed Restoration effort near Elko, Nevada. Chosen as national model for 

watershed restoration efforts everywhere under the National Fish Habitat Initiative, the project 

so far has restored 82 miles of stream, 2,000 acres of riparian habitat, and 40,000 acres of 

upland watershed in the Maggie Creek basin. The most important fishery result has been the 

return of Lahontan cutthroat trout to 23 miles of stream where they were formerly extirpated.

Community service and outreach activities will be accomplished through partners including 

FishingCommunity.Org and Project Healing Waters Veterans activities in Arizona, Alaska, 

Florida, Virginia, Maryland, Oregon, West Virginia, and Washington DC; family fishing day 

events throughout BLM field offices; and Cosumnes River Preserve and Redding Environmental 

education and outreach efforts in California. Finally, program efforts in 2017 will expand and 

build upon the successful 24-year cooperative conservation partnership with Trout Unlimited to 

reconnect, restore and sustain critical fisheries habitat and populations throughout the West.
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Threatened and 

Endangered Species

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Chapter VII – Management of Lands & Resources Page VII-81

Activity: Threatened and Endangered Species 

Management

2015 

Actual

2016 

Enacted

2017 President's Budget Change 

from 

Fixed 2016

Costs

Transfers Program 

Change

Requested 

Amount

Threatened & Endangered 

Species

$000 21,458 21,567 +131 +0 +0 21,698 +131

FTE 131 131 +0 +0 131 +0

Justification of 2017 Program Changes

The 2017 budget request for the Threatened & Endangered Species Management activity is 

$21,698,000 and 131 FTE. 

Program Overview

The primary goal of the Threatened and Endangered (T&E) Species Program is to recover 

Federally-listed species and preclude the need to list candidate species. The program also 

provides support for conservation of non-listed, rare plant species. The long-term program 

vision is to achieve species recovery so that protection under the Endangered Species Act 

(ESA) is no longer required and to implement conservation programs for Bureau sensitive plants 

and Federal candidate species so that listing under the ESA is unnecessary.

Program Components

Over 420 species listed under the ESA occur on BLM-managed lands. Furthermore, over 110 

candidate species warranting Federal protection are found on BLM lands. BLM-managed lands 

are recognized as prime habitat for over 1,000 rare plant species and provide the only known 

habitat for more than 450 species of rare or listed plants and animals. 

The BLM’s successful conservation of these species requires implementation of the following 

tasks: 

• Cooperative planning with other stakeholders in the preparation of recovery plans and 

development of conservation strategies for targeted species;

• Implementing actions identified in species conservation and recovery plans; 

• Conducting inventories for newly listed, proposed and candidate species;

• Monitoring species populations to determine if objectives identified in species conservation 

and recovery plans are being met; and,

• Ensuring and documenting that T&E species and their habitat are conserved and enhanced 

within a larger landscape context through conservation of ecosystems and watershed 

health.
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Chapter VII – Management of Lands & Resources Page VII-82

Critical Factors

The number of Federally listed species is steadily growing due to increasing conflicts with 

anthropogenic impacts to the landscape such as urban development, energy development, 

mineral extraction, grazing and recreational overutilization, Each of these impacts are 

compounded by the effects of fire, drought, and climate change. The BLM is committed to 

prevent extirpation of these species on BLM-administered lands and to further recovery and 

conservation of Federally-listed and candidate species. This is manifested through support and 

leadership from the T&E program, and the commitment across all BLM programs to balance use 

with the obligation to conserve and recover imperiled species. 

Means and Strategies

The BLM Threatened and Endangered Species Recovery Fund has awarded approximately 

$1.0 million annually, on a competitive basis, to recovery actions that culminate in a delisting or 

down-listing of a Threatened or Endangered species or precluding the need to list a candidate 

species. This Recovery Fund has supported significant species recovery efforts in the field, but 

BLM’s recovery successes extend well beyond the funding associated with this initiative. 

Through the tireless efforts of BLM biologists, the invaluable partnerships that they cultivate, 

and the leveraging of funds from many different sources, the program has achieved a number of 

successes in species conservation. As the largest land management agency in the country, the 

BLM’s potential to turn the tide of imperiled species is enormous. The BLM is now beginning to 

get a glimpse of the major contribution that it can offer to recovering species across this nation’s 

landscape. Since the inception of the BLM Recovery Fund in 2010, our agency has shared in 

the conservation successes of 20 federally listed and candidate species. The BLM’s record of 

accomplishment is building and its successes are accelerating. To continue this momentum 

requires a strong and durable financial commitment to conduct recovery tasks, data collection 

and analysis, and provide the capacity necessary to integrate interagency and interdisciplinary 

efforts in recovery implementation.

Youth in the Great Outdoors Initiative

The T&E Program implements on-the-ground projects that either have an educational or 

outreach component to engage local youth or employ youth in conservation activities. The T&E 

Program will continue to hire recent college graduates in the biological sciences as part of the 

Chicago Botanic Garden’s Conservation and Land Management Internship Program.

National Conservation Lands

The T&E Program offers key criteria in selecting projects within the America’s Great Outdoors 

initiative. The National Conservation Lands is an integral network of biologically diverse, wide 

ranging landscapes and ecosystems. Of the Federally protected species and rare plants that 

occur on BLM lands, 155 species occur only within designated units of the National 

Conservation Lands. An additional 114 species have at least 50 percent of their populations 

represented on National Conservation Lands. The National Conservation Lands are integral to 

threatened and endangered species conservation and recovery. The T&E Program will continue 

to partner with our National Monument and National Conservation Area program units to 

prioritize management actions within the National Conservation Lands that benefit listed species 

or their habitat.
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Chapter VII – Management of Lands & Resources Page VII-83

Program Collaboration and Partnerships 

The range of most of the listed species found on BLM lands includes lands and waters not 

administered by the agency. The recovery of listed species requires management at the 

population or metapopulation scale, regardless of jurisdiction lines. Extensive collaboration and 

cooperation with a number of partners, including other agencies and organizations, is therefore 

an integral element of the T&E Program. Conservation collaborations typically begin with the 

development of recovery plans, written under the leadership of the U.S. Fish and Wildlife 

Service (FWS) or the National Marine Fisheries Service (NMFS). Implementation of recovery 

actions identified in these plans typically involves collaboration with such partners as State fish 

and wildlife agencies, other Federal agencies, and non-governmental organizations (NGOs). 

An example of this collaboration is the BLM’s 

participation in the Black-Footed Ferret Recovery 

Implementation Team Executive Committee. Members 

include: the FWS, the U.S. Geological Survey, the 

National Park Service, the U.S. Forest Service, The 

Wildlife Society, The Nature Conservancy and several 

other NGOs and Federal and State Agencies. Efforts 

include the development of a sylvatic oral plague 

vaccine to protect ferrets and their prey, the prairie 

dog, against plague infection. The BLM continues to 

offer assistance in providing locations to implement the safety and efficacy trials for the 

vaccine’s use in the field. The BLM also continues to increase its involvement in identifying 

appropriate areas where prairie dog expansion or re-colonization can take place and identifying 

potential sites for black-footed ferret reintroduction. 

Other examples of regional multi-agency conservation efforts where the BLM is a significant 

cooperator include the California Condor and Desert Tortoise Recovery Programs.

Compliance and Consultation

In addition to recovery planning and implementation, consultation under Section 7 of the ESA is 

a significant BLM endangered species management responsibility. Under the ESA, the BLM 

must consult with the FWS or the NMFS whenever it determines that an action it authorizes, 

funds, or carries out may affect a listed species. The BLM completes approximately 600 formal 

and informal consultations annually under Section 7 of the ESA. The monitoring, inventory, and 

recovery of Federally-listed species, supported by the T&E program, offer many benefits to 
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other BLM priority portfolio programs such as energy development, mineral extraction, range 

management, horse and burro, forestry, and recreation. The inventory and monitoring 

information collected informs the consultation process, and the recovery efforts for Federallylisted and candidate species bolsters the resiliency of the species on the ground, which may 

accommodate more opportunities for multiple use. 

2017 Program Performance

In 2017, the BLM T&E Program will continue to:

• Emphasize the completion of recovery tasks as identified in species recovery plans;

• Focus on the program’s primary goal of completing actions that lead to species recovery 

with support from the Threatened & Endangered Species Recovery Fund;

• Document the program’s accomplishments and efforts towards species recovery through the 

Special Status Species Tracking System, a reporting system developed by BLM’s National 

Operation Center;

• Inventory and monitor habitat on the millions of BLM acres where Federally-listed species 

are known or suspected to occur; and

• Leverage additional dollars, equipment, and labor from Federal and non-Federal partners 

with shared T&E species recovery objectives.
Recreation 

Management 

Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-85

Activity: Recreation Management

 

2015 

Actual

2016 

Enacted

2017 President's Budget Change 

from 

 2016

Fixed 

Costs Transfers Program Change

Requested 

Amount

Wilderness Management $000 18,264 18,264 +128 +0 +0 18,392 +128 

FTE 134 134 +0 +0 134 0

Recreation Management $000 48,697 51,197 +229 +0 +2,039 53,465 +2,268 

FTE 349 349 +0 +3 352 3

Total, Recreation 

Management

$000 66,961 69,461 +357 +0 +2,039 71,857 +2,396 

FTE 483 483 +0 +3 486 3

Justification of 2017 Program Change

The 2017 budget request for the Recreation Management Activity is $71,857,000 and 486 FTE, 

a program change of +$2,039,000 and +3 FTE from the 2016 enacted level.

Activity Description

The Recreation Management Activity supports efforts to: 

• Provide resource-related recreational opportunities for a wide range of activities; 

• Furnish quality visitor services; 

• Provide a diversity of recreation facilities, visitor centers, and competitive activities;

• Identify and protect wilderness values; 

• Assure that the public receives fair market value for any commercial ventures conducted 

on public lands; and

• Collect recreation use and entrance fees in the best interest of the general public. 

These responsibilities are encompassed by the Bureau’s strategic goal to provide opportunities 

for environmentally responsible recreation.

The Recreation Management Activity provides:

• Recreation planning and visitor use monitoring; 

• Trails, access, and rivers management including off-highway vehicle, public access, and 

comprehensive travel and transportation management; 

• Visitor services, information, interpretation and stewardship education; 

• Visitor health, safety, and accessibility for persons with disabilities; 

• Recreation facility design, operation, and maintenance including visitor centers; 

• Recreation and community support partnerships including tourism and marketing; 

• Wilderness management in the National Conservation Lands; and

Support to partnerships, volunteers, and youth programs.
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Activity: Recreation Management

Subactivity: Wilderness Management

2015 

Actual

2016 

Enacted

2017 President's Budget Change 

from 

Fixed 2016

Costs

Transfers Program 

Change

Requested 

Amount

Wilderness Management $000 18,264 18,264 +128 +0 +0 18,392 +128

FTE 134 134 +0 +0 134 +0

Justification of 2017 Program Changes

The 2017 budget request for the Wilderness Management Program is $18,392,000 and 134

FTE.

Program Overview

The Wilderness Management Program is a part of the BLM National Conservation Lands. The 

BLM’s 15-year National Conservation Lands strategy supports the Bureau’s multiple-use and 

sustained yield mission by ensuring that management efforts are focused on conservation, while 

allowing for compatible uses, consistent with the designating legislation for wilderness areas. In 

addition to conservation, the strategy emphasizes continued collaboration, public involvement, 

and youth engagement. Engaging local communities to help them foster a sense of shared 

stewardship and pride in their local wilderness is a key part of the Wilderness Management 

Program. The program also contributes to the Department of the Interior’s Engaging the Next 

Generation initiative by providing abundant opportunities for recreation, education, volunteerism, 

and work experience. 

For more information on the National Conservation Lands Strategy, visit the BLM website at: 

http://www.blm.gov/wo/st/en/info/newsroom/2011/september/NR_09_30_2011.html

Wilderness Areas are undeveloped Federal lands designated by law to be managed to protect 

their wilderness character as defined by the Wilderness Act of 1964. These designated areas 

are generally large, natural, and undeveloped landscapes that offer outstanding opportunities 

for solitude or primitive and unconfined types of recreation. The BLM is required to meet legal 

requirements for administering the Wilderness Management Program while also conserving, 

protecting, and restoring National Conservation Lands values in the 223 Wilderness Areas with 

over 8.7 million acres in 10 Western States (3 percent of BLM's total acreage in the coterminous 

United States). 

The BLM also continues to conserve, protect, and restore as about 517 Wilderness Study Areas 

(12.6 million acres) under BLM management as defined below:

• Wilderness Study Areas (WSAs) are roadless areas that contain wilderness 

characteristics and are protected to maintain those characteristics until Congress 

designates them as Wilderness Areas or releases them for other uses. 
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The Wilderness Management Program focuses on the protection and conservation of 

wilderness and National Conservation Lands values with the following activities:

• Inventorying, monitoring, and preserving wilderness character;

• Managing use and encouraging appropriate wilderness uses; 

• Inventorying, monitoring, and managing for noxious weed infestations, trespass 

activities, and recreation; and 

• Restoring impacted areas such as trampled vegetation and eroded soil caused by 

unauthorized off-highway vehicles (OHV) travelling cross-country. 

The National Wilderness Preservation System includes all Wilderness Areas managed by the 

U.S. Forest Service (USFS), the BLM, the National Park Service (NPS) and the U.S. Fish and 

Wildlife Service (FWS). It does not include BLM’s WSAs. The BLM is unique in that the vast 

majority of its Wilderness Areas and WSAs are located in delicate desert environments; this 

adds an important ecosystem component to the National Wilderness Preservation System. 

Millions of people visit these areas annually either on their own or through the hundreds of

permitted commercial outfitters that assist the public in enjoying these unique lands. This use 

provides significant economic impact to local communities and helps to sustain the natural 

heritage of their wilderness landscapes.

The Wilderness Management Program frequently addresses challenges associated with 

unauthorized use such as illegal OHV use, which result in the degradation of wilderness 

character. Managing the wilderness resource requires collaboratively managing these assets 

as part of the larger landscape. After a Wilderness Area is designated by Congress, the BLM 

typically spends the first three years marking and mapping the legal boundary, and providing 

visitor services such as maps and other public information. Subsequent management includes 

acquiring in-holdings from willing sellers, restoring wilderness character where needed, 

engaging in land use planning and monitoring, implementation of wilderness management 

plans, and providing visitor services. Additionally, BLM staff engages in land use planning to 

prepare management plans for Wilderness Areas to guide long-term management and 

protection of wilderness character. These plans raise the public awareness and understanding 

of the National Conservation Lands, promote stewardship of BLM-managed land, and provide 

for the use and enjoyment of these lands by present and future generations.

Program Emphasis Areas

Preserving Wilderness Character 

Preserving wilderness character is at the heart of the BLM’s responsibility to protect its 

Wilderness Areas for future generations. An interagency strategy for monitoring trends in 

wilderness character across the National Wilderness Preservation System outlines a unified 

approach for collecting data and will allow the identification of trends in wilderness character 

quality across all wilderness-managing agencies. The protocol developed to monitor and 

describe trends in the quality of wilderness character will eventually enable the BLM to establish 

a meaningful measure with verified baseline data, which will ensure that the BLM preserves 

wilderness character as required by the Wilderness Act. 

During 2017, the BLM expects to continue gathering baseline data for each of its 223 

Wilderness Areas. The BLM will then use this information to make meaningful, efficient 

management decisions to maintain or improve wilderness character.
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-89

Enhancing Scientific Knowledge

BLM Wilderness Areas play a critical role in increasing scientific knowledge about a wide array 

of management challenges. The needs for scientific research and information continues to 

grow as new issues are identified, including the effects of drought, climate change, and other 

landscape stressors on species habitat and migration corridors. In addition, improved, higherresolution satellite imagery and aerial photography aid wilderness managers with the monitoring 

of Wilderness Areas and WSAs. The BLM is also strengthening the role of science partnerships 

in wilderness management and collaborating with partners to help manage its Wilderness Areas 

and WSAs as a part of larger landscapes.

Developing Partnerships and Engaging People and Communities

Development and management of partnerships in wilderness stewardship is an important 

aspect of managing Wilderness Areas and WSAs and allows the BLM to leverage limited 

resources to achieve management goals. The Wilderness Management Program benefits 

greatly from a large volunteer workforce that provides thousands of hours of resource 

monitoring in addition to materials and transportation to manage wilderness projects. The BLM 

has established nearly 100 formal and informal partnerships to facilitate wilderness stewardship 

activities. Typical examples of work performed by partners in Wilderness Areas and WSAs 

include building and maintaining trails, eradicating and monitoring of invasive species, 

wilderness character monitoring, and reclamation and restoration of degraded areas to create 

more-natural environments. The BLM has developed a Memorandum of Understanding with the 

National Wilderness Stewardship Alliance, a national organization that is coordinating the 

establishment of partners and friends groups to support wilderness stewardship in the National 

Wilderness Preservation System. Many of these wilderness organizations have strong ties to 

local communities and can help foster a sense of shared stewardship and pride in wilderness 

stewardship. 

Connecting Landscapes by Working Collaboratively

The Wilderness Management Program benefits greatly by working collaboratively with several 

crosscutting BLM programs and in partnership with other federal land management agencies to 

achieve larger landscape-scale goals. Programs that manage wildlife, fire, weeds, and 

rangeland resources routinely benefit wilderness resources and assist the BLM in meeting its 

legal requirements to protect wilderness character. By establishing connections across 

boundaries with other Federal, State, local agencies; and private conservation lands, the BLM 

complements and supplements the management of Wilderness Areas and WSAs as a part of a 

larger landscapes by strengthening the resilience of all areas.

2017 Program Performance

In 2017, the BLM plans to monitor 223 Wilderness Areas and 517 WSAs to ensure that the BLM 

is protecting wilderness character. Due to competing priorities the BLM did not complete 

baseline wilderness character data for all of its Wilderness Areas in FY 2015 Baseline 

inventories of Wilderness Areas are essential to implement the interagency strategy for 

monitoring trends in wilderness character. In 2016, the BLM will develop an interim performance 

measure that will assess the percentage of BLM Wilderness Areas that have completed 

baseline data. A completed baseline will allow the BLM to begin to identify trends in wilderness 

character using a methodology utilized by federal land management agencies responsible for 

wilderness stewardship on public lands. 
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-90

In addition, a priority workload in 2017 will be to continue to update wilderness characteristics 

inventories. As the BLM begins to finalize many Resource Management Plans (RMP) or other 

land use plans in 2017 and beyond, it will be necessary to have up-to-date and completed 

inventories of lands with wilderness characteristics to ensure these plans are completed in a 

timely manner. Training for BLM staff and contractors responsible for conducting inventories of 

lands with wilderness characteristics will be planned in FY 2017 and incorporated into the land 

use planning process. The trainings will be directed by the WO staff and conform to BLM 

Manual 6310—Conducting Wilderness Characteristics Inventory on BLM Lands, and BLM 

Manual 6320—Considering Lands with Wilderness Characteristics in the BLM Land Use 

Planning Process.
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-91

Activity: Recreation Management

Subactivity: Recreation Resources Management

2015 

Actual

2016 

Enacted

2017 President's Budget Change 

from 

2016 Fixed 

Costs

Transfers Program 

Change

Requested 

Amount

Recreation Management $000 48,697 51,197 +229 +0 +2,039 53,465 +2,268

FTE 349 349 +0 +3 352 +3

Summary of 2017 Program Changes/Internal Transfers for Recreation Management: ($000) FTE

Improve Accessibility +2,039 +3 

Total +2,039 +3 

Other Resources Supporting Recreation Resources Management:

2015 Actual 2016 Estimate 2017 Estimate Change from 2016

Recreation Fees $000 21,842 18,683 19,000 +317

FTE 107 121 121 +0

California Off-Highway 

Vehicle

$000 3,999 4,173 4,173 +0

FTE 22 29 29 +0

Recreation Cost Recovery $000 3,353 3,690 3,690 +0

FTE 7 7 7 +0

Notes:

- Recreation Fees amounts are shown as new budget authority derived from recreation fee revenues (nearly all recreation fees are kept at the site where they 

are collected); the Federal Lands Recreation Enhancement Act (Title VIII of Public Law 108-477) appropriates these funds on a permanent basis. More 

information on Recreation Fees is found in the Permanent Operating Funds chapter.

- California Off-Highway Vehicle amounts are shown as new budget authority derived from a written commitment by a State government to provide an identified 

amount of money in support of a project on a reimbursable basis; the Department of Interior, Environment, and Related Agencies Appropriations Act appropriates 

these funds on a current basis. More information on California Off-Highway Vehicle is found in the Miscellaneous Trust Funds chapter.

- Recreation Cost Recovery amounts are shown as new budget authority derived from revenue from Special Recreation Permits to authorize group activities or 

recreation events; the annual Interior, Environment, and Related Agencies Appropriation Act appropriates these funds on a current basis.

- Amount in 2014 and 2015 for Recreation Fees and California Off-Highway Vehicle shown net of sequestration.

- Actual and estimated obligations, by year for Recreation Cost Recovery are found in President's Budget Appendix under the BLM

Justification of 2017 Program Changes

The 2017 budget request for the Recreation Resources Management Program is $53,465,000 

and 352 FTE, a program change of +$2,039,000 and +3 FTE from the 2016 enacted level.

Improve Accessibility (+$2,039,000/+3 FTE) – The 2017 request includes an increase of 

$2.039 million to implement the National Recreation Strategy and the widely shared goals of 

improving recreation access – including access to information, engaging youth, promoting 

healthy lifestyles, increasing tourism, improving the economies of our rural communities, and 

providing for better planning across landscapes and jurisdictions. The BLM recreation program 
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-92

will expand a multi-year, integrated effort to considerably expand its geospatial data collection, 

validation, and sharing capabilities – both internally and externally. Expansion of the Bureau’s

partnership capacity, to leverage staffing so that we can move into the future of data collection, 

validation and management, and increase the ability to share information, is critical.

The proposed funding increase would expedite implementation of ongoing efforts to showcase 

recreational opportunities on BLM, gathered in coordination with partners, and utilizing crowdsourced data. Increased engagement with Bureau partners and community networks of service 

providers – the locally-based agencies, businesses, and non-profit organizations that rely on the 

character of public lands – is central to these efforts.

Program Overview

Public lands managed by the BLM provide some of the most diverse outdoor recreation 

opportunities on Federal lands in the western U.S. The Bureau’s Recreation and Visitor 

Services Program oversees a broad and complex set of recreation related and social 

management activities and programs.

The Recreation Management program is responsible for the following components: 

• Recreation Planning – Evaluating and assessing a wide range of social, economic, and 

recreational uses of public lands through the land use planning (LUP) process. Recreation 

Area Management Plans are prepared to implement LUP decisions in designated recreation 

management areas. 

• Travel and Transportation Management – Determining public and resource use access 

needs through the LUP process. The BLM travel and transportation management planning 

process establishes designations and restrictions for all modes of transportation including 

motorized and non-motorized uses. 

• Visitor Safety – Providing opportunities for safe recreational activities for the public, as well 

as, to educate and encourage safe behavior.

• Facility Management and Accessibility – Providing daily operation and routine 

maintenance of over 3,650 recreation sites and 380 Special Recreation Management Areas, 

including campgrounds, picnic and day use areas, visitor centers, waysides and kiosks, 

watchable wildlife sites, historic buildings and lighthouses, trailhead access points, and 

thousands of miles of rivers and trails. As communities near public lands grow in the West, 

visitation and demands for new trails and visitor service facilities increase each year. In 

addition to operating facilities, the BLM is responsible for ensuring facilities and programs 

meet accessibility standards for persons with disabilities. 

• River Management – Managing over 500 segments and about 9,000 miles of 

floatable/boatable rivers and lakes along with associated issues related to water quality, 

permitting, education and interpretation, visitor safety, enforcement patrols, and resource 

management. Of these floatable/boatable rivers and lakes, 320 segments and 6,600 miles 

have significant recreational value. A portion of the funds for river management also serves 

the needs of Wild and Scenic Rivers, managed by the National Conservation Lands (for 

more specific WSR information please refer to NCL Crosscut Justification, Chapter IV).

• National Scenic & Historic Trails – Monitoring over 4,500 miles of 10 National Historic 

Trails and is responsible for over 600 miles of three National Scenic Trails. (For more 

information, reference the National Conservation Lands activity).

• Hunting, Fishing, and Shooting Sports – Implementing important provisions of Executive 

Order 13443, Facilitation of Hunting Heritage and Wildlife Conservation, which directs 

 St. Anthony Sand Dunes, BLM Idaho
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-93

agencies to facilitate the expansion and enhancement of hunting opportunities and the 

management of game species and their habitat.

• Youth – Overseeing components of the Bureau’s Engaging the Next Generation initiative, a 

significant component of the President's America's Great Outdoors initiative. The 

Recreation program also oversees the BLM’s Take It Outside program to promote outdoor 

activities for kids. The BLM will continue to promote healthy and active lifestyles and better 

engage the next generation as public land 

stewards for natural resource conservation.

• Visual Resources – Analyzing, managing, 

and ensuring protection of visual resources to 

maintain valued landscape aesthetic 

character.

• Recreation Permits, Fees, and Commercial 

Leases – Reviewing, implementing, and 

monitoring over 3,200 special commercial 

and competitive recreation permits and over 

800,000 individual use authorizations for 

special areas each year. The BLM also provides oversight and accountability for the 

recreation permit, fee, and commercial lease program.

• Public Outreach, Stewardship and Partnerships – Promoting and supporting 

partnerships, volunteerism and stewardship to enhance recreational and educational 

experiences for visitors and public land users. The BLM is working with community leaders 

and networks of service providers to manage recreation opportunities that the public wants 

and that will bring economic benefits to local communities. The Bureau is also partnering 

with veterans and disabled sportsmen’s groups to ensure access to recreational 

opportunities.

• Visitor Information – Providing visitor information and services including maps, websites, 

interpretation and environmental education. Enhancing the quality and consistency of 

baseline visitor and resource data by conducting inventories and implementing visitor use 

monitoring systems to improve understanding of the full range of social, economic and 

community resource values and enhance decision making capabilities.

• Cave Management – Overseeing cave and karst (an irregular limestone region with 

sinkholes, underground streams, and caverns) resource management policies and program.

• Customer/Visitor Service Satisfaction Surveys – Measuring success in providing quality 

visitor services through an annual survey. The BLM continues to maintain scores of above 

the 90 percent range in customer satisfaction in providing recreation program visitor services 

and facilities to its customers.

Critical Factors

The primary critical factors impacting the Recreation Program are:

• Urban Growth: As communities near public lands grow in the West, visitation and 

demands for new trails and visitor service facilities have increased each year. There are 

over 132 million acres of BLM-managed land in the western U.S. within 50 miles of an 

urban area with a population of 50,000 or greater.

• Public Demand: Visitation to public lands has increased from 51 million visitors in 2001 

to nearly 62 million in 2015.

• Public Access Conflict: Off-highway vehicle (OHV) use on public lands continues to 

increase. The BLM addresses travel and transportation planning as well as OHV 
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-94

management and restoration needs through Travel Management Plans and the 

Resource Management Planning process. In response to the increased OHV use, the 

BLM is implementing a comprehensive and interdisciplinary approach in developing 

travel management plans and implementing actions to address the demand for public 

services, ensure public health and safety, protect natural and cultural resources, and 

reduce use conflicts. 

• Public Safety and Resource Protection: Increasing urbanization and motorized 

activities have resulted in law enforcement personnel spending significant resources on 

OHV, urban interface and border-related enforcement activities.

Means and Strategies

The primary means and strategies utilized in the Recreation Program are:

• Visitor Data: Improving baseline visitor and resource data by conducting inventories 

and implementing visitor use monitoring systems.

• Travel and Public Access Management: Balancing off-highway vehicle access and 

use with resource protection and public access needs by updating and implementing 

comprehensive travel management plans;

• Visitor Information and Education: Expanding visitor information delivery and quality 

by improving signing and websites, and developing travel maps.

• Visitor health, safety and accessibility: Ensuring and enhancing visitor health and 

safety and improving access for the disabled by conducting recreation facility condition 

assessments and fixing problems or hazards.

• Permits and Use Authorizations: Regulating uses by issuing and monitoring recreation 

use permits and allocating use for commercial, competitive, organized, and individual 

uses within specially designated areas.

• Accountability and transparency: Improving accountability and effectiveness by 

issuing recreation special permits, conducting fee program and fee site business 

practices assessments, and conducting audits and program evaluations.

• Visitor Use Monitoring: Protecting resources, improving services, and enhancing the 

quality of recreational experiences by monitoring visitor use and satisfaction, as well as 

monitoring vehicular use and their impacts on resources.

• Partnerships and Public Service: Reducing operational costs by emphasizing the use 

of volunteers and providing extensive public service opportunities. The recreation 

program has been particularly successful in engaging volunteers, accounting for almost 

half of the entire Bureau’s volunteer hours and nearly doubling the seasonal recreation 

workforce to serve visitors, maintain facilities and restore resources.

2017 Program Performance

The public lands attract millions of visitors each year that are economic engines for local 

communities across the West. In 2014, over 62 million recreational visits to Federal public 

lands and waters generated over $5.5 billion in economic outputs, and supported over 42,000 

jobs. In 2016 and 2017, the BLM will invest in the programs that support recreational visits, 

build strong partnerships, and create the maximum potential for recreation benefits to local 

communities. 
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-95

Additional funding requested in 2017 would allow the BLM to implement the National Recreation 

Strategy with the following priority areas:

• Backyard to Backcountry: More than 120 urban centers in the western United States 

and thousands of rural towns are located within 25 miles of BLM lands, according to data 

from the 2010 census. Although many in the past have viewed this intermingling of 

public lands with State, county, and private lands as a weakness, this ready accessibility 

to public lands creates a unique recreation-tourism product, a distinctive niche in the 

Federal recreation marketplace that offers a competitive advantage. 

Typically, the BLM has engaged with recreation partners when opportunities have presented 

themselves for specific activities. The National Recreation Strategy would move the Bureau 

away from a reactive approach to these partnerships and would devote the necessary 

resources to making sustained efforts to identify and develop outcome-focused partnerships 

with community networks of service providers as a matter of good business. Partnership in 

community networks will also help the BLM focus on its recreation brand and develop 

systematic plans that maximize the most significant shared benefits, without trying to be “all 

things to all people.
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-96

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Energy and Minerals 

Mangement 

Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-97

Activity: Energy and Minerals Management

 

2015 

Actual

2016 

Enacted

2017 President's Budget Change 

from 

 2016

Fixed 

Costs Transfers Program Change

Requested 

Amount

Oil & Gas 

Management (1)

$000 53,183 59,671 +289 +0 +20,614 80,574 +20,903 

FTE 326 326 +0 +25 351 +25 

Oil & Gas Permit 

Processing from Fee 

Collections

$000 32,500 7,125 +0 +0 -760 6,365 -760 

FTE 268 41 +0 +0 41 +0 

Onshore Oil & Gas 

Inspection Activities 

(2)

$000 41,126 48,000 +0 +0 +0 48,000 +0 

FTE 295 295 +0 +0 295 +0 

Less Offsetting Fees

$000 -28,697 0

+

0 +0 -48,000 -48,000 -48,000 

(Permit Processing 

and Inspection) FTE 0 0 +0 +0 +0 0 +0

Net Appropriations 

for $000 98,112 114,796 +289 +0 -28,146 86,939 -27,857

Oil and Gas 

Management FTE 889 662 +0 +0 +25 687 +25

Coal Management $000 9,595 10,868 +94 +0 +0 10,962 +94 

FTE 71 71 +0 +0 71 +0 

Other Mineral 

Resources

$000 10,586 11,879 +99 +0 -1,000 10,978 -901 

FTE 81 81 +0 +0 81 +0 

Renewable Energy $000 29,061 29,061 +128 +0 +0 29,189 +128 

FTE 145 145 +0 +0 145 +0 

Total, Energy & 

Minerals 

Management

$000 147,354 166,604 +610 +0 -29,146 138,068 -28,536 

FTE 1,186 959 +0 +25 984 +25 

(1): The 2017 budget proposes to shift the cost of inspections to inspection fees, which are estimated to generate $48.0 million.

Justification of 2017 Program Changes

The 2017 budget request for current appropriations for the Energy and Minerals Management 

activity is $138,068,000 and 984 FTE, a program change of -$29,146,000 and +25 FTE from the 

2016 enacted level. This reduction in requested appropriations is more than offset by an 

estimated $48,000,000 in fee collections that would be available to support inspection activities 

under new inspection fee authority proposed in the budget. In addition to the requested current 

appropriations and offsetting collections, permanent funds are also available to support the Oil 

and Gas Management program as authorized by the National Defense Authorization Act for 

2015. These are shown and discussed in the Permanent Operating Funds chapter, as well as 

in the Oil and Gas Management subactivity. All told, total funding resources available to the Oil 

and Gas Program in 2017 through current appropriations, offsetting collections, and permanent 

appropriations are estimated to be $186.6 million, an increase of $27.6 million over the 2016 

estimate (the actual increase would be affected by any sequestration to permanent funds that 

may occur in 2017). 
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-98

Activity Description

Energy and mineral resources generate the highest revenue values of any uses of the public 

lands from royalties, rents, bonuses, sales, and fees. In 2015, onshore Federal lands produced

approximately 44 percent of the Nation’s coal, 40 percent of the Nation’s geothermal capacity, 

eight percent of domestic natural gas, and five percent of domestically-produced oil. 

The goal of the Oil and Gas Program is to provide access to oil and gas where appropriate, and 

to manage exploration and development activities in an environmentally sound way. 

Coal is used to generate approximately 44percent of the Nation’s electricity. The electric power 

sector (electric utilities and independent power producers) accounts for about 87 percent of all 

coal consumed in the U.S. and is the driving force for the Nation’s coal consumption. 

The BLM provides other minerals needed to support local infrastructure and economic 

development. Demand is increasing globally for non-energy solid minerals such as potassium, 

phosphate, sodium, and potash. Other important mineral resources produced from public lands 

include uranium, gold, silver, gypsum, sodium, building stone, sand, and gravel. The BLM 

processes sales and issues permits for mineral materials such as sand, gravel, stone, and 

clays, which are essential to maintenance and construction of roads and buildings, including 

those used by the BLM to fulfill its land management objectives.

The Renewable Energy Management Program is responsible for processing right-of-way 

applications for wind and solar energy, overseeing geothermal energy leasing and development, 

and prioritizing transmission development associated with renewable energy production.

Geothermal energy development was historically managed as part of the Oil and Gas 

Management Program. Funding for geothermal leasing and development was transferred from 

the Oil and Gas Management Program to the Renewable Energy Program in 2013 as 

management oversight of renewable energy development was consolidated into a single 

program. The BLM has the delegated authority for leasing 249 million acres of Federal land 

(including just over 100 million acres of National Forest land) with geothermal potential.
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-99

Activity: Energy and Minerals Management

Subactivity: Oil and Gas Management

2015 

Actual

2016 

Enacted

2017 President's Budget Change 

from 

2016 Fixed 

Costs

Transfers Program 

Change

Requested 

Amount

Oil & Gas Management

$000 53,183 59,671 +289 +0 +20,614 

 

80,574 

+20,90

3

FTE 326 326 +0 +25 351 +25

Oil & Gas Permit 

Processing from Fee 

Collections

$000 32,500 7,125 +0 +0 -760 

 

6,365 -760

FTE 268 41 +0 +0 41 +0

Oil & Gas Inspection 

Activities $000 41,126 48,000 +0 +0 +0 

 

48,000 +0

FTE 295 295 +0 +0 295 +0

Subtotal, Discretionary 

Program Funding 126,809 114,796 +289 - +19,854 134,939 20,143

Less Offsetting Fees

(Permit Processing and 

Inspection) $000 -28,697 0 0 0 -48,000 -48,000 -48,000 

FTE 0 0 +0 +0 +0 0 +0

Total, Oil & Gas Mgmt 

(net appropriation) $000 98,112 114,796 +289 +0 -28,146 86,939 -27,857

FTE 889 662 +0 +0 +25 687 +25

Summary of 2017 Program Changes/Internal Transfers for Oil & Gas Management: ($000) FTE

Strengthening Oil and Gas Oversight and Systems (AFMSS II) +15,227 +25 

Oil & Gas Special Pay +2,576 +0 

Alaska Legacy Wells +2,811 +0 

Shift Cost to Inspection Fees -48,000 +0 

Total -27,386 +25 

Summary of 2017 Program Changes/Internal Transfers for Oil & Gas Permit Processing from Fee 

Collections ($000) FTE

Updated Estimate for 15 Percent of APD Fees Subject to Appropriation by NDAA -760 +0 

Total -760 +0 
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-100

Other Resources Supporting Oil & Gas Management:

2015 Actual 2016 Estimate 2017 Estimate Change from 

2016

Energy Act Permit Processing 

Fund

$000 11,799 44,192 51,667 +7,475

FTE 76 430 430 +0

Energy and Minerals Cost 

Recovery

$000 2,653 5,160 5,160 +0

FTE 22 22 22 +0

Abandoned Wells Remediation 

Fund

$000 33,372 0 0 +0

FTE 0 0 0 +0

Subtotal, Oil & Gas Discretionary 

Funding $000 126,809 114,796 134,939 +20,143

Total, Oil & Gas Resources $000 174,633 164,148 191,766 +27,618

Notes:

- BLM mandatory amounts for Permit Processing Improvement Fund in 2015 and 2016 reflect the impact of both previously unavailable authority and 

sequestration, while the 2017 amount only reflects the impact of previously unavailable authority

- Energy Act Permit Processing Fund amounts are shown as new budget authority derived from 50 percent of rents from onshore mineral leases for oil and gas, 

coal, and oil shale on Federal lands; Section 365 of the Energy Policy Act of 2005 (Public Law 109-58) appropriates these funds on a permanent basis. 

Beginning in 2016, PPIS also includes APD fees authorized by the National Defense Authorization Act. More information on Energy Act Permit Processing Fund 

is found in the Permanent Operating Funds chapter

- Energy and Minerals Cost Recovery amounts are shown as new budget authority derived from fees that include costs of actions such as environmental studies 

performed by the BLM, lease applications, and other processing related costs; Independent Offices Appropriations Act (IOAA), as amended (31 USC 9701), 

Section 304(a) of the Federal Land Policy and Management Act of 1976, as amended (43 USC 1734) appropriates these funds on a current basis. More 

information on Energy and Minerals Cost Recovery is found in the Service Charges, Deposits, & Forfeitures chapter

- Abandoned Wells Remediation Fund amounts are shown as new budget authority derived from General Fund; Section 349 of the Energy Policy Act of 2005 

(Public Law 109-58), as amended by Public Law 113-40, the Helium Stewardship Act of 2013 (42 USC 15907) appropriates these funds on a permanent basis. 

More information on Abandoned Wells Remediation Fund is found in the Abandoned Wells Remediation Fund chapter

- The 2015 amount for Abandoned Wells Remediation Fund reflects a sequestration of 6.8%

- Actual and estimated obligations, by year for Abandoned Wells Remediation Fund are found in President's Budget Appendix under the BLM section

- The 2016 and 2017 amounts for the Permit Processing Fund in this table are updated from the estimates in the Appendix, Budget of the United States 

Government, Fiscal Year 2017. Specifically, the 2016 and 2017 estimates have been adjusted in this table to correctly include both estimated APD fees and 50 

percent of rent revenues from onshore leases.

Justification of 2017 Program Changes 

The 2017 budget request for discretionary appropriations for the oil and gas program is 

$134.9 million, which represents a program increase of $19.9 million above the 2016 enacted 

level. Of that amount, the request for the traditional Oil and Gas Management subactivity 

is $80,574,000, and 351 FTE, a program change of +$20,614,000 and +25 FTE from the 2016

enacted level. The request also includes $6,365,000 (and 41 FTE) for permit processing 

activities, representing 15 percent of fees projected to be collected in FY 2017 from applications 

for permits to drill (APD), as authorized by the National Defense Authorization Act of 2015

(NDAA), which the NDAA makes subject to future appropriation. The 2017 projection 

represents a $760,000 reduction from the 2016 estimate. The budget also proposes $48.0 

million for oil and gas inspection activities, which would be offset by $48.0 million in inspection 

fees, resulting in a net total of $86,939,000 in discretionary appropriations for oil and gas 

management. 
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-101

In addition, the oil and gas program is supported by mandatory funding that is deposited in the 

Oil and Gas Permit Processing Improvement Fund (PPIF) account in BLM’s Permanent 

Operating Funds account. This includes 50 percent of rents from onshore mineral leases, 

pursuant to Section 365 of the Energy Policy Act of 2005, as amended by Section 3021 of the 

NDAA. It also includes the mandatory portion of APD fees, which under the NDAA is set at 85 

percent of APD fees collected. In 2017, these combined mandatory funds are estimated to be 

$51.7 million compared to an estimated $44.2 million in 2016 (note: the 2016 estimate reflects 

the impact of sequestration). The significant changes occurring in the oil and gas markets make 

it difficult to accurately project the number of APDs likely to be submitted and the associated fee 

collections. The mandatory funds are shown in the Permanent Operating Funds section of the 

budget. 

The following are the individual program change descriptions.

Strengthening Oil and Gas Oversight and Systems AFMSS II (+$15,227,000/+25 FTE) – 

The 2017 budget request includes an increase of $15.2 million to improve the agency’s capacity 

to provide effective oversight of onshore oil and gas operations, including implementation of

new rules and regulations, better implementation of existing rules, and continued development 

of the new automated information technology system that is increasing the efficiency and 

transparency of processing drilling permits, inspection reports and other post lease actions. 

Both the regulatory and oversight reforms and the automated system (AFMSS II) will address 

recent Government Accountability Office (GAO) and Office of Inspector General (OIG) audit 

recommendations to improve program oversight, better account for revenues, increase 

efficiency and protect natural resources. 

Additional Funds for Implementation of the Oil and Gas Rules/Regulations (+$13,100,000/+25 

FTE) – The BLM anticipates publishing several final rules in the near future. One set of final 

regulations will address site security of oil and gas facilities and the measurement of oil and gas 

production. These new oil and gas measurement regulations set appropriate standards, based 

upon current technology, to ensure that operators accurately measure and properly report and 

account for production. These standards will be used by the Office of Natural Resources 

Revenue (ONRR) to ensure collection of appropriate royalties, directly responding to the GAO 

and OIG audit recommendations. A portion of these funds will be used to provide an additional 

25 FTE to field offices in order to process and verify 125,000 additional site diagrams, 220,000 

new Facility Measurement Points, and additional operational elements of the regulations. 

These additional staff will support production accountability activities to ensure accurate 

reporting of production data and a fair return to the taxpayers. Funds will also be used to

support implementation of other regulations critical to the protection of the environment, such as 

the hydraulic fracturing regulation and the requirements of the proposed venting and flaring 

regulation. 

Continuation of the Automated Tracking System for Oil and Gas Operations Development 

Project in FY 2017 (+$2,127,000/0 FTE) - The Automated Fluid Minerals Support System 

(AFMSS) is used to track oil and gas information on public and Indian land. It contains data 

concerning lease and agreement ownership, well identification, location and history, including 

casing information, geologic formations, resource protection, production, and operator 

compliance. The system has an electronic commerce module (WIS) to interface with the oil and 

gas industry. AFMSS tracks oil and gas well operations from over 23,500 producing leases.
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Chapter VII – Management of Lands & Resources Page VII-102

Recent audit findings indicated that upgrades to the system are necessary in order to 

appropriately document, report on, and manage oil and gas activities. Phase I of the AFMSS II 

development provided a number of program improvements and efficiencies over the legacy 

system, including: ensuring consistent data quality in permit applications and providing

transparency and accountability for industry on approval processes, in part through the use of a 

dashboard feature, where applicants can check the status of their permits throughout the 

approval process. It is anticipated that industry will see a significant reduction in oil and gas 

permit processing times with the full implementation of the new system. Once fully functional, 

the BLM anticipates a significant reduction in the time required for permit decisions. 

The BLM is requesting $2.1 million to allow completion of the additional modules associated 

with Phase II of the AFMSS II database. AFMSS II will standardize permit processing and 

facilitates sharing of technical resources across office boundaries to more effectively manage 

workload. Other agencies -- such as the Bureau of Indian Affairs (BIA), U.S. Forest Service 

(USFS), and ONRR -- rely on BLM’s well and production data for necessary revenue 

verification. Additionally, AFMSS II will consolidate the functionality of several other systems 

into a single system, including the oil and gas industry electronic commerce portal and the 

geothermal database, for wells associated with geothermal resources on public land. AFMSS II 

allows data sharing between other modernized BLM national applications such as those used 

for maintaining land records and land use planning, thereby reducing duplication. By 

accounting for new Facility Measurement Points and additional site diagrams, Phase II 

functionality will support implementation of the rules currently being developed and expected to 

be finalized in 2016, including the oil and gas measurement regulations and the venting and 

flaring regulations. These rules are fundamental for carrying out the BLM’s oil and gas mission, 

including ensuring proper payment of royalties and maximizing the conservation of oil and gas 

resources and reducing waste. An adequate IT support system to manage the associated 

record keeping, workload and oversight is critical to implementation of the regulations. The 

requested funding support in 2017 will be crucial to achieving future milestones, providing 

necessary program improvements and assuring project success for both the DOI and industry 

users of the system.

Oil & Gas Special Pay (+$2,576,000) – The BLM continues to face challenges from staffing 

shortages. The BLM is experiencing a higher than average attrition rate in certain occupational 

groups due to retirements, as is the government as a whole. In addition to these losses, over 

the past several years the oil and gas industry experienced a boom and many of the BLM’s 

seasoned permitting and inspection staff left public service to go into private industry for higher 

pay. The BLM has spent considerable time and resources training these staff and they are not 

readily replaceable. Typically it takes three to six months to complete recruitment for oil and gas 

specialists. On average, it requires a minimum of 18 months to train and certify a Petroleum 

Engineering Technician to be an inspector with proficiency in the regulations and processes for 

all phases of well operation. Because this certification is not available outside the BLM, most

training takes place on the job. Due to the substantial investment BLM makes in its oil and gas 

employees, retaining staff is essential to the agency meeting its mission critical goals. In 

keeping with the BLM’s commitment to support the oil and gas operations on public lands, 

several steps have been taken to recruit and retain oil and gas staff, including group recruitment 

and retention incentives, student loan repayment, and special pay rates. In 2015, the Office of 

Personnel Management (OPM) approved the Department’s request to establish special pay rate 

tables for specific occupational series and locations engaged in oil and gas activities. The 2017 

budget request will provide up to a 35 percent pay increase for certain technically specialized 

employees that are funded through the Oil and Gas program and described below.
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Additional funding is needed to support increased pay for certain oil and gas- related 

occupations in some field locations that typically see more permitting and drilling activity. These 

five occupations are Environmental Protection Specialists, Natural Resource Specialists, Civil 

Engineers, Hydrologists, and Geologists. These positions are critical to the operations of all 

aspects of oil and gas development, including permitting, drilling, plugging, surface and 

environmental protection, site security, and measurement. This special incentive pay is in 

addition to the increased pay already provided to petroleum engineers and petroleum engineer 

technicians, discussed below. The Department is working with the OPM to establish and 

implement appropriate pay schedules for these occupations in order to attract and retain highly 

skilled, qualified employees for these mission critical positions. Pending final approval by OPM, 

the requested increase supports revised pay rates, which will enable the BLM to provide pay 

increases of up to 35 percent above base pay rates for these specific occupational series. 

Alaska Legacy Well Remediation (+$2,811,000/0 FTE) – The 2017 budget requests an 

increase of $2.8 million to allow the BLM to continue to remediate legacy wells within the 

National Petroleum Reserve in Alaska (NPR-A). Legacy wells were drilled within and adjacent 

to the NPR-A between 1944 and 1981, many of them prior to the transfer of the reserve to the 

Department of the Interior in 1976. A total of 136 test holes were drilled to gather geologic data 

or identify petroleum reserves present in the NPR-A. No wells produced oil or gas. These drill 

holes are categorized as exploratory oil wells, core tests, or temperature monitoring wells. As 

part of its continuing commitment to protect public safety and Alaska’s environment, the BLM, in 

its strategic plan entitled 2013 Legacy Wells Strategic Plan, has outlined priorities and actions it 

is taking in the near-term to close and clean up these wells in the National Petroleum Reserve in 

Alaska (NPR-A). This funding will augment the permanent funding authorized by the Helium 

Stewardship Act of 2013 for remediation of these wells. 

Oil and Gas Permit Processing from Fee Collections (-$760,000/0 FTE) – The 2017 request 

reflects a projected decrease in APD fees collected in 2017. The National Defense 

Authorization Act of 2015 amended the Mineral Leasing Act to authorize APD fees in 2016 

through 2026, and to permanently appropriate the majority of these fees. For fiscal years 2016 

through 2019, the NDAA permanently appropriates only 85 percent of the fee revenues, leaving 

the other 15 percent of fee revenues subject to appropriation. The proposed reduction of 

$760,000 represents 15 percent of the projected reduction in total APD fees collected in 2017.

Oil and Gas Inspection Activities(-$48,000,000/0FTE) – The 2017 budget proposes to 

institute new onshore oil and gas inspection fees to cover the costs of BLM’s inspection 

activities and reduce the net cost to taxpayers of operating BLM’s oil and gas inspection 

program. The fees are similar to those already in place for offshore operations. Such authority 

will reduce the net costs to taxpayers of operating BLM’s oil and gas program and allow BLM to 

be more responsive to industry demand and increased inspection workload in the future while 

reducing the need for current appropriations that could be directed toward other priority 

programs. Proposed appropriations language to implement the fees is included in the proposed 

General Provisions for the Department of the Interior, and is also shown in the General 

Statement chapter of this Budget Justification.

Program Overview 

The BLM’s Oil and Gas Management Program is responsible for providing access to onshore 

energy resources in an environmentally responsible manner. The BLM manages approximately 

44,000 Federal onshore leases across 32 States. These leases have generated in excess of 
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Chapter VII – Management of Lands & Resources Page VII-104

$2.0 billion annually in recent years. In addition, BLM manages operations on roughly 4,500 oil 

and gas leases on behalf of Tribes and individual Indian mineral owners. 

 

During FY 2015 and 2016, the BLM placed emphasis on conducting inspections of high-priority 

wells and on addressing the recommendations of the Government Accountability Office (GAO) 

and DOI’s Office of the Inspector General (OIG) for program improvements. Through these two 

focal areas, BLM seeks to ensure that the public’s oil and gas resources are properly developed 

in a manner that maximizes recovery while minimizing waste and provides a fair return for the 

taxpayer through accurate revenue collection. 

Program Components

The primary components of the oil and gas program are leasing, well permitting, and 

administration of operations including inspections and oversight of ongoing operations as well 

as reclamation and abandonment activities. Another important function is the BLM’s Fiduciary 

Trust Responsibility to Indian Tribes. 

Specific activities include:

Leasing

• Conducting oil and gas lease sales, primarily across the West and in Alaska, consistent with 

statutory requirements, land use plans and requirements for public participation;

• Collecting, processing and tracking lease protest information, addressing program 

inconsistencies and public transparency. The National Fluid Lease Sale System (NFLSS) 

was approved as a BLM IT investment in December 2014. The BLM also received 

permanent authority to conduct online lease sales in the 2015 National Defense 

Authorization Act (enacted in December 2014). This system is a DOI and BLM priority and 

is needed to implement the program improvement recommendations of the GAO; and

• Administering existing oil and gas leases and processing post-lease actions such as 

assignments, operating rights, mergers, bonds, unit and communitization agreements, and 

terminations of leases. 

Permitting

• Processing oil and gas Applications for Permits to Drill (APDs) and subsequent 

modifications of the permits, by evaluating and prescribing conditions for both the 

subsurface and surface operations. 

• Maintaining an inventory of about 7,000 valid APDs, which have been approved and are

ready for industry to drill.

Inspection Activities

• The BLM uses a risk-based inspection strategy and is focused on inspecting 100 percent of 

the wells designated as high priority by BLM’s National Oil and Gas I&E Strategy. 

• Inspecting about 29,000 existing oil and gas authorizations; determining the adequacy of 

operators’ financial bonding, with a review of risk factors to weigh potential liability; and 

evaluating well inventories in the field to address inactive wells. 
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Chapter VII – Management of Lands & Resources Page VII-105

Fiduciary Tribal Trust Responsibilities

• Carrying out trust responsibilities by managing operational activities (including permits to 

drill, inspections and enforcement, and unit and communitization agreements) on 

approximately 4,500 oil and gas leases for Indian Tribes and individual Indian allottees.

• Providing technical advice on leasing and operational matters to the Bureau of Indian 

Affairs, Indian Tribes, and individual Indian mineral owners.

• Validating that Indian leases are being diligently developed.

Special Areas of Emphasis for Current Year Funding Requests

Addressing GAO’s High Risk Program Designation and Other Program 

Recommendations

In its February 2011 High Risk Report, the Government Accountability Office (GAO) determined 

that certain aspects of the Federal oil and gas leasing program, including production verification 

and revenue collection, was at high risk because the Department of the Interior did not have 

reasonable assurance that it was collecting a fair share of the revenue from oil and gas 

produced on Federal lands. It its High Risk Report, the GAO also pointed to continued

problems in hiring, training, and retaining sufficient staff to provide oversight and management 

of oil and gas operations on lands and waters. 

The BLM has adjusted its workload priorities to place an emphasis on the recommendations of 

the GAO and the Department’s Office of the Inspector General (OIG). Accordingly, the BLM

has taken a number of steps to improve program effectiveness in these areas. The BLM is 

implementing recommendations of the GAO to correct and improve the inspection and 

enforcement program and provide oversight and guidance to coordinate activities consistently 

across office boundaries. An internal control review conducted by the BLM is assisting in 

determining the effectiveness of program changes. The objective is to evaluate the accuracy

and completeness of data in the records and to confirm that the data is sufficient to ensure 

orderly development and accounting of the Nation’s finite energy mineral resources.

Inspection Activities

The BLM seeks to better ensure that oil and gas operations on Federal and Indian lands are 

conducted in a manner that provides for personnel and environmental safety along with proper 

accountability for taxpayer resources extracted from public lands. It is the BLM’s responsibility 

to prioritize the oil and gas inspections to be conducted, track accomplishments, and document

results. The BLM seeks to better ensure oil and gas production from Federal and Indian lands 

is properly handled, measured accurately, and reported correctly. To that end, as discussed 

above, the BLM is in the process of completing the final regulations that will govern venting and 

flaring of natural gas, improve site security, and update oil and gas measurement on Federal 

and Indian lands. 

In FY 2011, the BLM initiated a risk-based strategy, the National Oil and Gas I&E Strategy, to

provide consistent nationwide oil and gas inspection accomplishment goals to the field offices. 

Just as important, the Strategy is a tool for managers and staff to determine how many and 

what type of oil and gas inspections can be accomplished with available resources, prioritize 

operational sites to be inspected, identify funding needs to succeed in accomplishing 

nationwide goals, and monitor oil and gas inspection progress. 
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Chapter VII – Management of Lands & Resources Page VII-106

The risk-based strategy helps the BLM maximize the impact of a limited inspection staff. The 

BLM will continue to recruit and train new inspectors in order to be able to meet its minimum 

inspection requirements going forward and more effectively target inspection resources to meet 

other inspection goals established by BLM policy. The BLM also will continue to use qualified 

natural resource specialists to conduct environmental inspections and improve reclamation 

practices that minimize disruptions and impacts to habitat and to enable the certified petroleum 

engineering technicians to concentrate on production verification inspections.

The BLM performs several types of oil and gas inspections, which are detailed below, in an 

effort to ensure that the American people receive the fair value from the development of oil and 

gas resources on their lands, and to ensure that those resources are managed responsibly. 

With the higher funding levels provided in 2015, the BLM focused on completing the high priority 

production inspections identified by the National Oil and Gas I&E Strategy, and as many of the 

lower priority inspections as the residual funding would allow. These high-priority cases account 

for about 13 percent of the total wells, but more than 60 percent of the oil and gas produced on 

Federal and Indian mineral estates. As the number of active wells has increased in recent 

years, the BLM’s inspection workload has risen.

Production Inspections 

The BLM conducts inspections on production facilities to ensure that equipment, practices and 

procedures are in accordance with the regulations, orders, and any applicable approval 

documents, and that the taxpayer is receiving a fair return for these resources. The Federal Oil 

and Gas Royalty Management Act (FOGRMA) requires the BLM to perform at least one 

inspection annually at each lease site producing or expected to produce significant quantities of 

oil or gas in any year. In addition, BLM now applies its risk-based strategy to ensure that any 

other high risk operations are high priority inspections. 

In FY 2015, the BLM conducted 2,008 high-priority production inspections, which included 100 

percent of the identified risked-based inspections. Similarly, for FY 2016, the BLM developed

and is now carrying out risk-based inspection. The BLM’s goal is to again achieve 100% of all 

high-priority production inspections, as well as other high priority idle well, drilling, 

abandonment, workover and environmental inspections. 

Drilling Inspections

The BLM conducts time-sensitive inspections on wells at key points during the well drilling, with 

an emphasis on witnessing high priority drilling cases first. These inspections ensure, among 

other things, that wellbores are properly drilled and cemented to protect useable water. These 

inspections play a critical role in protecting the environment and public health and safety. 

Abandonment Inspections

The BLM conducts abandonment inspections to witness the plugging of oil and gas wells to 

ensure wellbore integrity and zonal isolation of underground formations, with an emphasis on 

high priority abandonment cases. These inspections are time sensitive and include depleted 

producing wells or newly drilled dry holes. 

Workover Inspections

The BLM inspects workover operations on existing wells that are producing, or nearly depleted 

and service wells. The goal of the inspections is to ensure that equipment, practices, and 

procedures are in accordance with the workover permit’s conditions of approval. In order to 

protect the environment and responsibly develop the energy resources on public lands it is 
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Chapter VII – Management of Lands & Resources Page VII-107

imperative that the BLM ensure compliance with lease stipulations and the conditions of 

approval issued with drilling permits.

Environmental Inspections

Natural Resource Specialists, Environmental Protection Specialists, and other resource 

program specialists (wildlife biologists, archaeologists, etc.) typically perform BLM 

environmental inspections. Environmental inspections include inspection of reclamation efforts, 

erosion control measures, topsoil stockpiling, well location, access road location, pit 

construction and use, spills, water disposal methods, containment systems for production tanks, 

and surface hazards. Environmental inspections also include inspections to ensure that 

abandoned locations are properly reclaimed. Post-approval inspections look specifically at 

surface environmental impacts. 

Records Verification Inspections

The BLM uses records verification inspections to review production records and compare them 

to production reports sent to ONRR. These inspections may require additional review, including

onsite visits. The BLM uses production accountability through records verification inspections to 

determine whether appropriate royalties have been paid and to correct errors in reporting.

Undesirable Event Inspections

The BLM conducts undesirable event inspections when spills or accidents associated with an oil 

and gas lease occur. These inspections provide a means to determine the extent of 

environmental impacts and monitor remediation of the spill or accident site to ensure 

appropriate reclamation occurs.

Alleged Theft Inspections

When an alleged theft of production is reported to a BLM Field Office by an operator or the 

public, the BLM conducts an alleged theft inspection. These inspections document the 

circumstances surrounding alleged theft of production and assist law enforcement 

investigations.

Idle Well Inspections

The BLM conducts idle well inspections of wells that have had zero production reported for the 

previous 7 years. These inspections may result in orders to the operator to perform specific 

actions. Due to age or neglect, and often to a combination of both, it is probable that some idle 

wells have deteriorated well casings and tubulars. These wells can be a threat to the 

environment. BLM ensures that idle oil and gas wells do not act as conduits for wellbore fluids 

to migrate and endanger valuable surface or groundwater resources. The BLM’s policy is to 

reduce the number of idle wells on Federal lands to those that truly have a future beneficial use, 

reducing potential liability for the Federal government to plug and abandon wells on BLMmanaged lands. These inspections encourage operators to return wells to production and to 

properly plug uneconomic wells. 

The table below shows a breakout of inspections completed in 2012-2015, and those estimated 

to be completed for 2016 and 2017. The number of total inspections in 2015 decreased 

compared to previous years, although BLM added some new inspectors in 2015. The net gain 

in inspectors was only about half as much as expected because of losses due to retirements. 

Additionally, the beneficial impact of additional inspection capacity is delayed initially due to 

training requirements, which, on average, require a minimum of 18 months to complete. The 

inspection accomplishments are expected to increase in 2016 and 2017 as more new 
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Chapter VII – Management of Lands & Resources Page VII-108

inspectors are added and those hired in 2015 complete their training. Drilling and production 

inspections are expected to remain essentially flat through 2016 and 2017 as the oil and gas 

industry continues to contract due to low commodity prices.

Inspections Completed and Estimated

FY 2012

Completed

FY 2013 

Completed

FY 2014 

Completed

FY2015 

Completed

FY2016 

Estimated

FY2017

Estimated

Production 

Inspections

1. High-Risk Cases1 2,148 2,083 2,483 2,008 1,958 2,000

2. Other Production 5,126 3,330 3,749 4,237 6,829 6,900

Total Production 

Inspections 7,274 5,413 6,232 6,245 8,787 8,900

1. Drilling Inspections 1,951 1,396 1,456 873 1,000 1,000

2. Abandonment 

Inspections 1,268 1,325 997 1,106 1,000 1,000

3. Workover 

Inspections 417 337 272 252 300 400

4. Environmental 

Inspections 20,171 19,691 17,690 16,000 17,000 17,000

5. Record Verification 

Inspections 3,023 3,451 3,379 3,145 3150 3150

6. Undesirable Event 

Inspections2 467 385 605 518 400 400

7. Alleged Theft 

Inspections2 0 0 0 0 0 0 

8. Idle Well 

Inspections N/A 1,257 1,171 1,187 820 800

Total Other 

Inspections 27,297 27,842 25,570 23,081 23,670 24,550

Total Inspections3 34,571 33,255 31,802 29,326 32,457 33,450

1

In 2011, the BLM instituted a risk-based strategy for production inspections. This category consists of wells and leases that meet 

BLM’s high-risk criteria. Based on this strategy, each year’s list of required high-risk cases is determined based on the previous 

year’s history. For this reason, the actual quantity of required high-risk inspections cannot be determined until the previous year is 

complete. The FY 2016 and FY 2017 estimated numbers are based on assuming the BLM completes 100% of required high-risk 

inspections

2

These inspections are conducted on an as-needed basis.

3 This table combines inspections on cases and inspections on individual wells. 

Note: FY2014 saw a Federal shutdown loss of available time impacting nearly 3 weeks of operation (over 1500 inspections lost). 

Processing of Applications for Permit to Drill

The complexity and unit cost of processing APDs has grown in recent years, with more analysis 

of both down-hole engineering and potential surface impacts. The BLM received 4,475 APDs in 

2015. BLM approval times have remained relatively constant due to the increased complexity of 

resource issues analyzed, in addition to industry turnover of permitting specialists. The BLM 

has worked with operators to improve the quality and completeness of submitted drilling permit 

applications. The new automated system (AFMSS II) module should facilitate submittal of more 
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complete APDs, and aid improving the BLM review process. A reduction in processing time of 

100 days is expected after the new module is fully implemented.

As shown in the table below, the number of approved APDs currently available for industry to 

drill, but which have not been utilized, has increased to over 7,000. Despite the availability of 

approved permits, companies have been drilling less as a result of falling commodity prices. Oil 

prices, at the time of this publication, are now below $30 per barrel. The current year (2016) and 

budget year (2017) estimates for APDs received in the following table are more tentative than 

usual. The significant changes occurring in the oil and gas markets make it difficult to 

accurately project the number of APDs likely to be submitted and the associated fee collections. 

APDs: Pending, Received, Approved, Processed and Available to Drill

2012 

Actual

2013 

Actual 2014 Actual 2015 Actual

2016

Estimated

2017

Estimated

Total APDs pending at 

start of year 4,108 3,683 3,546 4,120 3,785 3,385

New APDs received 5,240 4,757 5,316 4,475 4,100 4,467

APDs approved 5,009 4,472 4,389 4,228 4,000 4,000

Total APDs processed 5,861 4,892 4,924 4,913 4,500 4,500

APDs pending at year 

end 3,683 3,546 4,121 3,785 3,385 3,352

APDs approved, waiting 

to be drilled 6,960 6,711 5,919 7,532 7,000 7,000

APDs pending at the end of the year are a snapshot at that point in time and do not account for permits that remain in process at the 

end of the fiscal year.

The chart below illustrates the relationship between prices for oil and gas and leasing and 

permitting activity from 2004-2015. Leasing and permitting demand is significantly influenced by 

oil and gas prices.
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EIA Data Source For Oil and Gas Spot Prices

1. Oil - Cushing, OK WTI Spot Price FOB (Dollars per Barrel)

2. U.S. Natural Gas Wellhead Price (Dollars per Thousand Cubic Feet)

Master Leasing Plans

Onshore fossil fuels will continue to make an important contribution in fulfilling the Nation's 

energy needs, but development of these resources needs to be conducted responsibly. In May 

2010, the BLM finalized several reforms to its oil and gas program to improve environmental 

protection of important natural resources on public lands while aiding in orderly leasing with 

measured and balanced development of these resources. These reforms include developing 

Master Leasing Plans (MLPs), through which the BLM engages the public and stakeholders 

prior to leasing in certain areas with important environmental resource values and where new oil 

and gas development is anticipated. The intent is to consider fully other important 

environmental resource values before making a decision on leasing and development in an 

area. 

In June 2014, the BLM issued its first MLP, the Beaver Rim MLP, as part of the revision of the 

Lander Resource Management Plan. In FY 2015, six additional MLPs were completed. These 

MLPs balance development of oil and gas minerals with protection of important natural and 

cultural resources, such as habitat for elk and mule deer, and important archaeological sites. 

Several more BLM field offices are developing MLPs as part of current RMP efforts.

In FY 2016, the BLM received $5.8 million to fund the development of oil and gas master 

leasing plans (MLPs) that are currently in process or are scheduled to begin in 2016. The MLPs 

build upon Resource Management Plan decisions by providing a more focused and detailed 

$0

$20

$40

$60

$80

$100

$120

0

1

2

3

4

5

6

7

8

9

2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015

Thousands

Leases Issued Each Year APDs Approved

Natural Gas ($s Per MCF) Xs 10 Oil - ($s Per Barrel)

New Leases Issued 

New Drilling Permits Approved

In Relation to Commodity Prices 
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analysis, including an analysis of optimal lease parcel configurations and potential development 

scenarios; identifying and addressing resource conflicts and associated environmental impacts; 

and identifying mitigation strategies and constraints. Through the MLP process, the BLM 

analyzes and resolves these issues prior to conducting lease sales; therefore, the MLPs will 

provide oil and gas operators increased development certainty when obtaining and developing 

lease parcels. The funding provided in FY 2016 will be used to complete the Moab MLP in 

Utah; and begin or continue MLPs for certain BLM lands in Utah, New Mexico, Colorado, and 

Wyoming. MLPs are typically a multi-year effort, averaging three years to complete. The work 

on MLPs in 2016 will continue in the four states listed above in 2017 with this funding with 

hopes that in 2018 the BLM can complete 3-4 of these MLPs.

Primary Factors Affecting Program Management

The primary factors impacting the management of the program are:

• As production activity has increased in recent years, the BLM must increase the number 

of oil and gas inspections and increase efforts to ensure appropriate accountability of 

production volumes across the over 23,500 producing leases.

• An expanded well inventory and more complex operations require additional monitoring 

and inspections to ensure safety and protection of the environment, including protection 

of important species and habitat conservation.

• The BLM faces challenges with recruitment, training, and retention of technical staff.

• Automation of activities in the AFMSS II and NFLSS systems will increase the 

productivity of BLM staff. In addition, providing modern tools and capabilities will support 

recruitment and retention.

• The BLM reviews and analyzes increasingly complex environmental issues and 

sophisticated field operations, including environmental impacts, mitigation plans, lease 

sales, APDs, and subsequent production operations.

Performance Measures 

The BLM consistently tracks the number of inspections completed to ensure that oil and gas 

production on public land is carried out in an environmentally responsible manner while 

generating a fair return for the American people. 

The BLM uses a Strategic Plan measure that tracks the percent of leases from which production 

verification has occurred. This new measure will compare the total number of cases, which 

refers to a BLM record in the LR 2000 database, against the number of production and records 

verification inspections completed on those cases annually. Prior to the establishment of this 

measure, the BLM tracked the number of inspections completed on both wells and cases using 

the total number of required inspections as a baseline. 

The older measure was ineffective in two ways. First, a single case may have multiple wells 

associated with it, especially where the case record is for a unitization agreement with dozens of 

wells. When measurement of inspections projected versus inspections completed conflated 

wells and cases, it increased the potential for erroneous reporting. Second, the metrics used to 

measure performance resulted in multiple years in which more than 100 percent performance

was reported, creating a lack of clarity in the actual performance measured. 
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2017 Program Performance 

As noted earlier, in FY 2015, the BLM completed 100 percent of its high-priority production 

inspections. In FY2016, and into the future, the BLM plans to accomplish 100 percent of all 

high-priority inspections, regardless of type. The percentage of leases with approved APDs is 

expected to increase slightly due to an overall decrease in the number of active leases. The 

percentage of APDs processed is expected to increase from previous levels based on current 

estimates. 
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Activity: Energy and Minerals Management

Subactivity: Coal Management

2015 

Actual

2016 

Enacted

2017 President's Budget Change 

from 

2016 Fixed 

Costs Transfers Program Change

Requested 

Amount

Coal Management $000 9,595 10,868 +94 +0 +0 10,962 +94

FTE 71 71 +0 +0 71 +0

Justification of 2017 Program Changes

The 2017 budget request for the Coal Management activity is $10,962,000 and 71 FTE, no

program change from the 2016 enacted level. 

Program Overview

Program Components

The BLM is responsible for leasing the Federal mineral estate on approximately 700 million 

acres. While producible coal resources are found on only a small fraction of these acres, 

Federal coal leases contribute a large share of total domestic coal production and consumption. 

In 2014, coal resources accounted for nearly 40 percent of the Nation’s electricity generation, 

and Federal lands currently supply roughly 40 percent of all U.S. coal production. 

The BLM’s coal program consists of approximately 310 Federal coal leases and 475,692 acres 

under lease. During the last decade:

• Over 4.36 billion tons of coal were produced from Federal leases with a total value of 

$61.4 billion;

• Over $3.85 billion in bonus payments and over $6.6 billion in royalties, rents, and other 

revenues were collected on BLM administered coal leases; and

• The BLM held 39 successful coal lease sales, accepted bonus bids of over $3.6 billion 

(deferred bonus bid payments occur over five years) for over 74,362 acres containing 

4.2 billion tons of mineable coal. 

Through its leasing program, BLM facilitates private sector development of Federal coal 

resources and supports the production of this reliable domestic energy resource. 

BLM has a responsibility to all Americans to ensure that the coal resources it manages are 

administered in a responsible way to help meet our energy needs while ensuring that taxpayers

receive a fair return for the sale of these public resources. A range of concerns have been 

raised about the program in the last few years by Government Accountability Office, the 

Department’s Inspector General, Members of Congress and other stakeholders. In March 2015, 

Secretary of the Interior Sally Jewell called for an “open and honest conversation about 

modernizing the federal coal program,” and launched a series of listening sessions across the 

country to hear from the public on a number of complex questions. 
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In 2015, the BLM held 5 listening sessions (Washington, DC; Billings, MT; Gillette, WY; Denver 

CO; and Farmington, NM) to provide the public an opportunity to comment on the coal program 

and provide recommendations for enhancement of the program. As a result of comments 

expressed during the listening sessions and recommendations from OIG/GAO audits, in 

January 2016, the Secretary issued a Secretarial Order that places a pause on new leasing 

under the program (with certain limited exceptions) until the BLM completes a full programmatic 

review of the program.

A programmatic review of the coal leasing program has not been undertaken in more than 

30 years. This review will take a careful look at issues related to the Bureau of Land 

Management’s (BLM) administration of the federal coal program, primarily:

• The appropriate leasing mechanisms to determine how, when and where to lease;

• How to account for the environmental and public health impacts of the coal program; and

• How to ensure the sale of these public resources results in a fair return to the American

taxpayers, including whether current royalty rates should be adjusted.

The review will also explore whether U.S. coal exports should factor into leasing or other 

program decisions; how the management, availability and pricing of federal coal impacts 

domestic and foreign markets and energy portfolios; and the role of federal coal in fulfilling the 

energy needs of the United States.

The review will include extensive opportunities for public participation. The PEIS will kick off with

public sessions in early 2016 to help determine the precise scope of the review. The Interior

Department will release an interim report by the end of 2016 with conclusions from the scoping

process about alternatives that will be evaluated and, as appropriate, any initial analytical 

results. It is expected that the review will take approximately three years to complete.

Initial Program Improvements

While a more comprehensive review of the leasing program is being conducted, BLM has taken 

a number of steps over the last two years to address issues that have been raised in external 

reviews. In 2014 and 2015, the BLM completed a number of actions to strengthen the overall 

management of its coal program, while at the same time responding to recommendations from 

three key sources: the June 2013 audit by the Department of the Interior Office of Inspector 

General; a February 2014 Government Accountability Office report; and the Royalty Policy 

Committee Report Mineral Revenue Collection from Federal and Indian Lands and the Outer 

Continental Shelf, which provided several recommendations on improving production 

accountability. 

Since 2014 and 2015 the BLM has completed the 21 initiatives responding to the Office of 

Inspector General and Government Accountability Office audits. The initiatives consisted of the 

development of 2 manuals and 2 handbooks, 8 instruction memoranda, and coordination with 

the Solicitor to analyze the existing and potential statutory enforcement authorities, and new 

use authorization terms and conditions. These documents addressed concerns regarding lease 

sales, exports, inspection, enforcement, royalty rate reduction, and transparency.

The BLM recently completed a major update of policies regarding production accountability, 

verification, and inspection through the release of a new Inspection, Enforcement and 

Production Verification manual and an Inspection and Enforcement handbook. This manual and 
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handbook provide policy and guidance regarding safety, inspections, and production 

verification. The guidance is being used to help promote responsible development of coal 

resources on the Nation’s public lands, and includes requirements for improved documentation 

for coal operation inspections on coal exploration licenses, licenses to mine, leases, and logical 

mining units. It also includes requirements for increased training for the BLM Mineral Mine 

Inspectors and requirements for certification of the inspectors. The BLM has begun working on 

the Mineral Tracking System (MTS) for the coal program; this program will further enhance the 

inspection program, and the full implementation of that system will enable further progress in 

this area. 

The BLM also updated the Coal Evaluation manual and handbook, which can be used to help 

ensure a consistent and efficient coal lease sale process, increase clarity in determining fair 

market value and provide guidance on the independent review of appraisal reports. This 

guidance will enable the Bureau to account for export potential through analysis of comparable 

sales and income. In developing this guidance, the BLM worked closely with the Department’s 

Office of Appraisal Services, Division of Mineral Evaluations, and that office is serving as the 

independent reviewer of BLM determinations of the pre-sale estimate of the value of the coal. 

Taken together, these updated and revised policies on inspections, enforcement, production 

verification and fair market value are significantly strengthening the Bureau’s coal program and 

enhancing the skills, knowledge and abilities of its employees as they carry out their 

responsibilities to ensure the public receives fair market value for leases, to ensure maximum 

economic development of the recoverable reserves, and to ensure that the coal resources are 

developed in an environmentally sound and sustainable manner. 

The BLM is responsible for the following activities in the Coal Management program:

• Conducting competitive coal lease sales and ensuring the public receives fair market 

value for the coal;

• Determining the pre-sale estimate of the value of the coal by considering both domestic 

and export markets, among other factors, and obtaining an independent review of the 

value;

• Approving modifications to existing coal leases and ensuring the public receives fair 

market value for the coal;

• Administering existing coal leases and providing additional approvals to ensure the 

lessee’s compliance with the terms and conditions of the lease;

• Processing and approving coal exploration licenses and monitoring operations for 

compliance with the terms of the exploration licenses;

• Processing and approving Federal coal resource recovery and protection plans and 

modifications to protect the public’s resources from waste and to ensure maximum 

economic recovery;

• Processing and approving Indian coal use authorization mining plans and modifications 

to protect the resources from waste and to ensure the greatest ultimate recovery;

• Inspecting operations at Federal and Indian coal use authorizations to ensure 

compliance with the authorization’s terms and conditions;

• Independently verifying the coal production reported by lessees from Federal and Indian 

coal leases;

• Taking appropriate action when Federal coal has been mined without approval (coal 

trespass actions);
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• Taking enforcement actions to ensure compliance with terms and conditions of licenses, 

leases, and other BLM coal authorizations; and

• Providing pre-lease evaluations of mineral tracts when requested by the Bureau of 

Indian Affairs for Indian Tribes and Indian mineral owners.

Critical Factors

The January 2016 Secretarial Order places a pause on new leasing until a Programmatic 

Environmental Impact Statement (PEIS) is completed. Prior to considering additional lease 

requests, the BLM will launch the multi-year PEIS development to review and evaluate potential 

environmental impacts and reforms to the federal coal program in order to ensure that it is 

properly structured to provide a fair return to taxpayers. 

Much of the federally owned coal reserves in the Western U.S. are overlain by private surface 

ownership. Before the BLM can hold a new lease sale for federally owned coal, the potential 

lessees must obtain the consent of the surface owners. 

The BLM continues to work with the U.S. Forest Service, the Office of Surface Mining 

Reclamation and Enforcement, and other Federal and State agencies to streamline multiple 

agency processes to minimize the time necessary to process applications to explore for and 

produce Federal coal resources. Federal surface management agencies are required to 

provide the BLM their decision whether to lease Federal coal or not.

The BLM and the Mine Safety and Health Administration are collaborating to provide a safer 

workplace for developing Federal and Indian coal. Both agencies have developed a 

Memorandum of Understanding to delineate procedures for reporting unsafe conditions.

The BLM is facing the loss of institutional knowledge needed to manage the Coal Program as 

many of its engineers, geologists, and land law adjudicators are retiring or become eligible for 

retirement. Recruitment activities are ongoing to fill vacancies. Further, the BLM works to 

prepare new employees to accomplish coal workloads successfully by ensuring that mining 

engineers and geologists complete the new mine employee’s safety training, attend certification 

courses and new coal evaluation courses, and are provided with adequate on the job training.

Ensuring environmental protection and maximum recovery of coal resources continues to be a 

priority for the BLM. 

Other Funding Sources

Coal program operations are primarily funded through this subactivity. Another funding source 

is the service charges the BLM collects from applicants to process coal lease applications, lease 

modification requests, royalty rate reduction requests, and logical mining unit applications. 

Broader planning efforts are frequently supported by other BLM programs, including the 

Resource Management Planning program and, when appropriate, other affected Federal 

agencies may contribute funds.

The BLM has been implementing cost recovery for these applications filed with the BLM since a 

final cost recovery regulation became effective on November 7, 2005. Amounts that the BLM 

collects each year vary as the workload varies between applications filed prior to or after the 
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cost recovery regulation became effective. The BLM will continue to charge users all 

appropriate cost recovery fees according to regulations. 

Coal Management

Cost Recovery

($000)

2013 2014 2015 2016 

Estimated

2017 

Estimated

381 229 239 235 235

2017 Program Performance

The BLM anticipates completing processing of approximately 10 percent of the pending coal 

lease applications, called “Lease by Applications” (LBA) during 2017. This estimate takes into 

consideration the pending applications that will be allowed to continue to be processed under 

the Secretarial Order that places a pause on most new leasing. In 2014, applicants requested 

that the BLM delay processing of several LBA actions due to recent reductions in market 

demand for coal resources; the future market demand for BLM to process additional LBAs is 

unclear at this time. 

To process LBAs, the BLM often uses a single environmental analysis to determine cumulative 

impacts for multiple LBAs and other use authorizations received in a relatively close geographic 

area. This allows for the more efficient use of BLM coal specialists, as they are needed to 

complete environmental, geological and engineering analyses, coal evaluations, hold lease 

sales, and process coal lease applications. LBAs that are excluded from the Secretarial pause 

will continue to be processed in this manner. LBAs that are subject to the moratorium will have 

the option to continue their NEPA work during the pause but will not receive final approval until 

after the pause is lifted. These applications will be subject to any requirements or stipulations 

that may have been developed as a result of the completed Programmatic EIS for coal. The 

BLM completed processing for five percent of coal LBAs in 2009 and 2010, seven percent in 

2011, 18 percent in 2012, 15 percent in 2013, 10 percent in 2014, and 23 percent in 2015. 

There are several grouped environmental analyses in progress that will yield multiple lease 

application process completions in 2016 and 2017. 

The BLM completes approximately 2,400 coal inspection, enforcement, and production 

verification actions each year. Inspections are performed to ensure compliance with the lease 

terms and conditions and mining plan approvals. Enforcement actions are necessary where 

the lessee fails to conform to the lease requirements. During the inspection process, the BLM 

inspector will collect production data to independently determine if the coal production being 

reported by the lessee is reasonable. The BLM completes approximately 300 post lease 

administrative actions annually while managing leases. These post lease actions vary from 

lease readjustments and lease modifications, to approvals of resource recovery and protection 

plans. Normally, the number of coal inspection, enforcement, and production verification and 

post lease actions are market dependent.
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Activity: Energy and Minerals Management

Subactivity: Other Mineral Resources

2015 

Actual

2016 

Enacted

2017 President's Budget Change 

from 

2016 Fixed 

Costs

Transfers Program 

Change

Requested 

Amount

Other Mineral Resources $000 10,586 11,879 +99 +0 -1,000 10,978 -901

FTE 81 81 +0 +0 81 +0

 

Summary of 2017 Program Changes/Internal Transfers for Other Mineral Resources: ($000) FTE

Anticipated Completion of MTS -1,000 +0 

Total -1,000 +0 

Justification of 2017 Program Changes 

The 2017 budget request for the Other Mineral Resources activity is $10,978,000 and 81 FTE, a 

program change of -$1,000,000 and 0 FTE from the 2016 enacted level.

Mineral Tracking System (-$1,000,000/+0 FTE) – The 2016 appropriation included increased 

funding in the Other Minerals Resources Management program and in the Coal Management 

program to develop the Mineral Tracking System (MTS). The BLM anticipates making 

substantial progress in the development of the MTS in FY 2016. The 2017 budget request 

eliminates this increase to focus on the program’s primary objectives. 

In 2016, funding for the MTS was used to support the automation and tracking of licenses, 

leases and permitting as well as inspection activities, including production verification, 

associated with coal and other solid mineral commodities (e.g. phosphate, sodium, potassium, 

etc.). Similar to the BLM’s modernization of its Automated Fluid Minerals Support System 

(AFMSS), the MTS is intended to enhance the overall management of very complex solid 

mineral commodity permitting and leasing regimes. 

Program Overview 

The public lands are an important source of non-energy solid leasable mineral resources and 

mineral materials for the Nation. These minerals are vital components of basic industry and 

quality of life in the United States. The goal of the Other Mineral Resources Program is to 

provide the minerals needed to support local infrastructure and economic development. 

Demand is increasing worldwide for some products generated from non-energy solid leasable 

minerals, such as gilsonite, which is used in drilling fluids for energy exploration.. The BLM 

processes sales and permits for mineral materials, such as sand, gravel, stone, and ordinary 

clays, which are essential for maintenance and construction of the access that is needed to 

provide basic land management and for building and maintaining energy development and 

production infrastructure and facilities.
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Program Components

The Other Mineral Resources Subactivity funds two distinct programs:

• Through the Non-Energy Solid Leasable Minerals Program, the BLM manages the 

production of potash, phosphate, sodium, and gilsonite. This program also includes 

metallic minerals on acquired lands (lead, zinc, copper, etc.). These minerals are used 

for fertilizers, glass and papermaking, flue-gas desulfurization, lead-acid batteries, oil 

well drilling, water treatment, detergents, and many chemicals.

• Through the Mineral Materials Program, the BLM leases and sells mineral materials 

such as ordinary clay, sand, gravel, and building stone. These materials are used for 

construction of roads, foundations, and buildings.

The Non-Energy Solid Leasable Minerals Program is responsible for:

• Processing permit, license and lease applications;

• Administering existing permits, licenses and leases;

• Approving exploration and mining plans;

• Conducting National Environmental Policy Act (NEPA) analyses;

• Inspecting and monitoring existing authorizations;

• Inspecting producing operations to ensure proper reporting of production;

• Taking enforcement actions to ensure compliance with terms and conditions of permits, 

licenses and leases; and 

• Administering trust responsibilities by managing post-leasing and production activities for 

Indian Tribes and individual Indian mineral owners.

The Mineral Materials program is responsible for:

• Performing NEPA analyses of disposal applications;

• Performing appraisals to determine the value of disposals;

• Conducting sales;

• Administering existing contracts and collecting revenue;

• Processing free use permits for State and local governments and non-profit 

organizations;

• Processing exploration permits and mining authorizations;

• Inspecting existing mineral materials authorizations;

• Inspecting sites to ensure proper reporting of and payment for production;

• Taking enforcement actions to ensure compliance with terms and conditions of contracts 

and authorizations; and

• Investigating and taking enforcement actions on unauthorized removal of mineral 

materials from Federal mineral estate.

Critical Factors

Several factors impact the Other Mineral Resources Program. Most demand for mineral 

materials comes from sales directly to the local public and industry for construction and 

development of businesses and housing in urban and rural areas, and for the infrastructure for 

renewable and conventional energy and mineral projects. The level of public demand tends to 

mirror the state of the economy. Demand for non-energy solid leasable minerals also fluctuates 

with the economy, but production from public lands supplies regional and international markets, 

particularly for fertilizer minerals.
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State and local governments and nonprofit organizations are provided free use of sand, gravel, 

and other mineral materials used in the development and maintenance of infrastructure for 

communities. The BLM processes these applications at no cost to those entities which involves 

increased workload for the BLM. 

There has been an increase in unauthorized operations, particularly on split-estates, due to 

many factors, such as an increase in urban development and zoning restrictions reducing 

private sources of mineral materials. The BLM will continue to conduct inspections to 

determine if there are unauthorized operations on public lands. 

The cost of processing authorizations and leases for mineral materials and non-energy minerals 

varies for each authorization or lease due to the size and complexity of the each, but in general 

has risen due to the increasing level of complexity in environmental impacts and the need to 

design enhanced mitigation. 

Other Funding Sources

The Other Mineral Resources Program is primarily funded through appropriations in this 

subactivity. Other funding sources include cost recovery fees, averaging $284,000 per year, for 

processing mineral disposal actions such as mineral material competitive sales. There are also 

cost recovery fees for processing new applications for non-energy leases, licenses and permits. 

The BLM will continue to charge users appropriate cost recovery fees according to regulation.

The BLM also receives reimbursement for the costs of material sales for the pipeline system in 

Alaska as required under Public Law 93-153, Section 101, which amended Section 28 of the 

Mineral Leasing Act of 1920. Funds are also collected from trespass recovery settlements and 

are used for rehabilitation of damaged property at the trespass site and other sites damaged by 

past mineral materials operations pursuant to Public Law 94-579, as amended, and Public Law 

93-153. Fees are also collected for development, operation and reclamation of mineral 

materials community pits and common use areas.

2017 Program Performance 

Demand for non-energy solid leasable minerals, especially potash, phosphate and hardrock 

minerals (copper, nickel, etc.) on acquired lands increased substantially in past years, but has 

been recently affected by the overall downturn in the commodity markets. These markets are 

very cyclical, and demand is expected to increase in the future. Some authorizations for nonenergy minerals are expected to be issued as long-term NEPA analyses are completed, and 

some applications are expected to be withdrawn due to market conditions and development 

restrictions.

The percentage of pending cases of permits and lease and contract applications processed is 

expected to remain the same for non-energy leasing and for mineral materials contracts as in 

2016, but the number of authorizations may decline due to environmental constraints such as 

sage grouse restrictions. 

The BLM also will continue to issue updated guidance and instructions addressing the valuation 

of other mineral resources in 2017. BLM will work with the DOI Office of Valuation Services to 

rewrite handbooks and issue other guidance to strengthen the valuation process, increase 

consistency of procedures among offices, correct deficiencies, and improve performance.
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Activity: Energy and Minerals Management

Subactivity: Renewable Energy Management

2015 

Actual

2016 

Enacted

2017 President's Budget Change 

from 

Fixed 2016

Costs

Transfers Program 

Change

Requested 

Amount

Renewable Energy $000 29,061 29,061 +128 +0 +0 29,189 +128

FTE 145 145 +0 +0 145 +0

Justification of 2017 Program Changes 

The 2017 budget request for the Renewable Energy Management Program is $29,189,000 and 

145 FTE, no program change from the 2016 enacted level.

Program Overview

The Renewable Energy Management Program is responsible for processing right-of-way 

applications for wind energy, solar energy, geothermal energy projects and transmission lines 

connecting to renewable energy-related projects. The BLM conducts full environmental reviews 

under the National Environmental Policy Act (NEPA) on all renewable energy projects proposed 

on BLM-administered public lands. The environmental review process includes the same 

opportunities for public involvement as other BLM land-use decisions.

The President has established an aggressive goal to increase permitting of new renewable 

electricity generation on public lands to 20,000 megawatts (MWs) by 2020. The BLM is 

committed to contributing to this goal by permitting environmentally responsible renewable 

energy projects on public lands. State renewable energy portfolios, investment tax credits for 

projects, fluctuating fossil fuel prices, and international concern about climate change have all 

contributed toward public and industry interest in utility-scale solar and wind energy 

development. 

The BLM and the Department continue to place a high priority on the processing of renewable 

energy projects on the public lands. Secretarial Order 3285, issued on March 11, 2009, 

established the development of environmentally responsible renewable energy as a priority for 

the Department. Increased production of renewable energy will create jobs, provide clean 

energy, and enhance U.S. energy security by adding to the domestic energy supply. As part of 

the priority goal for renewable energy, the Department and the BLM established an aggressive 

goal of approving 10,000 megawatts (MW) of permitted capacity by the end of 2012. The BLM 

exceeded this goal by approving a total of 12,862 MWs of renewable energy projects (including 

connected-action projects) before the end of 2012. The BLM will continue to prioritize permitting 

of renewable energy development on the public lands in a “smart-from-the-start” manner to 

meet its future permitting goals.
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The Renewable Energy Management Program oversees development of three main renewable 

energy sources:

• Solar Energy

• Wind Energy

• Geothermal Energy

Each of these types of energy are described in more detail below, along with the BLM’s efforts 

to approve transmission projects that will allow renewable energy developers to bring their 

energy to markets. Projects related to wood biomass and bioenergy are overseen by the BLM’s 

Forest and Woodlands Division. 

Solar Energy

Solar radiation levels in the Southwest are some of the best in the world. The BLM manages 

more than 20 million acres of public lands with excellent solar potential in six States: California, 

Nevada, Arizona, New Mexico, Colorado and Utah. On October 12, 2012, the Department of 

the Interior and the Department of Energy, as co-lead agencies, published the Record of 

Decision (ROD) on the Programmatic Environmental Impact Statement (PEIS) for Solar Energy 

Development in Six Southwestern States. The Solar PEIS established, for the first time, a solid 

foundation for long-term, landscape-level planning to help facilitate improved siting of utilityscale solar projects that avoids or minimizes conflicts with important wildlife and cultural and 

historic resources. The ROD on the Solar PEIS responded to extensive comments on the 

Supplemental Draft PEIS and includes incentives for solar developers who site projects in solar 

energy zones, offering reduced permitting times within zones and a sufficiently flexible variance 

process to allow development of well-sited projects outside of zones. The ROD also makes 

clear that the Solar Energy Program will continue to incorporate other parallel planning efforts, 

including State level efforts, to establish additional solar energy zones to meet market demand. 

The ROD includes 17 solar energy zones, totaling about 285,000 acres potentially available for 

solar energy development. The BLM has since added two additional solar energy zones through 

land use planning efforts for the Arizona Restoration Design Project and the West Chocolate 

Mountains Renewable Energy Evaluation Area in California. More are anticipated with future 

land use planning efforts.

To date, the BLM has approved 34 solar projects, including both generation projects on public 

lands and access and transmission projects that are essential to facilitate solar generation 

projects on private land. The projects include a variety of solar technologies and range in size 

from a 45-megawatt photovoltaic system on 422 acres to a 750-megawatt parabolic trough 

system on 7,700 acres. These 34 projects have the potential to generate 9,761 megawatts of 

clean, renewable solar energy—enough energy to power over 2.8 million homes.

Wind Energy

The BLM manages 20.6 million acres of public lands with wind potential and to date has 

approved 40 wind energy projects, including connected action projects that include electric 

transmission support authorizations. These projects are capable of producing 5,608 

megawatts of clean, renewable energy. Eleven of these wind energy projects have been 

approved since 2009. The total approved capacity includes both wind energy production 

facilities on public lands and a number of access and transmission projects on public lands 

essential to facilitate wind energy production projects on private land. 
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The BLM completed a PEIS relating to the authorization of wind energy projects in June 2005. 

This PEIS provides an analysis of the possible development of wind energy projects in the 

West. In conjunction with the publication of this PEIS, the BLM amended 52 land use plans to 

allow for the use of appropriate lands for wind energy development. BLM offices are able to use 

this PEIS as an aid in analyzing impacts for specific applications for the use of public lands for

wind energy use. In addition to the PEIS, the BLM issued a wind energy policy in December 

2008 to provide guidance on best management practices; suggestions for measures to mitigate 

potential impacts on birds, wildlife habitat, and other resource values; and guidance on 

administering wind energy authorizations. 

The BLM continues to conduct studies necessary to evaluate and process applications for 

rights-of-way for the siting of wind energy projects and applications for rights-of-way for electric 

transmission lines from these projects. There are currently a total of 40 approved wind energy 

and transmission connected-action projects on the public lands with a total approved capacity of 

over 5,608 megawatts. The BLM also continues to improve “Wind Mapping” tools that will be 

available in 2016 for agency and industry users to better identify the public lands with the best 

wind energy development potential. 

Geothermal Energy

The BLM has the delegated authority for leasing on more than 245 million acres of public lands 

(including 104 million acres of National Forest managed by the U.S. Forest Service) with 

geothermal potential in 11 western States and Alaska. The BLM currently manages more than 

800 geothermal leases, with over 70 leases in producing status generating over 2,000 

megawatts of installed geothermal energy on public lands. This amounts to over 40 percent of 

the total U.S. geothermal energy capacity. In May 2007, the Department of the Interior 

published final regulations on geothermal energy production on public lands requiring more 

competitive leasing and offering simplified royalty calculations.

A PEIS to assess geothermal leasing on the public lands was completed in October 2008. The 

subsequent ROD amended 114 BLM resource management plans and allocated about 111 

million acres of Bureau-managed public lands as open for leasing. An additional 79 million acres 

of National Forest System lands are also open for leasing. Currently, the BLM has authorized a 

total of 48 geothermal projects (72 producing geothermal leases) with a total approved capacity 

of 2,142 MWs.

Competitive Leasing Process

In 2014, the BLM published a proposed rule for competitive leasing in the Federal Register. The 

BLM has evaluated the public comments on that proposed rule, and anticipates issuing a final 

rule in 2016. The proposed rule articulates an innovative strategy to promote renewable energy 

development at appropriate sites in areas that have been determined in advance to be optimal 

for wind and solar energy production. Under the proposed rule, the BLM would offer these 

specific parcels to potential applicants through a competitive process and would approve rightof-way applications in an expedited fashion due to the upfront environmental analysis that will 

be conducted as part of the leasing process. Offering lands through a competitive leasing 

process would allow BLM to target future development toward lower conflict lands that are 

closer to existing or planned transmission lines.
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Performance Goals

The President’s and the Secretary’s goals to increase smart renewable energy development on 

public lands, as well as State renewable energy portfolio standards that require utility 

companies to increase renewable energy supplies as part of their electricity capacity, have 

dramatically increased the renewable energy right-of-way processing workload for the BLM. 

Interior’s current Renewable Energy Priority Performance Goal is to increase, by September 30, 

2017, approved capacity authorized for renewable (solar, wind, and geothermal) energy 

resources affecting Department of the Interior managed lands, while ensuring full environmental 

review, by at least 16,600 megawatts since 2009. Though the specifics of any priority goals 

beyond fiscal year 2016 will be developed as part of the 2018 budget process, the BLM will 

continue processing renewable energy applications in 2017 to stay on a path toward meeting 

the President’s goal of permitting 20,000 MW of renewable energy capacity by 2020. 

The Department will successfully meet these goals if a majority of the energy projects that were 

designated as priority projects for 2016 and beyond are approved. The primary factors that will 

influence renewable energy growth going forward are the status of tax credits and incentives; 

Renewable Portfolio Standards developed by State governments; the capacity of the 

transmission system to bring renewable energy to markets; as well as the Nation’s investment in 

infrastructure and technological improvements in the method and efficiencies of generation of 

renewable energy.

Project Status 

For Fiscal Years 2016 and beyond, the BLM has identified a number of priority projects 

representing about 1,600 megawatts. This list is used to focus bureau efforts on the projects 

that will help the bureau meet Department of the Interior and the President’s renewable energy 

goals. The projects list continues to evolve as market conditions change and individual 

developers finalize plans for projects. As of the time of publication four of these projects, 

representing about 495 megawatts, are anticipated to be approved in 2016. The BLM 

anticipates that it will approve a number of other projects in 2017 and beyond. The BLM 

develops the priority project list in collaboration with the Bureau of Indian Affairs, the U.S. Fish 

and Wildlife Service, the National Park Service and the Department of Defense.

A number of factors influence the design, approval and construction of renewable energy 

development projects. These factors include uncertainty during 2015 of the status of the 

production tax credit and incentive; the ability of project developers to acquire Power Purchase 

Agreements; the preference by some developers for smaller-scale renewable energy projects 

due to constraints in nearby transmission capacity; and the difficulties of some developers to 

finance projects due to current market conditions. However, the BLM anticipates improvements 

in the future demand for projects on the public lands due to the incentives under the Clean 

Power Plan; the recent extension of tax credits; and the increase of the Renewable Portfolio 

Standard (RPS) in California to 50% by 2030, which will further stimulate the renewable energy 

market in California and associated transmission line projects. Project applications received 

today typically require two to three years of analysis before the BLM and other State and 

Federal agencies issue final decisions. 

The BLM approved three projects in 2015 located within the Dry Lake Solar Energy Zone (SEZ). 

The BLM held a combined sealed- and oral-bid auction in June 2014, to allow interested parties 

to submit right-of-way applications and plans of development for utility-scale solar energy 
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projects on six parcels across 3,083 acres of public lands in Clark County, Nevada. In this SEZ, 

the BLM subsequently received applications for each of the six parcels and the auction 

generated $5,835,000 in high bids. The BLM anticipates increased competitive leasing for 

future project development in this SEZ and other SEZs across the West. 

The BIA is processing applications for transmission lines to connect to two solar energy projects 

(“connected-action” projects) in Nevada. Both projects would potentially involve authorization of 

transmission lines across BLM-managed public lands. Connected-action projects are projects 

located on BLM-managed lands, such as transmission lines or roads, that connect to renewable 

energy projects on tribal lands or private lands. These renewable energy projects on tribal or 

private lands would not be feasible without the transmission and road access on adjacent public 

lands. 

2017 Program Performance 

In 2017, the BLM will continue to implement the strategy to:

• Emphasize development of smart renewable energy development on public lands, which 

includes development of regional mitigation strategies and corresponding 

implementation plans to mitigate for project development impacts;

• Support Interior’s Renewable Energy Priority Performance Goal; and

• Implement actions to identify additional leasing and development opportunities for solar 

energy projects in designated solar energy zones. Making these lands available for 

leasing proposals will provide for the best siting locations for environmentally sound 

solar energy development projects. The BLM will implement the rule for a competitive 

leasing program to accelerate the process of offering public lands for solar and wind 

energy development.
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Chapter VII – Management of Lands & Resources Page VII-128

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Realty and Ownership 

Management 

Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-129

Activity: Realty and Ownership Management

 

2015 

Actual

2016 

Enacted

2017 President's Budget Change 

from 

 2016

Fixed 

Costs Transfers Program Change

Requested 

Amount

Alaska Conveyance $000 22,000 22,000 +107 +0 -4,780 17,327 -4,673

FTE 109 109 +0 +0 109 +0

Cadastral, Lands & Realty 

Mgmt

$000 45,658 51,252 +228 +0 +0 51,480 +228 

FTE 319 319 +0 +0 319 +0 

Total, Realty & Ownership 

Management

$000 67,658 73,252 +335 +0 -4,780 68,807 -4,445 

FTE 428 428 +0 +0 428 +0 

The 2017 budget request for the Realty and Ownership Management activity is $68,807,000

and 428 FTE. The total reflects a program change of -$4,780,000 from the 2016 enacted level. 

Activity Description

The Realty and Ownership Management activity has two programs that are focused on the use 

of lands and transfer of BLM-managed lands. 

• The Alaska Conveyance Program transfers land title from the Federal Government to 

individual Alaska Natives, Alaska Native Corporations, and the State of Alaska pursuant 

to the 1906 Native Allotment Act, the Alaska Native Veterans Allotment Act of 1998, the 

Alaska Native Claims Settlement Act of 1971 (ANCSA) and the Alaska Statehood Act of 

1959 (Statehood Act). Conveyance work has been ongoing since the 1960s. In 2004, 

the Alaska Land Transfer Acceleration Act (Acceleration Act) resolved conflicts between 

these laws and established deadlines for Alaska Native corporations and the State of 

Alaska to file final selection priorities.

• The Cadastral, Lands, and Realty Program provides cadastral survey services that are 

an important component to managing both Federal and private lands and manages 

authorized uses of the land for rights-of-way for pipelines, transmission lines for 

electricity and renewable energy, and other uses. This program also authorizes uses of 

the public lands for commercial filming and other purposes, and implements changes to 

land ownership by exchanging and purchasing lands, and by selling lands no longer 

needed for Federal purposes. 
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Chapter VII – Management of Lands & Resources Page VII-131

Activity: Realty and Ownership Management

Subactivity: Alaska Conveyance and Lands

2015 

Actual

2016 

Enacted

2017 President's Budget Change 

from 

2016 Fixed 

Costs

Transfers Program 

Change

Requested 

Amount

Alaska Conveyance $000 22,000 22,000 +107 +0 -4,780 17,327 -4,673

FTE 109 109 +0 +0 109 +0

Summary of 2017 Program Changes/Internal Transfers for Alaska Conveyance: ($000) FTE

Streamline Conveyance Process -4,780 

Total -4,780 +0 

Justification of 2017 Program Changes

The 2017 budget request for the Alaska Conveyance and Lands Management subactivity is 

$17,327,000 and 109 FTE, a program reduction of -$4,780,000 from the 2016 enacted level. 

Streamline Conveyance Process (-$4,780,000/+0 FTE) – The Alaska State Land Transfer

Program is the largest remaining workload in the BLM’s cadastral survey program. The BLM 

has identified a faster, more accurate, and more cost-effective method that would provide a 

higher quality survey record than is currently available and would allow the BLM to more 

efficiently complete the survey and conveyance work for all remaining State land selections. 

This innovation provides a unique opportunity to save time and money for both the Federal 

government and the State of Alaska, while supporting economic development within the State. 

The BLM intends to implement this new survey method as quickly as possible in the coming 

months. 

Program Overview

The Alaska Conveyance and Lands Program transfers land title from the Federal government to 

individual Alaska Natives, Alaska Native Corporations, and the State of Alaska pursuant to the 

1906 Native Allotment Act, the Alaska Native Veterans Allotment Act of 1998, the Alaska Native 

Claims Settlement Act of 1971 (ANCSA) and the Alaska Statehood Act of 1959 (Statehood Act). 

Conveyance work has been ongoing since the 1960s. In 2004, the Alaska Land Transfer 

Acceleration Act (Acceleration Act) resolved conflicts between these laws and established 

deadlines for Alaska Native corporations and the State of Alaska to file final selection priorities.

The Alaska Conveyance and Lands Program performs adjudication, cadastral survey, easement 

identification, land examination, land record review to complete the land patent process, and 

Standards for Boundary Evidence assessments for Federal land, Indian land, and Native 

Corporation land managers. These processes are detailed below.

Adjudication: Adjudication is used to determine the legal sufficiency of a land title application 

for the purpose of passing right, title and interest of the Federal government of public lands. 
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-132

The BLM provides extensive outreach to Native corporations, including face-to-face meetings 

with corporate boards in local communities and to the State of Alaska to obtain final conveyance 

priorities.

Cadastral Survey: The cadastral survey component of the Alaska Conveyance and Lands 

Program provides the cadastral services necessary to issue patents. These services include:

• Preparing supplemental plats from existing survey plats and other information when 

possible, 

• Making administrative title navigability determinations to facilitate conveyance,

• Making administrative determinations of emerged island title claims, 

• Issuing recordable ‘Disclaimers of Interest of Title’ for the beds of navigable rivers and 

other waterways, 

• Performing responsibilities as trustee for Alaska Native townsites created under the 

Alaska Native Townsite Act, 

• Providing assistance in determining maps of boundaries and performing surveys for 

Village corporation reconveyances required under Section 14(c) of the ANCSA, 

• Collecting Public Land Survey System data to distribute through the web-based Spatial 

Data Management System (SDMS), 

• Issuing ‘Standards for Boundary Evidence Certificates’ prior to transactions and projects 

to assist the authorized officer assess the risk caused by errors and misrepresentations 

in the public record and by antiquated surveys, and 

• Maintaining up-to-date digital copies of all survey records to distribute through the 

SDMS.

Easement Identification: Easement identification must be completed pursuant to Section 17(b) 

of the ANCSA for Native corporation selections that have not been transferred. This process 

involves participation by the public, the State of Alaska and the corporations themselves.

Land Examination: On the ground land examinations are conducted to resolve conflicts 

between Native allotment claims and to settle use and occupancy matters, including trespass 

and the presence of hazardous materials.

Land Record Review: In 2004, the Acceleration Act established deadlines for ANCSA 

corporations and the State to file priorities. Throughout Alaska, millions of the same acres were 

applied for by village corporations, regional corporations and the State. As part of the 

conveyance process, the BLM reviews selections to identify conflicts and ensure correct 

depiction in land records.

Provisions in ANCSA and the Statehood Act allow transfers of equitable title to unsurveyed 

lands through ‘Interim Conveyance’ for Native corporation selections and ‘Tentative Approval’ 

for State selections. Both types transfer right, title and interest of the Federal government, but 

final patents (legal title) cannot be issued until cadastral survey of the final boundaries has been 

completed. Land patents are required by Federal law for completion of transfers and are 

required for almost all types of State and private development, financing, leasing, and disposing 

of property. Patent issuance is dependent upon survey plats and the patenting process follows 

approximately 18 months after field survey operations have been completed (i.e. field survey 

work completed in FY 2017 may have final title issued in early FY 2019).
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-133

In 2014, BLM began a new and innovative process that will fulfill the BLM’s commitment to the 

State of Alaska years ahead of previously projected schedules, and at reduced costs. This 

process allows for a reallocation of resources to address subsequent land tenure adjustments. 

This approach fully complies with the Statehood Act, is fiscally responsible, and maximizes use 

of modern technology. With this method, there are fewer days in the field, less exposure to 

risks and hazards encountered in the field, including encounters with bears and performing 

helicopter landings on unimproved landing areas. The new survey products will allow the State 

and its stakeholders to locate final patent corners on-the-ground using the Global Navigation 

Satellite System, with Online Positioning User Service on the National Spatial Reference 

System.

By the end of 2015, the BLM surveyed and patented 99.2 million acres, or 66 percent of the 

original 150 million acres (Phase 3, below). Approximately 44 million acres, or 29 percent, are 

under some form of ‘Tentative Conveyance’ but have not been surveyed (Phase 2, below). 

Additionally, about seven million acres or five percent, of the lands need to be both surveyed 

and conveyed. The chart below displays the status of all conveyances, as of the end of 2015.

 -

 10,000,000

 20,000,000

 30,000,000

 40,000,000

 50,000,000

 60,000,000

Phase 1: Not started Phase 2: Lands tentatively

conveyed

Phase 3: Final survey &

patented complete

1,830,326 9,420,919 

34,485,841 

5,263,524 

34,596,694 

64,664,783 

Status of All Conveyances in Alaska1 

Current Progress by Phase

Alaska Native Corporations State of Alaska

1 Data are current as of September 30, 2015.

45,763,447 total 

acres

104,525,001 total 

acres
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-134

In 2016, the BLM plans to complete 2,500 miles of new field survey (Phase 1, above) and 

approve 6,300 miles of prior cadastral field survey (Phase 2, above.). The BLM will also 

process 30 Native allotment claim applications. Approximately 1,300,000 acres of Native 

corporation entitlements and 800,000 acres of the State of Alaska entitlement will be patented.

The current phase of Native Corporation and State adjudication requires meetings to resolve 

conflicts between corporation and State selections so the BLM can write field survey instructions 

with sufficient detail to allow BLM to develop a legally acceptable final patent description. In 

addition, meetings between the corporations and the State will be coordinated by BLM 

personnel to resolve easement conflicts so the easements on unsurveyed land can be matched 

with easements on land that has already been patented.

The Acceleration Act provides authority to resolve conflicts between various land claimants by 

allowing the BLM to round up acreages, settle final selection entitlement matters, and determine 

land selections where lands had been previously withdrawn, segregated or relinquished. Since 

2003, the BLM has conducted face-to-face meetings with Alaska Natives in hundreds of remote 

locations to obtain or clarify evidence on Native allotment claims, and with Native corporation 

representatives to discuss selection and title matters. Because it is not appropriate to use 

‘Interim Conveyance’ and ‘Tentative Approval’ where unresolved issues remain, title 

conveyances are increasingly dependent upon field survey and survey plats for issuance of 

patents.

2017 Program Performance

In 2017, the BLM anticipates approving 500 miles of prior cadastral field survey and complete 

500 miles of new field survey. The BLM also anticipates processing 20 Native allotment claim 

applications, and patent acreage surveyed and platted in previous years. Approximately 

600,000 acres of Native corporation entitlements and 600,000 acres of the State of Alaska 

entitlements will be patented. Transfer of title through ‘Interim Conveyance’ or ‘Tentative 

Approval’ will continue to be completed, as necessary, for Native corporations and the State of 

Alaska.

Status

A combined total of 19,231 parcel applications were filed under the 1906 Native Allotment Act

and the Alaska Native Veteran Allotment Act of 1998. Over 18,910 of these claims have been 

closed through patent or rejection, leaving 321 applications pending. Although the 1906 Native 

Allotment Act was repealed by ANCSA, claims pending with the Department up to the time of 

repeal still must be addressed by the BLM. 

A total of 45.8 million acres of Native corporation entitlements have been identified; survey has 

been completed and patents have been issued for 34.5 million acres (76 percent), leaving 11.3 

million acres (25 percent) that still require survey and patent. The State of Alaska entitlement is 

104.5 million acres; survey has been completed and patents have been issued for 64.7 million 

acres (62 percent), leaving 39.9 million acres (38 percent) that still require survey and patent. 

The majority of the land not surveyed and patented has been tentatively conveyed. 
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-135

Activity: Realty and Ownership Management

Subactivity: Cadastral, Lands and Realty 

Management

 

2015 

Actual

2016 

Enacted

2017 President's Budget Change 

from 

2016

 

Fixed 

Costs

Transfers Program 

Change

Requested 

Amount

Cadastral, Lands & Realty 

Management

$000 45,658 51,252 +228 +0 +0 51,480 +228

FTE 319 319 +0 +0 319 +0

Other Resources Supporting Oil & Gas Management:

2015 Actual 2016 Estimate 2017 Estimate Change from 2016

Energy Act Permit Processing 

Fund

$000 11,799 44,192 51,667 +7,475

FTE 76 430 430 +0

Energy and Minerals Cost 

Recovery

$000 2,653 5,160 5,160 +0

FTE 22 22 22 +0

Abandoned Wells Remediation 

Fund

$000 36,000 0 0 +0

FTE 0 0 0 +0

Notes:

- BLM mandatory amounts for Permit Processing Improvement Fund in 2015 and 2016 reflect the impact of both previously unavailable authority and 

sequestration, while the 2017 amount only reflects the impact of previously unavailable authority

- Energy Act Permit Processing Fund amounts are shown as new budget authority derived from 50 percent of rents from onshore mineral leases for oil and gas, 

coal, and oil shale on Federal lands; Section 365 of the Energy Policy Act of 2005 (Public Law 109-58) appropriates these funds on a permanent basis. More 

information on Energy Act Permit Processing Fund is found in the Permanent Operating Funds chapter

- Energy and Minerals Cost Recovery amounts are shown as new budget authority derived from fees that include costs of actions such as environmental studies 

performed by the BLM, lease applications, and other processing related costs; Independent Offices Appropriations Act (IOAA), as amended (31 USC 9701), 

Section 304(a) of the Federal Land Policy and Management Act of 1976, as amended (43 USC 1734) appropriates these funds on a current basis. More 

information on Energy and Minerals Cost Recovery is found in the Service Charges, Deposits, & Forfeitures chapter

- Abandoned Wells Remediation Fund amounts are shown as new budget authority derived from General Fund; Section 349 of the Energy Policy Act of 2005 

(Public Law 109-58), as amended by Public Law 113-40, the Helium Stewardship Act of 2013 (42 USC 15907) appropriates these funds on a permanent basis. 

More information on Abandoned Wells Remediation Fund is found in the Abandoned Wells Remediation Fund chapter

- The 2015 amount for Abandoned Wells Remediation Fund reflects a sequestration of 6.8%

- Actual and estimated obligations, by year for Abandoned Wells Remediation Fund are found in President's Budget Appendix under the BLM section

- The 2016 and 2017 amounts for the Permit Processing Fund in this table are updated from the estimates in the Appendix, Budget of the United States 

Government, Fiscal Year 2017. Specifically, the 2016 and 2017 estimates have been adjusted in this table to correctly include both estimated APD fees and 50 

percent of rent revenues from onshore leases.

Justification of 2017 Program Changes

The 2017 budget request for the Cadastral, Lands, and Realty Management Program is 

$51,480,000 and 319 FTE, no program change from the 2016 enacted level. 
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-136

Program Overview

Transmission

Facilitating efficient, responsible energy development and transmission facilities is a critical 

component of the BLM multiple use and sustained yield mission as stated in the Federal Land 

Policy and Management Act. As the largest Federal land manager in the West, the BLM plays a 

leadership role in planning for conventional and renewable energy development and corridors 

as well as siting transmission facilities. The BLM is working to enhance its environmental review 

and permitting procedures as well as improve the designation of existing and future energy 

corridors in land use plans. 

In FY 2016, the BLM was appropriated $5.0 million to review the west-wide energy corridors for 

high-voltage transmission lines and energy pipelines. The outcome of the reviews will result in 

more efficient and effective use of the energy corridors for siting transmission lines and energy 

pipelines in an environmentally responsible manner. The energy corridor reviews will better 

position the BLM to strategically plan for long term infrastructure needs and increased demand 

for improved capacity and reliability of the electrical grid throughout the West.

The BLM anticipates that the industry will continue to pursue new multi-jurisdictional projects 

across the West for distributed generation and transmission line upgrades and expansions, 

among other uses. To address these demands, and to strengthen the environmental review 

and permitting process, in accordance with Secretarial Order Number 3330 entitled “Improving 

Mitigation Policies and Practices of the Department of the Interior,” issued by Secretary of the 

Interior Sally Jewell in October 2013, the BLM will employ a “smart from the start” approach 

over the next decade. This approach will identify areas of conflict and opportunity during early 

planning and follow up by selecting the most appropriate areas for siting transmission facilities. 

The BLM will establish high standards for collaboration with industry, States and local 

governments, Tribes, Federal agencies and other stakeholders and build strong functional 

partnerships among all entities engaged in permitting these transmission lines and pipelines. 

Better planning and permitting to maximize the use of corridors will help reduce the proliferation 

of separate ROW across the landscape and will be key to protecting resources and minimizing 

environmental impacts. The BLM will look for innovation, research and technology to assist in 

meeting these goals. Continuing to develop and maintain an expert workforce of project 

managers, resource specialists, and managers with knowledge of electric transmission planning 

and operations, permitting construction, reclamation and mitigation techniques will be key to 

success of this effort.

Over the past several years, the BLM has made great strides in a variety of areas related to 

transmission permitting and energy corridors. Since 2010, the BLM has authorized over 20

major pipeline projects for oil, water, and natural gas totaling 2,950 miles with nearly 6002,350

miles on BLM lands in California, Utah, Colorado, Nevada, New Mexico, North Dakota, 

Montana, and Wyoming. 

 

Since 2011, the BLM has participated as a member of the Rapid Response Team for 

Transmission with the goal of improving coordination, expediting permitting and identifying 

lessons learned on seven priority pilot projects identified by the President. The BLM is lead or 

co-lead agency on four of the pilot projects. The President’s Executive Order No. 13604 on 

infrastructure further increased the emphasis on interagency collaboration in the siting and 

permitting of high voltage transmission projects. The BLM is actively coordinating with the U.S. 
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-137

Department of Energy and USFS to review existing corridors designated pursuant to Section 

368 of the Energy policy Act of 2005. The BLM and USFS have designated priority regions in 

the western U.S. to focus on reviews to determine needed corridor revisions, additions and 

deletions. The BLM is also working with stakeholders to review and update interagency 

operating procedures that are required when siting projects within energy corridors designated 

pursuant to Section 368 of the Energy Policy Act of 2005. The BLM is finalizing a policy this 

fiscal year for major transmission lines which will provide guidance for the NEPA process.

In June 2013, the BLM deployed an eight person National Transmission Support Team 

dedicated full-time to high voltage transmission and related infrastructure projects. The BLM 

plans to integrate these staff with the National Project Managers to more closely align 

workloads, and is also working to update core training courses with an increased emphasis on 

distance learning options. The BLM has taken steps to align and coordinate the activities of staff 

working on transmission line projects with staff in our Renewable Energy Coordination Offices 

through joint meetings, calls and training efforts. 

Rights-of-Way

 

The BLM grants land use authorizations for a wide variety of commercial and noncommercial 

purposes as allowed by law. Many companies, non-profit organizations, and State and local 

governments apply to the BLM each year to obtain ROW grants to use the public lands for 

roads, pipelines, transmission lines and communication sites. Energy-related ROWs play an 

essential part in the transportation of energy sources. Cadastral surveys and other boundary 

services are provided to facilitate these actions and help reduce boundary disputes, trespass 

and litigation.

 

Cadastral & Lands

Through the Cadastral Survey Program, the BLM conducts the official Federal Authority 

Surveys that are the foundation for all land title records in large sectors of the United States and 

provides Federal and tribal land managers, and their adjoining non-Federal landowners, with 

information necessary for land management. Several statutes and delegations vest authority in 

the BLM to provide cadastral services for itself and the other Federal land management 

agencies, including the National Park Service, the U.S. Fish and Wildlife Service, the Bureau of 

Reclamation, the USFS, and other Federal and tribal entities. 

Conducting Federal Authority Surveys requires the determination of boundaries, the marking of 

corner positions with brass cap markers, posting and marking the boundary lines, and the filing 

of associated approved records in the Official United States Records System. Additional 

support services provided by the Cadastral Survey Program include accurately positioning legal 

descriptions for timber sales, rights-of way, protection of special areas, oil and gas leases, and 

mineral leases; providing standards for boundary evidence assessments and management of 

land boundary plans to reduce risks including unauthorized use; providing cadastral services 

and Public Land Survey System (PLSS) Data Set services to support development of renewable 

energy projects; and updating and modernizing riparian boundaries where resources and land 

values are at a premium.

Companies, non-profit organizations, and State and local governments use the land records to 

apply to obtain ROW grants to use the public lands. The BLM uses these records to process 

ROWs for roads, pipelines, transmission lines and communication sites. ROWs based on 
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-138

accurate land records play an essential role in the cost-effective development and transportation 

of energy sources by providing the certainty necessary for infrastructure building. Similarly, 

accurate land and survey records are essential for the development and construction of 

communication sites that provide equipment necessary for the transmission of television 

broadcasts and the cellular phone network, which among other important benefits, enhance 

emergency services and decrease impacts to human health and safety on sensitive public 

lands. 

The BLM also prepares the documents required to conduct land sales, exchanges and 

withdrawals to ensure efficient and effective management of the public lands. Each record is 

stored and tracked for every authorization, review, and land withdrawal to ensure the most 

appropriate uses. The BLM works closely with the Department of Defense (DOD) to coordinate 

the documentation of withdrawals for military purposes and coordinate records management of 

adjacent military and public lands. The BLM also manages the documents of grants of lands to 

State, local governments and non-profit organizations for recreation and public purposes.

The BLM generates the PLSS Data Set to represent land ownership boundaries in a 

coordinated, standardized digital fashion. GIS layers depend on the PLSS Data Set as the base 

layer for many BLM processes including surface management agency, withdrawals, leasing, 

rights-of-way, sales, exchanges and stipulations.

 

In addition, the BLM is the custodial agency for land tenure records that date back to the 1800s. 

The BLM currently manages over nine million title documents as well as cadastral survey 

records from across the Nation. The General Land Office Automated Records System (GLO 

Records) is responsible for making land tenure records available on the Internet via the GLO 

Records website (http://www.glorecords.blm.gov). 

The image below illustrates the complexities of the BLM’s Land Information System. 
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-139

 

Realty Management

The BLM manages the grant documents system for ROW and other use authorizations for 

public lands. ROWs are granted for many purposes, including electricity transmission, roads, 

and water pipelines. The program also prepares land tenure documents for realty activities 

including land sales, land exchanges, and withdrawals.

 

ROWs assist in providing for basic access, power, and communication infrastructure needs of 

cities, towns, and rural communities. The BLM manages these governing ROW and land tenure 

documents, including the tracking of new and amended ROW authorizations.

 

Land sales, exchanges and withdrawals are also conducted to ensure efficient and effective 

management of the public lands. Land exchanges and withdrawals are useful land management 

tools to meet the multiple use mission of the BLM. The BLM authorizes, reviews, and revokes 

land withdrawals to ensure the most appropriate uses and works closely with the DOD to 

coordinate withdrawals for military purposes, resolve issues with over-flights, and coordinate 

management of adjacent military and public lands. The BLM also administers grants of lands to 

State, local governments and non-profit organizations for recreation and public purposes at 

reduced cost using its authority under the Recreation and Public Purposes Act. 

BLM’s Land Information System

Cadastral Survey provides accurate location of the Public Land Survey 

System which in turn supports the BLM multiple use mandate while 

protecting the BLM’s land and resources from unauthorized use.
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-140

Other Funding Sources

• Benefitting Programs & Agencies: Approximately 45 percent of all work completed by the 

Cadastral Survey Program is funded by other benefitting BLM subactivities and other 

benefitting agencies. 

• The Federal Land Transaction Facilitation Act (FLTFA) is proposed for reauthorization in 

2017 to allow lands identified as suitable for disposal in recent land use plans to be sold 

using the FLTFA authority. FLTFA sales revenues would continue to be used to fund the 

acquisition of environmentally sensitive lands and the administrative costs associated 

with conducting sales. FLTFA was first enacted in July 2000. It provided for the use of a 

percentage of revenues from the sale or exchange of public lands identified for disposal 

under land use plans in effect as of the date of enactment in order to acquire inholdings 

within certain federally designated areas, or lands adjacent to those areas, which contain 

exceptional resources, and to administer the lands sale program. Of the funds used for 

acquisition, 80 percent were to have been expended in the same State in which the 

funds were generated, but 20 percent could have been expended for acquisition in any 

of the 11 other western states. Up to 20 percent of revenues from disposals may have 

been used for administration costs and other expenses. FLTFA expired in July 2010, but 

was subsequently reauthorized for one year, expiring in July 2011. The 2017 budget 

proposes to reauthorize FLTFA and allow lands identified as suitable for disposal in 

recent land use plans to be sold using the FLTFA authority. The FLTFA sales revenues 

would continue to fund the acquisition of environmentally sensitive lands and to cover 

the administrative costs associated with conducting sales.

• The Southern Nevada Public Land Management Act of 1998 (SNPLMA) became law in 

October 1998. It allows the BLM to sell public lands within a specific boundary around 

Las Vegas, NV. The revenue derived from these land sales is split between the State of 

Nevada General Education Fund (five percent), the Southern Nevada Water Authority 

(10 percent), and a special account (85 percent) available to the Secretaries of the 

Interior and Agriculture for use throughout Nevada for parks, trails and natural areas; 

capital improvements; conservation initiatives; multi-species habitat conservation plans; 

environmentally sensitive land acquisition; and Lake Tahoe restoration projects. Other 

provisions in SNPLMA direct certain land sale and acquisition procedures and provide 

for the sale of land for affordable housing. 

• Cost Recovery: The BLM recovers costs for processing applications and monitoring 

ROW grants on public lands. Although the BLM is authorized to collect cost recovery in 

certain circumstances, some customers, such as State and local governments are not 

subject to cost recovery. Cost recovery for cadastral services is also collected as 

appropriate.

Please see the Permanent Operation Funds Chapter for more information on FLTFA, SMPLMA, 

and other land sales accounts. For more information on cost recovery efforts, please see the 

Service Charges, Deposits, and Forfeitures Chapter.
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-141

Critical Factors

Urban growth near BLM lands is creating costly management problems, such as encroachment, 

trespass, and unauthorized recreational activities on public lands. Proactive utilization of 

cadastral surveys along the urban interface provides valuable information about boundary 

locations to alleviate this emerging issue and reduce the number of lawsuits and recover 

revenues associated with lost resources and uncollected rents.

The demand for cadastral services to support energy development activities is increasing. 

Review of survey plats is a necessary step in processing Applications for Permits to Drill. 

Program staff review the plats to ensure that the construction of access roads, well pads, and 

well bottom drilling targets do not infringe on other property or mineral rights. Chain of survey 

and legal description reviews also help to determine whether land ownership and boundary 

locations are legally defensible prior to development. There is greater demand for GCDB data to 

provide accurate digital graphic portrayal of the Public Land Survey System. The energy 

programs use this digital version of the PLSS Data Set to display all stipulations and current 

leases in an automated format. This facilitates more efficient energy development and enables 

public land managers to make more informed decisions.

With the President’s and the Secretary’s goals to increase renewable energy development on 

the public lands and with many States enacting renewable energy portfolio standards that 

require utility companies to increase renewable energy supplies as part of their electricity 

capacity, renewable energy right-of-way processing workload for the BLM has increased 

dramatically. Much of this work is customer and market driven which makes it difficult to predict 

the number of applications that will be filed for the various authorizations with a high level of 

certainty.

2017 Program Performance

The BLM plans to leverage technology in land tenure management to become more efficient in 

land use decisions and resource planning. BLM’s land record system was developed in the 

1980s and last was updated to account for the year 2000 issues. In 2015, the BLM began 

seeking solutions to modernize and consolidate these existing systems, The goal is to develop 

a comprehensive system to collect, maintain and publish the official Federal land status records, 

including accurate and consistent land acreage and other statistical data used by the public and 

Federal land management agencies. Improvements would include using authenticated data 

sources, consolidating data, and using spatial and survey data. The system will link this data to 

all relevant land records and information on land title, use, restrictions and resources. The 

system will support legal, policy and regulatory requirements and efficiently deliver key business 

products (Public Land Statistics, Master Title Plats, Historical Indices, Reports, geospatial maps 

and orthophotographs, etc.).

Also, in 2016 and 2017, the bureau will implement a new geospatial publication web service to 

replace its outdated internal and external sites. The web service will provide search, retrieve, 

display and delivery functionality for authenticated BLM mineral, land status and resource data. 

The BLM will continue to improve the quality of LR2000 data. This effort involves guidance and 

direction to ensure the information entered into the LR2000 system is of the highest level of 

accuracy possible and ensures that the database accurately reflects the actual case files.
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-142

In 2017, the BLM will continue to perform the core functions of directing and approving surveys, 

addressing public inquires on Federal land status, consulting with staff members from other 

programs to advise on boundary, title, and geospatial issues, providing direction and control for 

field surveys paid for by other entities, and managing the geographic coordinates of PLSS data. 

In addition, the BLM completed all nine recommendations from an Office of the Inspector 

General (OIG) audit report on management of land boundaries. This report states “proper 

survey and management of high-risk lands with antiquated surveys has the potential to generate 

hundreds of millions of dollars in revenue from lands with valuable surface and subsurface 

resources.” In response, the BLM will continue issuing guidance to BLM State Offices through 

BLM Handbook guidance directing them to identify lands with revenues lost or at risk due to 

antiquated boundary evidence and propose a plan for resolution. 

 

In a separate response to the OIG report, the BLM has developed and implemented new 

policies to ensure that cadastral surveyors review the adequacy of boundary evidence prior to 

approval of significant land transactions and commercial projects. These policies will ensure the 

proper collection of rents and protection of public lands and resources from unauthorized uses. 

 

In 2017, the BLM will continue to focus on responsible energy development and associated 

transmission lines. Specifically the BLM will have a continued emphasis on completing timely 

environmental reviews and permitting for the four transmission Pilot Projects identified as a 

priority by the President in October 2011. Similarly, the BLM will focus resources on 

environmental reviews and permitting of transmission lines that serve BLM’s 2016 Priority 

Renewable Energy Projects. Collectively, these priority transmission projects will replace aging 

infrastructure, enhance grid reliability, and facilitate renewable energy development while 

serving the needs of communities across the western U.S.

The BLM will continue to conduct public land sales, revoke land withdrawals, and facilitate 

military base closures. The bureau will focus on revoking withdrawals that are no longer needed 

for their intended purposes. 
Communications Site 

Management 

Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-143

Activity: Communication Site Management

Subactivity: Communication Site Management

2015 

Actual

2016 

Enacted

2017 President's Budget Change 

from 

2016 Fixed 

Costs

Transfers Program 

Change

Requested 

Amount

Communication Site 

Management

$000 2,000 2,000 +0 +0 +0 2,000 +0

Offset -2,000 -2,000 +0 +0 +0 (2,000) +0

FTE 17 17 +0 +0 17 +0

Justification of 2017 Program Changes

The 2017 budget request for the Communication Site Management Program is $2,000,000 and 

17 FTE. Beginning with FY 1996 and annually since, when rental receipts were approximately 

$2,000,000, Congress appropriated up to $2,000,000 of communications site rental received to 

be returned to the BLM for the administration and management of communication uses on 

public lands.

Program Overview

The BLM grants and administers authorizations for communications sites, while working to 

protect the natural resources associated with both public and adjacent land owners. The BLM 

works to prevent unnecessary or undue degradation to public lands by promoting collocation on 

the communication site rights-of-way considering engineering and technological compatibility, 

national security and land use plans. The BLM also coordinates to the fullest extent possible, all 

actions under the program with State and local governments, interested individuals, and 

appropriate quasi-public entities.

Demands and Trends

Prior to 1996, each user was required to have a separate authorization, even when users 

shared a site. In response to the Telecommunications Act of 1996, the BLM implemented new 

regulations and policies that greatly simplified and streamlined the authorization and 

administration of these sites. The BLM now requires only the owners of the towers or facilities to 

have a right-of-way authorization, while other users of the sites can collocate in these facilities, 

as tenants or customers, without further BLM approval. However, each of these tenants or 

customers must pay rent to the United States.

In 1996, there were 3,313 authorized communications facilities on BLM-administered land. The 

BLM currently has over 3,800 sites authorized for separate communication use rights-of-way 

located on approximately 1,500 mountain tops. In 2015, the BLM performed 17 communication 

site audits which encompassed approximately 85 facilities. The BLM identified $127,000 of 

unreported rent, 15 unauthorized trespass facilities, and finalized approximately 17 

communication site management plans. The BLM has increased the collection of rental fees 

from $2.0 million in 1996, to $8.5 million in 2015 and will collect an estimated $9.0 million in 

2016. 
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A significant challenge facing the BLM is ensuring that holders of communication site rights-ofway authorizations report accurate inventories of communications uses within their facilities to 

allow the Bureau to assess and collect the appropriate rent. Based on recent compliance 

inspections by program administrators, it is estimated that for every ten dollars of rent collected, 

at least one dollar is not collected. In order to better manage the development and use of 

communications sites and to mitigate the impacts on surrounding public lands, the BLM 

develops communication site management plans, which guide users and analyze the impacts of 

the structures on the sites and the surrounding lands. These plans allow the BLM to better 

manage sites and often result in the collection of additional rent revenues. The BLM’s goal is to 

develop site management plans for all facilities with communication sites located on the public 

lands it manages.

In recent years, the BLM has focused on strengthening partnerships and improving its suite of 

BLM, interagency and industry sponsored right-of-way management courses, including the 

Communication Site Management Course, the National Lands Training for Line Officers, the 

Beginning Lands and Realty Training, and two industry training meetings scheduled in Nevada. 

2017 Program Performance

In 2017, the BLM will continue toward the goals of Executive Order 13616 on Accelerating 

Broadband on Federal Property, including developing processes to reduce the time needed for 

issuing communication use rights-of-way authorizations. Additionally, the BLM will continue to 

process applications for communications site rights-of-way, as well as applications for 

assignments, amendments, and renewals. The Bureau will also continue to emphasize site 

administration and management. The BLM expects to complete approximately 30 final 

communication site management plans (each State is expected to complete 3 plans), process 

170 actions for lease or grant issuances, rejections, amendments, and renewals; process 50 

actions for assignments, cancellations, relinquishments, and other administrative work; and 

complete 15 actions for trespass. In 2015 the BLM completed the centralized billing effort for 

communication sites. Going forward, the BLM will consider expanding the centralized billing 

effort to other types of right-of-way rentals. The BLM will train over 60 agency and industry 

personnel on the siting and administration of communication uses on public land, plus train 75 

line managers on their roles and responsibilities in the Communication Site Management 

Program.

In addition, the BLM will review the current communications use rental schedule as 

recommended by the Office of Inspector General in Report in its review of the Rights-of-Way 

program. In 2016, the BLM will publish an advanced Notice of Proposed Rulemaking in the 

Federal Register to determine if the rental schedule should be updated; the results of that 

review will determine the work to be performed in 2017. 
Resources Protection 

and Maintenance

Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-145

Activity: Resource Protection and Maintenance

2015 

Actual

2016 

Enacted

2017 President's Budget Change 

from 

2016

Fixed 

Costs Transfers Program Change

Requested 

Amount

Resource Mgmt Planning, 

Assessment & Monitoring

$000 38,125 48,125 +162 +0 +16,916 65,203 +17,078 

FTE 207 210 +0 +3 213 +3 

Law Enforcement $000 25,325 25,495 +121 +0 +0 25,616 +121 

FTE 124 124 +0 +0 124 +0 

Abandoned Mine Lands $000 16,987 19,946 +90 +0 +0 20,036 +90 

FTE 75 75 +0 +0 75 +0 

Hazardous Materials 

Management

$000 15,612 15,612 +102 +0 -251 15,463 -149 

FTE 85 85 +0 +0 85 +0 

Total, Resource 

Protection & Maintenance

$000 96,049 109,178 +475 +0 +16,665 126,318 +17,140 

FTE 491 494 +0 +3 497 +3 

Justification of 2017 Program Changes

The 2017 budget request for the Resource Protection and Maintenance activity is $126,318,000 

and 497 FTE, a program increase of +$16,665,000 and +3 FTE over the 2016 enacted level.

Activity Description

The functions within the Resource Protection and Maintenance activity contribute to the 

protection and safety of public land users and environmentally sensitive resources. 

• Resource Management Planning – The land use planning function is based on 

collaboration with local communities and State and tribal governments, as well as on 

science-based analysis.

• Resource Protection and Law Enforcement – The Resource Protection and Law 

Enforcement subactivity provides for the protection from criminal and other unlawful 

activities on public lands.

• Abandoned Mine Lands – The remediation of abandoned mine lands supports core 

programs by restoring degraded water quality, cleaning up mine waste that has been 

contaminated by acid mine drainage and heavy metals (such as zinc, lead, arsenic, 

mercury and cadmium), remediating other environmental impacts on or affecting public 

lands, and mitigating physical safety issues.

• Hazardous Materials Management – The Hazardous Materials Management Program 

provides for the prevention, mitigation, and remediation of the effects of hazardous 

material releases and other dangers on the public lands.

The Resource Protection and Maintenance activity funds land use planning and compliance 

processes, which are required by the National Environmental Policy Act (NEPA) and the 

Federal Land Policy and Management Act (FLPMA).
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Activity: Resource Protection and Maintenance 

Subactivity: Resource Management Planning, 

Assessment & Monitoring

2015 

Actual

2016 

Enacted

2017 President's Budget Change 

from 

2016 Fixed 

Costs

Transfers Program 

Change

Requested 

Amount

Resource Mgmt, Planning, 

Assessment & Monitoring $000 38,125 48,125 +162 +0 +16,916 

 

65,203 +17,078

FTE 207 210 +0 +3 213 +3

Summary of 2017 Program Changes/Internal Transfers for Resource Management, Planning, 

Assessment & Monitoring: ($000) FTE

Assessment, Inventory, & Monitoring +4,300 +3 

Enterprise Geospatial System +6,916 +0 

High Priority Planning Efforts +5,700 +0

Total +16,916 +3 

Justification of 2017 Program Changes

The 2017 budget request for the Resource Management Planning, Assessment & Monitoring

Program is $65,203,000 and 213 FTE, a program change of +$16,916,000 and +3 FTE from the 

2016 enacted level.

Assessment, Inventory, & Monitoring (+$4,300,000/+0 FTE) – The 2017 budget request 

includes an increase of $4.3 million to develop assessment and monitoring protocols using core 

indicators, standardized field methods, remote sensing, and a statistically valid study design to 

provide nationally consistent and scientifically defensible information. These protocols will be 

used to meet the monitoring commitments made during the Greater Sage-Grouse Conservation 

effort. These commitments include gathering information on terrestrial and aquatic site

condition, ecological sites, special status species, vegetation treatments, disturbance of the 

public lands, fire, and land uses.

Enterprise GIS (+$6,916,000/+0 FTE) – The budget request includes a $6.9 million increase to 

support the deployment of the Enterprise Geographic Information System (EGIS), which is 

critical to helping the BLM make a generational leap forward in its geospatial capabilities. The 

EGIS will support the adoption and implementation of core indicators, standardization of data 

and collection methods, and the digitization of legacy data for inclusion in decision-making 

analyses. It will allow employees to seamlessly access and use data from every level of the 

organization and across units, both from their office as well as in the field using mobile devices. 

The EGIS is key in providing data management and analytical support to managing public lands 

across various priority landscape-scale initiatives, including the Assessment, Inventory and 

Monitoring Strategy, Greater Sage-Grouse Plan Implementation and Monitoring, Renewable 

and Conventional Energy Development, Rapid Eco-regional Assessments, Climate Change 

Adaptation, Planning 2.0 Initiative, Regional Mitigation, and other multiple scale resource 

management activities. The BLM will continue to work collaboratively with other Federal 
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Chapter VII – Management of Lands & Resources Page VII-148

Plan Implementation

Plan Assessment,

Inventorying & Monitoring

Plan Evaluation, Maintenance,

& Amendment

Plan Revision / Development

partners to develop common data standards and manage geospatial datasets used for public 

land management decisions. The BLM geospatial proposal is integrated within Interior’s 

growing enterprise GIS capabilities and serves as a critical component of the Department’s 

corporate geospatial strategy. The Bureau’s ability to provide vast quantities of quality data 

easily will have profound organizational, cultural, and social benefits. The EGIS will provide the 

capability to overlay internal and external resource datasets (e.g., vegetation, hydrology, and 

ecological sites) with data on natural and human-induced stressors (e.g., wildfire, invasive 

species, climate change, and development), yielding robust and complex analyses of resource 

use and effects across multiple scales. The EGIS will allow the BLM to continue to develop and 

implement core data and technology standards to support large-scale, science-based decisionmaking, while at the same time delivering critical information to the public for its use and 

enjoyment of the public lands.

High Priority Planning Efforts (+$5,700,000/+0 FTE) – The budget request includes an 

increase of $5.7 million to support high-priority planning efforts that could include the initiation of 

new plan revisions in 2017, as well as plan evaluations and implementation strategies. 

Resource management plans provide the basis for every BLM management action. BLM places 

a high priority on keeping plans current in an era of rapidly changing resource use and 

demands, including ongoing energy development activities (both fossil and renewable), 

changing ecological conditions, continued population growth, and increasing recreation use on 

the public lands.

Program Overview

Resource Management Plans (RMPs) are the foundation of public land management. Planning 

and plan implementation decisions describe desired resource conditions on the ground and 

methods to achieve desired conditions across the more than 247 million acres of BLM-managed 

public lands. Through its plan assessment, inventory and monitoring efforts, the Bureau collects 

data, which is stored in geospatially enabled databases, to determine whether the BLM is 

meeting its goals for desired condition. Plan evaluations allow the BLM to determine which 

decisions need to be revised or amended for the BLM to continue effectively managing the 

public lands. The land use planning process encourages collaboration and partnerships, which 

help the BLM determine how to manage public lands and associated resources to balance the 

needs of adjacent communities with the needs of the Nation. 

The Resource Management Planning, Assessment, and Monitoring Program uses 

interdisciplinary processes to complete the management and decision-making cycle shown and 

described further below.

BLM Planning Cycle
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Land Use Plan Revision and Development – Completion of ongoing RMP revisions and plan 

developments is the highest priority of the program. Planning areas without updated RMPs 

present numerous challenges to the BLM. Updated plans:

• Incorporate the best, most current science; 

• Contain sustainable decisions that are less vulnerable to legal challenge;

• Are responsive to changes in climate and conditions on the ground; 

• Include desired conditions that are relevant or desired by the public, other governmental 

entities, or industrial users; and

• Advance priorities such as energy development and transmission corridors and provide 

economic opportunities for the public. 

Delayed completion of planning efforts postpones critical resource management decisions and 

increases potential for litigation in planning areas. The program initiates new RMP revisions or 

amendments in areas where monitoring and evaluation indicates that changing resource 

conditions or changing demands on public land resources have been identified that require 

reconsideration of RMP decisions. 

Sustainable Planning through the National Environmental Policy Act (NEPA) – This dynamic 

approach to land use planning cycles through implementation, effectiveness monitoring, and 

assessment of emerging issues such as rapid population growth and changing resource 

conditions. The planning cycle allows plans to remain relevant and adaptive to changing 

conditions by addressing emerging challenges and changing resource issues as they arise, 

which ensures plan durability and reduces the frequency of costly revisions. The BLM uses the 

NEPA review and analysis process to inform its land use planning and project-level 

implementation decisions throughout the planning cycle. NEPA activities currently funded by 

BLM range from highly site-specific land use decisions to regional planning efforts to broadscale analyses of specific authorized activities with a national scope (e.g., the programmatic 

environmental impact statement on coal leasing). Through the NEPA process, the BLM 

assesses the potential environmental impacts of a proposed action through a range of 

alternatives, seeks input from stakeholders and the public, and collaborates with partners in 

Federal, State, local, and tribal government to inform its decisions.

Land Use Plan Amendments – Amendments enable the program to address significant new 

information, respond to changing land uses, consider proposals that deviate from the plan, and 

implement new policies that change land use plan decisions. Plan amendments are an 

economical means to support adaptive approaches to resource management and reduce the 

frequency of costly revisions, and they often support priority projects, such as those related to 

renewable energy and national energy infrastructure. 

Monitoring for Adaptive Management: Informed decision making and adaptive management 

require current data about the status and trends of terrestrial and aquatic systems, about the 

location and extent of natural and human-caused disturbances, and about the location and 

effectiveness of land treatments. The BLM’s AIM Strategy is the framework for this data 

collection. This strategy outlines a process for using core indicators, standardized field methods, 

remote sensing, and a statistically valid study design to provide nationally consistent and 

scientifically defensible information to determine the status of the public lands and track 

changes to natural resources on the public lands over time. This strategy supports the Solar 

Programmatic EIS, the Greater Sage-Grouse Conservation Initiative, as well as other landscape 

level decisions. 
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Chapter VII – Management of Lands & Resources Page VII-150

Critical Factors

The BLM addresses a number of critical factors that drive land use planning and decisionmaking processes. These include the following:

Land Health Stressors – Land health stressors such as invasive plant and insect infestations, 

drought, and catastrophic wildfires contribute to the loss of native animal and plant communities 

and habitat for threatened and endangered species, including greater sage-grouse. Changing 

conditions necessitate the reevaluation of plans on a regular cycle. Eco-regional assessments 

and adaptation strategies for mitigating impacts of land health stressors indicate on a regional 

basis whether land use decisions remain valid or require amendment.

Energy Demands – Increased demands for renewable and conventional energy and associated 

infrastructure affect the balance with competing uses such as recreation use, off-highway 

vehicle use, and conserving a broad range of wildlife habitat for future generations.

Expanding Populations & Community Growth – These factors challenge wildland fire 

suppression efforts in the wildland-urban interface, contribute to increased conflicts between 

recreational uses, and increase demands for surface-disturbing uses such as roads, utility 

distribution lines, communication sites, sand, gravel, mineral materials sites, and public 

facilities. Understanding the complex socioeconomic issues in communities adjacent to BLMadministered lands is imperative to effective land management.

Protests/Appeals/Litigation – Public land management conflicts heighten BLM’s attention to risk 

management in response to challenges over land use decisions. Litigation not directly 

associated with land use planning often affects land use planning decisions, given the broad 

scope of resource issues considered.

Means and Strategies

The BLM uses a number of means and strategies to support land use planning and decisionmaking processes. The means and strategies highlighted below support not only land use 

planning, but also provide critical information, resources, and data infrastructure used Bureauwide, and often outside the BLM by Federal, State, tribal and local partners. This information is 

necessary and valued by resource managers and specialists as they prepare project analyses

for all types of activities. These efforts include the following:

ePlanning – The ePlanning web-based application integrates document preparation, review, 

commenting, comment analysis and response, and archiving of land use planning and NEPA 

processes. It provides a centralized, national BLM database for public access to BLM NEPA 

documents. ePlanning is currently used for RMP revisions and as a repository for all new NEPA 

analyses on the BLM National NEPA Register. A comprehensive deployment strategy is 

underway which is providing on-demand, web-based training, as well as on-site instructor led 

training with the goal of implementing exclusive use of ePlanning for all BLM NEPA by the end 

of 2017.

Geospatial Services – The Bureau is transitioning to a landscape approach to managing public 

lands. To support that approach, the Geospatial Services program is creating an environment 

where data is managed in an integrated corporate data framework to support multiple program 

activities at multiple scales. Continued implementation of the BLM’s Enterprise Geospatial 
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Chapter VII – Management of Lands & Resources Page VII-151

Strategy, with leadership provided by the Geospatial Steering Committee (GSC), supports this 

transition as well as various high priority efforts such as the implementation and monitoring of 

the Greater Sage-Grouse planning effort, the Planning 2.0 initiative, regional mitigation 

activities, and renewable energy projects, while using GIS software that is consistent and 

integrated with the Department and other DOI Bureaus. This transformation will also improve 

the management of the BLM’s geospatial data resources, and will enhance partnering with other 

Federal agencies, including the U.S. Geological Survey (for science) and the U.S. Fish and 

Wildlife Service (for consultation), while supporting communication and collaboration with State 

and tribal governments, as well as the public at large. By providing the infrastructure to manage 

and analyze data at multiple scales, the Geospatial Services program provides the BLM with the 

information and tools necessary to better understand the impacts of its decisions and support 

informed decision-making at all levels of the organization.

Socioeconomics – BLM’s Socioeconomics program identifies the human context and 

consequences of the bureau’s proposed plans, policies, and authorized uses. This helps 

resource managers weigh competing interests concerning access to and use of public lands 

and resources. The need to maximize the BLM’s return on investment is essential to achieving 

its mission, and thus measuring that return through the application of socioeconomic methods 

provides information essential for effective resource management. To provide a more complete 

picture of the benefits and costs of the BLM’s resource management decisions, the 

Socioeconomics program is developing guidance on a number of topics critical to improved 

decision making. These include environmental justice, ecosystem services, and the 

assessment of social values and tradeoffs in plans and projects. The Socioeconomics program 

is also providing technical expertise in support of other BLM programs and efforts, including the 

management of Wild Horses and Burros, Greater Sage-Grouse conservation, and oil and gas 

development. 

Collaborative Action and Dispute Resolution – The Collaborative Action and Dispute Resolution 

(BLM-CADR) program provides services to support BLM’s engagement with other Federal 

agencies, tribal, State, and local governments, stakeholders, and the public. Collaborative 

approaches can be applied internally and externally throughout decision-making and when 

addressing subsequent management challenges. Generally speaking, collaboration refers to 

processes and arrangements that facilitate two or more individuals working together to solve a 

set of resource issues. Collaborative approaches ultimately enhance relationships and 

successful on-the-ground project implementation through shared commitment and resources. 

The CADR program optimizes planning investments and provides tools and skills for future BLM 

leaders. 

NEPA – The BLM’s NEPA program coordinates with the Council on Environmental Quality 

(CEQ), the Interior Office of Environmental Policy and Compliance, and other Federal entities 

on NEPA policy issues across the Federal government and within the Department. The BLM 

NEPA program also develops Bureau-wide NEPA policy and guidance, coordinates with other

BLM national programs to develop program-specific guidance, and works with the BLM National 

Training Center to identify and meet NEPA training needs. In addition, the program coordinates 

with BLM State Offices to provide advice and support for NEPA compliance in the field. The 

BLM NEPA program in conjunction with BLM’s Division of Environmental Quality & Protection is 

enhancing an internal, web-based BLM Greenhouse Gas & Climate Change NEPA Toolkit for 

use in preparing NEPA documents. The program also evaluates NEPA compliance within BLM 

States. These activities contribute to sound, well-supported Bureau planning and project 
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decisions, and provide ongoing opportunities to strengthen working relationships with the public, 

stakeholder organizations, and partners in Federal, State, local, and tribal government.

Assessment and Monitoring - The AIM Strategy is being implemented through five sets of 

interrelated projects. The first three are designed to implement West-wide monitoring that is 

coordinated, and where possible, integrated with the monitoring activities of other Federal, State 

and non-governmental partners. The West-wide projects include the BLM Rangeland 

Assessment, the BLM Western Rivers and Streams Assessment, and the BLM Grass-Shrub 

Fractional Mapping Project. Some of the Federal partners included in these efforts are the 

Natural Resource Conservation Service, Environmental Protection Agency, United States 

Geological Survey, and United States Forest Service. The two remaining projects are designed 

to help support immediate multi-State and field office priorities. These projects include efforts to 

monitor the effectiveness of BLM land use plans and to determine the effectiveness of BLM 

treatments and actions. 

Public Involvement and Cooperating Agencies – The BLM involves interested members of the 

public and other governmental agencies—various Federal, State, local, county, and tribal 

entities—to share technical expertise, fulfill requirements for cooperation under various laws, 

and ensure consistent management where BLM-managed lands are adjacent to those of other 

government agencies or affect the resource management of other government agencies. The 

BLM also participates in cooperating agency and coordination training workshops with local 

government organizations to promote understanding of opportunities for local government 

participation in BLM land use planning and NEPA processes.

2017 Program Performance

Planning 2.0 – “Improving Land Use Planning” – In 2017, the BLM will roll out the Planning 2.0 

initiative, which is focused on designing a more proactive and flexible approach to planning 

across landscapes at multiple scales. As part of Planning 2.0, the BLM will complete targeted 

changes to the planning regulations (43 CFR 1601 and 1610) and issue a revised Land Use 

Planning Handbook (H-1601-1). The planning process will focus on more up-front collaboration 

with partners to produce durable decisions that readily address the rapidly changing 

environment and conditions posed by climate change, rapid growth in the urban interface with 

public lands, expanding resource development, and other stressors. Finally, the BLM will 

review, and where necessary, revise its policy and procedures for monitoring the effectiveness 

of land use plan decisions as part of the 2.0 initiative. 

Land Use Plan Revisions – In 2017, the Resource Management Planning program will continue 

work on the 30 plans that are in process. This estimate takes into consideration plans that will 

be completed and initiated in the interim. Active plan revisions are evaluated annually to 

determine progress and estimated costs for completion. Approvals to extend project schedules 

are coordinated through the Assistant Director for Renewable Resources and Planning. 

In 2017, the BLM plans to initiate three new RMP revisions. The remaining Western Oregon 

RMP revisions will be funded by the O&C Resource Management Planning program. Since 

2001, the BLM has completed 87 plan revisions to improve the quality and effectiveness of its 

resource management. Another 66 planning projects are currently in progress and 29 plans are 

in need of revision or amendment to meet changing resource demands and conditions. 
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Land Use Plan Amendments – Newly revised plans are maintained through amendments 

funded by benefitting programs. Targeted amendments address emerging challenges and 

changing resource issues, extend the useful life of a plan, and reduce the potential for litigation. 

In 2017, the Resource Management Planning program will continue to support high priority 

amendments, including those associated with renewable energy and transmission line projects. 

NEPA – The NEPA program will coordinate with the Department to provide and implement BLM 

national guidance on considering climate change through the NEPA and land use planning 

processes. The NEPA program will also continue to support high priority activities with national 

scope, such as development of the programmatic environmental impact statement on coal 

leasing and BLM and Department policy development in other priority areas such as mitigation. 

In addition, the NEPA program will work with BLM’s National Training Center to evaluate NEPA 

training needs throughout the BLM and to develop new training as needed. 

Assessment and Monitoring - The Rangeland Assessment, the Western Rivers and Streams 

Assessment, and the Grass-Shrub Fractional Mapping Project, efforts to monitor the 

effectiveness of BLM land use plans, and efforts to determine the effectiveness of BLM 

treatments and actions will be implemented. Additionally, the monitoring and assessment 

protocols and core indicators developed as part of the AIM strategy will be used to gather 

information on terrestrial and aquatic site condition, ecological sites, special status species, 

treatments, disturbance of the public lands, fire, and land uses within sage-grouse habitat.

Collaborative Action and Dispute Resolution – The CADR program is implementing a new 

Strategic Plan designed to: 

• Build awareness and understanding of collaboration and collaborative action both within 

and outside the BLM;

• Provide a framework for achieving consistency in collaborative efforts within BLM and 

with partners and stakeholders; and

• Focus on the practical application of collaborative principles and practices to meet the 

needs of the field.
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Activity: Resource Protection and Maintenance 

Subactivity: Abandoned Mine Lands

2015 

Actual

2016 

Enacted

2017 President's Budget Change 

from 

Fixed 2016

Costs

Transfers Program 

Change

Requested 

Amount

Abandoned Mine Lands $000 16,987 19,946 +90 +0 +0 20,036 +90

FTE 75 75 +0 +0 75 +0

Notes: The Central Hazardous Materials Fund from the Department of the Interior, Office of the Secretary, is a collaborative 

source of funding to address the goals of both the Abandoned Mine Lands and the Hazardous Materials Management 

programs. The 2015 estimated funding from the Central Hazardous Materials Fund is approximately $3.5 million. 

More information on the Central Hazardous Materials Fund is found in the Department of the Interior, Office of the 

Secretary, Department-wide Program Budget Justifications.

Justification of 2017 Program Changes

The 2017 budget request for the Abandoned Mine Lands Program is $20,036,000 and 75 FTE, 

no change from the 2016 enacted level.

Program Overview

The Abandoned Mine Lands (AML) program’s primary objective is to eliminate or minimize the 

environmental impacts and the physical safety hazards associated with historic hardrock mining 

activity within the National System of Public Lands (NSPL). The AML program addresses mine 

sites that were abandoned prior to January 1, 1981, the effective date of the BLM’s surface 

management regulations (43 CFR Subpart 3809). 

The program’s objectives are:

• Protecting public health and safety as well as reducing inherent liabilities by mitigating 

physical safety hazards and/or minimizing environmental impacts on the NSPL;

• Restoring the Nation’s watersheds impacted by abandoned mines on public lands;

• Educating the public about the potential dangers posed by abandoned mines as well as 

the actions the BLM takes to address those dangers;

• Implementing a risk-based, watershed approach that embraces partnerships to 

effectively leverage funding and facilitate timely AML project completion; 

• Conducting inventories of yet undiscovered abandoned mine features and sites as well 

as performing the validation, recordation, and evaluations of those characteristics;

• Asserting the BLM’s lead role in the evaluation and remediation of AML sites located on 

and affecting the NSPL; 

• Implementing cost avoidance/cost recovery strategies pursuant to CERCLA;

• Restoring abandoned mine lands to productive uses including, but not limited to 

recreation, fish and wildlife habitat, renewable energy, and the preservation of 

historical/cultural resources;

• Integrating AML goals and priorities into the BLM land-use planning efforts as well as 

other BLM functions and programs; 
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• Performing post-completion project monitoring to ensure the effective short and long 

term remediation of abandoned mine land sites.

Abandoned Mine Land Inventory

The AML program utilizes a database to record and track the thousands of AML sites and 

features within the NSPL. The Abandoned Mine Site Cleanup Module (AMSCM) currently 

contains over 94,000 features, such as physical hazards and environmental impacts, associated 

with 50,500 AML sites. 

 

Risk-based Prioritization

In addressing the environmental and physical safety hazards on the NSPL, the BLM places the 

greatest priority on completing on-the-ground remediation at high-priority inventoried and 

characterized sites as well as newly discovered sites that pose higher risks due to population 

proximity, expansion and recreational activities in remote locations. The prioritization process 

ranks sites based on environmental and physical safety hazards and takes into account factors 

including water quality impairments and violations, watershed and other environmental impacts, 

threats to public health or safety, existence of partnerships, cost avoidance/cost recovery, 

continuing/expediting existing on-the-ground projects, location, and cost efficiency.

Environmental Response and Remediation

The BLM’s environmental cleanup and remediation activities are guided by public laws such as 

CERCLA, the Clean Water Act, and the Federal Land Policy and Management Act. The BLM 

uses its CERCLA authority to remediate environmental contamination on public land, prepare 

and implement emergency response contingency plans for oil and chemical spills, and recover 

costs from Potentially Responsible Parties.

Alaska Red Devil Mine Remediation

The Red Devil Mine (RDM), located on the Kuskokwim River in Southwestern Alaska, is an 

abandoned cinnabar mine which produced mercury from 1939 thru 1971. In 2009, the BLM 

initiated a Remedial Investigation/Feasibility Study (RI/FS) of the Red Devil Mine site under the

Comprehensive Environmental Response, Compensation, and Liability Act (CERCLA). Over the 

last 8 years the BLM and the Department’s Central Hazardous Materials Fund have shared in 

funding the RDM project. In FY 2017 the RDM will need $3.5 million for remedial design to 

include repository construction and surface water management. This request is included in the 

Department’s Central Hazardous Materials Fund (CHF). 

Colorado Upper Animas River Remediation

The Upper Animas Watershed, located in Southwest Colorado, is a 146 square mile watershed 

that has had extensive mining for over 100 years and its impacts have been noted for many 

decades. The BLM has implemented eight removal actions under our Comprehensive 

Environmental Response, Compensation, and Liability Act (CERCLA) authority, however a 

significant amount of additional work is necessary, particularly to effectively address the 

multitude of mixed-ownership AML sites. Since 2010 and working collaboratively with the 

EPA, the BLM has initiated risk assessments and Remedial Investigations (RI) of the Upper 

Animas to better define the contamination problems and potential responsible parties. For FY 

2017 additional source characterization and modeling; groundwater and surface water 

monitoring; finalization of the Baseline Ecological Risk Assessment; CERCLA enforcement 

efforts for cost avoidance and cost recovery; and community relations are planned. Significant 

AML funding needs are projected in FY 2017 as well as future years to address this very high 

priority CERCLA project. 
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Physical Safety Hazards

The majority of sites recorded in the AMSCM database contain physical safety hazards such as 

open mine shafts, adits, unstable mine facilities and pit highwalls. These physical safety 

hazards pose safety threats to humans and wildlife and are a high priority for the AML program. 

Temporary mitigation, such as fencing and signage, biological and archeological clearances, 

permanent closure, and installation of controlled access barriers are the most common 

remediation activities. 

Federal Multi-Agency Collaboration

The BLM is working with other federal agencies to better address the legacy of abandoned 

hardrock mining sites on both a national and a landscape scale. The BLM is actively working 

with the Department of Energy (DOE) and the Environmental Protection Agency (EPA) to share 

resources to address defense related abandoned uranium mines located on public lands 

administered by the BLM. The BLM is also working with the U.S. Forest Service (USFS), the 

National Park Service (NPS), and EPA to more clearly identify and prioritize the known 

inventory of AML sites on a state and nationwide basis. 

Partnerships

Partnerships with other Federal, State, local, and tribal agencies are a vital component of the 

AML program. Activities include the development of agreements with States for abandoned 

mine closures, cleanup coordination, and development of joint policies and procedures. The 

BLM also enters into assistance agreements with non-governmental organizations, for example, 

with Bat Conservation International (BCI). The BCI assists the BLM in identifying abandoned 

mines that provide valuable bat habitat and helps to preserve it with bat-friendly closures.

Other Funding Sources

In addition to the AML program funding, the BLM utilizes, in the appropriate circumstances, 

funding from the Department’s Central Hazardous Materials Fund (CHF) and the Department’s 

Natural Resource Damage Assessment (NRDA) Restoration Fund. The CHF was established 

by Congress to be used for necessary expenses incurred for response actions conducted 

pursuant to the CERCLA, as amended as well as the regulatory requirements codified in the 

National Oil and Hazardous Substances Pollution Contingency Plan (NCP). The CHF is a 

competitive process among Department Bureaus and functions as a source of no-year funding 

for CERCLA cleanup projects and as a repository for funds recovered from potentially 

responsible parties (PRP) pursuant to sections 107 or 113 of CERCLA, 42 U.S.C.§§9607, 

9613. 

 

The purpose of the NRDA process is to restore public natural resources injured or destroyed by 

releases of hazardous substances or oil spills, and to compensate the public, through the 

natural resource damage trustee, for losses of the natural resources that resulted from the 

releases or spills. The costs of the restoration are borne by the parties who are responsible for 

the release or spill. Response actions (CERCLA) and NRDA enforcement may be integrated to 

maximize efficiency in restoring the health, diversity and productivity of BLM-managed land.

Critical Factors 

Critical factors that impact the effectiveness of the AML Program include the following:

• The need to support maintenance and monitoring activities at previously remediated 

sites grows as new cleanup efforts are undertaken and completed. The BLM must 
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return to these sites to inspect the short and long term efficacy of the 

reclamation/restoration.

• The development of urban areas and related visitation has brought about growth in the 

public’s access to BLM-managed lands that were once considered remote. This 

increased ease of access by the public has resulted in an increase of exposure to the 

physical and environmental hazards associated with AML sites.

• AML restoration projects can be highly complex in environmental scope and impact. 

Environmental analyses and studies are conducted to determine the extent of 

contamination and to identify restoration and remediation strategies. Typically, a 

multiple-year, phased approach is required to complete restoration/remediation activities 

due to funding limitations and study times.

2017 Program Performance

In 2017, the AML Program anticipates completing the following elements:

• Water quality: Remediating approximately 1,700 acres to improve water quality;

• Physical Safety Hazards: Closing 900 physical safety hazards on AML;

• Inventory: Adding 5,500 new AML sites to AMSCM;

• Monitoring and maintenance: Returning to 1,000 remediated sites to check on the 

efficacy of physical safety closures and/or environmental remediation; and

• Complex Contaminated Site Cleanups–Leveraging funding with other Federal programs 

to address cleanups at large, complex sites that pose an imminent risk to the public. 
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Activity: Resource Protection and Maintenance 

Subactivity: Resource Protection and Law 

Enforcement

2015 

Actual

2016 

Enacted

2017 President's Budget Change 

from 

2016 Fixed 

Costs

Transfers Program 

Change

Requested 

Amount

Law Enforcement $000 25,325 25,495 +121 +0 +0 25,616 +121

FTE 124 124 +0 +0 124 +0

Justification of 2017 Program Changes

The 2017 budget request for the Resource Protection and Law Enforcement Program is 

$25,616,000 and 124 FTE, no change from the 2016 enacted level.

Program Overview

Program Components

The Resource Protection and Law Enforcement Program supports the Bureau’s mission through 

the enforcement of Federal laws and regulations related to the use, management, and 

development of public lands and resources. The objectives of the program are to:

• Provide a safe environment for public land users and employees;

• Deter, detect, and investigate illegal activities, and resolve or refer such matters to 

appropriate officials; and

• Ensure revenues owed to the government for authorized or unauthorized uses are paid.

Resource Protection and Law Enforcement Program resources:

• Manage the law enforcement presence at special events and high-use recreation areas 

in order to support law enforcement needs exceeding the capacity of local field offices;

• Establish interagency agreements, partnerships, and service contracts with numerous 

state and local law enforcement agencies to secure supplemental support in the form of 

dispatch services, patrols of high use recreation areas, and assistance in the eradication 

of marijuana grown on public lands; and

• Utilize science-based methods and technology to expand capabilities to identify and 

monitor locations of illegal activity.

Critical Factors

Critical factors affecting the Resource Protection and Law Enforcement Program on public lands 

include:

• Large-scale marijuana cultivation threatens public and employee safety; while the 

associated diversion of natural water sources, the use of fertilizers, herbicides, and 
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pesticides, the illegal taking of wildlife, and the dumping of waste damages the 

ecosystems being exploited for illegal cultivation activities. 

• The smuggling of humans and controlled substances on public lands near the Southwest 

Border destroys the natural and cultural resources on these public lands and threatens 

public and employee safety.

• Population increases in urban areas located near public lands have led to corresponding 

increases in off-highway vehicle use, illegal dumping of waste, theft of mineral materials 

and native plants for private landscaping, and the ignition of wildland fires.

• Emergencies and similar unexpected developments frequently require law enforcement 

responses that cannot be planned for or anticipated.

• Partner law enforcement agencies continue to request funding assistance through 

service contracts and support agreements, particularly in counties where public lands 

are heavily impacted by both legal and illegal activities.

Demands, Trends and Resources

In 2015, the BLM saw a 42 percent increase in the number of marijuana plants seized on public 

lands. This increase occurred primarily in California. Due to the scope of the marijuana 

cultivation problem on public lands and the large number of Federal, state, and local agencies 

involved in combatting the issue, it is difficult to establish a direct cause for the fluctuations seen 

in marijuana plant seizure statistics. However, several factors are believed to affect large scale 

marijuana cultivation on public lands, including:

• Increasingly effective utilization of multiagency investigation and eradication efforts 

targeting illegal activities at all levels of drug 

trafficking organizations.

• Prosecution of individuals at all levels of multistate drug trafficking organizations is 

disrupting organizational structures and 

reducing cultivation and distribution 

capabilities.

• Shifting weather patterns are altering the 

length of the growing season and the 

availability of natural water sources.

• Several states permit the lawful cultivation of 

marijuana on private lands for medicinal use. 

Quantities of this lawfully cultivated marijuana are known to be sold outside the legal 

medicinal market. This unlawful sale of legally cultivated marijuana may be altering 

levels of market supply and demand, thereby prompting fluctuations in the quantity of 

marijuana being cultivated on public lands. Similarly, an increase in the number of 

states that permit recreational use of marijuana may be creating a larger market and 

higher profit margins for marijuana cultivated at relatively low cost on public lands.

A marijuana field on public lands
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2017 Program Performance

Marijuana Cultivation on Public Lands – 

The BLM plans to continue drug 

enforcement activities to include assigning 

special agents to investigate large scale 

marijuana cultivation on a full time basis in California and on a part time basis in other states to 

combat the expansion of marijuana cultivation activities; utilizing BLM rangers to conduct high 

profile patrol to detect and deter cultivation activities, eradicate marijuana cultivation sites, and 

provide security for personnel performing cultivation site rehabilitation efforts; and working with 

the Public Lands Drug Coordination Committee, under the Office of National Drug Control 

Policy, to identify and address the environmental impacts of marijuana cultivation on public 

lands.

Southwest Borderlands – The BLM will continue to 

patrol and conduct law enforcement activities on 

public lands situated within 100 miles of the 

Southwest Border in response to the heavy 

resource impacts and public safety concerns 

associated with illegal human and drug smuggling 

activities. The BLM continues to invest heavily in its 

Reclaim Our Arizona Monuments (ROAM) 

operation. Developed in response to the severe 

impacts occurring on the Bureau’s Ironwood Forest 

and Sonoran Desert National Monuments, 

Operation ROAM combines the skills of BLM law 

enforcement officers with those of BLM resource 

specialists in order to improve public safety and 

remedy the resource damage caused by human and drug smuggling. This pairing of skill-sets 

serves to disrupt and deter smuggling operations and repair smuggling-related environmental 

damage caused by unauthorized roads and trails, large accumulations of trash, and 

concentrations of human waste.

Archaeological Resource Protection Act (ARPA) Enforcement in the Four Corners Region – The 

BLM will continue to patrol and conduct investigations in the Four Corners region of the 

Southwest to deter and detect incidents of theft and vandalism of cultural, historical, and 

paleontological resources. The BLM will prosecute suspects and provide for the proper 

curation, storage, and disposition of recovered artifacts. The BLM continues to support the 

process of repatriating hundreds of thousands of archaeological and Native American artifacts 

recovered through the “‘Cerberus Action”; a highly successful multi-year investigation that 

targeted individuals suspected of looting archaeological sites and Native American graves in 

violation of ARPA and the Native American Graves Protection and Repatriation Act. 

Off-Highway Vehicle (OHV) Recreation – The BLM will continue to dedicate law enforcement 

resources to the patrol of high-use 

OHV areas in order to protect sensitive 

resources and ensure the public is 

provided safe recreational 

opportunities on public lands. 

Marijuana Plants Seized by BLM on Public Lands

FY 2012 FY 2013 FY 2014 FY 2015 

156,014 195,417 225,291 319,511

Off-Highway Vehicle Activity on Public Lands

OHV Incidents FY 2012 FY2013 FY2014 FY2015

4,067 5,164 4,662 4,413

Personnel removing trash fields created by 

smuggling activity in the Sonoran

Desert National Monument
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National Conservation Lands – The BLM will continue to patrol and conduct law enforcement 

activities within the National Conservation Lands in order to protect nationally significant 

resources and provide the public the opportunity to safely enjoy their public lands.

Wild Horses and Burros – The BLM will continue to enforce laws and investigate violations 

related to the harassment, unlawful removal, inhumane treatment, unauthorized destruction or 

sale of wild horses and burros.

Resource Damage, Loss and Theft – The BLM will continue to emphasize patrol, enforcement, 

and investigation actions to reduce the theft of public land resources, including mineral 

materials, timber and forest products, as well as improve production accountability and reduce 

theft of oil and gas resources. The BLM will investigate wildland fires to determine the origin 

and cause, identify responsible parties, and seek civil enforcement or criminal prosecution in 

cases involving negligence or arson.

Total Number of Incidents Reported

FY 2012 FY2013 FY2014 FY2015

23,544 47,644 56,901 55,674

Theft, Vandalism, and Misuse of Resources Incidents Reported

FY 2012 FY2013 FY2014 FY2015

Cultural, Paleontological & Historical Resources 140 153 184 149

Minerals 21 16 19 8

Natural Features & Other Wildland Resources 106 177 539 500

Timber, Forest Products, & Native Plants 279 456 634 477

Wild Horses and Burros 118 246 188 60

Wildland Fire Incidents Reported on Public Lands

No. of Fire Related Incidents FY 2012 FY2013 FY2014 FY2015

1,053 1,341 1,691 1,246
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Activity: Resource Protection and Maintenance 

Subactivity: Hazardous Materials Management

2015 

Actual

2016 

Enacted

2017 President's Budget Change 

from 

Fixed 2016

Costs

Transfers Program 

Change

Requested 

Amount

Hazardous Materials 

Management

$000 15,612 15,612 +102 +0 -251 15,463 -149

FTE 85 85 +0 +0 85 +0

Notes: The Central Hazardous Materials Fund from the Department of the Interior, Office of the Secretary, is a collaborative 

source of funding to address the goals of both the Abandoned Mine Lands and the Hazardous Materials Management 

programs. The 2015 estimated funding from the Central Hazardous Materials Fund is approximately $3.5 million. 

 

More information on the Central Hazardous Materials Fund is found in the Department of the Interior, Office of the 

Secretary, Department-wide Program Budget Justifications.

Summary of 2017 Program Changes/Internal Transfers for Hazardous Materials Management: ($000) FTE

General Program Decrease -251 +0 

Total -251 +0 

Justification of 2017 Program Changes

The 2017 budget request for the Hazardous Materials Management Program is $15,463,000 

and 85 FTE, a program change of -$251,000 from the 2016 enacted level.

General Program Decrease (-$251,000) – A reduction of $251,000 in lower priority activities is 

proposed. The BLM will continue to maintain core functions in the Hazardous Materials 

Management Program by focusing on the highest priority work and implementing program 

efficiencies where possible.

Program Overview

The Hazardous Materials Management Program ensures BLM compliance with Federal and 

State environmental regulations. The program also exercises the legal authorities granted to the 

BLM to protect human health and the environment by identifying, characterizing and cleaning up 

hazardous waste sites. Additionally, the program implements Federal initiatives directed at 

improving environmental management and sustainability. Program activities include: 

• Minimizing and remediating environmental contamination on public lands;

• Reducing health and safety risks associated with environmental hazards;

• Restoring natural and cultural resources adversely impacted by oil discharges and 

hazardous substance releases;

• Correcting environmental compliance issues;

• Utilizing environmental management systems to identify, manage, and accomplish 

agency operation sustainability objectives and targets, as well as other significant 

aspects of BLM operations that impact environmental performance; 

• Reducing the generation of wastes or contaminants at the source, thereby reducing the 

level of hazards to public health or the environment; 
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• Partnering with the BLM Law Enforcement Program to remove illegally dumped material 

such as trash, hazardous materials, and abandoned vehicles.

The Hazardous Materials Management Program complements the Abandoned Mine Lands 

(AML) Program. While the AML Program focuses on physical and environmental hazards 

associated specifically with hardrock mines abandoned prior to 1981, the Hazardous Materials 

Management Program has a broader focus of environmental hazards on all public lands

associated with all uses. Additionally, while the AML Program addresses both physical and 

environmental safety hazards at AML sites, the Hazardous Materials Management Program 

may support addressing environmental hazards at high-priority AML sites as well. 

Critical Factors 

Critical factors that impact the effectiveness of the program include:

• The need to execute maintenance and monitoring activities at previously remediated 

sites increases overall program costs as new cleanup efforts are undertaken, completed

and move into the operation and maintenance phase (O&M); 

• There are currently 189 sites on the DOI Environmental Disposal Liability list which 

require some degree of remediation;

• Urban growth and development is resulting in increased public access to BLM-managed 

lands. This trend has not only increased the number of illegal dumps on public lands, but 

has also heightened the need to address contaminated sites rapidly in order to reduce 

public health and safety hazards. Increased real-estate related actions and property 

transfer activities also require environmental site assessments and a cadre of trained 

and certified BLM environmental professionals; 

• Illegal immigration and smuggling activities along the Arizona, New Mexico and 

California borders with Mexico cause damage to public lands, including national 

monuments and designated wilderness areas. Such damage includes unauthorized 

roads and trails; severed fences; damaged vegetation; contaminated water resources; 

and significant accumulations of solid and hazardous waste. 

Means and Strategies

The BLM uses the following strategies to operate the program:

• Developing, implementing, and maintaining emergency response contingency plans (i.e., 

oil and chemical spill);

• The BLM will seek efficiencies to environmental risk management to allow for maximum 

protection, health and safety of public land users and environmentally sensitive 

resources.

• Leveraging funding with partners to respond to community needs and concerns;

• Assessing and maintaining BLM facilities to ensure compliance with environmental laws 

and regulations;

• Searching for parties responsible for contamination on public lands in order to seek their 

participation in remediating the site and/or recover costs;

• Partnering with other environmental protection-related agencies such as the U.S. Fish 

and Wildlife Service, the Environmental Protection Agency, the U.S. Army Corps of 

Engineers, and the U.S. Forest Service, as well as with other BLM programs, including 

the AML, Law Enforcement, and Recreation Programs; 
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• Partnering with State, law enforcement, and volunteer groups to deter and mitigate 

damage to public lands including along the Southwest border related to illegal 

immigration and smuggling activities;

• Populate and use the Abandoned Mine Site and Cleanup Module database to track and 

prioritize sites based on the level of risk to human health and the environment; 

• Address the removal and remediation of larger, high-risk hazardous material sites with 

hazardous substances (solid waste, hazardous waste and hazardous substances) with 

additional funds when available. 

Other Funding Sources

In addition to program funding, the BLM utilizes, in the appropriate circumstances, funding from 

the Department’s Natural Resource Damage Assessment Restoration Fund (NRDAR), and the 

Department’s Central Hazardous Materials Fund (CHF).

The BLM uses the NRDAR Fund to identify damage to natural resources; work with the public 

and the polluters to plan restoration efforts; seek payment from the polluters for resource 

restoration costs; and restore or replace resources to pre-contamination conditions. Project 

scoping and start-up funds may come from the Department. Assessment funds are provided 

through the Department or negotiated with polluters. Restoration funds come from settlements 

with polluters, either through negotiations or legal action. Funds from these settlements are then 

used to restore the damaged resources at no expense to the taxpayer. Settlements often 

include the recovery of costs incurred in assessing the damages. 

The CHF includes appropriated and recovered funds, and supports response actions, remedial 

investigations, feasibility studies, and cleanup at sites contaminated by hazardous substances. 

These sites are prioritized based on human health and ecological risk, regulatory factors, and 

the level of Potentially Responsible Party involvement. Proposals are reviewed and prioritized 

first by BLM State Offices through a yearly nomination process, and then by Departmental 

representatives. The BLM currently manages 26 CHF sites. In 2015, the CHF plans to allocate 

$3.4 million for BLM sites. 

2017 Program Performance

The program will continue to perform the following activities in fiscal year 2017: 

• Complex Contaminated Site Cleanups – Leverage funding with other Federal programs 

to address cleanups at hazardous waste sites that pose imminent risk to the public;

• Environmental Compliance – Support, with the Engineering and Safety Programs, the 

performance of Compliance Assessment – Safety, Health, and the Environment 

(CASHE) audits. In 2017, CASHE audits will be performed at thirty-one organizational 

units; 

• Illegal Dumping Prevention - Continue prevention efforts by targeting cleanups, 

outreach, public participation and monitoring to promote safety and mitigate 

environmental damage;

• Emergency Response - Respond to and clean up oil spills and hazardous materials 

releases where they occur; 

• Munitions and Explosives of Concern - Continue collaboration with other Department of 

the Interior Bureaus, as well as the Department of Defense, in the development of a 

database that displays areas of munitions and explosives of concern, to ensure visitor 
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and employee safety and to ensure the cleanup of military training sites including 

Formally Used Defense Sites. The BLM is currently working with the Department to 

finalize the geo-spatial tools needed to augment the relational database. The program 

will also support the Lands, Realty, and Cadastral Survey Division in documentation of 

military sites in LR2000 and Case Files;

• Special Cleanup - Remove or remediate specific hazardous materials sites on public 

lands where funds are available. 

• Environmental Management System - Continue implementation of the EMS in all States 

and Centers. Provide for 3rd party audits to ensure compliance with Department 

standards. The Washington Office has implemented an EMS to improve the Bureau’s 

sustainability performance as tracked on the Office of Management and Budget 

scorecard;

• Sustainability - Continue participation in the Department Technical Working Group in 

order to meet Department-wide sustainability goals. Also continue participation in the 

Bureau-wide Technical Working Group to complete the annual Green House Gas (GHG) 

Inventory. In addition, develop operational controls to enhance environmental 

performance, including reducing GHG emissions, energy use, and potable water use. 

Support State BLM projects initiated to meet sustainability targets set for their State 

operations; and

• Southwest Border Cleanup – Continue to leverage funds and resources with partners to 

conduct remediation and restoration activities along the U.S. Southwest border.
Transportation and 

Facilities Maintenance

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Activity: Transportation and Facilities 

Maintenance

 

2015 

Actual

2016 

Enacted

2017 President's Budget Change 

from 

 2016

Fixed 

Costs Transfers Program Change

Requested 

Amount

Annual Maint. & Ops $000 38,637 38,942 +183 +0 +0 39,125 +183 

FTE 243 243 +0 +0 243 +0 

Def. Maint. & Cap. 

Improvements

$000 26,995 31,387 +88 +0 -2,274 29,201 -2,186 

FTE 49 49 +0 +0 49 +0 

Total, Transportation & 

Facilities

$000 65,632 70,329 +271 +0 -2,274 68,326 -2,003 

FTE 292 292 +0 +0 292 +0 

Justification of 2017 Program Changes

The 2017 budget request for the Transportation and Facilities Maintenance activity is 

$68,326,000 and 292 FTE, a program decrease of -$2,274,000 and 0 FTE below the 2016 

enacted level.

Activity Description

The goals of the Transportation and Facilities Maintenance Programs are to protect employee 

and visitor safety, resource values, and public investments, as well as to provide facilities 

management and public lands stewardship. To accomplish this, the BLM focuses on:

• Operating clean, safe, and fully functional facilities at recreation sites;

• Performing annual maintenance on all facilities;

• Conducting comprehensive assessments on the physical condition and regulatory 

compliance for all facilities;

• Implementing the Five-Year Deferred Maintenance and Capital Improvement Plans;

• Improving capabilities to manage facilities maintenance through development of an 

automated facility asset management system; and

• Implementing property and asset management planning to accurately inventory and 

describe assets, establish appropriate levels of investment, and adopt public or 

commercial benchmarks and best practices.

Within the Transportation and Facilities Maintenance Activity, two subactivities contribute to the 

stewardship of the BLM facilities:

• Deferred Maintenance and Capital Improvements

• Annual Maintenance and Operational Costs

 

Critical Factors

In the contiguous United States, two-thirds of BLM-managed lands are within a one-hour drive 

of urban areas. As population grows, public use places increasing demands on facilities and 

resources. Additionally, BLM-managed roads now experience much higher usage rates than 

when those roads were built, increasing the cost of maintaining them in a safe condition.
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Means and Strategies

In conducting program work, the BLM adheres to the requirements of Executive Order 13327, 

"Federal Real Property Asset Management." This includes:

• Using public and commercial benchmarks and best practices;

• Employing life-cycle cost-benefit analysis;

• Providing appropriate levels of investment;

• Accurately inventorying and describing all assets; and

• Providing safe, secure, and productive workplaces. 

The BLM uses two industry standard performance measures, the Asset Priority Index and the 

Facilities Condition Index (FCI), for identifying the condition of constructed assets and targeting 

assets that can be disposed of or require additional annual maintenance or supplemental 

funding from deferred maintenance. These measures help identify the condition of constructed 

assets and determine whether the asset requires additional annual maintenance, funding from 

deferred maintenance, or if the asset should be disposed. Additional criteria used to prioritize 

projects are the Scope of Benefits, Investment Strategy, and Consequences of Failure to Act. 

The 4 criteria put emphasis on projects that:

• Repair the highest priority projects that are in the poorest condition; 

• Are clearly aligned with DOI, and bureau initiatives and strategic goals; 

• Have a positive return on investment that leverages outside interest and/or reduces 

operation and maintenance liabilities;

• Have unacceptable risk levels if the project is not completed.

Assessment Process

The BLM conducts baseline condition assessments of recreation sites and administrative sites, 

including on-site buildings and structures; Maintenance Level 3, 4, and 5 roads, bridges, dams, 

and major trails. The condition assessment process identifies deferred maintenance needs 

and determines the current replacement value of constructed assets. Knowing the estimated 

cost of deferred maintenance and the replacement value of recreation and administrative sites 

allows the BLM to use the industry standard FCI as a method of measuring the condition and 

change of condition of facilities. 

The FCI is the ratio of accumulated deferred maintenance to the current replacement value 

(FCI = Deferred Maintenance/Current Replacement Value). It is an indicator of the overall 

condition of capital assets. The general guideline is that FCI should be below 0.15 for a facility 

to be considered in acceptable condition. The Facility Asset Management System documents 

the FCI, and it is a major tool used for management decisions on the disposal of assets.
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Activity: Transportation and Facilities 

Maintenance

Subactivity: Deferred Maintenance and Capital 

Improvements

2015 

Actual

2016 

Enacted

2017 President's Budget Change 

from 

2016 Fixed 

Costs

Transfers Program 

Change

Requested 

Amount

Def. Maint. & Cap. 

Improvements

$000 26,995 31,387 +88 +0 -2,274 29,201 -2,186

FTE 49 49 +0 +0 49 +0

Summary of 2017 Program Changes/Internal Transfers for Deferred Maintenance & Capital 

Improvements: 

($000) FTE

General Program Decrease -4,049 +0

DOI Southwest Border Radio Initiative +1,775 +0 

Total -2,274 +0 

Justification of 2017 Program Changes

The 2017 budget request for the Deferred Maintenance and Capital Improvements Program is 

$29,201,000 and 47 FTE, a program change of -$2.274 million from the 2016 enacted level.

General Program Decrease (-$4,049,000/+0 FTE) – The BLM will ensure that key projects 

necessary to ensure employee and visitor safety remain targeted for completion at the proposed 

funding level. Deferred Maintenance projects are included in the 5-Year Deferred Maintenance 

and Capital Improvement Plan, which focuses on projects that stabilize, restore, or replace 

constructed assets that are mission critical or mission dependent and are in poor condition. The 

Deferred Maintenance program consists of repairs, renovations, replacements, and other 

maintenance of buildings, recreation sites, administrative sites, roads, and other constructed 

assets. Additional related efforts in the Deferred Maintenance program include professional 

engineering services, program oversight, database management, management of 

environmental and structural risks of facilities, and dam and bridge inspections. 

The BLM will continue to make progress on many of its Deferred Maintenance projects, with a 

focus on those with human health and safety risk, and will look to the support received from the 

Department of Transportation’s Federal Roads program to ensure that critical infrastructure 

improvements are achieved along with the physical assets that are targeted for repair. 

DOI Southwest Border Radio Initiative (+$1,775,000/+0 FTE) – The 2017 budget request 

includes an increase of $1.775 million to implement the Department’s Southwest Border Radio 

Demonstration Project. The Southwest Border Radio Demonstration Project was developed in 

cooperation with the BLM, the National Park Service, the U.S. Fish and Wildlife Service, and the 

U.S. Forest Service (USFS) in the border region of New Mexico and Arizona. The Inspector 

General identified material deficiencies in management of the land mobile radio program and 

infrastructure. The DOI Bureaus have been working to address these issues and formed the 
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Chapter VII – Management of Lands & Resources Page VII-170

DOI Radio Executive Steering Committee. An assessment of land mobile radio infrastructure 

and operations is underway and these funds would be used to implement priority actions. 

Project work will lead to integration of infrastructure, eliminate duplicative or obsolete 

infrastructure, and result in future cost avoidance for maintenance. Safety and effectiveness will 

also be enhanced with upgraded replacement communication hardware. Upgrading facilities 

and removal of duplicative or obsolete sites will be accomplished in coordination with DOI 

Bureaus and the USFS.

Funds will be administered by the BLM Arizona State Office. A Southwest Border Regional 

Demonstration Project team (comprised of regional representatives from each Bureau and a 

USFS representative) has been formed which will recommend priority actions to the 

headquarters-based Radio Executive Steering Committee (comprised of executive level 

representatives from each Bureau). The Radio Executive Steering Committee will review and 

approve the proposals, in coordination with the Deputy Assistant Secretary for Public Safety, 

Resource Protection, and Emergency Services. Both bodies have governing charters 

developed to implement the Department’s demonstration project.

Program Overview

Program Components

The program:

• Improves the overall condition of BLM facilities;

• Renews aging infrastructure;

• Provides professional engineering services;

• Manages environmental and structural risks of facilities;

• Manages corrective actions identified through Compliance Assessment Safety, Health 

and the Environment Audits;

• Manages corrective actions identified for accessibility provisions;

• Manages corrective actions for improvement of energy savings; and

• Constructs facilities for visitors and employees that comply with Federal requirements. 

The program prioritizes health and safety work and mission critical assets, followed by resource 

protection, energy and sustainability, and code compliance. This includes replacing and 

reconstructing existing roads, trails, bridges, recreation and administrative facilities, and 

buildings.

Energy conservation and sustainability are primary considerations for all new projects. Projects 

incorporate the Federal Five Guiding Principles and follow the BLM’s Sustainable Buildings 

Implementation Plan to reduce operational costs, improve energy efficiency, and conserve 

water consistent with Executive Order 13693. Funding is specifically targeted to assess a 

building’s sustainability performance and to make improvements on the identified deficiencies. 

The BLM priority is to make every building as sustainable and energy efficient as possible. The 

planning of all the BLM’s Deferred Maintenance projects includes consideration of the possible 

effects climate change may have on the future operations of its facilities. The sites are assessed 

to determine if design or site adjustments need to be incorporated to account for possible 

climate change effects. 
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The BLM Asset Management Plan prioritizes funding to the highest priority assets and plans the 

disposal of unneeded assets to attain a portfolio of constructed assets in good physical and 

functional condition, aligned with current and projected requirements.

In an effort to control costs and save future operational maintenance funding, every project is 

assessed to determine if space can be economized and unneeded facilities can be disposed. 

The BLM is targeting three percent of its total budget to dispose of unneeded assets and to 

align to a more efficient portfolio. Every new building project considers alternatives to 

consolidate current operations and space to gain the best efficiencies and monetary savings. 

The BLM categorizes deferred maintenance needs identified through condition assessments 

and other inspections into specific projects which are proposed in the Five-Year Deferred 

Maintenance and Capital Improvement Plan. To manage these projects, the BLM observes the 

following guidelines:

• For projects with estimated costs of $10 million or more, the program schedules one 

year for project planning, one year for design, and no more than two years for 

construction.

• For projects with estimated costs between $2 million and $10 million, the program 

schedules one year for project planning and design, and no more than two years for 

construction.

• For projects with estimated costs below $2 million, the program schedules one year for 

planning and design and one year for construction.

The Five Year Deferred Maintenance and Capital Improvement Plan is updated annually using 

the Department of Interior’s planning guidance through the budget document Attachment G. 

Attachment G uses 4 categories in assessing a projects funding priority. Ultimately, Attachment 

G prioritizes a project using its condition and mission priority, those highest priority buildings in 

the worst condition are the highest priority for funding. In recent years, the BLM expanded 

planning for each new project to include the impacts of expected life cycle costs on BLM’s total 

budget. Project submissions include the estimated operation expenses, energy cost saving and 

sustainability actions, and the improvement in facility condition as a result of the project.

2017 Program Performance

In 2017, the planned accomplishments in the Deferred Maintenance and Capital Improvements 

Program include 65 deferred maintenance projects and six disposal projects. The deferred 

maintenance projects include corrective actions, sustainability improvements and accessibility 

projects. The planned projects in 2017 will continue to target mission critical assets in dire need 

of repair and improve the condition of a number of bridges, recreation sites, and administrative 

sites. 
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Activity: Transportation and Facilities 

Maintenance

Subactivity: Annual Maintenance and 

Operational Costs

2015 

Actual

2016 

Enacted

2017 President's Budget Change 

from 

Fixed 2016

Costs

Transfers Program 

Change

Requested 

Amount

Annual Maint. & Ops $000 38,637 38,942 +183 +0 +0 39,125 +183

FTE 243 243 +0 +0 243 +0

Justification of 2017 Program Changes

The 2017 budget request for the Annual Maintenance and Operational Costs Program is 

$39,125,000 and 243 FTE, no program change from the 2016 enacted level.

Program Overview

Program Components

The Annual Maintenance Program provides for visitor and employee safety and ensures proper 

facilities management. Funding provides for emergency, preventive, and cyclical maintenance, 

and baseline facility condition assessments. The program manages operations, facility services 

and landscape upkeep in order to maintain BLM facilities in good condition and minimize new 

deferred maintenance needs.

2017 Program Performance

Currently, the BLM reports 4,751 structures and 772 buildings in the Federal Real Property 

Profile. These structures consist of dams, bridges, electrical and communication systems, trails, 

and roads. In 2017, this appropriation would allow the BLM to maintain 89 to 90 percent of 

facilities at an acceptable level.
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National Conservation 

Lands

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Activity: National Conservation Lands

Subactivity: National Monuments & National 

Conservation Areas

2015 

Actual

2016 

Enacted

2017 President's Budget Change 

from 

2016 Fixed 

Costs

Transfers Program 

Change

Requested 

Amount

NMs & NCAs $000 31,819 36,819 +175 +0 +13,651 50,645 +13,826

FTE 240 250 +0 +30 280 +30

 

Summary of 2017 Program Changes/Internal Transfers for NMs & NCAs: ($000) FTE

New Designations and Enhanced Operations +13,651 +30 

Total +13,651 +30 

Justification of 2017 Program Changes

The 2017 budget request for the National Monuments & National Conservation Areas Program 

is $50,645,000 and 280 FTE, a program change of +$13,651,000 and +30 FTE from the 2016

enacted level.

New Designations and Enhanced 

Operations: (+$13,651,000/+30 FTE) – 

The National Conservation Lands comprise 

30 million acres of the most ecologically 

rich and culturally significant lands 

managed by the Bureau of Land 

Management. Our Nation’s newest 

conservation systems, the National 

Conservation Lands, are a cherished part 

of the BLM’s multiple use and sustained 

yield mission. They are the mountains, 

valleys, islands, and forests where 

Americans hunt and fish, hike, paddle, and ski. 

American history is preserved within the National Conservation Lands through their unique 

cultural, ecological and scientific values. These special places are engines for economic 

growth, attracting visitors and new residents to some of the fastest growing corners of the West. 

The proposed increase represents an investment in the communities that benefit from these 

areas and an opportunity to grow the outdoor economy of the West. 

The 2017 budget request includes an increase of $13.7 million to support critical resource 

protection and maintenance work on the National Conservation Lands. This investment 

addresses some of the system’s most basic infrastructure and maintenance needs, including

signs and kiosks, campground benches, larger trash dumpsters, bathroom facilities, and new 

access-point facilities needed to ensure the public health and safety of visitor centers. Funding 

for the visitor centers will accommodate public demand for increased hours of operation, 

program offerings and greater accessibility to National Conservation Lands. Additional priority 

Grand Staircase Escalante NM, Utah
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efforts include eradicating invasive plants that jeopardize native species and contribute to 

unnatural and increasingly difficult-to-manage fire regimes; protecting equipment investments 

from weather; conducting inventories of the world-class and often endemic resources, objects, 

and values for which each unit was designated; and implementing the provisions of the 

resource, science and travel management plans that the agency develops in cooperation with 

States, Tribes, local governments, partners and the public. 

The increase also supports critical staff positions, including dedicated unit managers, essential 

resources specialists, outdoor recreation planners, partnership/volunteer/youth coordinators, 

law enforcement, and seasonal park and river rangers needed to staff visitor centers and 

manage the multiple uses and unique conservation values of the units. Funds will allow the 

program to support the Secretary’s youth initiative and implement priority restoration work. 

Program Overview

This program encompasses the BLM’s 23 NMs, 16 NCAs, three Outstanding Natural Areas, one 

Cooperative Management and Protection Area, and one Forest Reserve. These units of the 

National Conservation Lands are managed to conserve, protect, restore, and enhance 

America’s national and cultural heritage, while providing outstanding recreational opportunities 

and public access for hunting, fishing, and other uses. National Conservation Lands represent 

about 12.5% of the BLM-managed public lands, but attract over 25% of our visitors.

These special places span the breadth of 

BLM-managed public lands and include such 

diverse lands as the 1.2 million-acre Steese

NCA, which protects two of Alaska’s most 

important caribou herds; King Range National 

Conservation Area, America’s first NCA, 

designated in 1970 along California’s Lost 

Coast; Jupiter Inlet Lighthouse Outstanding 

Natural Area on the Atlantic coast of Florida; 

and Colorado’s Canyons of the Ancients NM 

which protects the greatest known density of 

First American archeological sites in the 

United States, including cliff dwellings, 

villages, kivas, shrines, agricultural fields, and rock art, some of which are over 10,000 years 

old. Traditional activities such as hunting, rock hounding, managed off-highway vehicle use, 

livestock grazing and Native American cultural and religious uses continue throughout many of 

these landscapes. 

Connecting People to the Land

More than 64 million people live within 100 miles of BLM-managed lands in the West. The 

elevated profile of National Monuments and National Conservation Areas attract regional, 

national, and international visitors. More people recreate on public lands than ever, and this 

growing level of visitation presents the BLM with the challenge of providing more responsive

recreation management, higher levels of visitor services, and additional law enforcement to 

ensure visitor safety. 

Grand Gulch Wilderness Study Area, Utah
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Engaging the Next Generation

The Department of the Interior is engaging the next generation of public land stewards through 

the Secretary’s Youth Initiative, encouraging young people to Play, Learn, Serve, and Work on 

their public lands. 

For example, at the Grand Staircase-Escalante NM in southern Utah, a native plant restoration 

project is an innovative and highly regarded partnership that effectively connects youth to the 

great outdoors through habitat restoration. The BLM worked with the monument’s friends group 

to engage over 100 students from the nearby Kanab High School in seed collection and 

propagation, invasive plant species removal, and planting the drought-tolerant native plant 

seedlings they had grown to restore wildlife habitat. This partnership offers hands-on 

experiences in the natural sciences to students. The BLM engages in over 50 similar 

partnerships that work to support the NMs and NCAs.

Advancing Scientific Knowledge

The NMs and NCAs serve as long-term reserves within an ecological landscape for vulnerable 

native plant and animal populations. Scientific data on the conditions, trends, and relationships 

of these resources are critical for managers when determining how to successfully adapt 

management to address land health stressors, such as climate change, changing fire regimes, 

the spread of invasive and exotic species, and human population growth. 

Creating Economic Opportunities

Communities surrounding the units of the National Conservation Lands derive significant 

economic benefits through tourism. The BLM, in cooperation with local communities, 

traditionally supports the creation of recreation and visitor facilities in nearby gateway 

communities rather than building extensive facilities within the National Conservation Lands. 

For example, two independent studies conducted by BBC Research & Consulting in 2012 found 

that local economic impacts associated with designation of national monuments in New Mexico 

would be expected to increase: 

• from $10.2 million to as high as $17.6 

million, which represents an increase of 

approximately $7.4 million in regional 

economic activity in and around Las Cruces, 

New Mexico due to designation of Organ 

Mountains-Desert Peaks National Monument.

• by about 279 jobs, from about 312 jobs 

per year in Rio Arriba and Taos Counties, 

New Mexico, to about 591, due to designation 

of Rio Grande del Norte National Monument.

Organ Mountains-Desert Peaks NM, New Mexico
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National Monuments & National Conservation Areas 

Funding By BLM State Office

BLM State Office 2015 

Actual

2016 

Enacted

2017 

Request

Alaska 443 633 1,213

Arizona 6,328 7,063 9,463

California 4,656 4,656 6,516

Colorado 3,157 3,627 4,428

Eastern States 150 225 725

Idaho 2,346 2,623 3,443

Montana/Dakotas 1,528 1,655 2,055

Nevada 1,184 1,644 3,594

New Mexico 1,039 2,484 4,284

Oregon/Washington 1,377 1,782 2,732

Utah 5,725 6,460 8,760

Subtotal, State Allocations 27,933 33,562 47,213

National Level Program Support† 1,529 3,257 3,257

Fixed Cost Changes (to be allocated) 175

Total 31,819 36,819 50,645

†Includes funds supporting Washington Office, National Operations Center, National Training Center, 

and Bureau-Wide Administrative Support

NOTE: The 2017 State Office Request is an estimate shown for illustrative purposes. Actual State Office 

requests are subject to change based on State Office priority project submissions and conditions on the 

ground requiring adjustment during Planning Target Allocations.

2017 Program Performance

In 2017, the program will expand on its successes and focus on managing NMs and NCAs as 

an integral part of the BLM’s multiple-use and sustained-yield mission, including by showcasing 

the accomplishments of BLM programs in conservation, cultural preservation, and recreation. 

Key accomplishments planned in 2016 include:

● Addressing critical facilities and equipment maintenance needs to ensure public 

safety and enjoyment, and the protection of resources.

● Providing resource protection and public safety, especially in challenging high use 

areas and near international borders.

● Engaging communities to provide sustainable recreational experiences to local 

residents and visitors, which benefits families and local economies.

● Fostering and supporting partnerships, including with Friends groups, to conserve, 

protect, restore, and provide for responsible access and use of these special places.
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● Expanding volunteer opportunities, especially to veterans and youth, so that more 

volunteers can have enriching experiences and make important contributions.

● Providing highly regarded education and interpretation to the public.

● Incorporating the newest additions to the NMs and NCAs program into the National 

Conservation Lands system by hiring critical managers and staff and assigning 

organizational codes to each unit for more transparent, efficient, productive use of 

funding.

● Implementing completed land use plans developed in cooperation with States, 

Tribes, local governments, partners, and the public and developing step-down plans 

to provide detailed standards for managing specific uses through cooperative and 

public processes.

● Assessing, inventorying, and monitoring the unique resources, objects, and values 

for which NMs and NCAs were designated, including rare, world-class, irreplaceable 

cultural and heritage resources, to ensure appropriate stewardship and protection.

● Developing science plans for NMs and NCAs to provide a solid foundation for 

decision-making and address major landscape-level challenges, from the effects of 

climate change to science-based mitigation.

● Eradicating and controlling invasive plants, conducting vegetation treatments, 

reclaiming surface disturbance, restoring healthy ecosystem function, and promoting 

habitat connectivity and landscape-scale ecological sustainability.

● Engaging and employing youth in all aspects of Play, Learn, Serve, and Work.
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Challenge Cost Share

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Activity: Challenge Cost Share

2015 

Actual

2016 

Enacted

2017 President's Budget Change 

from 

2016 Fixed 

Costs

Transfers Program 

Change

Requested 

Amount

Challenge Cost Share $000 2,413 2,413 +0 +0 -2,413 0 -2,413

FTE 5 5 +0 -5 0 -5

Summary of 2017 Program Changes/Internal Transfers for Challenge Cost Share: ($000) FTE

Program Elimination -2,413 -5 

Total -2,413 -5 

Justification of 2017 Program Changes

The 2017 budget request for the Challenge Cost Share Program is $0 and 0 FTE, a program 

change of -$2,413,000 and -5 FTE from the 2016 enacted level, which eliminates the program.

Program Elimination (-$2,413,000/-5 FTE) – The 2017 budget request eliminates funding for 

the Challenge Cost Share program to focus on other higher-priority programs and initiatives.

Program Overview

Program Components

The Challenge Cost Share (CCS) Program allows the BLM to partner with local organizations to 

conduct on-the-ground habitat, recreation and cultural resource work. The BLM leverages CCS 

funds with partners’ monies or other in-kind contributions, at a minimum 1:1 rate. When 

appropriate, CCS funds are focused in high priority areas and aligned with other BLM funding. 

Some very successful projects have recently combined upwards of $6.00 in partner 

contributions for every $1.00 of CCS funds. 

BLM partners represent a broad spectrum of organizations that work to conserve public lands, 

enrich the public’s outdoor experience, and invite rural and urban residents to explore America’s 

Great Outdoors. These organizations care about the health of local communities, recreation 

and tourism, cultural heritage, forestry, oil and gas drilling, minerals and mining, livestock 

grazing, scientific research, wildlife, interpretation and environmental education. BLM partners 

include: 

• Federal, State and municipal agencies;

• Recreation and social groups; 

• Non-profit organizations;

• School districts, colleges, and universities;

• Special interest groups;

• National advocacy groups; 

• Industry, private corporations and local businesses; and

• The Girl Scouts of the USA and the Boy Scouts of America.
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Critical Factors

Partnerships, through programs such as CCS, are vital to the Bureau’s success. The BLM’s 

commitment to and involvement with local communities is the key to reach stakeholders and 

youth. In turn, these successful relationships are an effective way to complete the following 

strategic work: 

• Survey, monitor and inventory resources;

• Restore public land health;

• Support threatened and endangered species management;

• Enhance recreational experiences;

• Manage off-highway-vehicle use;

• Provide visitor services and facilities; 

• Conduct public outreach and education projects; 

• Support emerging partnership development; and

• Increase the capacity of partners to secure more resources and accomplish more onthe-ground work.

Means and Strategies

Individual CCS projects are prioritized and selected at the local and State level by an 

interdisciplinary team of BLM State and field office personnel. That prioritized list is then 

forwarded to the National CCS Team. The National CCS Team evaluates the merit of projects 

and approves them, in coordination with BLM State office program leads. Project selection 

criteria include the project’s ability to:

• Focus funding in priority areas such as units of the National Conservation Lands and 

Healthy Landscape focal areas;

• Provide multiple program benefits;

• Restore or sustain BLM land health by accomplishing on-the-ground work that focuses 

on important habitats;

• Protect cultural and heritage resources and meet public demand for diverse recreational 

opportunities; and

• Sustain multiple valued and beneficial partnerships.

2017 Program Performance

In 2017, the program will be eliminated.
Workforce and 

Organizational Support

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Activity: Workforce and Organizational Support

2015 

Actual

2016 

Enacted

2017 President's Budget Change 

from 

2016

Fixed 

Costs Transfers Program Change

Requested 

Amount

Administrative Support $000 47,127 50,942 +197 +0 +0 51,139 +197 

FTE 284 284 +0 +0 284 +0 

Bureauwide Fixed Costs $000 91,010 93,645 -996 +0 +0 92,649 -996 

FTE 0 0 +0 +0 0 +0

IT Management $000 25,696 25,958 +119 +0 +0 26,077 +119 

FTE 109 109 +0 +0 109 +0 

Total, Workforce & 

Organizational Support

$000 163,833 170,545 -680 +0 +0 169,865 -680 

FTE 393 393 +0 +0 393 +0 

Justification of 2017 Program Changes

The 2017 budget request for the Land Resources activity is $169,865,000 and 393 FTE, no 

program change from the 2016 enacted level.

Activity Description

Workforce and Organizational Support funds services related to general-use automated 

systems and specified business practices not directly tied to a specific program output, such as 

human resources management, equal employment opportunity, financial management, property 

and acquisition management, and information technology management. 

Estimated Workforce and Organizational Support Costs – Section 403 of Division F of the 

2016 Consolidated Appropriations Act (P.L. 114-113) requires that the “amount and basis of 

estimated overhead charges, deductions, reserves or holdbacks, including working capital fund 

and cost pool charges, from programs, projects, activities, and subactivities to support 

government-wide, departmental, agency, or bureau administrative functions or headquarters, 

regional, or central operations” be presented in annual budget justifications and subject to 

approval by the Committees on Appropriations of the House of Representatives and the Senate. 
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The BLM funds the costs described in Section 403 through a combination of direct 

appropriations in this activity (Workforce and Organizational Support) and program 

assessments. For 2017, the BLM estimates these requirements will be approximately $328.3 

million, a $3.1 million increase from the estimate for 2016, as shown in the table above.

Direct Appropriations – In 2017, the BLM requests $169.9 in direct appropriations for activities 

described in Section 403 in three subactivities: Administrative Support, Bureauwide Fixed Costs 

and Information Technology Management. This provides approximately 52 percent of the 

funding necessary to maintain these functions.

Program Assessments – In addition to direct appropriations, and in order to provide the level of 

funding needed to support operations, the BLM assesses its programs at both the national and 

State-office levels. These assessments provide about 48 percent of the BLM’s total Section 403 

costs. The estimated program assessments in 2017 are $158.4 million. These program 

assessments are conducted with the oversight and administrative management of the BLM 

Director, Executive Leadership Team, and Information Technology Investment Board. 

• National Assessments pay for administrative support, Bureauwide program activities, 

and information technology programs, many of which are mandated and/or fixed costs 

assessed by the Department through the DOI Working Capital Fund. These initiatives 

benefit all programs or all employees, and cannot be identified as benefiting any one 

program. National program assessments are prorated to program areas based upon 

funding levels and include approximately $1.0 million for the Bureau’s Priority Fund, 

which is used to assist field offices and programs with high-priority, unplanned or 

unfunded needs which arise during the fiscal year.

• State (Regional) Assessments pay 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 are prorated to program areas based upon 

funding levels, historical costs and FTE usage.

Requeste

d Amount

Administrative Support 47,127 50,942 51,139 +197

Bureauwide Fixed Costs 91,010 93,645 92,649 -996

IT Management 25,696 25,958 26,077 +119

Subtotal, Direct Appropriations 163,833 170,545 169,865 -680

National Assessments 38,866 38,371 40,431 +2,060

State/Regional Assessments 114,549 116,267 118,011 +1,744

Subtotal, Assessments 153,415 154,638 158,442 +3,804

Total, Administrative Costs (Sec. 403) 317,248 325,183 328,307 +3,124

†Shown as estimated amounts for fiscal years 2016 and 2017

Administrative Costs (Section 403)†

$000 2015 

Actual

2016 

Enacted

Change 

from 2016
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DOI Working Capital Fund – The Department of the Interior (DOI) manages a Departmental 

Working Capital Fund (WCF) to provide services to the BLM and other DOI bureaus and offices. 

The BLM pays for these services with a combination of direct appropriations and program 

assessments. Program assessments are typically used for services that benefit the entire 

organization and support the DOI Strategic Plan, BLM focus areas, and DOI requirements. 

Many of these services are standard and reoccur on an annual basis, but some are fee-forservice based. The DOI and BLM have reimbursable service agreements for these services. 

The detailed tables that follow show the BLM’s portion of Departmental WCF fees for services, 

both centrally billed and direct billed, for 2015 through 2017.
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Activity: Workforce and Organizational Support

Subactivity: Administrative Support

2015 

Actual

2016 

Enacted

2017 President's Budget Change 

from 

Fixed 2016

Costs

Transfers Program 

Change

Requested 

Amount

Administrative Support $000 47,127 50,942 +197 +0 +0 51,139 +197

FTE 284 284 +0 +0 +284 +0

Justification of 2017 Program Changes

The 2017 budget request for the Administrative Support Program is $51,139,000 and 284 FTE, 

no program change from the 2016 enacted level.

Program Overview

The Administrative Support Program funds the following functions:

• Executive and Management Decisions

• Legislative, Public and Regulatory Affairs and Correspondence

• Budget Formulation and Execution

• Financial Management

• Property and Acquisition Management

• Management Systems

• Human Resources

• Program and Management Evaluations

• Service First

• Equal Employment Opportunity

• Privacy

• Safety

Means and Strategies

The Administrative Support Program funds services related to management and administrative 

support that cannot be directly tied to a specific program output. The successful management 

of these services is vital to the effective use of human and capital resources within the BLM. 

The Administrative Support Program uses a combination of business process engineering and 

workforce planning strategies as the means to improve and accomplish customer service and 

effectiveness across the BLM. Each year, the BLM conducts management and program 

evaluations to identify and acknowledge best practices, procedures and processes. The BLM 

also measures the satisfaction of external customers, partners, stakeholders, and employees to 

adhere to the requirements of Executive Order 12862 and the Government Performance and 

Results Act, and regularly evaluates performance measurements and analysis to ensure these 

measurements are in alignment with DOI’s strategic plan.
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Other Funding Sources

Many of the programs funded by the Administrative Support Program contribute to multiple BLM 

activities (i.e., Equal Employment Opportunity and Service First) and are also financially 

supported by many Department and Bureau-wide subactivities that benefit from this work.

2017 Program Performance

In 2017, the BLM will emphasize and assure:

• Adequate internal controls on BLM financial systems;

• Compliance with accounting standards;

• Accountability for undelivered order funds;

• Compliance with fiscal laws and regulations;

• Proper accounting, management, and maintenance of capital assets;

• Complete quarterly financial statements, including intra-governmental eliminations;

• Improved electronic data processing; and

• Financial accountability at all levels of the organization.

The Administrative Support Program will focus on the following operations of the Bureau:

Financial Management – The BLM will continue to operate the National Operation Center to 

offer support services to a variety of critical programs that include fire support, uniforms, 

property, accounting, contracting, acquisition, space leasing, treasury investments, and the 

development and operation of financial, procurement, and property systems.

Improved Financial Performance – The BLM will continue to maintain an unqualified (clean) 

financial audit opinion, and make available to all employees timely and accurate financial 

information through the Financial and Business Management System (FBMS). The ability to link 

budget and performance through cost management, as well as access to financial data in real 

time, has fostered a Bureau-wide ethic of fiscal accountability. 

Performance Improvement – The BLM will continue to use the cost management information 

systems along with other management information tools to evaluate program effectiveness and 

help allocate budgetary resources across the organization to maximize performance and cost 

effectiveness.

Disposal of Personal Property – The BLM will continue to dispose of excess personal property 

to other Federal and State agencies, to donate computers and other electronics to local schools 

when possible, and to sell working capital fund vehicles and heavy equipment at auction. These 

activities have reduced overhead costs, increased visibility, improved revenue, and created fast 

sales and the transfer of monies to the BLM. Proceeds from the sale of vehicles are returned to 

the working capital fund to help fund replacement vehicles.

Workforce Planning – In 2017, the BLM will continue to refine its workforce planning process to 

ensure the agency has employees with appropriate skills in the right places at the right times. 

As a result of workforce planning, the BLM has placed, and will continue to place, more 

emphasis on entry-level recruiting, career development, and diversification. For example, the 

Bureau is using the Presidential Management Fellows Program, the Pathways program for 

students and recent graduates, and other human capital management programs as viable tools 
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-197

for recruiting and filling entry-level positions and for meeting its future skill requirements. In 

addition, the BLM will continue to place greater emphasis on hiring veterans and veterans with 

disabilities through the following special hiring authorities and appointments: Veterans 

Recruitment Appointment, Veterans Employment Opportunity Act of 1998, 30 Percent or More 

Disabled Veteran, Disabled Veterans Enrolled in a VA Training Program, Schedule A Appointing 

Authority, and Veterans Preference.

Service First – The BLM will use the permanent Service First authority across the entire 

Department of the Interior and U.S. Forest Service in 2017. The Bureau will work to improve 

customer service and seek additional cost savings and productivity improvements. The BLM 

currently shares 61 sites with other agencies and will continue to expand on these. For more 

information on Service First, please see the Crosscutting Programs chapter.
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-198

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Chapter VII – Management of Lands & Resources Page VII-199

Activity: Workforce and Organizational Support

Subactivity: Bureauwide Fixed Costs

2015 

Actual

2016 

Enacted

2017 President's Budget Change 

from 

Fixed 2016

Costs

Transfers Program 

Change

Requested 

Amount

Bureauwide Fixed Costs $000 91,010 93,645 -996 +0 +0 92,649 -996

FTE 0 0 +0 +0 0 +0

Justification of 2017 Program Changes

The 2017 budget request for the Bureauwide Fixed Costs Program is $92,649,000 and 0 FTE, 

no program change from the 2016 enacted level.

Program Overview

Bureauwide Fixed Costs funds the following:

• The Departmental Working Capital Fund (WCF) – These fixed costs are billed by the 

Department of Interior’s (DOI) Office of the Secretary and the DOI’s National Business 

Center, and categorized as two separate bills:

1. Central Bill – Mandatory services provided by the DOI Office of the Secretary 

and the DOI National Business Center.

2. Direct Bill – Primarily a fee for service bill. These are services provided under 

reimbursable agreements between the BLM and DOI.

• The Space Management program portion of the Bureauwide Fixed Costs focuses 

primarily on general purpose and warehouse space acquired through direct lease and 

General Services Administration (GSA)-provided space in federally owned or leased 

buildings.

• The Land Mobile Radio (LMR) program provides two-way radio voice services for the 

BLM. The primary customers are wildland fire, law enforcement, and resources staff. 

The radio systems are used jointly with other Federal, State, and local agencies in 

support of wildland fire and law enforcement operations. The LMR program is working 

to join the radio network nationally among partners, cooperators, and other stakeholders 

to build a homogenous and holistic architecture.

• The Telecommunications program manages communication services critical to the day 

to day operations of the BLM. The program manages fixed-line office phones and fax, 

mobile voice and data devices and service contracts, video conferencing, and internal 

and external data networks service contracts, including network security. The program's 

management of the radio network supports public safety, connecting firefighters and law 

enforcement through agency and inter-agency managed microwave radio links, base 

stations, and radios, including contracts for satellite radios service. Communications 

(fax, print, voice, and data) during Continuity of Operations relies on the established 

efforts of the Telecommunications program. Costs for these services are funded from 

individual State/National Centers and the DOI Working Capital Fund. 
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-200

• The Federal Personnel Payroll System (FPPS) monitors the costs of using and 

maintaining BLM’s personnel management systems.

• The Mail and Postal Costs component of this program assesses and monitors BLM’s 

mail and postal service utilization, which includes base metered postage machines, next 

day postage, and other express mail services.

• The Unemployment Insurance Costs are based upon historical data, paid through the 

Department's Federal Employees Compensation Account of the Unemployment Trust 

Fund to the Department of Labor, pursuant to the Omnibus Budget Reconciliation Act of 

1980. 

• The Workers Compensation amount requested for 2017 covers costs for a 12-month 

period and is paid to the Department of Labor through the Department's Employee 

Compensation Fund, pursuant to 5 U.S.C. 8147(b) as amended by Public Law 94-273.

†Shown as estimated amounts for fiscal years 2016 and 2017

Critical Factors

The critical factors in the Bureauwide Fixed Costs program: 

• The Space Management program promotes and encourages sustainability. All new BLM 

facilities comply with BLM Sustainable Building Implementation Plans, while addressing 

current and emerging needs.

• Presidential Memorandum – Disposing of Unneeded Federal Real Estate dated June 10, 

2010, emphasized the need to:

o Improve utilization of facilities through innovative space management, such as 

alternative work arrangements and telework agreements.

o Eliminate lease arrangements that are not cost effective.

o Pursue consolidation opportunities with other agencies in common asset types, 

such as data centers, office space, and warehouses.

Space Rental - GSA 20,422 26,497 30,015

Space Rental - Non-GSA 33,828 31,614 30,968

Subtotal, Rental 54,250 58,111 60,983

BLM Radio Support 585 519 519

Workers' Compensation 8,406 8,153 8,091

Unemployment Compensation 7,370 6,981 6,051

DOI Working Capital Fund Centralized Bill 24,617 25,331 27,048

DOI Working Capital Fund Direct Bill 13,269 12,040 12,383

Other Fixed Costs 4,362 8,428 3,537

Total 112,859 119,563 118,612

Fixed Costs Funded Through Program Assessments -21,849 -25,918 -25,963

Total, Bureauwide Fixed Costs 91,010 93,645 92,649

Bureauwide Fixed Costs†

$000 2015 Actual 2016 

Enacted

2017 

Request
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-201

• Department of the Interior Memorandum – Space and Facilities Management dated 

August 2, 2011, emphasized that real property (owned and leased) is a key aspect of the 

overall cost cutting campaign. The utilization standard for general purpose office space 

has now been set to 180 square feet per person. Opportunities for teleworking in order 

to reduce overall real property costs are encouraged. 

2017 Program Performance

In 2017, the BLM will continue to manage the LMR Program, telecommunications, the FPPS, 

unemployment costs, mail and postal costs, the Employee Compensation Fund, and office 

space leasing, which is the largest of BLM’s fixed costs. 

The BLM established the following long term goals for Space Management:

• Reduce space usage whenever a reduction can be accomplished economically;

• Evaluate offices for consolidation;

• Maximize the use of existing, owned buildings and warehouses whenever possible;

• Extend existing leases, when appropriate, to allow time to prioritize long-term leasing 

actions;

• Whenever beneficial, reduce the size and change the layout of leased warehouses;

• Implement the use of high-density, storage systems for office and warehouse areas; and

• Promote telework wherever a corresponding reduction in leased office space would 

occur.
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-202

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Chapter VII – Management of Lands & Resources Page VII-203

Activity: Workforce and Organizational Support

Subactivity: Information Technology 

Management

2015 

Actual

2016 

Enacted

2017 President's Budget Change 

from 

Fixed 2016

Costs

Transfers Program 

Change

Requested 

Amount

IT Management $000 25,696 25,958 +119 +0 +0 26,077 +119

FTE 109 109 +0 +0 109 +0

Justification of 2017 Program Changes

The 2017 budget request for the Information Technology Management Program is $26,077,000 

and 109 FTE, no program change from the 2016 enacted level.

Program Overview

The Information Technology Management Program is responsible for managing all aspects of 

information technology (IT) throughout the BLM. These responsibilities include:

• Bureauwide Policy – Planning, directing, coordinating, and evaluating IT programs, 

policies and procedures and providing guidance for the effective use of IT resources in 

support of BLM programs and services in accordance with the Clinger-Cohen Act of 

1996 and the Government Performance and Results Act of 1993;

• Capital Planning and Investment Control (CPIC) – The Clinger-Cohen Act of 1996 and 

the E-Government Act of 2002 sought to improve mission performance by requiring 

agencies to use a disciplined CPIC process to acquire, use, maintain and dispose of the 

BLM’s IT portfolio. CPIC is a dynamic process in which IT investments are selected and 

then continually monitored and evaluated to ensure each chosen investment is well 

managed, cost effective, and supports the mission and strategic goals of the BLM. CPIC 

ensures that all IT investments align with BLM's mission and support business needs 

while minimizing risks and maximizing returns throughout the investment’s life cycle.

• Information Resources Management – Providing management and oversight over 

implementation of the Freedom of Information Act, Open Government Initiative, Section 

508 of the American Disabilities Act, IT Configuration Management, Indian Trust and the 

Records Act; ensuring that manual and electronic records are accessible, properly 

maintained, documented, scheduled and disposed of; and, ensuring that automated 

systems are documented and scheduled and that records preservation orders are 

tracked and monitored so that records are properly secured, accessible and retrievable 

to respond to court orders and requesters;

• IT Transformation Implementation – The BLM continues to pursue streamlining efforts to 

improve IT service delivery and reduce the overall costs for IT support across the BLM. 

In 2017, the BLM will have its IT support and services delivered in a consistent manner 

with a focus on customer needs. 
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-204

• Data Management and Administration – Ensuring that the information the BLM uses in 

decision making is accurate, timely, useful, and free of bias;

• National Applications – Managing national applications and systems throughout their life 

cycles of investment and ensuring successful service delivery through all phases—

concept, design, construction, data management, operation, support and maintenance—

in order to meet business needs while ensuring system data integrity;

• Infrastructure – Providing compliant and effective technology platforms and 

environments; and

• Security – Developing security-related policies, procedures, and guidance; providing 

technical assistance for securing major applications and general support systems; 

overseeing security compliance efforts; maintaining an inventory of systems and their 

security Assessment and Authorization status; coordinating IT Security Education and 

Awareness efforts; and developing IT security performance measures and reports.

Other Funding Sources

Every BLM program contributes some funding for IT activities. Major investments in the BLM IT 

portfolio are funded by the programs supported by those investments. IT infrastructure 

investments are funded proportionately by all programs.

2017 Program Performance 

There are no specific performance goals for this subactivity; however, the BLM has achieved 

success in lowering the overall costs of IT by implementing dynamic approaches to respond to 

national priorities. Because the scope of the information needed to support the BLM’s mission 

is vast, the IT systems required to manage this information have grown increasingly complex. 

Information systems are used throughout the BLM to collect data on land health, water quality, 

restored ecosystems, hazardous fuels reduction, land contamination, habitat protection, cultural 

and natural heritage resources, oil and gas leases and permits, lease applications, minerals and 

grazing permits, timber sales, recreation, and financial transactions. Managing our data as a 

corporate asset will ensure the BLM has greater consistency and integration while reducing 

redundancies.

Additionally, BLM's IT Transformation initiative will continue to achieve savings through labor 

reductions, consolidation of infrastructure staff, servers and data centers closures, contract 

consolidations and the promotion of mobility which will allow us to reduce our overall footprint. 

IT contracts will be reevaluated through the IT Spend Plan process, resulting in maximization of 

bulk purchases to achieve additional savings and standardization. The BLM will continue its 

commitment to ensuring that information technology efforts align with Departmental initiatives 

focused on consolidation, shared services, and improving IT cost efficiency. The Bureau will 

continue to seek further centralization efforts internally, while expanding consolidation efforts by 

working with other Bureaus to share services in areas the of Data Center Consolidation, 

Geospatial, IT Acquisitions, and Application Consolidation to achieve greater cost efficiency.
Mining Law 

Administration

Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-205

Activity: Mining Law Administration

2015 

Actual

2016 

Enacted

2017 President's Budget Change 

from 

2016 Fixed 

Costs

Transfers Program 

Change

Requested 

Amount

Mining Law 

Administration

$000 39,696 39,696 +0 +0 +0 39,696 +0

Offset -39,696 -39,696 +0 +0 +0 (39,696) +0

FTE 308 308 +0 +0 308 +0

Notes: The actual receipt estimates for 2016 is $54,981,000 and for 2017 is $55,117,000

Justification of 2017 Program Changes 

The 2017 budget request for Mining Law Administration is $39,696,000 and 308 FTE. The 

budget assumes the program’s operating cost will be fully offset by revenue from mining claim 

maintenance and location fees. 

Program Overview 

Program Components

The BLM Mining Law Administration Program is responsible for providing access to locatable 

mineral resources in an environmentally responsible manner. Locatable minerals are those 

governed by the General Mining Law of 1872, and include gold, silver, lead, zinc, copper, 

uranium, and molybdenum. To provide access to these mineral resources, the BLM administers 

mining claims, manages on the ground activities, and collects location and annual maintenance 

fees. The BLM also processes notices for exploration and plans of operations for exploration 

and production of these minerals. Reclamation plans are evaluated and financial guarantees 

are required to ensure adequate reclamation that meets the requirements of Federal law. The 

BLM inspects operations governed by notices and plans of operation to ensure compliance with 

all applicable laws and regulations. The BLM takes enforcement actions when the terms and 

conditions of an operation have been violated. Finally, the BLM is responsible for conducting 

mineral examinations to determine valid existing rights under the mining laws.

The General Mining Law of 1872

The BLM, through 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, and the Federal Land Policy and Management Act of 1976. Since 1993, 

claimants have been required to pay an annual maintenance fee for each mining claim and site 

in lieu of performing assessment work as previously required under the General Mining Law of 

1872. The BLM is required by statute to adjust these fees every five years, or more frequently if 

determined reasonable, to reflect changes in the Consumer Price Index published by the 

Bureau of Labor Statistics. Maintenance and location fees were most recently increased at the 

beginning of the 2015 assessment year. Maintenance fees were increased from $140 to $155, 

and location fees, required for all new claims in addition to the maintenance fee, were increased 

from $34 to $37 per claim, and they currently remain at these levels. Prior to the 2015 

adjustment, the fees were last adjusted in 2009. 
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-206

In 2014, the BLM implemented the Mining Claim Maintenance Fee Payment Portal so that 

mining claimants could begin paying their annual maintenance fee online starting with the 2015 

assessment year. Based on the initial filings, the portal has provided claimants an efficient and 

secure means of paying their maintenance fee online. The BLM has also realized benefits by 

having claim data interface with and update the lands record system (LR2000), which 

eliminates the need to manually process the payments and manually update the LR2000 

system. The BLM is considering ways to expand use of the payment portal and realize 

increased efficiencies in other programs.

Critical Factors

Filing of new mining claims in the Mining Law Administration Program is commodity pricedependent. Prices for all of the major commodities have been declining since their peak in 

2011. For example, gold reached a high of $1,875 per ounce in September 2011 and averaged 

$1,159 per ounce during the month of October 2015, a decline of 38 percent. Similar declines 

have occurred for other major commodities for which mining claims are located, including silver, 

platinum, and copper. These commodity price declines have impacted mining claim location 

activity on public lands. As of January 7, 2016, the number of mining claims recorded for the 

2015 assessment year declined 7 percent since 2014 and 12 percent from 2012. The revenue 

from mining claim maintenance and location fees has declined 0.2 percent from 2014. As gold 

is the top commodity explored for and produced on public lands, mining claim trends regarding 

quantity and revenue roughly correlate to gold commodity prices as demonstrated by the two 

charts below.

 

0

200

400

600

800

1000

1200

1400

1600

1800

0

10

20

30

40

50

60

70

80

1995 1997 1999 2001 2003 2005 2007 2009 2011 2013 2015 2017

Millions ($)

$/Troy oz.

Gold Price vs. Revenue

Revenue ($) Gold Price
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-207

*The chart is based upon the most recent data. The new and total mining claims illustrate the numbers reported in the Public Land 

Statistics (PLS) for the indicated fiscal years. The 2015 claim data was derived from preliminary PLS data and is subject to change. 

Data for 2016 and 2017 are projections.

The mining industry's domestic activity levels are dependent upon commodity prices. Many 

companies engaged in exploration are known in the industry as junior mining companies and 

frequently rely significantly on venture capital and other forms of investor financing. These 

companies typically do not own mines and have no regular revenue streams. When commodity 

prices are in decline, investor financing typically is harder to secure, and these junior mining 

companies begin to cut costs, usually leading to a reduction in the number of mining claims they 

hold. This sector of the industry is the most sensitive to commodity pricing and is likely 

responsible for the decline in the number of active mining claims seen beginning in 2012. If the 

industry activity decreases or remains flat, further decline in mining claim numbers and 

associated revenue should be expected. 

Mining claims found to have no mineral values or interest on the part of the mining claimants 

typically lapse due to nonpayment of maintenance fees by the claimant. Lapsed claims hold no 

rights and the associated tracts may be relocated by another claimant. Mining claims found to 

be of interest will continue to see on-the-ground activity by the claimants and or operators as 

they seek to confirm the presence of a mineral deposit. During a market downturn, mining 

claimants will likely evaluate and release any unfavorable holdings and limit new mining claim 

locations. The degree to which mining claim revenue will be impacted will depend on the length 

and the severity of the declining markets. Mining claim location and maintenance trends will 

likely continue to follow market trends.

0

200

400

600

800

1000

1200

1400

1600

1800

0

50

100

150

200

250

300

350

400

450

1995 1997 1999 2001 2003 2005 2007 2009 2011 2013 2015 2017

Gold $/oz.

Mining Claims - Thousands

Fiscal Year

Gold Price Vs. Mining Claims

New Mining Claims Total Mining Claims Gold Price

 
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-208

Mining claim location for metals used in tech industries remain stable despite declines in other 

commodities. Although no current “rush” exists, the BLM is experiencing continued interest 

from the mining industry to locate and discover domestic supplies of these minerals. Such

minerals form the building blocks of technology-dependent industries, such as electronics, 

automotive and energy. These minerals include but are not limited to, rare earths, lithium, 

indium, germanium, vanadium, graphite and cobalt.

While new mining claims have decreased, the BLM continues to experience a consistent 

workload for processing plans of operations for new, large scale mines. The inspection 

workload for existing operations also continues and the funding provided through this program is 

important to allow the BLM to maintain capability and capacity to ensure activities are done in 

an environmentally sound and sustainable manner.

Other Funding Sources

The Mining Law Administration program is primarily funded through this subactivity, in which the 

appropriation is offset by maintenance and location fees. Since 1994, Congress, through its 

appropriations acts, has tied Mining Law Administration funding to revenue collected by the 

program. The funds made available by Congress are reduced by amounts collected by the 

Bureau and credited to this appropriation. 

In addition, under the authorities of 43 U.S.C. 1474 and 1734(a), the BLM retains the collected 

processing fees from mining claim recordation actions and mineral patent adjudication to 

recover the full cost of processing these documents. A revised fee schedule was promulgated 

in November 2005. The Mining Claims Revenue chart shows the recent history of mining 

claims and mining claim revenue. The processing fees charged for recording a new mining 

claim, annual filings, transfers of interest, amendments to previously recorded documents, 

deferments of assessment, and protests increased in June of 2009 and again at the end of 

2014. In addition, the BLM charges a processing fee, on a case by case basis, for proposed 

mining plans of operations requiring an environmental impact statement. A processing fee is 

also applicable to validity examinations 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.

2017 Program Performance 

In 2017, the BLM will:

• Provide access to locatable mineral resources while ensuring that mining operations 

follow BLM’s regulations and cause no unnecessary and undue degradation;

• Conduct inspection and enforcement activities to ensure compliance with all applicable 

Federal regulations for all mining and exploration activities authorized by the mining laws 

on public lands;

• Record and adjudicate existing mining claims and new mining claim locations; and 

• Continue working with State agencies to streamline multiple agency processes and 

minimize the time necessary to authorize exploration and development activities. 

The BLM expects the inspection workload to remain steady in 2016 with output measures for 

2016 and 2017 expected to rebound. The focus of the inspection program is on exploration and 

mining sites with on-going operations; sites where reclamation earthwork has been completed 
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-209

and the BLM and the operator are waiting for re-vegetation success are a lower priority for 

inspection.

The processing time for Plans of Operations averaged 26 months in 2013, 17 months in 2014, 

and 23 months in 2015. The rolling 3-year average for average processing time is 22 months. 

The BLM will continue to work with industry and internally to explore opportunities to find 

efficiencies that reduce the average processing times of Plans of Operations.
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-210

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Budget Schedules

Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-211

Budget Schedules

Account Symbol and Title

14X1109

Management of Lands and Resources Line 2015 Act 2016 CY 2017 BY

Program and Financing (P) ($ in Millions)

Obligations by program activity:

 Land resources 0011 257 260 250

 Wildlife and fisheries 0012 67 95 110

 Threatened and endangered species 0013 22 24 24

 Recreation management 0014 68 70 70

 Energy and minerals 0015 144 150 112

 Realty and ownership management 0016 69 70 72

 Resource protection 0017 101 105 119

 Transportation and facilities maintenance 0018 75 78 80

 Workforce and organizational support 0020 164 170 170

 Challenge Cost Share 0026 3 3 1

 National Monuments & NCA 0030 33 34 43

Total direct obligations 0799 1,003 1,059 1,051

 Management of Lands and Resources 

(Reimbursable) 0801 25 36 28

 Communication site rental fees 0802 2 2 2

 Mining law administration 0803 41 40 40

 APD fees 0804 29 0 0

 Cadastral reimbursable program 0805 9 12 9 

 Inspection fees 0806 0 0 40

 Grazing fees 0807 0 0 7

Total reimbursable obligations 0899 106 90 126

Total new obligations 0900 1,109 1,149 1,177

Budgetary resources:

 Unobligated balance:

 Unobligated balance brought forward, Oct 1 1000 145 137 186

 Recoveries of prior year unpaid obligations 1021 37 45 40

 Unobligated balance (total) 1050 182 182 226

 Budget authority:

 Appropriations, discretionary:

 Appropriation 1100 974 1,073 1,076

 Appropriation, discretionary (total) 1160 974 1,073 1,076

 Appropriation, discretionary - Computed Totals 1160-20 974 1,073 1,076

 Appropriation [Regular] 1160-40 955 1,055 1,057

 Baseline Civilian Pay 1160-50 590 613

 Baseline Non-Pay 1160-50 465 473

 Policy Outlays:

 New Authority 1160-61 704 818 819

 Balances (excl of EOY PY Bal) 1160-62 256 0 195
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-212

Account Symbol and Title

14X1109

Management of Lands and Resources Line 2015 Act 2016 CY 2017 BY

 End of PY Balances 1160-63 168 3

 Subtotal, outlays 1160-64 960 986 1,017

 Baseline Outlays:

 New Authority 1160-81 818 842

 Balances (excl of EOY PY Bal) 1160-82 0 195

 End of PY Balances 1160-83 168 3

 Subtotal, outlays 1160-84 986 1,040

 Appropriation [Protected:Conserving Fish and 

Wildlife - Climate Change] 1160-40 16 15 16

 Baseline Civilian Pay 1160-50 0 0 

 Baseline Non-Pay 1160-50 15 15

 Policy Outlays:

 New Authority 1160-61 0 12 12

 Balances (excl of EOY PY Bal) 1160-62 0 0 3

 End of PY Balances 1160-63 2 3

 Subtotal, outlays 1160-64 0 14 18

 Baseline Outlays:

 New Authority 1160-81 12 12

 Balances (excl of EOY PY Bal) 1160-82 0 3

 End of PY Balances 1160-83 2 3

 Subtotal, outlays 1160-84 14 18

 Appropriation [WHB Sterilization R&D] 1160-40 2 2 2 

 Baseline Civilian Pay 1160-50 2 2

 Policy Outlays:

 New Authority 1160-61 0 2 2

 Balances (excl of EOY PY Bal) 1160-62 0 0 0

 End of PY Balances 1160-63 0 0

 Subtotal, outlays 1160-64 0 2 2

 Baseline Outlays:

 New Authority 1160-81 2 2

 Balances (excl of EOY PY Bal) 1160-82 0 0

 End of PY Balances 1160-83 0 0

 Subtotal, outlays 1160-84 2 2

 Appropriation [Homeland Security] 1160-40 1 1 1 

 Baseline Civilian Pay 1160-50 1 1

 Baseline Non-Pay 1160-50 0 0

 Policy Outlays:

 New Authority 1160-61 0 1 1

 Balances (excl of EOY PY Bal) 1160-62 0 0 0

 End of PY Balances 1160-63 0 0

 Subtotal, outlays 1160-64 0 1 1

 Baseline Outlays:

 New Authority 1160-81 1 1

 Balances (excl of EOY PY Bal) 1160-82 0 0

 End of PY Balances 1160-83 0 0

 Subtotal, outlays 1160-84 1 1 
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-213

Account Symbol and Title

14X1109

Management of Lands and Resources Line 2015 Act 2016 CY 2017 BY

 Spending authority from offsetting collections, 

discretionary:

 Offsetting collections (Mining law and Comm 

Sites) 1700 42 42 42

 Offsetting collections (Economy Act) 1700 24 38 38

 Offsetting collections (APD fees) 1700 29 0 0

 Offsetting collections (Inspection fees) 1700 0 0 48

 Offsetting Collections (Other) 1700 9 0 17

 Change in uncollected payments, Federal sources 1701 -14 0 -36

 Spending auth from offsetting collections, disc 

(total) 1750 90 80 109

 Spending auth from offsetting collections, disc -

Computed Totals 1750-20 90 80 109

 Spending authority from offsetting collections 

[Mining Law and Telecomm Fees, and Permits to 

Drill] 1750-40 71 42 42

 Baseline Program [Mining Law and Telecomm 

Fees, and Permits to Drill] 1750-50 42 43

 Policy Outlays:

 New Authority 1750-61 63 42 42

 Balances (excl of EOY PY Bal) 1750-62 11 0 0

 End of PY Balances 1750-63 0 0

 Subtotal, outlays 1750-64 74 42 42

 Baseline Outlays:

 New Authority 1750-81 42 43

 Balances (excl of EOY PY Bal) 1750-82 0 0

 End of PY Balances 1750-83 0 0 

 Subtotal, outlays 1750-84 42 43

 Spending authority from offsetting collections 

[Economy Act] 1750-40 19 38 38

 Baseline Program [Economy Act] 1750-50 38 39

 Policy Outlays:

 New Authority 1750-61 1 19 19

 Balances (excl of EOY PY Bal) 1750-62 29 0 19

 End of PY Balances 1750-63 21 2

 Subtotal, outlays 1750-64 30 40 40

 Baseline Outlays:

 New Authority 1750-81 19 20

 Balances (excl of EOY PY Bal) 1750-82 0 19

 End of PY Balances 1750-83 21 2

 Subtotal, outlays 1750-84 40 41

 Spending authority from offsetting collections 

[User Fee: Inspection fees] 1750-40 0 0 48

 Baseline Program [User Fee: Inspection fees] 1750-50 0 0

 Policy Outlays:

 New Authority 1750-61 0 0 48

 Balances (excl of EOY PY Bal) 1750-62 0 0 0

 End of PY Balances 1750-63 0 0
Bureau of Land Management 2017 Budget Justifications

Chapter VII – Management of Lands & Resources Page VII-214

Account Symbol and Title

14X1109

Management of Lands and Resources Line 2015 Act 2016 CY 2017 BY

 Subtotal, outlays 1750-64 0 0 48

 Baseline Outlays:

 New Authority 1750-81 0 0

 Balances (excl of EOY PY Bal) 1750-82 0 0

 End of PY Balances 1750-83 0 0

 Subtotal, outlays 1750-84 0 0

 Spending authority from offsetting collections 

[Grazing Fees] 1750-40 0 0 17

 Spending authority from offsetting collections 

[Grazing Fees] 1750-50 0 0

 Policy Outlays:

 New Authority 1750-61 0 0 17

 Balances (excl of EOY PY Bal) 1750-62 0 0 0

 End of PY Balances 1750-63 0 1

 Subtotal, outlays 1750-64 0 0 18

 Baseline Outlays:

 New Authority 1750-81 0 0

 Balances (excl of EOY PY Bal) 1750-82 0 0

 End of PY Balances 1750-83 0 1

 Subtotal, outlays 1750-84 0 1 

 Spending authority from offsetting collections 

[other] 1750-40 0 0 -36

 Spending authority from offsetting collections 

[other] 1750-50 0 0 

 Policy Outlays:

 New Authority 1750-61 0 0 -36

 Balances (excl of EOY PY Bal) 1750-62 0 0 0

 End of PY Balances 1750-63 0 0

 Subtotal, outlays 1750-64 0 0 -36

 Baseline Outlays:

 New Authority 1750-81 0 0

 Balances (excl of EOY PY Bal) 1750-82 0 0

 End of PY Balances 1750-83 0 0

 Subtotal, outlays 1750-84 0 0

 Budget authority (total) 1900 1,064 1,153 1,185

Total budgetary resources available 1930 1,246 1,335 1,411

 Memorandum (non-add) entries:

 Unexpired unobligated balance, end of year 1941 137 186 234

Change in obligated balance:

 Unpaid obligations:

 Unpaid obligations, brought forward, Oct 1 3000 392 400 419

 Obligations incurred, unexpired accounts 3010 1,109 1,149 1,177

 Outlays (gross) 3020 -1,064 -1,085 -1,150

 Recoveries of prior year unpaid obligations, 

unexpired 3040 -37 -45 -40
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Account Symbol and Title

14X1109

Management of Lands and Resources Line 2015 Act 2016 CY 2017 BY

 Recoveries of prior year unpaid obligations, expired 3041 0 0 0

 Unpaid obligations, end of year 3050 400 419 406

 Uncollected payments:

 Uncollected pymts, Fed sources, brought forward, 

Oct 1 3060 -50 -36 -36

 Change in uncollected pymts, Fed sources, 

unexpired 3070 14 0 36

 Uncollected pymts, Fed sources, end of year 3090 -36 -36 0

 Memorandum (non-add) entries:

 Obligated balance, start of year 3100 342 364 383

 Obligated balance, end of year 3200 364 383 406

Budget authority and outlays, net:

 Discretionary:

 Budget authority, gross 4000 1,064 1,153 1,185

 Outlays, gross:

 Outlays from new discretionary authority 4010 768 894 924

 Outlays from discretionary balances 4011 296 191 226

 Outlays, gross (total) 4020 1,064 1,085 1,150

 Offsets against gross budget authority and outlays:

 Offsetting collections (collected) from:

 Federal sources 4030 -32 -38 -38

 Federal sources (total) 4030-10 -32 -38 -38

 Policy Program [Economy Act] 4030-41 -32 -38 -38

 Baseline Program [Economy Act] 4030-71 0 -38 -39

 Non-Federal sources 4033 -72 -42 -42

 Non-Federal sources 4033 0 0 -48

 Non-Federal sources 4033 0 0 -17

 Non-Federal sources (total) 4033-10 -72 -42 -107

 Policy Program - Computed Total 4033-20 -72 -42 -107

 Policy Program [Mining Law, Comm Sites, APD 

Fees] 4033-41 -72 -42 -42

 Baseline Program [Mining Law, Comm Sites, 

APD Fees] 4033-71 -42 -43

 Policy Program [Inspection Fees] 4033-41 0 0 -48

 Policy Program [Grazing Fees] 4033-41 0 0 -17

 Offsets against gross budget authority and outlays 

(total) 4040 -104 -80 -145
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Account Symbol and Title

14X1109

Management of Lands and Resources Line 2015 Act 2016 CY 2017 BY

 Additional offsets against gross budget authority 

only:

 Change in uncollected pymts, Fed sources, 

unexpired 4050 14 0 36

 Change in uncollected customer payments (total) 4050-10 14 0 36

 Policy Program - Computed Total 4050-20 14 0 36

 Policy Program [Inspection Fees] 4050-41 0 0 48

 Policy Program [Grazing Fees] 4050-41 0 0 17

 Policy Program [Grazing Fees] 4050-71 0 0

 Policy Program [Text] 4050-41 14 0 -29

 Baseline Program [Text] 4050-71 0 0 

 Budget authority, net (discretionary) 4070 974 1,073 1,076

 Outlays, net (discretionary) 4080 960 1,005 1,005

Budget authority, net (total) 4180 974 1,073 1,076

Outlays, net (total) 4190 960 1,005 1,005

Memorandum (non-add) entries:

 Unexpired unavailable balance, SOY: Offsetting 

collections 5090 4 4 4

 Unexpired unavailable balance, EOY: Offsetting 

collections 5092 4 4 4

 

INVESTMENT ACTIVITIES:

 Conduct of research and development:

 Applied research:

 Direct Federal programs:

 Budget Authority 1422-01 21 21 21

 Outlays 1422-02 16 16 16

 Development:

 Direct Federal programs:

 Budget Authority 1432-01 -21 1 1

 Outlays 1432-02 -16 1 1

NON-INVESTMENT ACTIVITIES:

 Direct Federal programs:

 Budget Authority 2004-01 974 1,051 1,054

 Outlays 2004-02 960 988 988

Object Classification

Direct obligations:

 Personnel compensation:

 Full-time permanent 11.1 355 355 355

 Other than full-time permanent 11.3 16 16 16

 Other personnel compensation 11.5 15 15 15

 Total personnel compensation 11.9 386 386 386
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Account Symbol and Title

14X1109

Management of Lands and Resources Line 2015 Act 2016 CY 2017 BY

 Civilian personnel benefits 12.1 137 137 137

 Benefits for former personnel 13.0 0 1 1

 Travel and transportation of persons 21.0 17 20 21

 Transportation of things 22.0 4 5 5

 Rental payments to GSA 23.1 22 24 25

 Rental payments to others 23.2 32 34 35

 Communications, utilities, and miscellaneous 

charges 23.3 21 24 24

 Printing and reproduction 24.0 2 2 2

 Advisory and assistance services 25.1 8 8 8 

 Other services from non-Federal sources 25.2 155 160 157

 Other goods and services from Federal sources 25.3 56 60 60

 Operation and maintenance of facilities 25.4 11 12 12

 Operation and maintenance of equipment 25.7 20 22 22

 Supplies and materials 26.0 22 23 23

 Equipment 31.0 23 25 25

 Land and structures 32.0 16 22 20

 Grants, subsidies, and contributions 41.0 70 93 87

 Insurance claims and indemnities 42.0 1 1 1

 Subtotal, obligations, Direct obligations 99.0 1,003 1,059 1,051

Reimbursable obligations:

 Personnel compensation:

 Full-time permanent 11.1 48 48 50

 Other than full-time permanent 11.3 2 2 3

 Other personnel compensation 11.5 2 2 3

 Total personnel compensation 11.9 52 52 56

 Civilian personnel benefits 12.1 18 18 19

 Travel and transportation of persons 21.0 2 1 3

 Rental payments to others 23.2 3 1 3

 Communications, utilities, and miscellaneous 

charges 23.3 2 1 3 

 Advisory and assistance services 25.1 1 0 1

 Other services from non-Federal sources 25.2 11 8 15

 Other goods and services from Federal sources 25.3 10 7 15

 Operation and maintenance of equipment 25.7 2 1 2 

 Supplies and materials 26.0 1 0 2

 Equipment 31.0 1 0 2

 Land and structures 32.0 0 0 2

 Grants, subsidies, and contributions 41.0 3 1 3 

 Subtotal, obligations, Reimbursable obligations 99.0 106 90 126

 Total new obligations 99.9 1,109 1,149 1,177

Employment Summary

Direct civilian full-time equivalent employment 1001 5,034 5,056 5,057

Reimbursable civilian full-time equivalent employment 2001 713 486 571
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Account Symbol and Title

14X1109

Management of Lands and Resources Line 2015 Act 2016 CY 2017 BY

Allocation account civilian full-time equivalent 

employment 3001 2,235 2,262 2,262

Budget year budgetary resources [014-1109] 1000 1,075,545
Land Acquisition

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LAND ACQUISITION

Appropriations Language

For expenses necessary to carry out sections 205, 206, and 318(d) of Public Law 94–579, 

including administrative expenses and acquisition of lands or waters, or interests therein, 

[$38,630,000]$43,959,000, 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, 2016) 

 

Appropriations Language Citations

1. For expenses necessary to carry out sections 205, 206 and 318(d) of Public 

Law 94-579, including administrative expenses

Section 205 authorizes the Secretary to acquire by purchase, exchange, donation, or eminent 

domain, public lands or interests. Eminent domain may only be invoked to secure access to 

public lands if the lands are confined to a narrow corridor and serve a purpose. This section 

does not expand or limit the Secretary’s authority to acquire land by eminent domain within the 

boundaries of the National Forest System. Acquisitions must support the mission of the 

Department and have associated land-use plans. 

Section 206 provides authority for the Secretary to dispose of a public tract of land by exchange 

if it serves the public interest well. The Secretary may accept title to any non-Federal land or 

interests in exchange for such land which he or she finds proper for transfer out of Federal 

ownership and which are located in the same State as the non-Federal land or interest to be 

acquired. For the purposes of this subsection, unsurveyed school sections which, upon survey 

by the Secretary, would become State lands, shall be considered as "non-Federal” lands. The 

value of the lands exchanged by the Secretary need to be equal, or if they are not equal, the 

values will be equalized by the payment of money to the grantor or to the Secretary concerned 

as the circumstances require. 

Section 318 authorizes the Secretary to use the Land and Water Conservation Fund to acquire 

public lands as described in section 205. 

2. including administrative expenses and acquisition of lands or waters, or 

interests therein, $43,959,000, 

This language provides the Secretary with authority to use $43,959,000 in appropriated funds to 

acquire lands or waters or pay administrative expenses to carry out the mission of the program.

3. to be derived from the Land and Water Conservation Fund 

The language specifies that funding appropriated for land acquisition activities would be derived 

from the Land and Water Conservation Fund (LWCF), which was enacted by Congress in 1965. 

The Act designated that a portion of receipts from offshore oil and gas leases be placed into a 
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fund annually for State and local conservation, as well as for the protection of our national 

treasures (parks, forest, and wildlife areas). 

4. and to remain available until expended.

The language makes the appropriations to the account available on a no-year basis. This type 

of account allows the BLM a valuable degree of flexibility needed to support multi-year land 

acquisitions, agreements and purchases.

Appropriation Language Citations and Authorizations

Federal Land Policy and 

Management Act of 1976 

(FLPMA) (Pub. L. 94-579, 

Sec. 101 et seq.; 43 

U.S.C. 1701 et seq.)

Provides authority for acquisition (Pub. L. 94-579, Sec. 205, 

206; 43 U.S.C., 1715, 1716) of lands or interests in lands by 

purchase, exchange, donation, or eminent domain, when it is 

consistent with the mission of the Department and with land 

use plans (Pub. L. 94-579, Sec. 205(b); 43 U.S.C., 1715(b)); in 

exercising this authority, appropriations from the Land and 

Water Conservation Fund may be used to purchase lands 

which are primarily of value for outdoor recreation purposes 

(Pub. L. 94-579, Sec. 318(d); 43 U.S.C., 1748(d)).

Federal Land Transaction 

Facilitation Act of 2000 

(FLTFA) (Public Law 106-

248) 

Provided authority for the use of receipts from disposal actions 

by the BLM to purchase inholdings and lands adjacent to 

federally designated areas containing exceptional resources, 

as defined in FLTFA, from willing sellers with acceptable titles, 

at fair market value, to “promote consolidation of the ownership 

of public and private lands in a manner that would allow for 

better overall resource management administrative efficiency, 

or resource allocation.” The 2010 Supplemental Appropriations 

Act (P.L. 111-212) reauthorized FLTFA for one year, expiring in 

July 2011. 

Land and Water 

Conservation Fund Act of 

1965, as amended (16 

U.S.C. 460l-4 et seq.)

Authorizes planning, acquisition, and development of needed 

land and water areas and facilities; in exercising this authority, 

appropriated funds from the LWCF may be used for such 

acquisition to assist in preserving, developing, and assuring 

accessibility for the benefit of present and future citizens. 

Wild and Scenic Rivers 

Act of 1968, as amended 

(16 U.S.C. 1271 et seq.)

Authorizes the Secretary to exchange or dispose of suitable 

Federally-owned property for non-Federal property within the 

authorized boundaries of any federally-administered 

component of the National Wild and Scenic Rivers System, 

1277(d). Similar exchange authority is contained in The 

National Trails System Act of 1968, as amended 16 U.S.C. 

1241et seq.).

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.
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National Trails System 

Act of 1968, as amended 

(16 U.S.C. 1241-1249)

Authorizes the Secretary to acquire lands or interests in lands 

included in the right-of-way selected for a National Historic, 

National Recreation, or National Scenic Trail; by written 

cooperative agreement, donation, purchase (with donated or 

appropriated funds), or exchange.

Other Other acts such as, the King Range National Conservation 

Area Act of 1970, as amended (16 U.S.C. 460y); San Pedro 

Riparian National Conservation Area Act, in Arizona (16 U.S.C. 

460xx); Arkansas-Idaho Land Exchange Act of 1992 (P.L. 102-

584); Utah School Lands Act (P.L. 103-93); Steens Mountain 

Cooperative Management and Protection Act of 2000 (16 

U.S.C. 460nnn, P.L. 106-399; and California Desert Protection 

Act of 1994 (P.L. 103-433), authorize the Secretary to enter 

into acquisitions, including purchase, donation, land exchange.
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Chapter VIII – Land Acquisition Page VIII-4

 FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount

Land Acquisitions - 16,226 - 35,014 - - - - +5,287 - 40,301 - +5,287 

Emergency & Hardships - 1,616 - 1,616 - - - - - - 1,616 - +0 

Acquisition Management 12 1,904 12 2,000 +42 - - - - 12 2,042 - +42 

Total, Land Acquisition 12 19,746 12 38,630 +42 - - - +5,287 12 43,959 - +5,329

 Requested Amount 

Summary of Requirements

(dollars in thousands)

2015 Actual 2016 Enacted Transfers Program Change Change from 2016 

 Fixed Costs

2017 President's Budget
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Fixed Cost Changes and Projections 2016 Total 

or Change

2016 to 2017 

Change

Change in Number of Paid Days +22 -43

Pay Raise +74 +85

Justification of Fixed Costs and Internal Realignments

Land Acquisition

(Dollars In Thousands)

This column reflects changes in pay associated with the change in the number of paid days between the 2016 and 2017. 

The change reflects the salary impact of the 1.6% programmed pay raise increases as provided in the June, 2015 Circular A-11.
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 2015 

Actual

2016 

Enacted

2017 President's Budget Change 

from 

2016 Fixed 

Costs Transfers Program Change

Requested 

Amount

Land Acquisitions $000 16,226 35,014 +0 +0 +5,287 40,301 +5,287 

FTE 0 0 +0 +0 0 +0

Emergency & Hardships $000 1,616 1,616 +0 +0 +0 1,616 +0 

FTE 0 0 +0 +0 0 +0

Acquisition Management $000 1,904 2,000 +42 +0 +0 2,042 +42 

FTE 12 12 +0 +0 12 +0 

Total, Land Acquisition $000 19,746 38,630 +42 +0 +5,287 43,959 +5,329 

FTE 12 12 +0 +0 12 +0 

The 2017 budget proposes to fund the Land Acquisition program with an appropriation from the 

Land and Water Conservation Fund at a total level of $43,959,000 and 12 FTE, a program 

change of +$5,287,000 from the 2016 enacted level. 

Activity Description

 

The BLM is authorized to acquire intermingled and adjacent non-Federal lands through 

purchase, exchange, and donation for specified public benefits. Consolidation of the public 

lands through land acquisition increases management efficiency in pursuing land management 

goals such as maintaining open space, providing opportunities for environmentally responsible 

recreation, preserving natural and cultural heritage resources, restoring at-risk botanical, 

fisheries and wildlife resources, and maintaining functioning ecosystems. The BLM’s Land 

Acquisition program utilizes Land and Water Conservation Fund (LWCF) monies for Land 

Acquisition, Emergencies, Hardships, and Inholdings, and Acquisition Management. 

In addition to acquiring land by purchase with LWCF appropriated funds, the BLM acquires land 

by exchange. When an exchange is proposed, every attempt is made to equalize values 

between the lands coming into Federal ownership and the lands leaving Federal ownership. In 

those instances where land values are not equal, the BLM attempts to equalize land values by 

decreasing or increasing the land leaving Federal ownership. In certain instances where values 

are not equal and there is no available land in Federal ownership to equalize values, a cash 

payment can be made to the exchange proponent. This cash payment, an equalization 

payment, cannot exceed 25 percent of the difference between the values of the lands coming 

into Federal ownership and the lands leaving Federal ownership. 

Activity: Land Acquisition
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Major Components of BLM’s Land Acquisition Program

($000) 2015 

Enacted

2016 

Enacted

2017

Discretionary Mandatory

Land Acquisition - Core Projects 5,000 7,072 13,139 13,741

Land Acquisition - Collaborative Projects 9,226 19,942 19,162 28,577

Total Land Acquisition Project Funding $14,226 $27,014 $32,301 $42,318

Sportsman/Recreational Access 2,000 8,000 8,000 0 

Acquisition Management 1,904 2,000 2,042 1,000

Emergencies, Hardships, & Inholdings 1,616 1,616 1,616 1,500

Total BLM Land Acquisition Funding $19,746 $38,630 $43,959 $44,818
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Activity: Land Acquisition

Subactivity: Land Acquisition

2015 

Actual

2016 

Enacted

2017 President's Budget Change 

from 

2016 Fixed 

Costs

Transfers Program 

Change

Requested 

Amount

Land Acquisition $000 16,226 35,014 +0 +0 +5,287 40,301 +5,287

FTE 0 0 +0 +0 0 +0

 

Summary of 2017 Program Changes/Internal Transfers for Land Acquisitions: ($000) FTE

Line-item Projects +5,287 +0 

Total +5,287 +0 

Justification of 2017 Program Changes

The 2017 budget request for the Land Acquisition program is $40,301,000, a program change of 

+$5,287,000 from the 2016 enacted level.

High Priority Projects (+$5,287,000) - In 2017, the BLM will acquire high priority acquisition 

projects in the core and collaborative landscape planning land acquisition programs. The 2017 

core program is $13.1 million and will fund nine of BLM’s highest priorities. The collaborative 

landscape-planning component invests strategically in interagency landscape-scale 

conservation projects while continuing to meet bureau-specific programmatic needs. The 

Department of the Interior and the U.S. Forest Service (USFS) collaborated extensively to 

develop a process to more effectively coordinate land acquisitions with government and local 

community partners to achieve the highest priority shared conservation goals. The 2017 request 

includes a total of $19.2 million for five collaborative landscapes consisting of 12 projects. Within 

this total, the BLM includes $9.0 million for the High Divide landscape, $3.0 million for the Rivers 

of the Chesapeake landscape, $2.0 million for projects that are part of the National Trails 

System landscape, $412,000 for the Florida-Georgia Longleaf pine landscape, and $4.75 million 

for the Pathways to the Pacific landscape. The 2017 request also includes a total of $8.0 million 

to benefit Sportsmen/Recreational access, level with the FY2016 enacted level.

Legislative Change

Mandatory Appropriation: Permanent Land Acquisition – The Department of the Interior will 

submit a legislative proposal to permanently authorize annual funding, without further 

appropriation or fiscal year limitation for the Land and Water Conservation Fund (LWCF). Starting 

in 2018, $900 million annually in permanent funds would be available. During the transition to full 

permanent funding in 2018, the budget proposes $900 million in total LWCF funding in FY 2017, 

comprised of $425 million in permanent and $475 million discretionary funds. The amounts 

requested include the authorized levels for the Department of the Interior and the Department of 

Agriculture. In 2017, the proposal includes $44.0 million in discretionary funding and $44.8 million 

in permanent funding, for the BLM Land Acquisition program.
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Land acquisition funds are also used to secure access for the American public to their Federal 

lands. Concurrent with the America’s Great Outdoor initiative, these funds will invest in 

acquisitions to better meet recreation access needs by working with willing landowners to 

secure rights-of-way, easements or fee simple lands that provide access or consolidate Federal 

ownership so the public has unbroken spaces to recreate, hunt, and fish. BLM will focus $8.0 

million in discretionary funding towards projects to acquire access for sportsmen/recreation 

access. 

Program Overview

The Land Acquisitions Program promotes the conservation of natural landscapes and resources 

by consolidating public lands through purchase, exchange and donation to increase 

management efficiency and preserve areas of natural, cultural, and recreational importance. 

Acquisition projects occur within or adjacent to nationally-designated management units, 

including National Monuments, National Conservation Areas, Wilderness, National Wild and 

Scenic Rivers, National Scenic Trails, and National Historic Trails, as well as in BLM-designated 

Areas of Critical Environmental Concern and Special Recreation Management Areas. Land 

acquisition funding is also necessary to acquire small parcels of land or access easements 

through these lands to provide public access to landlocked BLM lands. The BLM estimates 23 

million acres (or nine percent) of BLM-managed public lands lack public access or have 

inadequate public access, primarily due to checkerboard land ownership patterns. Securing and 

improving public access to these lands will serve various recreational activities, including 

hunting and fishing. 

The BLM utilizes funding from other sources such as from the Southern Nevada Public Land 

Management Act and other land sale authorizations. The Budget includes a legislative proposal 

to reauthorize the Federal Land Transaction Facilitation Act (FLTFA) and allow lands identified 

as suitable for disposal in recent land use plans to be sold using FLTFA authority. FLTFA sales 

revenues would continue to be used to fund the acquisition of environmentally sensitive lands 

and the administrative costs associated with conducting sales, which would provide funding for 

land acquisition as well. These legal authorities are described in the Lands and Realty 

Management section of the Management of Lands and Resources chapter, and various land 

sale accounts are described in the Permanent Operation Funds chapter.

The national Collaborative Landscape Planning (CLP) priority projects contained in this 

document reflect the collaborative efforts between the Departments of Interior and Agriculture in 

specific focal areas. As part of the landscape program, Interior bureaus collaborated 

extensively with the USFS and with government and local community partners to plan projects 

to achieve the highest priority shared landscape-scale conservation goals. An interagency team 

of BLM, U.S. Fish and Wildlife Service, National Park Service, and USFS experts identified a 

number of ecosystems throughout the Nation where high priority shared conservation goals 

could be achieved based on existing locally-driven conservation efforts. The prospective 

projects were evaluated according to criteria that included:

• Process: ensure proposals are community-driven, collaborative, and cost-effective;

• Outcome: ensure proposals contribute to informed, science-based, important local 

landscape-scale outcomes, so that Federal resources strategically achieve land 

management objectives;
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• Urgency: ensure funding decisions acknowledge where funds must be spent sooner 

rather than later to achieve outcomes or prevent harm, versus areas where outcomes 

could be achieved even if funding were postponed; and,

• Contribution to National/Regional priorities: ensure outcome goals contribute to regional 

and national priorities.

After analyzing the results of this process, bureau directors advised the Secretary on the 

development of the final CLP acquisitions to be incorporated in the integrated land acquisition 

lists.

Mandatory Appropriation: Permanent Land Acquisition - The Department of the Interior’s 

FY 2017 budget request proposes a multi-year strategy leading to full and mandatory funding 

for the Land and Water Conservation Fund. Mandatory funding would help to fulfill the 

commitment of LWCF: a fair return of the profits from developing the Nation’s offshore oil and 

gas resources to improve and increase the availability of outdoor opportunities for all 

Americans. The FY 2017 mandatory request through LWCF would provide an additional $44.8 

million for BLM land acquisition activities, for a total of $88.7 million between discretionary 

funding and the mandatory proposal. The complete mandatory listing of proposed projects 

would cover the 21 BLM priorities, located in at least nine States.

The joint Interior-Agriculture National Selection Committee identified a number of ecosystems 

throughout the Nation where high priority shared conservation goals can be achieved based on 

existing locally-driven conservation efforts. Through the rigorous merit based evaluation 

process, seven ecosystems were selected for inclusion in the 2017 budget. The BLM is involved 

in four of those landscapes including the High Divide, Rivers of the Chesapeake, National Trails 

System, and Pathways to the Pacific.

Investing now in these ecologically important but threatened landscapes will ensure that they 

remain resilient in the face of development pressures and global climate change. Smart 

investment in strategic conservation in these landscapes will prevent further ecosystem decline 

or collapse, which is expected to preclude the need for future investments in restoration. 

2017 Program Performance

In 2017, the BLM has plans for 21 acquisition projects (nine core and 12 collaborative) in 11 

States using discretionary funding. With mandatory funding, the BLM has plans for 21 

acquisition projects (12 core and nine collaborative) in 8 States. These acquisitions will 

strengthen the BLM’s efforts to preserve wildlife habitat and wilderness, conserve and protect 

cultural and historic resources, retain open space, and enhance public recreation opportunities 

in the western U.S. in perpetuity. The BLM will utilize innovative methods to acquire lands, 

including conservation easements, leveraged purchases, and the purchase of development 

rights where these methods meet management objectives and landowner needs. Planned 

acquisitions for 2017 are listed on the following page. The subsequent pages include maps of 

the acquisition projects and project descriptions.

The following lists of proposed land acquisition projects is the current set of land acquisition 

priorities that has been vetted and approved by the BLM and Departmental leadership to meet 

the high priority programmatic needs during fiscal year 2017. 
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Chapter VIII – Land Acquisition Page VIII-56
Bureau of Land Management 2017 Budget Justifications

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Bureau of Land Management 2017 Budget Justifications

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Bureau of Land Management 2017 Budget Justifications

Chapter VIII – Land Acquisition Page VIII-59

2015 

Actual

2016 

Enacted

2017 President's Budget Change 

from 

Fixed 2016

Costs

Transfers Program 

Change

Requested 

Amount

Emergency & Hardships $000 1,616 1,616 +0 +0 +0 1,616 +0

FTE 0 0 +0 +0 0 +0

Justification of 2017 Program Changes

The 2017 budget request for the Inholding, Emergency and Hardship program is $1,616,000. 

Program Overview

The Inholding, Emergency and Hardship program allows the BLM to promote conservation of 

natural landscapes and resources by consolidating privately owned land with publicly owned 

land when properties become available on short notice and would not remain available unless 

immediate action is taken. The availability of funds for Inholding, Emergency, and Hardship 

purchases permits timely actions to alleviate hardships and prevent adverse land use that may 

conflict with management objectives for adjacent public lands. The BLM’s parcels targeted for 

purchase with these funds, although typically small and generally inexpensive, conserve and 

protect cultural and historic resources, permit retention of increasingly limited open spaces, 

preserve wildlife habitat and wilderness, enhance public recreation opportunities, and are 

strongly supported for Federal acquisition by local communities.

2017 Program Performance

In 2017, the BLM will respond to field requests for Inholding, Emergency and Hardship funding 

as they are submitted for consideration on a case-by-case basis. The Bureau will continue to 

focus on acquisitions that conserve and protect cultural and historic resources, retain open 

space, preserve wildlife habitat and wilderness, and enhance public recreation opportunities in 

the western U.S. in perpetuity.

Activity: Land Acquisition

Subactivity: Emergencies, Hardships, & Inholdings
Bureau of Land Management 2017 Budget Justifications

Chapter VIII – Land Acquisition Page VIII-60

Activity: Land Acquisition

Subactivity: Acquisition Management

2015 

Actual

2016 

Enacted

2017 President's Budget Change 

Fixed from 2016

Costs Transfers Program Change

Requested 

Amount

Acquisition 

Management

$000 1,904 2,000 +42 +0 +0 2,042 +42

FTE 12 12 +0 +0 12 +0

Justification of 2017 Program Changes

The 2017 budget request for the Acquisition Management program is $2,042,000 and 12 FTE.

Program Overview

The Acquisition Management program completes the administrative tasks necessary for the 

Land Acquisition program to acquire land funded through the Land and Water Conservation 

Fund. Acquisition Management program funds are used for title research, appraisal, appraisal 

review, project planning, boundary surveys, relocation, taxes, escrow, closing, coordination with 

BLM multi-resource programs, and coordination with local governments and private parties.

The BLM closely monitors funds spent for processing costs associated with the purchase of 

land and interests in land. Processing costs typically range between $50,000 and $100,000 per 

project, depending on the complexity of title searches and appraisals, boundary surveys, the 

number of parcels contained in each purchase, costs associated with the purchase of 

conservation easements, and other factors. Close communication with field offices and close 

monitoring of funds spent, allows the BLM to allocate the appropriate amount of funding to each 

office.

The Acquisition Management program receives assistance from dozens of third-party partners 

such as the Audubon Society, the Conservation Fund, the Nature Conservancy, and the Trust 

for Public Land and the Wilderness Land Trust. These partners continually assist local 

communities and the BLM in supporting the acquisition and management of specific properties 

for cultural, recreational and wildlife values and to preserve open space. While the majority of 

these partners support acquisition of lands through grassroots political advocacy and long-term 

conservation management, some regional and national partners directly assist the BLM by 

becoming transactionally involved in the purchase of fee and conservation easement property 

interests. Approximately 80 percent of BLM purchase transactions are completed with the 

assistance of these third-party conservation partners. This assistance is a major cost savings 

for the BLM.

2017 Program Performance

In 2017, the BLM will complete the administrative tasks necessary to acquire fee or easement 

interests in lands designated for purchase under the Land Acquisition program.
Bureau of Land Management 2017 Budget Justifications

Chapter VIII – Land Acquisition Page VIII-61

Budget Schedules - Current Law

Account Symbol and Title

14X5033

Land Acquisition Line 2015 Act 2016 CY 2017 BY

Program and Financing (P) ($ in Millions)

Obligations by program activity:

 Land acquisition 0001 8 18 20

 Acquisition management 0002 2 4 4

Total new obligations 0900 10 22 24

Budgetary resources:

 Unobligated balance:

 Unobligated balance brought forward, Oct 1 1000 23 33 50

 Budget authority:

 Appropriations, discretionary:

 Appropriation (special or trust fund) 1101 20 39 44

 Appropriations transferred from other acct [014-

1125] 1121 0 0 0

 Appropriation, discretionary (total) 1160 20 39 44

 Appropriation, discretionary - Computed Totals 1160-20 20 39 44

 Appropriation [Protected Conserving New 

Lands-LWCF] 1160-40 20 39 44

 Baseline Civilian Pay 1160-50 2 2 

 Baseline Non-Pay 1160-50 37 38

 Policy Outlays:

 New Authority 1160-61 3 10 11

 Balances (excl of EOY PY Bal) 1160-62 13 0 20

 End of PY Balances 1160-63 5 0

 Subtotal, outlays 1160-64 16 15 31

 Baseline Outlays:

 New Authority 1160-81 10 10

 Balances (excl of EOY PY Bal) 1160-82 0 20

 End of PY Balances 1160-83 5 0

 Subtotal, outlays 1160-84 15 30

Total budgetary resources available 1930 43 72 94

 Memorandum (non-add) entries:

 Unexpired unobligated balance, end of year 1941 33 50 70

Change in obligated balance:

 Unpaid obligations:

 Unpaid obligations, brought forward, Oct 1 3000 6 0 7

 Obligations incurred, unexpired accounts 3010 10 22 24

 Outlays (gross) 3020 -16 -15 -31
Bureau of Land Management 2017 Budget Justifications

Chapter VIII – Land Acquisition Page VIII-62

Account Symbol and Title

14X5033

Land Acquisition Line 2015 Act 2016 CY 2017 BY

 Unpaid obligations, end of year 3050 0 7 0

 Memorandum (non-add) entries:

 Obligated balance, start of year 3100 6 0 7

 Obligated balance, end of year 3200 0 7 0

Budget authority and outlays, net:

 Discretionary:

 Budget authority, gross 4000 20 39 44

 Outlays, gross:

 Outlays from new discretionary authority 4010 3 10 11

 Outlays from discretionary balances 4011 13 5 20

 Outlays, gross (total) 4020 16 15 31

 Budget authority, net (discretionary) 4070 20 39 44

 Outlays, net (discretionary) 4080 16 15 31

Budget authority, net (total) 4180 20 39 44

Outlays, net (total) 4190 16 15 31

INVESTMENT ACTIVITIES:

 Physical assets:

 Major equipment:

 Purchases and sales of land and structures for 

Federal use:

 Direct Federal programs:

 Budget Authority 1340-01 20 39 44

 Outlays 1340-02 16 15 31

Object Classification

Direct obligations:

 Personnel compensation:

 Full-time permanent 11.1 1 1 1

 Other services from non-Federal sources 25.2 2 3 3

 Land and structures 32.0 7 18 20

 Total new obligations 99.9 10 22 24

Employment Summary

Direct civilian full-time equivalent employment 1001 12 12 12

Budget year budgetary resources [014-5033] 1000 43,959
Bureau of Land Management 2017 Budget Justifications

Chapter VIII – Land Acquisition Page VIII-63

Budget Schedules - Proposal

Account Symbol and Title

14X5033

Land Acquisition Line 2015 Act 2016 CY 2017 BY

Program and Financing (P) ($ in Millions)

Obligations by program activity:

 Land acquisition 0001 0 0 30

 Acquisition management 0002 0 0 4

Total new obligations 0900 0 0 34

Budgetary resources:

 Unobligated balance:

 Unobligated balance brought forward, Oct 1 1000 0 0 0

 Budget authority:

 Appropriations, mandatory:

 Appropriations transferred from other acct [014-

5005] 1221 0 0 45

 Appropriations, mandatory (total) 1260 0 0 45

 Appropriations, mandatory - Computed Totals 1260-20 0 0 45

 Appropriation [LWCF] 1260-40 0 0 45

 Policy Outlays:

 New Authority 1260-61 0 0 4

 Balances (excl of EOY PY Bal) 1260-62 0 0 0

 End of PY Balances 1260-63 0 0

 Subtotal, outlays 1260-64 0 0 4

Total budgetary resources available 1930 0 0 45

 Memorandum (non-add) entries:

 Unexpired unobligated balance, end of year 1941 0 0 11

Change in obligated balance:

 Unpaid obligations:

 Unpaid obligations, brought forward, Oct 1 3000 0 0 0 

 Obligations incurred, unexpired accounts 3010 0 0 34

 Outlays (gross) 3020 0 0 -4

 Unpaid obligations, end of year 3050 0 0 30

 Memorandum (non-add) entries:

 Obligated balance, start of year 3100 0 0 0

 Obligated balance, end of year 3200 0 0 30

Budget authority and outlays, net:

 
Bureau of Land Management 2017 Budget Justifications

Chapter VIII – Land Acquisition Page VIII-64

Account Symbol and Title

14X5033

Land Acquisition Line 2015 Act 2016 CY 2017 BY

Mandatory:

 Budget authority, gross 4090 0 0 45

 Outlays, gross:

 Outlays from new mandatory authority 4100 0 0 4

 Budget authority, net (mandatory) 4160 0 0 45

 Outlays, net (mandatory) 4170 0 0 4

Budget authority, net (total) 4180 0 0 45

Outlays, net (total) 4190 0 0 4

Character Classification (C)

INVESTMENT ACTIVITIES:

 Physical assets:

 Major equipment:

 Purchases and sales of land and structures for 

Federal use:

 Direct Federal programs:

 Budget Authority 1340-01 0 0 45

 Outlays 1340-02 0 0 4

Object Classification (O)

Direct obligations:

 Other services from non-Federal sources 25.2 0 0 10

 Land and structures 32.0 0 0 24

 Total new obligations 99.9 0 0 34

Employment Summary (Q)

Direct civilian full-time equivalent employment 1001 0 0 0
Oregon and California 

Grant Lands

Bureau of Land Management 2017 Budget Justifications

Chapter IX – Oregon & California Grant Lands Page IX-1

OREGON AND CALIFORNIA 

GRANT LANDS

Appropriations Language

For expenses necessary for management, protection, and development of resources and for 

construction, operation, and maintenance of access roads, reforestation, and other 

improvements on the revested Oregon and California Railroad grant lands, on other Federal 

lands in the Oregon and California land-grant counties of Oregon, and on adjacent rights-ofway; and acquisition of lands or interests therein, including existing connecting roads on or 

adjacent to such grant lands; [$107,734,000]$106,985,000, 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 (43 U.S.C. 1181f). (Department of the Interior, Environment, and Related 

Agencies Appropriations Act, 2016.)

Appropriations Language Citations 

1. For expenses necessary for management, protection, and development of resource 

and for construction, operation, and maintenance of access roads, reforestation, and 

other improvements

This language provides authority to use appropriated funds provided for the BLM to carry out 

the mission of the Oregon and California Grant Lands program. The BLM manages these lands 

for forest diversity and sustainability while providing multiple-use benefits and services to local 

communities and the public. Activities focus on forest management, watershed health, wildlife 

and fisheries habitat improvement, recreation opportunities, cultural resources protection, and 

infrastructure maintenance.

2. on the revested Oregon and California Railroad grant lands, on other Federal lands in 

the Oregon and California land-grant counties of Oregon, 

The BLM manages resources on public domain under the provisions of the Federal Land Policy 

and Management Act of 1976. Programs conducted on certain O&C grant lands within National 

Forests are under the jurisdiction of the U.S. Forest Service (USFS) and managed with USFS 

funds. The USFS returns receipts generated from activities on these lands to the BLM for 

payment to counties in accordance with the Act. 

3. and on adjacent rights-of-way and acquisition of lands or interests therein, including 

existing connecting roads on or adjacent to such grant lands;

The O&C appropriation supports the acquisition of easements, road-use agreements for timber 

site access, and the design of access roads for general resource management purposes. 

 
Bureau of Land Management 2017 Budget Justifications

Chapter IX – Oregon & California Grant Lands Page IX-2

4. $106,985,000 to remain available until expended

This language provides authority to use $106,985,000 in appropriated funds to carry out the 

mission of the program. The language makes the funding no-year, available for expenditure in 

any year after the appropriation. This type of account allows BLM a valuable degree of flexibility 

needed to support multi-year contracts, agreements and purchases.

5. 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 (43 U.S.C. 1181(f)). 

The 2017 budget request reflects the continuation of BLM’s Oregon and California Grant Lands 

existing authorities within the Office of the Secretary.

Authorizations

The Oregon and California Grant Lands Act of 1937 (43 U.S.C. 1181) provides for 

conservation, management, permanent forest production, and sale of timber from revested 

Oregon and California (O&C) grant lands and reconveyed Coos Bay Wagon Road (CBWR) 

grant lands located in western Oregon.

The Federal Land Policy and Management Act of 1976, 43 U.S.C. 1701 et seq., as 

amended, provides for the public lands to be generally retained in Federal ownership; for 

periodic and systematic inventory of the public lands and their resources; for a review of existing 

withdrawals and classifications; for establishing comprehensive rules and regulations for 

administering public land statutes; for multiple use management on a sustained yield basis; for 

protection of scientific, scenic, historical, ecological, environmental, air and atmospheric, water 

resource, and archaeological values; for receiving fair market value for the use of the public 

lands and their resources; for establishing uniform procedures for any disposal, acquisition, or 

exchange; for protecting areas of critical environmental concern; and for recognizing the 

Nation's need for domestic sources of minerals, food, timber, and fiber from the public lands, 

including implementation of the Mining and Minerals Policy Act of 1970. 

The Federal Land Policy and Management Act applies to all public lands that include the 

O&C grant lands by definition (Sec. 103(e)). However, Sec. 701(b) of FLPMA (43 U.S.C. 1701

note) provides that if any provision of FLPMA is in conflict with or inconsistent with the O&C Act

and Coos Bay Wagon Road Act, insofar as they relate to management of timber resources and 

disposition of revenue from lands and resources, the latter Acts will prevail. In addition, many 

other Federal statutes regarding natural resource management and protection apply to the 

management of the O&C and CBWR grant lands in western Oregon.

The Act of May 24, 1939 (53 Stat. 753) relates to the disposition of funds from the CBWR grant 

lands located in western Oregon. 

The Timber Protection Act of 1922 (16 U.S.C. 594) provides for the protection of timber from 

fire, insects, and disease.
Bureau of Land Management 2017 Budget Justifications

Chapter IX – Oregon & California Grant Lands Page IX-3

The Secure Rural Schools and Community Self-Determination Act of 2000 (P.L. 106-393)

authorizes stabilized payments to O&C and CBWR Counties for 2001 through 2006. Each 

county that received at least one payment during the eligibility period (1986-1999) received an 

amount equal to the average of the three highest 50-percent payments and safety net payments 

made for the years of the eligibility period. The payments were adjusted to reflect changes in the 

Consumer Price Index. The Act expired in 2006. The final payments for 2006 were made in 

2007, consistent with the Act.

P.L. 110-28 provided one additional year of payments to O&C grant lands and Coos Bay 

Wagon Road counties.

Sec. 601. of P.L. 110-343 Secure Rural Schools and Community Self-Determination 

Program provided an extension and ramping down of payments to the O&C grant lands and the

Coos Bay Wagon Road counties through fiscal year 2011. 

P.L. 112-141 – Moving Ahead for Progress in the 21st Century Act (MAP-21) provided an 

extension of one year of Secure Rural School payments to O&C grant lands and Coos Bay 

Wagon Road counties.

P.L. 113-40 – Helium Stewardship Act of 2013 provided an extension of one year of Secure 

Rural School payments to O&C grant lands and Coos Bay Wagon Road counties. 

P.L. 114-10 - ‘Medicare Access and CHIP Reauthorization Act of 2015 provided an 

extension of two years (2014 and 2015) of Secure Rural School payments to O&C grant lands 

and Coos Bay Wagon Road counties.

Public Land Order 5490, dated February 12, 1975, reserved all public lands in and west of 

Range 8 East of the Willamette Meridian and all lands within that area which hereinafter 

become public lands for multiple use management, including sustained yield of forest resources 

in connection with intermingled revested Oregon and California Railroad Grant Lands and 

reconveyed Coos Bay Wagon Road Grant Lands. 

Healthy Forest Restoration Act (P.L. 108-148) authorizes the BLM and the U.S. Forest 

Service to conduct hazardous fuels reduction projects on federal land in wildland-urban 

interface (WUI) areas and on certain other federal lands using expedited procedures.

Land Conveyance to Douglas County, Oregon, (P.L. 108-206) authorized conveyance to 

Douglas County, Oregon, of approximately 68.8 acres of BLM-managed land in Douglas County 

in order to improve management of and recreational access to the Oregon Dunes National 

Recreation Area. 

Forest Ecosystem Health & Recovery Fund, (P.L. 102-381) authorized quick response to fire 

and reforestation of forests damaged by insects, disease, and fire. Also includes proactive 

vegetative treatments designed to reduce the risk of catastrophic damage to forests and 

increase forest resiliency to disturbances. Funds in this account are derived from the Federal 

share (defined as the portion of receipts not paid to the counties under 43 U.S.C. 1181f and 43 

U.S.C. 1181-1 et seq., and P.L. 106-393) of receipts from all BLM timber salvage sales and all 

BLM forest health restoration treatments funded by this account. The authority to make 

deposits and to spend from this fund was provided in the 2010 Interior Appropriations Act (P.L. 
Bureau of Land Management 2017 Budget Justifications

Chapter IX – Oregon & California Grant Lands Page IX-4

111-88, 123 STAT. 2906) and was scheduled to expire at the end of fiscal year 2015. The 2015 

Omnibus Appropriations Act (Section 117) extended this authority through 2020.

Timber Sale Pipeline Restoration Funds (PL 104-134 - Section 327 of the Omnibus 

Consolidated Rescissions and Appropriations Act of 1996.) established initial funds for the 

USFS and the BLM using revenues generated by timber sales released under Section 2001(k) 

of the 1995 Supplemental Appropriations for Disaster Assistance and Rescissions Act. The 

legislation directs that 75 percent of the subsequent pipeline fund be used to fill each agency’s 

timber sale “pipeline” and that 25 percent of the pipeline funds be used to address maintenance 

backlog for recreation projects on BLM and USFS lands after statutory payments are made to 

State and local governments and the U.S. Treasury.

Stewardship Contracting (Sec. 347 of Public Law 105-277, as amended by Public Law 

108-7 and Public Law 113-79) permanently authorizes the BLM, via agreement or contract as 

appropriate, to 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 forests 

and the public lands that meet local and rural community needs. 
Bureau of Land Management 2017 Budget Justifications

Chapter IX – Oregon & California Grant Lands Page IX-5

 FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount

Western Oregon Resources Management

Forest Management 268 33,447 268 33,752 +73 - - - - 268 33,825 - +73 

Reforestation & Forest Development 118 23,851 118 24,023 +43 - - - - 118 24,066 - +43 

Other Forest Resource Mgmt 259 36,985 259 33,495 +61 - - - - 259 33,556 - +61 

Resource Mgmt Planning 42 7,140 42 3,985 +13 - - - -1,000 42 2,998 - -987 

Total, Western Oregon Resource Management 687 101,423 687 95,255 +190 0 - +0 -1,000 687 94,445 - -810 

Info. & Resource Data Systems 11 1,772 11 1,786 +12 - - - - 11 1,798 - +12 

Transportation & Facilities Maintenance

Annual Maintenance 1 - 1 - - - - - - 1 - - +0 

Annual Maintenance & Operations 62 9,517 62 9,602 +26 - - - - 62 9,628 - +26 

Subtotal, Western Oregon Trans & Facilities Maint 63 9,517 63 9,602 +26 - - - - 63 9,628 - +26 

Construction & Acquisition 2 312 2 324 +11 - - - - 2 335 - +11 

NMs & NCAs 4 753 4 767 +12 - - - - 4 779 - +12 

Total, Oregon & California Grant Lands 767 113,777 767 107,734 +251 0 - +0 -1,000 767 106,985 - -749 

 Requested 

Amount 

Summary of Requirements

(dollars in thousands)

2015 Actual 2016 Enacted Transfers Program Change Change from 2016 

 Fixed Costs

2017 President's Budget
Bureau of Land Management 2017 Budget Justifications

Chapter IX – Oregon & California Grant Lands Page IX-6

Fixed Cost Changes and Projections 2016 Total 

or Change

2016 to 2017 

Change

Change in Number of Paid Days +134 -259

Pay Raise +751 +510

This column reflects changes in pay associated with the change in the number of paid days between the 2016 and 2017. 

The change reflects the salary impact of the 1.6% programmed pay raise increases as provided in the June, 2015 Circular A-11.

Justification of Fixed Costs and Internal Realignments

Oregon and California Grant Lands

(Dollars In Thousands)
Bureau of Land Management 2017 Budget Justifications

Chapter IX – Oregon & California Grant Lands Page IX-7

Appropriation Description

The Oregon and California (O&C) Grant Lands appropriation provides for management of the 

revested O&C Railroad grant lands and the reconveyed Coos Bay Wagon Road (CBWR) grant 

lands. The BLM manages these lands for forest diversity and sustainability while providing an 

array of multiple-use benefits and services to local communities and the public (see discussion 

under each activity and subactivity). As mandated by the O&C Act of 1937 (43 U.S.C. 1181), 

these lands are managed for timber production under the principle of sustained yield. Activities 

focus on forest management including commodity production; watershed health and productivity 

including soil and water restoration projects; wildlife and fisheries habitat protection and 

improvement; recreation opportunities; cultural resources protection; and infrastructure 

maintenance.

The BLM manages 2.4 million acres of O&C grant lands, CBWR lands, and intermingled public 

domain lands with this appropriation. The BLM manages resources on public domain land (10 

percent of the area) under the provisions of the Federal Land Policy and Management Act of 

1976. Programs conducted on certain O&C grant lands within National Forests are under the 

jurisdiction of the U.S. Forest Service (USFS) and managed with USFS funds (often refered to 

as Controverted O&C Lands). The USFS returns receipts generated from activities on these 

lands to the BLM for payment to counties in accordance with the Act. The five budget activities 

of the O&C appropriation are summarized below. Through these activities, the BLM implements 

resource management plans (RMP) and supports resource activities on the O&C and CBWR 

grant lands under the BLM’s jurisdiction.

• Western Oregon Construction and Acquisition provides for the acquisition of 

easements, road-use agreements for timber site access, and the design of access roads 

for general resource management purposes. 

 

• Western Oregon Transportation and Facilities Maintenance provides for 

maintenance activities for the transportation system, office buildings, warehouse and 

storage structures, shops, greenhouses, and recreation sites. This program’s efforts 

maintain the transportation system necessary for effective implementation of the RMPs. 

Road maintenance activities help to reduce or eliminate negative impacts of poor road 

conditions on aquatic and fisheries resources, including Pacific salmon and other 

resident and anadromous fish populations in the Northwest. 

• Western Oregon Resources Management provides for planning, preparing, offering, 

administering and monitoring timber sales; maintaining the sustainability of forest 

resources and timber harvest through reforestation, development, and restoration 

techniques; managing and monitoring wildlife habitat, recreational opportunities, and 

rangeland resources; and maintaining or improving soil, water and air quality. 

• Western Oregon Information and Resource Data Systems provides for the 

acquisition, operation, and maintenance of the automated data support systems required 

for the management of the O&C grant lands. The focus of this program is to make data 

operational for monitoring and adaptive management; and for developing and analyzing 

activity plans, such as timber sales and habitat management plans.

 
Bureau of Land Management 2017 Budget Justifications

Chapter IX – Oregon & California Grant Lands Page IX-8

• Western Oregon National Monuments and National Conservation Areas provides 

for the management of National Monuments and National Conservation Areas and other 

similar Congressionally designated areas in western Oregon. 

O&C LANDS IN WESTERN OREGON

(ACRES)

BLM-Managed Lands 

O&C Grant Lands 2,084,796

CBWR Lands 74,547 

Public Domain Lands 239,500

 Total – BLM 2,398,843 

U.S. Forest Service-Managed Lands 

Controverted O&C Lands 462,678 

Special Act O&C Lands 29,721 

 Total - U.S. Forest Service 492,399 

Additional Funding Methods

In addition to the O&C Grant Lands appropriation, two Permanent Appropriations, the Timber 

Sale Pipeline Restoration Fund and the Forest Ecosystem Health and Recovery Fund, are 

available for use and do not require annual appropriation action. These are the outlined in 

Permanent Operating Funds, 2017 Budget Justifications. 

Management of Oregon and California Grant Lands

The BLM manages 2.4 million acres of O&C and CBWR lands in western Oregon. The BLM has 

practiced sustainable forest management, as outlined in the O&C Act of 1937, which includes a 

provision for the western Oregon counties to receive shares of timber sale receipts. In the late 

1970s, USFS researchers observed a rapid decline in the populations of the Northern Spotted 

Owl, a species associated with old-growth forests. In 1990, the U.S. Fish and Wildlife Service 

(FWS) listed the Northern Spotted Owl as threatened under the Endangered Species Act of 

1973, citing loss of old-growth habitat. The BLM modified management of forested lands to 

conserve the old-growth forests, reducing the annual timber sale volumes and thus reducing 

receipts to counties.

Soon after the listing of the owl, President Clinton convened a group of scientists called the 

Forest Ecosystem Management Assessment Team. Their Assessment report in 1993, led to the 

development of the Northwest Forest Plan (NWFP) in 1994; the NWFP amended BLM and 

USFS land use plans within the range of the Northern Spotted Owl. This plan set out land use 

allocations, standards and guidelines for management designed to contribute to the recovery of 

Northern Spotted Owls and marbled murrelets and to produce a predictable and sustainable 

level of timber sales. Under the NWFP, agencies are required to survey and manage for rare, 

uncommon, or little known species of plants and animals.

The BLM has managed the O&C lands under the NWFP since 1994. The change in 

management resulting from the NWFP has not been without controversy. The BLM’s Western 

Oregon Districts continue to receive protests, appeals, and litigation on individual timber sales 

as well as on other larger programmatic issues.
Bureau of Land Management 2017 Budget Justifications

Chapter IX – Oregon & California Grant Lands Page IX-9

In 2009, the Western Oregon Plan Revisions (2008 Records of Decision), finalized in

December, 2008, were withdrawn by the Secretary. He determined the process was legally 

flawed, having failed to complete consultation under the Endangered Species Act. The decision 

to withdraw the 2008 Records of Decision was accompanied with the direction to revert to 

managing the O&C lands under the Northwest Forest Plan (1995 Records of Decision/RMP). 

Since 2009, the BLM has subsequently designed a timber sale program of work consistent with 

the 1995 Records of Decision, Northwest Forest Plan, the Endangered Species Act, and other 

laws and regulations. Forest restoration is one of the goals of the NWFP, and is emphasized 

where appropriate in the context of the timber sale planning process. The BLM resource 

management plans continue to be litigated from both conservation and industry groups, 

resulting in a complicated and changing legal framework under which managers must 

implement projects. 

In October 2009, former BLM Director Abbey and the late FWS Director Sam Hamilton 

convened the interdisciplinary Western Oregon Task Force. The task force, composed of 

experts across a range of resource disciplines, from the BLM, the FWS, the National Marine 

Fisheries Service and the USFS, examined the Western Oregon Plan Revisions process and 

the long-standing challenges of managing the forests for multiple goals. The task force issued 

recommendations that the BLM and other Federal agencies have been working on in order to 

find new approaches for forest management. 

In December 2010, the Secretary initiated a plan applying the principles of ecological forestry as 

suggested by Doctors Norm Johnson and Jerry Franklin, on BLM lands. This ongoing initiative 

explores ways to restore ecological processes and address economic issues on O&C lands. As 

of December 2014, the BLM has completed a number of forestry ecological pilot timber sales 

and continues to offer additional timber sales in various western Oregon Districts. The projects 

seek to: 

• Demonstrate a landscape level approach to forest ecosystem restoration that includes 

active management; 

• Restore functional and sustainable ecological conditions in Federal forests; 

• Allow recovery for threatened species; and 

• Provide needed employment opportunities. 

The FWS is assisting in development and review of the ecological forestry efforts. The BLM is 

using a variety of means to inform and involve stakeholders to stimulate collaboration with

public stakeholders. 

In June 2011, the FWS issued their Revised Recovery Plan for the Northern Spotted Owl, and 

in November 2012, issued the final Critical Habitat Rule for the Northern Spotted Owl. Both the 

Recovery Plan and the final Critical Habitat Rule emphasize maintenance and enhancement of 

Northern Spotted Owl habitat and do not preclude active forest management, where 

appropriate, to increase stand resiliency, reduce hazardous fuels, and promote ecological 

diversity. The BLM is incorporating the new Critical Habitat Rule and Recovery Plan into outyear timber sale planning. 

In February 2012, the BLM announced new planning efforts for the six West-side Oregon 

Resource Management Plans. The BLM released the Draft EIS for the new plans in April of 

2015 and received over 4,000 public comments. The BLM expects to release the Final EIS in 

the spring of 2016 and sign the Record of Decision later this year. The current RMPs were 
Bureau of Land Management 2017 Budget Justifications

Chapter IX – Oregon & California Grant Lands Page IX-10

signed in 1995. The new RMPs will analyze management of the different resources and 

incorporate new information including the 2011 Northern Spotted Owl Recovery Plan and 2012 

Final Critical Habitat Rule. The U.S. Forest Service’s Oregon and Washington National Forests 

within the Northwest Forest Plan region are in the very initial planning phase to revise their 

National Forest Plans.

Timber Harvest Targets and Volumes

The long-term annual timber target or allowable sale quantity (ASQ) from O&C lands and as 

declared in the six 1995 Resource Management Plans (RMPs) is 203 million board feet 

(MMBF). Note that a new declared ASQ for the 2016 RMP is still being analyzed in the Final 

EIS. Although volume offered from the reserve land use allocations does not count towards the 

ASQ target, it does contribute towards meeting the BLM’s annual performance target; achieving 

ecological objectives in reserve areas through active management; and contributing to the 

needs of rural communities. The NWFP timber targets and accomplishments displayed in the 

tables below are for the BLM-managed lands in both western Oregon and northern California, 

even though timber activities in northern California are funded by other appropriations. 

0

50

100

150

200

250

300

200120022003200420052006200720082009201020112012201320142015

MMBF - Million Board Feet

O&C Volume Offered For Sale

2001-2015 

Volume

ASQ 203
Bureau of Land Management 2017 Budget Justifications

Chapter IX – Oregon & California Grant Lands Page IX-11

BLM O&C WESTERN OREGON AND CALIFORNIA ALLOWABLE 

SALE QUANTITY – TOTAL VOLUME OFFERED UNDER THE 

NWFP

BLM NWFP Area Timber Volume Targets

Year

Allowable Sale 

Quantity Target Total Volume Offered

OR CA Total OR CA Total

1995 118 15 133 127.3 22.8 150.1

1996 180 2.5 182.5 189.7 5.8 195.5

1997 211 2.5 213.5 212 10.2 222.2

1998 211 2.5 213.5 257.5 0.4 257.9

1999 203 2.5 205.5 61.7 3.1 64.8

2000 203 2.5 205.5 69.2 0.7 69.9

2001 203 1 204 56.4 0.1 56.5

2002 203 1 204 162.5 0.4 162.9

2003 203 1 204 162.7 0 162.7

2004 203 1 204 140 0.1 140.1

2005 203 1 204 198.2 7.7 205.9

2006 203 1 204 200.6 0.6 201.2

2007 203 1 204 195.6 3.2 198.8

2008 203 1 204 230.2 0.8 231.0

2009 203 1 204 203.8 0.8 204.6

2010 203 1 204 233.8 0.8 234.6

2011 203 1 204 197 1.8 198.8

2012 203 1 204 206.4 0.5 206.9

2013 203 1 204 204.9 0.0 204.9

2014 203 1 204 239.4 0.2 239 

239.6

2015 203 1 204 221 0.0 221.4

2016 est. 203 1 204 203 1.0 204

 2017 est *203 1 204 *203 1.0 204

Note: Timber volumes displayed include BLM-managed lands in California managed 

within the area of the NWFP, even though activities are funded by BLM 

appropriations other than O&C funds. 

• 2017 ASQ will be declared when new RMP are finalized.

O&C Revenues and Receipts

The BLM derives timber receipts used for O&C payments from the harvest of timber on O&C 

lands managed by the BLM, and controverted O&C grant lands under the jurisdiction of the 

USFS. In addition, the BLM derives receipts from CBWR and Public Domain lands in western 

Oregon as well. 

The projected timber receipts in 2017 are lower than those collected in 2015 and projected for 

2016. The large increase in timber receipts in 2014 and 2015 was reflective of the large amount 

of salvage volume sold and harvested in both of those years. The much lower receipts earlier in 
Bureau of Land Management 2017 Budget Justifications

Chapter IX – Oregon & California Grant Lands Page IX-12

the decade coincided with the Great Recession and associated decline in construction and 

housing markets and timber valuesi.

TIMBER RECEIPTS FOR WESTERN OREGON BLM LANDS

(Million $)

2008 2009 2010 2011 2012 2013 2014 2015 2016 

est.

2017

Est.

O&C Grant Lands

Regular Sales 13.0 14.2 9.7 11.6 11.5 17.3 30.2 18.3 20.0 18.0

Salvage Sales 4.3 5.5 3.2 2.7 4.3 4.0 4.5 12.2 5.0 4.0

Subtotal 17.3 19.7 12.9 14.3 15.8 21.3 34.7 30.5 25.0 22.0

CBWR Lands

Regular Sales 0.3 0.2 .8 0 1.0 2.2 3.3 7.7 2.0 1.5

Salvage Sales 0.1 0 0 0 0.2 0.2 0.1 -0.1 0.1 0.1

Subtotal 0.4 0.2 0.8 0.1 1.2 2.4 3.4 7.6 2.1 1.6

Timber Sale Pipeline Restoration Fund

PD, O&C, and 

CBWR 9.,8 4.5 4.3 3.9 3.8 2.4 4.3 9.5 4.6 3.6

Stewardship Contract Excess Proceeds

PD, O&C, and 

CBWR 0 0.2 0 0.1 0.3 0.05 0.1 0.0 0.0 0.0

Total Receipts 27.6 24.6 18.0 18.3 21.1 26.1 42.5 47.6 31.7 27.2

Timber Sale Pipeline Restoration Fund

The Timber Sale Pipeline Restoration Fund (the Pipeline Fund) was established under Section 

327 of the Omnibus Consolidated Rescissions and Appropriations Act of 1996. The Act 

established separate funds for the USFS and the BLM, using revenues generated by timber 

sales released under Section 2001(k) of the 1995 Supplemental Appropriations for Disaster 

Assistance and Rescissions Act, which directs that 75 percent of the Pipeline Fund be used to 

fill each agency’s timber sale “pipeline” and that 25 percent of the Pipeline Fund be used to 

address maintenance backlog for recreation projects on BLM and USFS lands after statutory 

payments are made to State and local governments and the U.S. Treasury.

At the end of 2015, the balance in BLM’s Pipeline Fund was approximately $14.0 million. The 

BLM has implemented a spend-down plan to bring the Pipeline Fund balance down to 

approximately $5.0-$7.0 million by the end of 2017. This carryover balance generally offsets 

irregular annual deposits caused by fluctuations in timber market conditions and purchasers 

opting on which year to harvest their 1-3 year timber sale contracts. A balance at the end of the 

year allows continued use of the Pipeline Fund to meet the Pipeline Fund’s annual objective of 

rebuilding and maintaining the timber sale pipeline. Receipts, deposits and cumulative 

expenditures are described in the Permanent Operating Funds chapter. 

Payments to the O&C Counties

Timber harvest levels have dropped significantly from the historical levels of the late 1980s and 

early 1990s. The traditional payment formulas defined in Title II of the Oregon and California 

Grant Lands Act of 1937, U.S.C. 43 1181f, (50 Stat. 876, Title II) were modified to account for 

these declines and provide fiscal predictability to the O&C counties.
Bureau of Land Management 2017 Budget Justifications

Chapter IX – Oregon & California Grant Lands Page IX-13

Receipts from public domain lands within the O&C grant lands are distributed to the State of 

Oregon (four percent), the General Fund of the U.S. Treasury (20 percent), and the 

Reclamation Fund (76 percent), except those generated through projects funded by the Forest 

Ecosystem Healthy Recovery Fund and the Timber Sale Pipeline Restoration Fund, which are 

deposited into those accounts.

Under the Secure Rural Schools and Community SelfDetermination Act of 2000 (P.L. 106-393), the annual 

payments to the 18 O&C counties were derived from 

any revenues, fees, penalties, or miscellaneous 

receipts (exclusive of deposits to any relevant trust 

fund, or permanent operating funds such as the 

Timber Sale Pipeline Restoration or the Forest 

Ecosystem Health and Recovery funds) received by 

the Federal government from activities by the BLM on 

O&C lands, and to the extent of any shortfall, out of 

any funds in the Treasury not otherwise appropriated. 

The Secure Rural Schools Act of 2000 provided that, 

for 2001-2006, each payment to eligible counties 

would be an amount equal to the average of the three 

highest payments made during fiscal years 1986-1999. 

For each payment made by the BLM under the law, 

the full payment amount would be adjusted for 

inflation. The Secure Rural Schools Act of 2000 

expired in 2006 and final payments for 2006 were 

made in 2007, consistent with the Act. Public Law 110-

28 provided payments for one additional year. In 

October 2008, Congress enacted Section 601 of 

Public Law 110-343, which extended the Secure Rural 

Schools Act of 2000. Public Law 110-343 provided an 

extension of payments to the O&C grant lands and the 

Coos Bay Wagon Road counties through fiscal year 

2011. As in the prior act, payments were to be made 

for the year prior. The payments for 2008 through 2010 

were described in the law as “transition” payments, 

and were a declining percentage of the payments 

made in 2006; the payment in 2009 (for 2008) was 90 

percent of the amount paid in 2006, the payment in 

2010 (for 2009) was 81 percent, and the payment in 

2011 (for 2010) was 73 percent. The payments made 

to counties in 2012 (for 2011) used a formula based on 

several factors that included acreage of Federal land, 

previous payments, and per capita personal income. 

More information on these payments is contained in 

the Miscellaneous Permanent Payments chapter. 

Since the Secure Rural Schools Act of 2000, the BLM 

has worked collaboratively with the five western 

Oregon Resource Advisory Committees to review over 1,000 restoration projects and implement 

over 600 of them totaling over $43.0 million dollars. 

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 0.0 0.0

2002 108.7 1.0 109.7

2003 109.6 1.0 110.6

2004 110.9 1.0 111.9

2005 112.3 1.0 113.3

2006 114.9 1.0 115.9

2007 116.3 1.0 117.3

2008 115.9 1.0 116.9

2009 104.5 0.9 105.4

2010 94.0 0.8 94.8

2011 84.7 0.7 85.5

2012 39.7 0.3 40.0

2013†† 37.7 0.3 38.0

2014 39.3 0.3 39.6

2015 37.9 0.3 38.2 

2016 

est.

35.3 0.3 36.4

2017 

est.

SRS legislation only extended 

for FY 2014 amd 2015 

payments

†

Payments reflect the fiscal year in 

which the payments were made ††

BLM made 94.9% of payments in FY 

2013, reserving approximately $2.04 

million required against sequestration 
Bureau of Land Management 2017 Budget Justifications

Chapter IX – Oregon & California Grant Lands Page IX-14

In 2012 and 2013, the Secure Rural Schools Act was reauthorized for one year under PL 112-

141 (2012 payments made in 2013) and PL 113-40 (2013 payments made in 2014). The total 

SRS payment made in fiscal year 2013 was $37,992,143.19 and the total SRS payment made

in fiscal year 2014 was $39,630,137.85.

In 2015, the Secure Rural Schools Act was reauthorized for two years under Public Law 114-10 

“ Medicare Access and CHIP Reauthorization Act of 2015.” This law addresses SRS payments 

to be made in Fiscal Year 2015 and Fiscal Year 2016. The 2015 fiscal year payment for 2014 

has already been made.
Bureau of Land Management 2017 Budget Justifications

Chapter XI – Oregon & California Grant Lands Page IX-15

Activity: Western Oregon Acquisition 

 2015 

Actual

2016 

Enacted

2017 President's Budget Change 

Fixed from 2016

Costs Transfers Program Change

Requested 

Amount

Construction & Acquisition $000 312 324 +11 +0 +0 335 +11

FTE 2 2 +0 +0 2 +0

Justification of 2017 Program Change

The 2017 Budget Request for the Western Oregon Acquisition Program is $335,000 and 2 FTE. 

Activity Description

The Western Oregon Acquisition Program uses appropriated funds to acquire and protect 

access to public lands in western Oregon, providing access to BLM timber sales and other 

activities associated with managing Oregon and California (O&C) lands. The BLM estimates 

that nearly 5,000 separate tracts of O&C lands require some form of access for proper 

management. The BLM obtains access by purchase of perpetual easements, acquisition, or 

condemnation. Acquisition funding is also used to manage the historical reciprocal rights-of-way 

agreements, and acquire additional lands or interests in lands needed for infrastructure 

development including recreation sites, administrative sites, and transportation facilities.

The BLM has many long-standing (since the 1950s) reciprocal right-of-way agreements with 

surrounding and adjacent private landowners allowing reciprocal use of each owner’s roads. 

Access to western Oregon O&C lands is dependent upon the continual upkeep of these long 

standing reciprocal rights-of-way agreements. As adjacent private lands change ownership, 

existing agreements need to be continuously negotiated and updated. The BLM prioritizes 

reciprocal right-of-way agreements based upon both private requests and land management 

needs. Generally, right-of-way agreements necessary to meet timber management performance 

measures for the BLM and adjacent private harvesting plans receive the highest priority, while 

access to recreational and key administrative facilities also receive high priority.

Other Funding Sources

Timber haul roads, or “fee roads” negotiated under reciprocal right-of-way agreements are 

maintained using both appropriated funds and road maintenance fees collected from 

commercial users and deposited into a permanent account for road maintenance.
Bureau of Land Management 2017 Budget Justifications

Chapter XI – Oregon & California Grant Lands Page IX-16

2017 Program Performance

In 2017, the Western Oregon Acquisition Program proposes to:

• Complete up to 20 new reciprocal right-of-way agreements, amendments, or 

assignments; and

• Complete the uploading of historic 1950s reciprocal O&C ROW agreement data into the 

electronic and GIS database that facilitates analysis for 14,000 miles of roads, expedites 

analysis of third party ROW agreements, and depicts public access via GIS.
Bureau of Land Management 2017 Budget Justifications

Chapter XI – Oregon & California Grant Lands Page IX-17

Activity: Western Oregon Transportation and 

Facilities Maintenance 

 

2015 

Actual

2016 

Enacted

2017 President's Budget Change 

from 

 2016

Fixed 

Costs Transfers Program Change

Requested 

Amount

Annual Maintenance & 

Operations

$000 9,517 9,602 +26 0 0 9,628 +26 

FTE 63 63 +0 +0 62 +0 

Transportation & 

Facilities Maintenance

$000 9,517 9,602 +26 +0 +0 9,628 +26 

FTE 63 63 +0 +0 62 0

Justification of 2017 Program Changes

The 2017 budget request for Western Oregon Transportation and Facilities Maintenance 

program is $9,628,000 and 63 FTE. 

Activity Description

In 2014, under the Interior, Environment, and Related Appropriations (P.L. 113-76), the O&C 

Deferred Maintenance function was transferred to the Management of Lands and Resources, 

Deferred Maintenance and Capital Improvements Subactivity, leaving only the Annual 

Maintenance and Operations Program in the Transportation and Facilities Maintenance Activity.
Bureau of Land Management 2017 Budget Justifications

Chapter XI – Oregon & California Grant Lands Page IX-18

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Bureau of Land Management 2017 Budget Justifications

Chapter XI – Oregon & California Grant Lands Page IX-19

Activity: Western Oregon Transportation and 

Facilities Maintenance

Subactivity: Annual Maintenance & Operations

 

 2015 

Actual

2016 

Enacted

2017 President's Budget Change 

from 

2016

 

Fixed 

Costs

Transfers Program 

Change

Requested 

Amount

Annual Maintenance & 

Operations

$000 9,517 9,602 +26 +0 +0 9,628 +26

FTE 63 63 +0 +0 62 +0

Other Resources Supporting Annual Maintenance & Operations:

2015 

Actual

2016 

Estimate

2017 

Estimate

Change 

from 2016

Road Maintenance $000 3,094 2,820 2,820 +0

FTE 8 10 6 -4

Notes:

- Road Maintenance amounts are shown as new budget authority derived from provisions for amortization of road costs in contracts and by cooperative financing 

with other public agencies and with private agencies or persons, or by a combination of these methods; 43 USC 1762(c), which provides the authority to acquire, 

construct, and maintain roads within and near the public lands to permit maximum economy in harvesting timber from such lands tributary to such roads and at 

the same time meet the requirements for protection, development, and management of such lands for utilization of the other resources thereof. appropriates 

these funds on a permanent basis. More information on Road Maintenance is found in the Permanent Operating Funds chapter

- Road Maintenance is used on both Oregon and California Grant Lands and Public Domain Forestry Lands

- Actual and estimated obligations, by year for Road Maintenance are found in President's Budget Appendix under the BLM section. 2015 amount includes 

previously unavailable authority.

- The Road Maintenance appropriation is also a collaborative activity of the MLR Annual Maintenance & Operations program, accounting for less than $100,000 

in available receipts from public domain lands

Justification of 2017 Program Changes

The 2017 budget request for Western Oregon Annual Maintenance and Operations program is 

$9,628,000 and 63FTE.

Program Overview

The Operations and Annual Maintenance Program 

maintains the BLM’s investment in the 

transportation network, preserves public safety, 

minimizes environmental impacts especially, 

related to water quality and soil erosion, and 

provides for functional utilities and other services at 

visitor and administrative sites supporting O&C 

grant land management. BLM-managed roads 

serve commercial, administrative, and local 

government functions. They also serve public land 

users by providing for timber haul, school bus and 

emergency routes, and access to private, local, 

Program Process Improvements

Periodic maintenance reviews are 

performed within each district to assure 

the maintenance work meets or exceeds 

district expectations and is within 

established budgets. Districts are also 

required to complete annual Maintenance 

Operation Plans (MOP’s) to show their 

planned work. Costs can then be 

monitored against the planned targets by 

WO, State, and district program leads to 

determine the effectiveness of the 

maintenance program.
Bureau of Land Management 2017 Budget Justifications

Chapter XI – Oregon & California Grant Lands Page IX-20

State, and Federal lands. The types of facilities maintained by the BLM in western Oregon 

include:

• Sixty-five administrative sites with 162 buildings served by 230 separate mechanical, 

plumbing and electrical systems;

• One hundred and seventy recreation sites with 350 buildings, served by trash collection, 

sanitation facilities, and safe drinking water;

• Three dams; and

• A system of 14,200 miles of roads, including 131 miles designated as Back Country 

Byways, 324 miles of trails, along with related structures including 410 bridges, 586 

major culverts, and multiple retaining walls and subsurface drainage systems. 

Critical Factors

The following factors can impact program performance:

• Natural disturbances (heavy winter rains, windstorms, wildfires) which alter maintenance 

priorities, requiring changes to planned work; and

• State of Oregon Parks and Recreation surveys indicate that public use of BLM’s 

recreational facilities and the roads accessing them is increasing. 

• The 2017 annual maintenance and operation program will need to incorporate the 

priorities outlined in the management action/direction of the new western Oregon 

Resource Management Plans (RMPs) which could include expansion of recreational 

opportunities and development of comprehensive transportation plans.

Maintenance priorities are established at the district and field office level annually using a MOP. 

This prioritization is based on roads and facilities that are essential to the districts and have the 

highest impact on the health and safety of employees, contractors, and the general public. 

Emergency repair work that is identified as high priority is completed as soon as funding is 

available.

Other Funding Sources

Most O&C roads and trails used by the public are maintained using appropriated funds. Timber 

haul roads, or “fee roads,” are maintained using both appropriated funds and road maintenance 

fees that are collected from commercial users and deposited into a permanent operating fund 

for road maintenance.

Recreation facility maintenance activities are partially funded by the O&C Recreation 

Management Program, use fees, and the O&C National Monuments and National Conservation 

Areas subactivity. Eighteen of 170 O&C recreation sites participate in the Recreation Site Fee 

program.

2017 Program Performance

The BLM will continue to emphasize maintenance on high-priority facilities, particularly those 

that have the greatest public exposure and use. In 2017, the Western Oregon Operations and 

Annual Maintenance Program plans to complete routine annual maintenance at 275 recreation 

sites, 88 bridges, 175 BLM administrative buildings, and 45 BLM non-building sites. In addition, 

over 14,000 miles of roads will be assessed to prioritize where 2,000 miles of annual road 

maintenance will occur in 2017. Annual routine maintenance will also include upkeep of wells, 
Bureau of Land Management 2017 Budget Justifications

Chapter XI – Oregon & California Grant Lands Page IX-21

sanitation facilities, and trails to reduce public health and safety risks and provide positive 

recreational experiences.

The BLM will also begin implementation of the management action/direction outlined in the new 

western Oregon RMPs. 
Bureau of Land Management 2017 Budget Justifications

Chapter XI – Oregon & California Grant Lands Page IX-22

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Bureau of Land Management 2017 Budget Justifications

Chapter XI – Oregon & California Grant Lands Page IX-23

Activity: Western Oregon Resources 

Management

2015 

Actual

2016 

Enacted

2017 President's Budget Change 

from 

2016

Fixed 

Costs Transfers Program Change

Requested 

Amount

Forest Management $000 33,447 33,752 +73 +0 +0 33,825 +73 

FTE 268 268 +0 +0 268 +0 

Reforestation & Forest 

Development

$000 23,851 24,023 +43 +0 +0 24,066 +43 

FTE 118 118 +0 +0 118 +0 

Other Forest Resource Mgmt $000 36,985 33,495 +61 +0 +0 33,556 +61 

FTE 259 259 +0 +0 259 +0 

Resource Mgmt Planning, 

Assessment, and Monitoring

$000 7,140 3,985 +13 +0 -1,000 2,998 -987 

FTE 42 42 +0 +0 42 +0 

Total, -Western Oregon 

Resource Management

$000 101,423 95,255 +190 +0 -1,000 94,445 -810 

FTE 687 687 +0 0 687 0

Other Resources Supporting Forest Management:

2015 Actual 2016 

Estimate

2017 

Estimate

Change 

from 2016

Forest Ecosystem Health and Recovery Fund $000 12,018 14,633 7942 -6,540

FTE 48 48 48 +0

USFS Forest Pest Control $000 357,695 500,000 500,000 +0

FTE 0 0 0 +0

Timber Sale Pipeline Restoration $000 9,843 9,735 5,291 -4,997

FTE 34 23 23 +0

Notes:

- Forest Ecosystem Health and Recovery Fund amounts are shown as new budget authority derived from the federal share of 

receipts from all BLM timber salvage sales, and from BLM forest health restoration treatments funded by this account; 43 USC 

1736a appropriates these funds on a permanent basis. More information on Forest Ecosystem Health and Recovery Fund is found 

in the Permanent Operating Funds chapter. Forest Ecosystem Health and Recovery Fund is used on both Oregon and California 

Grant Lands and Public Domain Forestry Lands.

- USFS Forest Pest Control amounts are shown as estimated transfers. More information on USFS Forest Pest Control is found in 

the U.S. Forest Service budget Justifications. USFS Forest Pest Control is used on both and Public Domain Forestry Lands.

- Timber Sale Pipeline Restoration amounts are shown as new budget authority derived from 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 fund be used to fill the BLM's timber sale pipeline and that 25 percent of the fund be used to address the 

maintenance backlog for recreation projects on BLM land; Section 327 of the Omnibus Consolidated Appropriations Act of 1996 

(Public Law 104-134) appropriates these funds on a permanent basis. More information on Timber Sale Pipeline Restoration is 

found in the Permanent Operating Funds chapter. Timber Sale Pipeline Restoration is used on lands in Oregon that are managed 

under the Northwest Forest Plan. The Interior, Environment, and Related Agencies Appropriation Act of 1996 (Public Law 104-134), 

Section 327, states that the Secretary of the Interior shall establish a Timber Sales Pipeline Restoration Fund, of which 75 percent 

shall be available for preparation of timber sales and 25 percent shall be available to expend on the backlog of recreation projects 

on lands administered by the Bureau of Land Management, without fiscal year limitation or further appropriation.

- Amount in 2015 and 2016 for Forest Ecosystem Health and Recovery Fund and Timber Sale Pipeline Restoration shown net of 

sequestration and previously unavailable authority. Amount in 2017 includes previously unavailable authority.

- Actual and estimated obligations, by year for Timber Sale Pipeline Restoration are found in President's Budget Appendix under the 

BLM section
Bureau of Land Management 2017 Budget Justifications

Chapter XI – Oregon & California Grant Lands Page IX-24

The 2017 budget request for the Western Oregon Resources Management activity is 

$94,445,000 and 687 FTE, a program change of -$1,000,000 from the 2016 enacted level.

Activity Description

The Western Oregon Resources Management activity provides for the management of 2.4 

million acres of Oregon and California (O&C) and Coos Bay Wagon Road grant lands, and 

intermingled Public Domain lands. This program’s objectives are to:

• Restore and maintain the ecological health of forested watersheds; 

• Provide well-distributed blocks of late-successional and old-growth forest habitat to 

benefit threatened, endangered and other sensitive species;

• Provide recreational opportunities to a growing number of users; and 

• Provide a sustainable supply of timber and other forest products.

The BLM designs landscape level solutions, such as the new western Oregon Draft Resource 

Management Plan, to address resource management challenges, which includes supplying a 

sustainable supply of timber and other forest products while applying active forest management 

to maintain and restore forest landscapes and terrestrial and aquatic habitat to increase 

resiliency to disturbance factors such as wildfire, insects and climate change. The BLM works 

collaboratively with Federal, State, local, and tribal partners, as well as public stakeholders and 

individuals during the planning and implementation of active forest management treatments to 

address timber production, fuels reduction, species habitat considerations and restoration 

opportunities.
Bureau of Land Management 2017 Budget Justifications

Chapter XI – Oregon & California Grant Lands Page IX-25

Activity: Western Oregon Resources 

Management

Subactivity: Forest Management

 2015 

Actual

2016 

Enacted

2017 President's Budget Change 

Fixed from 2016

Costs Transfers Program Change

Requested 

Amount

Forest Management $000 33,447 33,752 +73 +0 +0 33,825 +73

FTE 268 268 +0 +0 268 +0

Justification of 2017 Program Changes

The 2017 budget request for the Western Oregon Forest Management Program is $33,825,000 

and 268 FTE. 

Program Overview

The Western Oregon Forest Management Program includes costs associated with 

management, maintenance and enhancement of forests on the public lands, including the O&C 

Grant lands, the Coos Bay Wagon Road lands, and Public Domain land within western Oregon, 

except for activities directly related to reforestation and forest development. 

Critical Factors 

The 2017 Forest Management program will implement the management action/direction 

outlined in the new western RMPs. The new plans include a four year analysis that 

incorporates the 2011 Northern Spotted Owl Recovery Plan, the 2012 Northern Spotted Owl 

Critical Habitat Plan, new Survey and Manage guidance, new riparian and aquatic protection 

guidance, sustainable forest management direction, recreational demands, and critical analysis 

of multiple other resources. 

Under the new RMPs, the BLM will continue to collaborate with Federal, State, and local 

governmental agencies as well as Tribes and other stakeholders in project-level National 

Environmental Policy Act (NEPA) development and consultation to support efforts to meet 

performance targets for timber offered. The BLM will continue to look for efficiencies in 

streamlining the administrative review process with the strategy and objective of resolving 

project level issues early in the planning process to assure timber sale offering targets are met.

Means and Strategies 

 

Within the framework of the Endangered Species Act (ESA), the Clean Water Act, the O&C Act, 

and the NWFP, the program provides a sustainable source of timber, protects watersheds, and 

contributes to conservation, restoration, species recovery, and economic stability. The BLM 

develops forest management projects using landscape and watershed approaches to determine 

the suite of treatment activities. Work continues in coordination with the U.S. Fish and Wildlife 

Service (FWS) and the National Marine Fisheries Service (NMFS) to implement active forest 
Bureau of Land Management 2017 Budget Justifications

Chapter XI – Oregon & California Grant Lands Page IX-26

management prescriptions. The BLM continues to implement and monitor timber sales that 

incorporate the ecological principles suggested by Doctors Norm Johnson and Jerry Franklin 

and initiated by the Secretary in December of 2010. Lessons learned are being applied to 

subsequent timber sales that apply the ecological principles on O&C lands. The components of

the Forest Management program include:

• Forest landscape planning and project level NEPA development;

• Forest inventory and monitoring;

• Trespass prevention and investigation;

• Maintenance of existing right-of-way agreements;

• Maintenance and restoration of late-successional and old-growth forest structure;

• Resolving protests, appeals, and litigation;

• Sales of timber and other forest and vegetative products; and

• Maintenance and development of the national Forest Resource Information System 

databases to assure data integrity including the interfacing of the Timber Sale Information 

System and Collection and Billing System.

The Forest Management Program cooperates with the USFS in the Integrated Vegetation 

Management Group to support projects that overlap USFS and BLM lands.

Other Funding Sources

In addition to the O&C Grant Lands appropriation, two Permanent Operating Funds are 

available for use on O&C lands. These are the Timber Sale Pipeline Restoration Fund and the 

Forest Ecosystem Health and Recovery Fund (FEHRF) as described in the Permanent 

Operating Funds chapter of the Budget Justification. Public Law 113-235 reauthorized the 

FEHRF through 2020.

2017 Program Performance

In 2017, the O&C Forest Management Program proposes to:

 

• Offer at least 200 million board feet (MMBF) of timber for sale during the transition 

period from the old to new RMPs;

• Inventory and Monitor 9,000 acres of forest and woodland vegetation;

• Offer 5,000-10,000 tons of biomass through firewood permits and stewardship contracts 

through a combination of the Forest Management and Forest Development Programs; 

and

• Harvest 180-200 MMBF of volume from 10,000+ acres under contract from the current 

and previous year’s operational timber sales (normal 3-year contracts).
Bureau of Land Management 2017 Budget Justifications

Chapter XI – Oregon & California Grant Lands Page IX-27

Activity: Western Oregon Resources 

Management

Subactivity: Reforestation and Forest 

Development

2015 

Actual

2016 

Enacted

2017 President's Budget Change 

from 

2016 Fixed 

Costs

Transfers Program 

Change

Requested 

Amount

Reforestation & Forest 

Development

$000 23,851 24,023 +43 +0 +0 24,066 +43

FTE 118 118 +0 +0 118 +0

Justification of 2017 Program Changes

The 2017 budget request for the Western Oregon Reforestation and Forest Development 

Program is $24,066,000 and 118 FTE.

Program Overview

The Reforestation & Forest Development Program includes costs associated with reforestation, 

intermediate stand management and forest health treatments in young growth forest stands on 

the Public Lands in western Oregon. This program provides for forest restoration and 

sustainable and permanent forest production through active management to achieve healthy 

and productive watersheds. 

Program Components

The focus areas for the Western Oregon Reforestation and Forest Development Program 

include:

• Forest regeneration and restoration activities of commercial and non-commercial forest 

lands that establish young stands and restore habitat in riparian and other reserve areas;

• Intermediate stand management activities in young growth forests that promote forest 

growth, health, value enhancement, fuel hazard reduction and structure development to 

provide for future timber harvest, biomass utilization, habitat requirements, and fire recovery; 

• Treatments to control the spread of forest pathogens and destructive insects;

• Forest monitoring and adaptive management assessments that inform active forest 

management to achieve stand objectives and provide for the sustainable harvest of timber;

• Non-native and noxious weed management;

• Forest inventory, data acquisition, and consolidation of data storage and retrieval 

capabilities to facilitate coordination with other programs; and

• Cooperative research on developing technologies and management activities with other 

Federal and State resource management agencies and universities.
Bureau of Land Management 2017 Budget Justifications

Chapter XI – Oregon & California Grant Lands Page IX-28

Critical Factors

 

The Reforestation and Forest Development Program is implementing the Cooperative 

Landscape Conservation Adaptation Initiative that incorporates climate change management 

planning and carbon sequestration. The BLM participates with the Adapting Forests To Climate 

Change Task Force that is a cooperative project to addresses how forest managers will modify 

seed zones in response to future climate conditions.

The BLM continually assures that landscape-level planning and project-level NEPA compliance 

work is integrated into and analyzes the full suite of reforestation and forest development 

treatments and restoration needs in the analysis areas to assure sustainable forest production. 

As part of the overall process, the BLM works with external and internal stakeholders to ensure 

that program goals are achieved.

Means and Strategies 

The BLM uses the following strategies in western Oregon reforestation and forest development:

• Employing emerging technologies such as Light and Detection and Ranging (LiDAR) to 

provide better, more cost-effective information for decision makers;

• Supporting the Secretarial forestry ecological pilot projects by developing site-specific 

prescriptions, modeling, and monitoring;

• Supporting the Cooperative Landscape Conservation strategy through work with the USFS 

to study the potential for assisted migration of Douglas-fir in response to future climate 

conditions;

• Balancing workforce and operational capacity to prepare and administer service contracts, 

stewardship contracts, and agreements to reforest and implement high-priority forest 

development treatments;

• Implementing intermediate stand management activities using a variety of authorities 

including stewardship contracts, service contracts, and timber sale contracts to offer 

biomass, reduce hazardous fuels, improve forest health, and enhance growth in young 

growth stands, achieving multiple resource objectives;

• Working with the USFS, the Oregon Department of Forestry, the Oregon Department of 

Agriculture, and Oregon State University to treat and monitor sudden oak death in Curry 

County, Oregon in accordance with a federally mandated quarantine zone;

• Engaging in several collaborative efforts to maintain and enhance ecosystem function, such 

as the Medford Small Log Collaborative, Tillamook Watershed restoration projects, and 

Klamath Falls small diameter log and juniper utilization; and

• Improving efficiencies, and where appropriate, taking advantage of The Good Neighbor and 

Stewardship Contracting authorities.

2017 Program Performance

In 2017, the Reforestation and Forest Development Program will:

• Transition into complicance with the new RMPs managemet action/direction; 

• Assure successful post-fire reforestation efforts continue after harvesting of salvage timber 

sale areas; 
Bureau of Land Management 2017 Budget Justifications

Chapter XI – Oregon & California Grant Lands Page IX-29

• Treat a total of approximately 14,000 acres of matrix and forest reserve forests to assure 

adequate growth and habitat development; 

• Monitor over 40,000 acres post-treatment; 

• Inventory over 30,000 acres of forest or woodland vegetation; 

• Inventory over 20,000 acres for the presence of invasive or noxious weeds; 

• Treat over 5,000 acres of noxious and invasive weeds or pathogens, including the fungus 

involved in sudden oak death; 

• Produce 1,000 pounds of Improved Seed from western Oregon seed orchards; and

• Summarize use of LiDAR technology and its cost-effective benefits for decision makers.
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Chapter XI – Oregon & California Grant Lands Page IX-30

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Chapter XI – Oregon & California Grant Lands Page XI-31

Activity: Western Oregon Resources 

Management

Subactivity: Other Forest Resources 

Management

2015 

Actual

2016 

Enacted

2017 President's Budget Change 

Fixed from 2016

Costs Transfers Program Change

Requested 

Amount

Other Forest Resource Mgmt $000 36,985 33,495 +61 +0 +0 33,556 +61

FTE 259 259 +0 +0 259 +0

Justification of 2017 Program Changes

The 2017 budget request for the Western Oregon Other Forest Resources Management 

Program is $33,556,000 and 259 FTE.

Program Overview

The O&C Grant Lands Other Forest Resources Management Program includes funding for four 

programs critical to effective multiple-use management across BLM lands in western Oregon: 

Rangeland Management; Recreation Management; Soil, Water and Air Management; and 

Wildlife and Fish Habitat Management.

In western Oregon, the BLM addresses public demand for recreation, clean water and 

productive soil, while managing for the sustained yield timber production as required by the 

Oregon and California Act of 1937. Additionally, this program provides the necessary funding to 

support fish and wildlife environmental clearances related to this management of BLM 

forestlands in western Oregon. This program supports species and habitat management and 

associated data collection, aquatic restoration for clean water and fish habitat, as well as the 

timber sale program in the form of surveys, clearances, interdisciplinary team participation, and 

environmental assessment preparation. In turn, the Forest Management Program supports 

active forest habitat management within the reserve land use allocations designed to benefit fish

and wildlife species in the long term.

Critical Factors

• Within the Rangeland, Recreation, Soil, Water, Air, Fish, and Wildlife programs, incorporate 

management action/direction as outline in the new western Oregon RMPs.

• Rangeland Management – Coordination with permittees, private landowners, county, State 

and Federal agencies to integrate best management practices and mitigation measures to 

reduce the spread of noxious weeds. Utilize approved herbicides and mechanical means to 

improve habitat.

• Recreation Management – Recreational interest and use is increasing on BLM lands. Look 

for opportunities to accommodate increasing demand as analyzed in the new RMPs. 

Continue to use available public input and information and available transportation 
Bureau of Land Management 2017 Budget Justifications

Chapter XI – Oregon & California Grant Lands Page IX-32

management plans to guide, prioritize and address public recreational needs; (e.g. 

construction and maintenance of recreational facilities and sites, access needs via roads 

and trails, promoting the America Great Outdoor initiative as well as youth activities, 

managing various special use permits).

• Soil, Water, and Air Management – Coordination with County, State, and Federal agencies 

to assure compliance with the regulatory framework. Address climate change concerns at 

the appropriate scale. 

• Fish and Wildlife Management – Coordination with regulatory agencies to complete 

necessary surveys to assess biological impacts in support of proposed forest management 

activities. Coordinate implementation at the appropriate scale to meet Endangered Species 

Act, Clean Water Act, and other regulatory requirements.

Means and Strategies

The Other Forest Resources Management Program uses collaborative cooperative 

conservation principles, engaging commodity users, private groups, local communities, 

government agencies, and other stakeholders when planning and implementing management 

activities.

BLM biologists in western Oregon consult closely with their FWS and NMFS counterparts to 

implement an array of forest management and other resource restoration projects. The BLM, in 

collaboration with the FWS and the NMFS, has been monitoring various fish and wildlife 

populations as part of on-going regional studies to assist in making informed decisions. The 

BLM works with the USFS to implement an interagency Special Status Species Program and 

Clean Water Act compliance activities that extend across administrative boundaries. Applying 

the concept of Service First and sharing skills accommodates an interagency approach toward 

resource conservation. Partnering improves administrative efficiencies, and decreases the cost 

of program administration. In the Soil, Water and Air Management Program, key partnerships 

with the USFS, the EPA, and the Oregon Department of Environmental Quality have contributed 

toward administrative streamlining, restoration prioritization, and water quality standard updatesall of which contribute to the BLM’s role as a Designated Management Agency under the Clean 

Water Act.

The BLM also partners with The Nature Conservancy, NatureServe, and local watershed 

councils to share data and planning strategies that extend across private, State, and Federal 

jurisdictions. Additionally, the management of invasive species benefits from coordination with 

other landowners and land management agencies to control the spread of noxious weeds in 

high-priority habitats. Eradication efforts focus on rapid detection and an early response and 

prevention, including seeking approval for the use of additional and more effective herbicides.

The Soil, Water and Air Management Program in western Oregon is focused on designing 

projects and implementing BLM Water Quality Restoration Plan objectives. These objectives 

emphasize the protection of drinking water sources, improvement of aquatic species habitat, 

restoring water quality, and improving aquatic and riparian conditions while incorporating 

stakeholder input and involvement in development of program priorities. The program involves 

long-term coordination and collaboration with the fisheries and riparian management programs 

of multiple agencies and landowners. The program is tasked with managing for soil stabilization, 

health and productivity; impacts from invasive species to riparian and upland habitat; upland 

forest and rangeland health; habitat for sensitive species; and the Bureau’s wild and scenic 

rivers.
Bureau of Land Management 2017 Budget Justifications

Chapter XI – Oregon & California Grant Lands Page IX-33

2017 Program Performance

The Rangeland Program consists of 95 grazing allotments (52 active and 43 vacant) covering 

about 352,000 acres of the Medford District, and 11 allotments covering about 14,400 acres in 

the Klamath Resource Area, Lakeview District. Nine allotments in the Medford District providing 

2,714 Animal Unit Months of forage are partially or completely within the Cascade-Siskiyou 

National Monument. In 2017, the O&C Rangeland Management program proposes to:

• Issue 5-6 grazing allotment permits/leases;

• Maintain 49 grazing use authorizations;

• Complete 15 shrub, grassland, woodland and forest projects related to range 

management;

• Monitor 5 grazing allotments;

• Inspect 8 grazing allotments for compliance; and

• Complete 3 Land Health Evaluations.

The America’s Great Outdoors Initiative continues to be a focus in 2017 along with the initial 

implementation of the management action/direction in the new RMPs pertaining to Recreation.. 

The O&C Recreation Management program promotes and expands outdoor recreation 

opportunities for youth and supports the Secretary’s Youth in the Great Outdoors Initiative. 

Another high priority will be improving public access and protecting resources through 

Comprehensive Travel and Transportation Management. The BLM will manage rivers and trails 

to protect their special values, minimize user conflicts, promote a quality recreational experience 

in a preferred setting, and promote public safety. In 2017, the O&C Recreation Management 

Program proposes to:

• Inventory Recreation Resources on over 2,000 acres; 

• Assess 200 Linear Miles of Recreation Resources;

• Assess 45 Nationally Designated Rivers and Trails;

• Prepare 3 Recreation Activity Plans;

• Process 275 Commercial and Group Special Recreation Permits;

• Issue and Manage over 40,000 Recreation Use Permits;

• Evaluate Recreation Areas on over 12,000 acres; and

• Monitor over 250 acres of Wilderness and Wilderness Study Areas.

The O&C Soil, Water, and Air Management program involves assessment, monitoring, and 

restoring of watersheds to comply with the Clean Water Act and the Safe Drinking Water Act. 

This is accomplished through development and implementation of restoration projects and 

activities defined within the context of water quality restoration plans, which support the State of 

Oregon’s Total Maximum Daily Loads program. In addition, the program supports the Energy 

Policy Act of 2005 through involvement in the Federal Energy Regulatory Commission relicensing process. Additionally, the program funds studies necessary to establish in-stream 

flows that are required to support wild and scenic river outstandingly remarkable values and 

work to obtain or maintain Federal reserve water rights; and inter-agency agreements with the 

U.S. Geological Survey and Oregon State University to develop flow and water quality

monitoring data necessary for developing NEPA planning documents.
Bureau of Land Management 2017 Budget Justifications

Chapter XI – Oregon & California Grant Lands Page IX-34

In 2017, the O&C Soil, Water and Air Management Program proposes to: 

• Inventory over 100 water resources;

• Monitor air resources/climatic conditions at over 10 sites; and

• Monitor over 100 water resources. 

The Western Oregon Wildlife and Fish Habitat Program combines habitat management and 

habitat restoration actions for fish, wildlife and botany with inventory and monitoring for key 

species of management concern. Management for, and monitoring of, specific habitat conditions 

to meet the requirements of the new RMP guidance are critical elements of the program. The 

program supports the Forest Management and the Reforestation and Forest Development 

Programs through pre-disturbance surveys, project level NEPA analysis and appropriate 

consultation of proposed treatments. The program is responsible under the the Endangered 

Species Act and Bureau policies for inventorying, monitoring and managing habitat for 68 

federally endangered or threatened species and 632 Bureau sensitive fish, wildlife and plant 

species.

Specific wildlife management emphasis includes a partnership with the FWS and USGS to 

monitor northern spotted owl populations and barred owl control. Fisheries management 

emphasis is on continued cooperation with the Oregon Watershed Enhancement Board, 

watershed councils and the NMFS to improve habitat for Pacific salmon species.

From a landscape perspective, the new RMPs identified high intrinsic riparian areas and priority 

watershed where restoration efforts contributing to recovery of listed salmonoids will be 

focused. Identifying priority watersheds in conjunction with other Federal and State partners 

allows for identification of areas with overlapping priorities and the opportunity to form 

partnerships that leverage additional resources.

In 2017, the O&C Wildlife and Fish Habitat Management program proposes to: 

• Inventory over 150 miles of streams and riparian areas; 

• Inventory over 40,000 acres of wildlife and plant habitat; 

• Implement 45 species recovery and conservation actions; 

• Monitor over 50 acres of lake and wetland habitat; 

• Monitor 2,000,000 acres of terrestrial habitat; and

• Monitor over 600 species populations
Bureau of Land Management 2017 Budget Justifications

Chapter XI – Oregon & California Grant Lands Page IX-35

Activity: Western Oregon Resources 

Management

Subactivity: Resource Management Planning

 

2015 

Actual

2016 

Enacted

2017 President's Budget Change 

from 2016 

Fixed 

Costs Transfers Program Change

Requested 

Amount

Resource Management 

Planning

$000 7,140 3,985 +13 +0 -1,000 2,998 -987

FTE 42 42 +0 +0 42 +0

Summary of 2017 Program Changes/Internal Transfers for Resource Management Planning: ($000) FTE

Anticipated Plan Completion -1,000 +0 

Total -1,000 +0 

Justification of 2017 Program Changes

The 2017 budget request for the Western Oregon Resource Management Planning Program is 

$2,998,000 and 42 FTE, a program change of -$1,000,000 from the 2016 enacted level.

Anticipated Plan Completion (-$1,000,000) - By July 2016, the BLM plans to issue 2 revised 

Resource Management Plans (RMPs) and 2 Record of Decisions (RODs) for western Oregon 

O&C lands: A Northwest Oregon RMP for the moist forests and a Southwest Oregon RMP for 

the drier forests. These RMPs were initiated in March of 2012 and will replace the six 1995 

RMPs for western Oregon. As the final environmental impact statements are released and 

decisions are signed, the program’s emphasis will be to support plan implementation with 

continued collaboration both internally and externally. 

Program Overview

The Western Oregon Resource Management Planning Program emphasizes the development, 

implementation, and maintenance of Resource Management Plans for BLM-managed land in 

western Oregon communities. The program supports implementation of NEPA by providing a 

network of planning experts who provide oversight and extensive advice and review of the 

various NEPA documents to assure compliance with the existing Resource Management Plans.

The BLM anticipates releasing the Final EIS and Record of Decision for the new western 

Oregon RMPs in June of 2016. Work on the new RMPs was initiated by Secretary Salazar in 

February of 2012 and after 4 years of public, tribal, cooperator, Federal, State, county, and 

other stakeholder input, consultation, and analysis, the BLM is expected to release the new 

plans in 2016. 

Program Components

The new RMPs for Western Oregon will determine how the BLM-administered lands in western 

Oregon will be managed in the future to further the recovery of threatened and endangered 

species, provide for clean water, restore fire-adapted ecosystems, produce a sustained yield of 
Bureau of Land Management 2017 Budget Justifications

Chapter XI – Oregon & California Grant Lands Page IX-36

timber products, provide for recreation opportunities, and meet tribal concerns. The new RMPs 

will:

• Assure compliance with applicable laws, regulations, and policies, including, but not limited 

to, the O&C Act, the National Environmental Policy Act (NEPA), the Federal Land Policy and 

Management Act, the Endangered Species Act, and the Clean Water Act; 

• Facilitate completing the subsequent environmental assessments, categorical exclusions, 

and determinations of NEPA adequacy as appropriate for project implementation; and

• Provide critical analysis to respond to protests, appeals, or litigation.

Critical Factors

Within its regulatory guidance, the BLM has actively engaged all stakeholders to ensure 

dialogue, collaboration, transparency, and overall support for the new RMPs. Successful 

implementation hinges on: critical support from the stakeholders for the final Record of Decision; 

internal and external capacity to effectively and quickly transition from the 1995 RMPs to the 

2016 RMPs; and resolution of any outstanding issues (protests, appeals, litigation) post- signing 

the Record of Decision. 

Means and Strategies

The Means and Strategies the BLM is engaging in to begin implementing the new RMPs 

includes: 

Transition Period – A transition period between 1995 RMPs compliant projects and 2016 RMP 

compliant projects will be allowed to minimize substantial disruptions to on-going plans and 

projects including; the offering of timber sales, implementing fuel hazard reduction treatments, 

reforesting burned sites, and other restoration, vegetative treatments or ground disturbing 

projects that must comply with NEPA. 

Consultation – The BLM will utilize updated Biological Opinions from both the U.S. Fish and 

Wildlife Service and National Marine Fisheries Service for guidance and support to implement 

active forest management treatments.

Incorporation of New Information - The new RMPs have incorporated and analyzed new 

information, science, and regulatory requirements into the analysis including the 2011 Northern 

Spotted Owl Recovery Plan and 2012 final Critical Habitat rule, .

Implementation Oversight - Internally, western Oregon will maintain a critical core staff to 

provide oversight and consistent implementation guidance for the new RMPs. The core 

planning staff will assist the 6 western Oregon Districts with training, interpretation, 

implementation, monitoring, and reporting annual outcomes and accomplishments as required 

under the new RMPs. They will serve as key contacts for responding to external questions and 

facts as RMP implementation proceeds. The core planning staff will also be engaged in any 

post-signing issue resolution.
Bureau of Land Management 2017 Budget Justifications

Chapter XI – Oregon & California Grant Lands Page IX-37

2017 Program Performance

In 2017, the Western Oregon Resource Management Planning Program plans to:

• Begin transition to and implementation of the management action/direction outlined in the 

new RMPs for all resources.

• Provide support and guidance for implementing new RMPs; and

• Address any follow-up issues associated with new RMPs.
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Chapter XI – Oregon & California Grant Lands Page IX-38

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Chapter XI – Oregon & California Grant Lands Page IX-39

Activity: Western Oregon Information and Data 

Systems 

Subactivity: Western Oregon Information 

Systems Operation and Maintenance

2015 

Actual

2016 

Enacted

2017 President's Budget Change 

Fixed from 2016

Costs Transfers Program Change

Requested 

Amount

Info. & Resource Data 

Systems

$000 1,772 1,786 +12 +0 +0 1,798 +12

FTE 11 11 +0 +0 11 +0

Justification of 2017 Program Changes

The 2017 budget request for the Western Oregon Information Systems Operation and 

Maintenance Program is $1,798,000 and 11 FTE. 

Program Overview

This program deploys hardware and software necessary to implement and analyze Resource 

Management Plans, develop and maintain data sets supporting decision making, and provides 

technology to facilitate and evaluate management decisions utilizing programs such as mobile 

geographic information system (GIS) and internet mapping services. This program manages 

infrastructure, including workstations, networks, Web services and software applications, and 

ensures system security, integrity and reliability.

Means and Strategies

The BLM instituted corporate spatial data standards to ensure GIS data integrity, facilitate 

integration with partners, and implement Web-based collaboration and mapping tools to 

enhance access and communication. In 2017, the BLM will continue to centralize management 

of IT support services. Efforts will continue under Service First to align the GIS functions and 

leverage BLM and U.S. Forest Service (USFS) data resources to reduce costs to both agencies, 

facilitate knowledge transfer, and standardize data and procedures.

Other Funding Sources

Public Domain Forest Management funding in the Management of Lands and Resources 

Appropriation also supports the maintenance and development of the suite of Forest 

Management databases within the Forest Resource Information System (FRIS) national 

database .
Bureau of Land Management 2017 Budget Justifications

Chapter XI – Oregon & California Grant Lands Page IX-40

2017 Program Performance

In 2017, western Oregon’s BLM Information Technology program plans to support the following:

• Operations and maintenance for various State and national applications (software) to 

monitor multiple resource data including fish and wildlife populations and sites, 

recreational use and permits, threatened, endangered, and special status species, 

cultural information, forest inventory, timber sale and stewardshing contracts, special 

forest product permits, hydrology and riparian information, transportation network, and 

other databases. 

• Assure Oregon/Washington’s treatment databases can interface with BLM’s national 

Vegetative Treatments System database

• Assure the interface transition between the Collection and Billing System and the Timber 

Sale Information System continues to meet both national and user requirements.

• Coordinate Information Technology needs with the need to update components of the 

Forest Resource Information System (FRIS) focusing on:

o Integrating BLM’s forest inventory system (MICROSTORM and FORVIS) into a 

single national BLM wide forest inventory system

o Updating the Special Forest Products database including looking at information 

technology needs to transition to an on-line permit system.

• Remote sensing support to facilitate resource management and analysis.

• Regular upgrading and/or replacement of computer hardware (i.e. personal computers, 

radios, phones, storage.
Bureau of Land Management 2017 Budget Justifications

Chapter XI – Oregon & California Grant Lands Page IX-41

Activity: Western Oregon National Landscape 

Conservation System

Subactivity: National Monuments & National 

Conservation Areas

2015 

Actual

2016 

Enacted

2017 President's Budget Change 

Fixed from 2016

Costs Transfers Program Change

Requested 

Amount

NMs & NCAs $000 753 767 +12 +0 +0 779 +12

FTE 4 4 +0 +0 4 +0

Justification of 2017 Program Changes

The 2017 budget request for the Western Oregon National Monuments & National Conservation 

Areas Program is $779,000 and 4 FTE.

 

Program Overview

The Cascade Siskiyou National Monument (CSNM) in southwestern Oregon and the Yaquina 

Head Outstanding Natural Area (YHONA) located in the central coast near Newport, Oregon, 

are the two units that comprise the Western Oregon National Monuments and National 

Conservation Areas program. These are both units of the BLM National Conservation Lands.

Critical Factors

In support of the NCL goals, in 2017 the BLM will focus on these critical factors: 

• Law Enforcement Presence and Visibility — Law enforcement is a key factor in ensuring 

visitor safety and protecting fragile or rare geologic, archeological, paleontological, and 

biological resources. Threats include vandalism of natural features, archeological sites, 

facilities, and theft of irreplaceable archeological and paleontological resources.

• Critical Inventories and Monitoring Programs — Inventories define the critical resource 

values representative of each unit’s uniqueness, and the information provided is 

essential to the development and implementation of management plans.

• Restoration — Both CSNM and YHONA are home to a variety of ecosystems. These 

areas contribute to protection and restoration of native plant and animal communities , 

including riparian habitat. These ecosystems also provide native plant and animal 

corridors and migration routes to sustain and conserve public land resources affected by 

climate change, altered fire regimes, and invasive species.

• Comprehensive Travel and Transportation Management — Unmanaged recreation use 

continues to impact resources in the monuments through increased erosion, vegetative 

damage, spread of weeds and invasive plants, and impacts to wildlife habitat.

• Visitor and Community Education — Interpretation and environmental education improve 

visitor experiences, providing information about the cultural, ecological, and scientific 

values of units and the BLM’s balanced resource mission.
Bureau of Land Management 2017 Budget Justifications

Chapter XI – Oregon & California Grant Lands Page IX-42

• Maintenance and Operations of Recreation Facilities – The program supports a number 

of education and visitor centers along with other facilities to enhance the visitor 

experience in the natural setting.

• Supporting Soda Mountain Wilderness Stewardship Plan Implementation – The BLM will 

continue to implement the new plan, including activities such as decommissioning former 

roads, conducting roads-to-trails projects, removing unneeded grazing management 

facilities and other human infrastructure, and other “re-wilding” projects.

Means and Strategies

Both the CSNM and the YHONA work with volunteers, partners, and communities. The BLM 

works closely with the public to ensure that recreation in these units meets the needs of user 

groups while remaining compatible with the values for which each unit was designated.

2017 Program Performance

To fulfill the goals of the NLCS program at CSNM and YHONA, the BLM will:

• Manage monuments and conservation areas to conserve, protect, and restore the values for 

which they were designated, as guided by each unit’s enabling legislation or proclamation;

• Manage valid existing rights and compatible uses;

• Support and encourage scientific study and research, while ensuring that research 

methodologies conserve and protect resources;

• Develop and maintain partnerships with local, State, Federal, and tribal government 

agencies, as well as scientists, local communities, public land users, non-governmental 

organizations, and the public; and

• Recognize gateway communities as vital links to monuments and conservation areas and 

where practical, locate developed recreation and interpretive facilities adjacent to NLCS 

lands.
Bureau of Land Management 2017 Budget Justifications

Chapter IX – Oregon & California Grant Lands Page IX-43

Budget Schedules

Account Symbol and Title

14X1116

Oregon and California Grant Lands Line 2015 Act 2016 CY 2017 BY

Program and Financing (P) ($ in Millions)

Obligations by program activity:

 Western Oregon Maintenance 0002 0 1 1

 Western Oregon Resource Management 0004 115 112 110

 Western Oregon Data Systems Operation & 

Management 0005 2 2 2

 Western Oregon National Monuments & NCA 0006 1 2 2

Total new obligations 0900 118 117 115

Budgetary resources:

 Unobligated balance:

 Unobligated balance brought forward, Oct 1 1000 6 7 0

 Recoveries of prior year unpaid obligations 1021 5 2 8

 Unobligated balance (total) 1050 11 9 8

 Budget authority:

 Appropriations, discretionary:

 Appropriation 1100 114 108 107

 Appropriation, discretionary (total) 1160 114 108 107

 Appropriation, discretionary - Computed Totals 1160-20 114 108 107

 Appropriation [O&C] 1160-40 114 108 107

 Baseline Civilian Pay 1160-50 74 77

 Baseline Non-Pay 1160-50 34 35

 Policy Outlays:

 New Authority 1160-61 80 80 79

 Balances (excl of EOY PY Bal) 1160-62 32 0 24

 End of PY Balances 1160-63 28 4

 Subtotal, outlays 1160-64 112 108 107

 Baseline Outlays:

 New Authority 1160-81 80 83

 Balances (excl of EOY PY Bal) 1160-82 0 24

 End of PY Balances 1160-83 28 4

 Subtotal, outlays 1160-84 108 111

Total budgetary resources available 1930 125 117 115

 Memorandum (non-add) entries:

 Unexpired unobligated balance, end of year 1941 7 0 0

Change in obligated balance:

 Unpaid obligations:

 Unpaid obligations, brought forward, Oct 1 3000 43 44 51
Bureau of Land Management 2017 Budget Justifications

Chapter IX – Oregon & California Grant Lands Page IX-44

Account Symbol and Title

14X1116

Oregon and California Grant Lands Line 2015 Act 2016 CY 2017 BY

 Obligations incurred, unexpired accounts 3010 118 117 115

 Outlays (gross) 3020 -112 -108 -107

 Recoveries of prior year unpaid obligations, 

unexpired 3040 -5 -2 -8

 Unpaid obligations, end of year 3050 44 51 51

 Memorandum (non-add) entries:

 Obligated balance, start of year 3100 43 44 51

 Obligated balance, end of year 3200 44 51 51

Budget authority and outlays, net:

 Discretionary:

 Budget authority, gross 4000 114 108 107

 Outlays, gross:

 Outlays from new discretionary authority 4010 80 80 79

 Outlays from discretionary balances 4011 32 28 28

 Outlays, gross (total) 4020 112 108 107

 Budget authority, net (discretionary) 4070 114 108 107

 Outlays, net (discretionary) 4080 112 108 107

Budget authority, net (total) 4180 114 108 107

Outlays, net (total) 4190 112 108 107

NON-INVESTMENT ACTIVITIES:

 Direct Federal programs:

 Budget Authority 2004-01 114 108 107

 Outlays 2004-02 112 108 107

Object Classification

Direct obligations:

 Personnel compensation:

 Full-time permanent 11.1 46 46 45

 Other than full-time permanent 11.3 5 5 5

 Other personnel compensation 11.5 2 2 2

 Total personnel compensation 11.9 53 53 52

 Civilian personnel benefits 12.1 18 18 17

 Travel and transportation of persons 21.0 1 1 1

 Communications, utilities, and miscellaneous 

charges 23.3 6 6 6

 Printing and reproduction 24.0 0 0 0

 Other services from non-Federal sources 25.2 19 18 18

 Other goods and services from Federal sources 25.3 7 7 7

 Operation and maintenance of facilities 25.4 3 3 3

 Operation and maintenance of equipment 25.7 2 2 2

 Supplies and materials 26.0 2 2 2
Bureau of Land Management 2017 Budget Justifications

Chapter IX – Oregon & California Grant Lands Page IX-45

Account Symbol and Title

14X1116

Oregon and California Grant Lands Line 2015 Act 2016 CY 2017 BY

 Equipment 31.0 2 2 2

 Grants, subsidies, and contributions 41.0 5 5 5

 Total new obligations 99.9 118 117 115

Employment Summary

Direct civilian full-time equivalent employment 1001 767 767 767

Budget year budgetary resources [014-1116] 1000 106,985
Bureau of Land Management 2017 Budget Justifications

Chapter IX – Oregon & California Grant Lands Page IX-46

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Range Improvements

Bureau of Land Management 2017 Budget Justifications

Chapter X – Range Improvements Page X-1

RANGE IMPROVEMENTS

Appropriations Language

For rehabilitation, protection, and acquisition of lands and interests therein, and improvement of 

Federal rangelands pursuant to section 401 of the Federal Land Policy and Management Act of 

1976 (43 U.S.C. 1751), 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. 315b, 315m) 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, 

2016.)

Appropriations Language Citations

1. For rehabilitation, protection, and acquisition of lands and interests therein, and 

improvement of Federal rangelands pursuant to section 401 of the Federal Land 

Policy Management Act of 1976 (43 U.S.C. 1751), 

The language provides authority for the Secretary to direct on-the-ground range rehabilitation, 

protection and improvements to Federal range lands, including seeding and reseeding, fence 

construction, weed control, water development, and fish and wildlife habitat enhancement.

2. notwithstanding any other Act, 

The provisions of this language supercede any other provision of law.

3. 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(b), 315(m)) 

Section 3 of the Taylor Grazing Act concerns grazing permits issued on public lands within the 

grazing districts established under the Act. Receipts from grazing on section 3 lands are 

distributed three ways: 50 percent goes to range betterment projects, 37.5 percent remains in 

the US Treasury, and 12.5 percent is returned to the State. 

Section 15 of the Taylor Grazing Act concerns issuing grazing leases on public 

lands outside the original grazing district boundaries. The receipts from grazing on section 15 

public lands are distributed two ways: 50 percent goes to range betterment projects and 50 

percent is returned to the State. 

4. 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, 
Bureau of Land Management 2017 Budget Justifications

Chapter X – Range Improvements Page X-2

The Bankhead Jones Farm Tenant Act of 1937 authorized and directed the Secretary of 

Agriculture to purchase low production, privately owned farmlands. These lands were later 

transferred to the Department of the Interior for use, administration, or exchange under the 

applicable provisions of the Taylor Grazing Act. 

5. but not less than $10,000,000, 

If grazing receipts are less than $10 million, the balance of the $10 million appropriation comes 

from the General Fund

6. to remain available until expended: 

The language makes the funding no-year, available for expenditure in any year after the 

appropriation. This type of account allows BLM a valuable degree of flexibility needed to 

support multi-year contracts, agreements and purchases.

7. Provided, That not to exceed $600,000 shall be available for administrative expenses. 

The provision limits the amount of funding in this appropriation that can be used for 

administrative expenses to $600,000.

Appropriations Language Citations and Authorizations

Section 401 of Federal Land Policy & Management Act (FLPMA) (43 U.S.C. 1751), as 

amended by the Public Rangelands Improvement Act of 1978 (43 U.S.C. 1901-1905),

provides that 50 percent of all monies received by the U.S. as fees for grazing domestic 

livestock on public land under the Taylor Grazing Act (43 U.S.C. 315) and the Act of August 28, 

1937 (43 U.S.C. 1181d) shall be credited to a separate account in the Treasury and made 

available for the purpose of on-the-ground range rehabilitation, protection, and improvements, 

including, but not limited to, seeding and reseeding, fence construction, weed control, water 

development, and fish and wildlife habitat enhancement.

Taylor Grazing Act of 1934 (43 U.S.C 315) as, amended by the Act of August 28, 1937 (43 

U.S.C. 1181d), authorizes the establishment of grazing districts, regulation, and administration 

of grazing on the public lands, and improvement of the public rangelands. It also authorizes the 

Secretary to accept contributions for the administration, protection, and improvement of grazing 

lands, and establishment of a trust fund to be used for these purposes.

7 U.S.C. 1010 (the Bankhead Jones Farm Tenant Act of 1937), provides that the Secretary of 

Agriculture is authorized and directed to develop a program of land conservation and utilization 

in order to correct maladjustments in land use, and thus assist in controlling soil erosion, 

conducting reforestation, preserving natural resources, protecting fish and wildlife, developing 

and protecting recreational facilities, mitigating floods, preventing impairment of dams and 

reservoirs, conserving surface and subsurface moisture, protecting the watersheds of navigable 

streams, and protecting the public land, health, safety, and welfare; but not to build industrial 

parks or establish private industrial or commercial enterprises.

Executive Orders 10046, et al., provide that land under the jurisdiction of the Secretary of 

Agriculture under the provision of §32 of the Bankhead Jones Farm Tenant Act is transferred 
Bureau of Land Management 2017 Budget Justifications

Chapter X – Range Improvements Page X-3

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, Environment, and Related Agencies 

Appropriations Acts, provide that a minimum amount is appropriated, that the appropriation 

shall remain available until expended, and that a maximum of $600,000 is available from this 

appropriation for BLM administrative expenses.

Under the provisions of the Balanced Budget and Emergency Deficit Control Act of 1985 

and the Budget Enforcement Act of 1990, this account is classified as a current, mandatory 

account.
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Chapter X – Range Improvements Page X-4

 FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount

Public Lands Improvements 29 7,582 29 7,621 +0 - - - +558 29 8,179 - - 

Farm Tenant Act Land Improvements 6 1,688 6 1,699 +0 - - +122 6 1,821 - - 

Administrative Costs - [600] - [600] +0 - - - +0 - [600] - - 

Range Improvements 35 9,270 35 9,320 +0 - - - +680 35 10,000 - +0 

Notes:

- The increase from 2016 to 2017 just reflects a change in available appropriations due to a sequester in 2016, not a request for an increase of appropriations.

 Requested 

Amount 

- The 2015 amount includes 7.3% ($730,000) sequester pursuant to Section 254 of the Balanced Budget and Emergency Deficit Control Act of 1985, as amended.

- The 2015 AND 2016 amounts reflect sequesters $680,000 the increase from 2016 to 2017 just reflects a change in available appropriations due to a sequester in 2016, not a request for an increase of 

appropriations in 2017.

2015 Actual 2016 Enacted Transfers Program Change Change from 2016 

 Fixed Costs

2017 President's Budget

Summary of Requirements

(dollars in thousands)
Bureau of Land Management 2017 Budget Justifications

Chapter X – Range Improvements Page VIII-5

2015 

Actual

2016 

Enacted

2017 President's Budget Change 

from 

2016

Fixed 

Costs Transfers Program Change

Requested 

Amount

Public Lands Improvements $000 7,582 7,621 +0 +0 +558 8,179 +558

FTE 30 30 +0 +0 30 +0 

Farm Tenant Act Land 

Improvements

$000 1,688 1,699 +0 +0 +122 1,821 +122

FTE 5 5 +0 +0 5 +0 

Administrative Costs $000 [600] [600] +0 +0 +0 [600] [0]

Range Improvements $000 9,270 9,320 +0 +0 +680 10,000 +680

FTE 35 35 +0 +0 35 +0 

Notes: 2015 amount for Range Improvements includes 7.3% sequester and the 2016 amount reflects a 

sequester of 6.8 percent.

"Change in Range Improvements between 2016 and 2017 reflects the change in available 

appropriations between 2016 and 2017 due to sequester in 2016, not a request for an increase 

in appropriated funds

Justification of 2017 Program Changes

The 2017 budget request for the Range Improvement Account is $10,000,000 and 35 FTE. 

Program Overview

Program Components

The Range Improvement Account functions as the primary support program for Rangeland 

Management and is used to construct on-the-ground projects, such as vegetation management 

treatments, fencing, and wildlife-livestock water developments.

These funds are used to improve land health and resource conditions, facilitating the production 

of a wide variety of ecosystem goods and services, such as high quality water. Areas identified 

through land health evaluations are prioritized at the district level for funding. Examples of areas 

not achieving rangeland health standards could be riparian areas functioning at-risk with a 

downward trend, areas with unacceptable plant community composition including areas invaded 

by noxious and invasive weeds or other invasive species, or areas with unnaturally high 

amounts of exposed soil that would be subject to accelerated erosion.

Healthy landscapes in the West today are at greater risk due to more intense and extended 

droughts, increasing wildfire frequency, and continuing migration of invasive species. Range 

Improvement funds also provide field offices with the flexibility to address changing resource 

conditions such as drought, wildfire, newly listed species, critical habitat, and candidate species 

such as sage-grouse.

 

Appropriation: Range Improvements
Bureau of Land Management 2017 Budget Justifications

Chapter X – Range Improvements Page VIII-6

Rangeland drill restoration after Soda Fire 

Means and Strategies

• The BLM uses funding from the Range Improvement Account in addition to funding from 

other programs and contributions from permittees and partner organizations to support 

rangeland health. The amount of funding the BLM is able to leverage from partners and 

stakeholders is a factor used to help prioritize projects for funding. 

• Other workload priorities such as wildfire, droughts, floods, and litigation can affect the 

BLM’s ability to complete range improvement projects.

• Project prioritization is based on resource issues, such as protection of sensitive species 

through management of sage-grouse habitat, reduction of wildfire risks through the 

management of fuel loads, and coordination with post-fire rehabilitation efforts to help 

manage the spread of invasive or noxious weeds.

Funding for the Range Improvement Appropriation

Fifty percent of grazing fees collected on public lands, or $10.0 million, whichever is greater, is 

appropriated annually into the Range Improvement Account. Funding is distributed to the BLM 

grazing districts according to where the receipts were collected. This funding remains available 

until exhausted and is to be used for on-the-ground projects, principally for improving public 

lands not achieving land health standards.

Please refer to the Collections chapter for information on grazing fees collected on public lands.
Bureau of Land Management 2017 Budget Justifications

Chapter X – Range Improvements Page VIII-7

Grazing Fees

Grazing fees are set each year under the authority of FLPMA and the Public Range 

Improvement Act. The fee for 2015 was $1.69 per Animal Unit Month (AUM), as announced on 

January 29, 2015. The fee for 2016 will be announced in late January 2016. A portion of the 

grazing fees are deposited into the Treasury and 50 percent of the fees are appropriated to the 

BLM in this Range Improvement Account for the purposes described in this chapter.

These fees do not fund the Rangeland Management Program, and they also differ from the 

proposed grazing permit administrative fee. More information on the Rangeland Management 

Program and the proposed cost recovery measure can be found in the MLR appropriation 

section.

2017 Program Performance 

In 2017, the focus and priorities of the Range Improvement Account will remain as described in 

the overview section. It is estimated that approximately 18,000 acres would receive vegetation 

treatment, 300 new structural projects would be constructed, 250 existing projects would be reconstructed/maintained and 50,000 acres of weed treatment would be completed.

Cattle grazing near Wood River
Bureau of Land Management 2017 Budget Justifications

Chapter X – Range Improvements Page X-8

Budget Schedules – Current Law

Account Symbol and Title

14X5132

Range Improvements Line 2015 Act 2016 CY 2017 BY

Program and Financing (P) ($ in Millions)

Obligations by program activity:

 Public Lands Improvements 0001 8 8 8

 Farm Tenant Act Lands Improvements 0002 2 1 1

Total new obligations 0900 10 9 9

Budgetary resources:

 Unobligated balance:

 Unobligated balance brought forward, Oct 1 1000 4 3 3

 Budget authority:

 Appropriations, mandatory:

 Appropriation (General Fund) 1200 3 3 3

 Appropriation (special or trust fund) 1201 7 7 7

 Appropriations and/or unobligated balance of 

appropriations temporarily reduced 1232 -1 -1 0

 Appropriations, mandatory (total) 1260 9 9 10

 Appropriations, mandatory - Computed Totals 1260-20 9 9 10

 Appropriation [Indefinite] 1260-40 4 2 2

 Baseline Civilian Pay 1260-50 0 0

 Baseline Non-Pay 1260-50 2 2

 Policy Outlays:

 New Authority 1260-61 4 1 1

 Balances (excl of EOY PY Bal) 1260-62 5 0 1

 End of PY Balances 1260-63 2 1

 Subtotal, outlays 1260-64 9 3 3

 Baseline Outlays:

 New Authority 1260-81 1 1

 Balances (excl of EOY PY Bal) 1260-82 1

 End of PY Balances 1260-83 2 1 

 Subtotal, outlays 1260-84 3 3

 Appropriation [Special Fund, Indefinite] 1260-40 6 7 8

 Baseline Civilian Pay 1260-50 3 3

 Baseline Non-Pay 1260-50 4 5

 Policy Outlays:

 New Authority 1260-61 0 3 3

 Balances (excl of EOY PY Bal) 1260-62 0 0 2

 End of PY Balances 1260-63 4 2

 Subtotal, outlays 1260-64 0 7 7

 Baseline Outlays:

 New Authority 1260-81 3 3

 Balances (excl of EOY PY Bal) 1260-82 2 
Bureau of Land Management 2017 Budget Justifications

Chapter X – Range Improvements Page X-9

Account Symbol and Title

14X5132

Range Improvements Line 2015 Act 2016 CY 2017 BY

 End of PY Balances 1260-83 4 2

 Subtotal, outlays 1260-84 7 7

 Effects of 2014 sequester 1260-40 -1 0 0

 Baseline Non-Pay 1260-50 0 0

 Policy Outlays:

 New Authority 1260-61 0 0 0

 Balances (excl of EOY PY Bal) 1260-62 0 0 0

 End of PY Balances 1260-63 0 0

 Subtotal, outlays 1260-64 0 0 0

 Baseline Outlays:

 New Authority 1260-81 0 0

 Balances (excl of EOY PY Bal) 1260-82 0 0

 End of PY Balances 1260-83 0 0

 Subtotal, outlays 1260-84 0 0

Total budgetary resources available 1930 13 12 13

 Memorandum (non-add) entries:

 Unexpired unobligated balance, end of year 1941 3 3 4

Change in obligated balance:

 Unpaid obligations:

 Unpaid obligations, brought forward, Oct 1 3000 4 5 4

 Obligations incurred, unexpired accounts 3010 10 9 9

 Outlays (gross) 3020 -9 -10 -10

 Unpaid obligations, end of year 3050 5 4 3

 Memorandum (non-add) entries:

 Obligated balance, start of year 3100 4 5 4

 Obligated balance, end of year 3200 5 4 3

Budget authority and outlays, net:

 Mandatory:

 Budget authority, gross 4090 9 9 10

 Outlays, gross:

 Outlays from new mandatory authority 4100 4 4 4

 Outlays from mandatory balances 4101 5 6 6

 Outlays, gross (total) 4110 9 10 10

 Budget authority, net (mandatory) 4160 9 9 10

 Outlays, net (mandatory) 4170 9 10 10

Budget authority, net (total) 4180 9 9 10

Outlays, net (total) 4190 9 10 10

INVESTMENT ACTIVITIES:

 Physical assets:
Bureau of Land Management 2017 Budget Justifications

Chapter X – Range Improvements Page X-10

Account Symbol and Title

14X5132

Range Improvements Line 2015 Act 2016 CY 2017 BY

 Major equipment:

 Other physical assets:

 Direct Federal programs:

 Budget Authority 1352-01 9 9 10

 Outlays 1352-02 9 10 10

Object Classification

Direct obligations:

 Personnel compensation:

 Full-time permanent 11.1 2 2 2

 Civilian personnel benefits 12.1 1 1 1

 Other services from non-Federal sources 25.2 1 1 1

 Other goods and services from Federal sources 25.3 1 1 1

 Supplies and materials 26.0 2 1 1

 Land and structures 32.0 1 1 1

 Grants, subsidies, and contributions 41.0 2 2 2

 Total new obligations 99.9 10 9 9

Employment Summary

Direct civilian full-time equivalent employment 1001 35 35 35

Budget year budgetary resources [014-5132] 1000 10,000
Service Charges, 

Deposits and 

Forfeitures

Bureau of Land Management 2017 Budget Justifications

Chapter XI – Service Charges, Deposits & Forfeitures Page XI-1

SERVICE CHARGES,

DEPOSITS AND FORFEITURES

Appropriations Language 

For administrative expenses and other costs related to processing application documents and 

other authorizations for use and disposal of public lands and resources, for costs of providing 

copies of official public land documents, for monitoring construction, operation, and termination 

of facilities in conjunction with use authorizations, and for rehabilitation of damaged property, 

such amounts as may be collected under Public Law 94–579 (43 U.S.C. 1701 et seq.), and 

under section 28 of the Mineral Leasing Act (30 U.S.C. 185), 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, 2016.)

Appropriations Language Citations

1. For administrative expenses and other costs related to processing application 

documents and other authorizations for use and disposal of public lands and 

resources, 

This language provides authority to recover costs associated with the processing of documents 

related to Rights-of-Way (ROW) and energy and minerals authorizations required to dispose of 

public lands and resources. 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. Only those costs directly associated with processing an application or issuing a 

ROW grant are charged to an individual project. 

2. for costs of providing copies of official public land documents,

The BLM performs certain types of realty work on a cost-recoverable basis. Regulations 

promulgated pursuant to FLPMA allow the BLM to collect from applicants the costs associated 

with providing copies of public land documents.

3. for monitoring construction, operation, and termination of facilities in conjunction 

with use authorizations, 
Bureau of Land Management 2017 Budget Justifications

Chapter XI – Service Charges, Deposits & Forfeitures Page XI-2

The BLM performs certain types of realty work on a cost-recoverable basis. Regulations 

promulgated pursuant to FLPMA allow the BLM to collect from applicants the costs of 

monitoring construction, operation and termination of facilities.

4. and for rehabilitation of damaged property, 

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 

monitoring rehabilitation and restoration of the land. 

5. such amounts as may be collected under Public Law 94–579 (43 U.S.C.1701 et seq.),

This language authorizes the BLM to collect amounts for activities authorized by FLPMA.

6. and under section 28 of the Mineral Leasing Act (30 U.S.C. 185),

This language authorizes the Secretary to issue Rights-of-Way and other land use 

authorizations related to the Trans-Alaska Pipeline. Rights-of-Way applicants and permittees 

are to reimburse the U.S. for all costs associated with processing applications and monitoring 

pipeline construction and operations.

7. to remain available until expended:

The language makes the funds deposited into the account available on a no-year basis. This 

type of account allows BLM a valuable degree of flexibility needed to support multi-year 

contracts, maintenance, construction, operations, and rehabilitation of public lands.

8. Provided, That, notwithstanding any provision to the contrary of section 305(a) of 

Public Law 94–579 (43 U.S.C. 1735(a)), 

This provision authorizes BLM to collect for land damaged by users who have not fulfilled the 

requirements of contracts or bonds. 

9. 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)), 

This language authorizes the Secretary to issue a refund of the amount in excess of the cost of 

doing work to be made from applicable funds.

10. 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:

This language authorizes the Secretary to use funds to improve, protect, or rehabilitate public 

lands that were damaged by a developer or purchaser even if the funds collected were not for 

damages on those exact lands.
Bureau of Land Management 2017 Budget Justifications

Chapter XI – Service Charges, Deposits & Forfeitures Page XI-3

11. 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.

If a funding excess exists after repair has been made to the exact land for which funds were 

collected or forfeited, then the BLM may use these funds to improve, protect, or rehabilitate any 

damaged public land.

Appropriation Language Authorizations

Federal Land Policy and 

Management Act of 1976, as 

amended (43 U.S.C. 1735)

Authorizes the BLM to receive deposits and forfeitures.

The Mineral Leasing Act of 

1920, as amended by the 

Trans-Alaska Pipeline Act of 

1973, §101 (Public Law 93-

153) (30 U.S.C. 185)

Authorizes rights-of-way for oil, gas, and other fuels. It further 

authorizes the Secretary to issue Rights-of-Way and other land

use authorizations related to the Trans-Alaska Pipeline. Rightsof-Way applicants and permittees are to reimburse the U.S. for 

all costs associated with processing applications and monitoring 

pipeline construction and operations.

The Alaska Natural Gas 

Transportation Act of 1976 

(15 U.S.C. 719)

Authorizes the granting of certificates, Rights-of-Way permits, 

and leases.

The National Environmental 

Policy Act of 1969 (42 U.S.C. 

4321, 4331-4335, 4341-4347)

Requires the preparation of environmental impact statements for 

Federal projects that may have a significant effect on the 

environment.

The Wild Free Roaming 

Horse and Burro Act of 

1971, as amended by the 

Public Rangelands 

Improvement Act of 1978 (16 

U.S.C. 1331-1340)

Authorizes adoption of wild horses and burros by private 

individuals under cooperative agreements with the Government.

The Public Rangelands 

Improvement Act of 1978 (43 

U.S.C. 1901-1908)

Establishes the policy of improving Federal rangeland conditions 

and facilitates the humane adoption or disposal of excess wild 

free-roaming horses and burros.

Omnibus Public Land 

Management Act, 2009 (P.L. 

111-11)

Among numerous other things, authorizes the disposal of certain 

lands in the Boise District of the Bureau of Land Management, in 

Washington County, Utah, and in Carson City, Nevada. It 

authorizes BLM to retain and spend most of the proceeds of 

these sales to acquire lands in wilderness and other areas and 

for other purposes, and to pay a portion to the States in which 

the sold land was located. 
Bureau of Land Management 2017 Budget Justifications

Chapter XI – Service Charges, Deposits & Forfeitures Page XI-4

 FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount

Rights-of-Way Processing 80 11,014 80 14,690 - - - - - 80 14,690 - - 

Energy and Minerals Cost Recovery 22 2,799 22 5,160 - - - - - 22 5,160 - - 

Recreation Cost Recovery 7 3,536 7 3,690 - - - - - 7 3,690 - - 

Adopt-A-Horse Program - 432 - 380 - - - - - - 380 - - 

Repair of Damaged Lands 10 4,385 10 3,420 - - - - - 10 3,420 - - 

Cost Recoverable Realty Cases 5 940 5 830 - - - - - 5 830 - - 

Timber Purchaser Expenses 1 97 1 60 - - - - - 1 60 - - 

Commercial Film and Photography Fees 2 301 2 230 - - - - - 2 230 - - 

Copy Fees 8 826 8 970 - - - - - 8 970 - - 

Trans Alaska Pipeline 23 3,741 23 1,620 - - - - - 23 1,620 - - 

Subtotal (gross) 158 28,070 158 31,050 - 158 31,050 - - 

Offsetting Collections - (28,070) (31,050) - (31,050) - +0 

Total, Service Charges, Deposits & Forfeitures 158 - 158 - - - - - - 158 - - - 

 Program Change Requested Amount 

Summary of Requirements

(dollars in thousands)

2015 Actual 2016 Enacted

 Fixed Costs

2017 President's Budget

 Transfers Change from 2016 
Bureau of Land Management 2017 Budget Justifications

Chapter XI – Service Charges, Deposits & Forfeitures Page XI-5

Program Overview 

Rights-of-Way Processing and Energy and Minerals Cost Recovery – The BLM recovers 

certain costs of processing documents related to Rights-of-Way (ROW), and energy and 

minerals authorizations. These funds are deposited in the Service Charges, Deposits, and 

Forfeitures account and used by BLM for labor and other expenses of processing these 

documents. More detail for each type of cost recovery is described below.

Rights-of-Way Processing – ROW processing is funded through a combination of applicant 

deposits made into this indefinite appropriation and a direct appropriation of funds in the 

Management of Lands and Resources (MLR) appropriation, which include the Renewable 

Energy subactivity as well as the Land and Realty Management subactivity.

The BLM recovers costs for the processing of ROW applications pursuant to the Mineral 

Leasing Act (MLA) and the Federal Land Policy and Management Act (FLPMA). Processing 

fees are determined by a fee schedule for minor category ROWs (those which require fewer 

than 50 Federal work hours). Processing fees for major category ROWs (those which require 

greater than 50 Federal work hours) are based on reasonable costs (FLPMA) or actual costs 

(MLA). In 2015, BLM’s average cost to process a major category right-of-way application was 

approximately $98,000 and will remain the same for 2016. Major category ROW projects are 

usually for oil and gas pipelines, electric transmission lines, wind and solar energy development 

sites, or other projects associated with energy development. Twenty percent of BLM’s rights-ofway applications are for these types of projects. BLM estimates that it will recover 80 percent of 

the reasonable or actual processing costs of the larger scale project types of applications.

Approximately 80 percent of the ROW projects are minor category which usually consists of 

short roads, well gathering pipelines, and electric distribution lines. Minor category ROW 

applications cost an average of $2,600 each to process in 2015; in 2016 minor category cost 

recovery applications are estimated to have an average processing cost of $2,800. For these 

smaller-scale projects, the BLM recovers 50 percent of the actual costs of each right-of-way 

application. Approximately 10 percent of the ROW projects are for roads and other 

infrastructure for local or State government agencies for which BLM recovers no 

cost recovery funds.

Only those costs directly associated with processing an application or issuing a ROW grant are 

charged to an individual project. Costs of land use planning or studies to determine placement 

of ROW corridors, and other general costs that are not specific to a ROW application, cannot be 

charged to the individual ROW cost recovery account. These costs are funded entirely from the 

MLR appropriation. In addition, certain types of ROW applicants are exempted, by law, from 

cost recovery. These applicants include States and local governments. 

The BLM currently administers more than 112,000 ROW authorizations. The Bureau will 

continue to expedite the granting of ROWs by processing applications, issuing grants, and 

monitoring construction involved with the operation and termination of ROWs on the public land 

as authorized by the FLPMA and the MLA. 

Appropriation: Service Charges, Deposits, and 

Forfeitures (Indefinite)
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Chapter XI – Service Charges, Deposits & Forfeitures Page XI-6

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 included costs of actions such as environmental studies performed by the BLM, lease 

applications, name changes, corporate mergers, lease consolidations and reinstatements, and 

other processing-related costs. The BLM charges the fees pursuant to authorities under the 

Independent Offices Appropriation Act, as amended, 31 U.S.C. 9701 (IOAA); Section 304(a) of 

FLPMA; and OMB Circular A-25; DOI Manual 346 DM 1.2 A; and case law (also see the 

preamble to the proposed rule at 70 FR 41533 and Solicitor's Opinion M-36987 (December 5, 

1996)).

Recreation Cost Recovery – The BLM recovers its costs associated with authorizing and 

administering certain recreation activities or events. The BLM uses Special Recreation Permits 

to authorize events such as off-highway vehicle areas, shooting ranges, and specialized trail 

systems; or to authorize group activities or recreation events. This subactivity covers revenues 

and expenditures associated with any Special Recreation Permit that has been determined to 

be cost recoverable by BLM personnel as outlined in 43 CFR 2930-1 Permits for Recreation on 

Public Lands and H-2930-1, Recreation Permit Administration Handbook. Primary work in this 

program involves processing the application and administering the permit, which includes 

environmental analysis and monitoring. 

Adopt-a-Horse Program – The BLM conducts adoptions of wild horses and burros removed 

from its public lands. In 2017, the BLM will continue offering animals for adoption to qualified 

applicants. The BLM administers animal adoptions primarily through a competitive bidding 

process that often increases the adoption fee above the base fee of $125 per horse or burro. 

On an occasional basis in special circumstances, the $125 adoption fee is lowered to a 

minimum of $25. Adoption fees are used to defray part of the costs of the adoption program.

Repair of Damaged Lands – Under 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 the 

BLM may use these funds to improve, protect, or rehabilitate any damaged public land.

Cost-Recoverable Realty Cases – The BLM performs certain types of realty work on a costrecoverable basis. Regulations promulgated pursuant to the FLPMA allow the BLM to collect 

from applicants the costs of processing applications for realty work, as described below. 

• Conveyance of Federally Owned Mineral Interests –The BLM collects costs from 

applicants to cover administrative costs, including the costs of conducting an exploratory 

program to determine the type and amount of mineral deposits, establishing the fair market 

value of the mineral interests to be conveyed, and preparing conveyance documents.

• Recordable Disclaimers of Interest – The BLM collects 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. 
Bureau of Land Management 2017 Budget Justifications

Chapter XI – Service Charges, Deposits & Forfeitures Page XI-7

Applicants may deposit money in an approved account for the BLM use in completing specific 

realty work. These dollars become immediately available to the BLM without further 

appropriation.

Timber Contract Expenses – Many BLM timber contracts have provisions that allow the 

purchaser to make cash payments to the BLM in lieu of performing specified work directly. The 

BLM uses these funds as required by the contract. This involves performing timber slash 

disposal and reforestation.

Commercial Film and Photography – A permit is required for all commercial filming activities 

on public lands. Commercial filming is defined as the use of motion picture, videotaping, sound 

recording, or other moving image or audio recording equipment on public lands that involves the 

advertisement of a product or service, the creation of a product for sale, or the use of actors, 

models, sets, or props, but not including activities associated with broadcasts for 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. 

Copy Fees – The BLM is the custodian of the official public land records of the United States. 

There are more than 500,000 requests annually from industry, user organizations, and the 

general public, for copies of these official records. The BLM charges a fee for copies of these 

documents (maps, plats, field notes, copies of use authorizations, reservations of easements 

and ROW, serial register pages, and master title plats). This fee covers the cost of research, 

staff time, and the supplies required for printing and for responding to Freedom of Information 

Act requests. 
Bureau of Land Management 2017 Budget Justifications

Chapter XI – Service Charges, Deposits & Forfeitures Page XI-8

Budget Schedules

Account Symbol and Title

14X5017

Service Charges, Deposits, and Forfeitures Line 2015 Act 2016 CY 2017 BY

Program and Financing (P) ($ in Millions)

Obligations by program activity:

 Right-of-way processing 0001 10 13 13

 Energy and minerals cost recovery 0004 2 3 3

 Wild horse and burro cost recover 0005 1 1 1

 Repair of damaged lands 0006 2 3 3

 Cost recoverable realty 0007 1 1 1

 Recreation cost recovery 0008 4 3 3

 Copy fees 0009 1 1 1

 Trans Alaska Pipeline Authority 0011 4 4 4

Total new obligations 0900 25 29 29

Budgetary resources:

 Unobligated balance:

 Unobligated balance brought forward, Oct 1 1000 48 51 53

 Recoveries of prior year unpaid obligations 1021 0 0 0

 Unobligated balance (total) 1050 48 51 53

 Budget authority:

 Appropriations, discretionary:

 Appropriation (special or trust fund) 1101 28 31 31

 Appropriation, discretionary (total) 1160 28 31 31

 Appropriation, discretionary - Computed Totals 1160-20 28 31 31

 Appropriation [Text] 1160-40 28 31 31

 Baseline Civilian Pay 1160-50 21 22

 Baseline Non-Pay 1160-50 10 10

 Policy Outlays:

 New Authority 1160-61 13 16 16

 Balances (excl of EOY PY Bal) 1160-62 12 0 16

 End of PY Balances 1160-63 14 0

 Subtotal, outlays 1160-64 25 30 32

 Baseline Outlays:

 New Authority 1160-81 16 16

 Balances (excl of EOY PY Bal) 1160-82 0 16

 End of PY Balances 1160-83 14 0

 Subtotal, outlays 1160-84 30 32

Total budgetary resources available 1930 76 82 84

 Memorandum (non-add) entries:

 Unexpired unobligated balance, end of year 1941 51 53 55

Change in obligated balance:
Bureau of Land Management 2017 Budget Justifications

Chapter XI – Service Charges, Deposits & Forfeitures Page XI-9

Account Symbol and Title

14X5017

Service Charges, Deposits, and Forfeitures Line 2015 Act 2016 CY 2017 BY

 Unpaid obligations:

 Unpaid obligations, brought forward, Oct 1 3000 4 4 3

 Obligations incurred, unexpired accounts 3010 25 29 29

 Outlays (gross) 3020 -25 -30 -32

 Recoveries of prior year unpaid obligations, 

unexpired 3040 0 0 0

 Unpaid obligations, end of year 3050 4 3 0

 Memorandum (non-add) entries:

 Obligated balance, start of year 3100 4 4 3 

 Obligated balance, end of year 3200 4 3 0

Budget authority and outlays, net:

 Discretionary:

 Budget authority, gross 4000 28 31 31

 Outlays, gross:

 Outlays from new discretionary authority 4010 13 16 16

 Outlays from discretionary balances 4011 12 14 16

 Outlays, gross (total) 4020 25 30 32

 Budget authority, net (discretionary) 4070 28 31 31

 Outlays, net (discretionary) 4080 25 30 32

Budget authority, net (total) 4180 28 31 31

Outlays, net (total) 4190 25 30 32

NON-INVESTMENT ACTIVITIES:

 Direct Federal programs:

 Budget Authority 2004-01 28 31 31

 Outlays 2004-02 25 30 32

Object Classification

Direct obligations:

 Personnel compensation:

 Full-time permanent 11.1 11 13 13

 Other than full-time permanent 11.3 1 1 1

 Other personnel compensation 11.5 1 1 1

 Total personnel compensation 11.9 13 15 15

 Civilian personnel benefits 12.1 4 5 5

 Travel and transportation of persons 21.0 1 1 1

 Other services from non-Federal sources 25.2 1 2 2

 Other goods and services from Federal sources 25.3 4 4 4

 Supplies and materials 26.0 1 1 1

 Grants, subsidies, and contributions 41.0 1 1 1

 Total new obligations 99.9 25 29 29
Bureau of Land Management 2017 Budget Justifications

Chapter XI – Service Charges, Deposits & Forfeitures Page XI-10

Account Symbol and Title

14X5017

Service Charges, Deposits, and Forfeitures Line 2015 Act 2016 CY 2017 BY

Employment Summary

Direct civilian full-time equivalent employment 1001 158 158 158

Budget year budgetary resources [014-5017] 1000 31,050
Miscellaneous 

Permanent Payments

Bureau of Land Management 2017 Budget Justifications

Chapter XII – Miscellaneous Permanent Payments Page XII-1

MISCELLANEOUS

PERMANENT PAYMENTS

Appropriations Language 

No Appropriations Language

Explanation 

The Permanent Payment Accounts provide for sharing specified receipts collected from the 

sale, lease, or use of the public lands and resources with States and counties. They do not 

require annual appropriations action. Amounts are estimated based on anticipated collections, 

or in some cases, upon provisions required by permanent legislation. The BLM distributes 

these funds in accordance with the provisions of the various laws that specify the percentages 

to be paid to the applicable recipient jurisdictions and, in some cases, how the States and 

counties must use these funds. These payments are made subject to the authorities of 

permanent law, and the amounts are made available by operation of permanent laws. The 

payment amounts shown for each year are the amounts paid, or estimated to be paid, in that 

year.
Bureau of Land Management 2017 Budget Justifications

Chapter XII – Miscellaneous Permanent Payments Page XII-2

Authorizations 

30 U.S.C. 191, 286; 95 Stat. 

12051

Mineral leasing receipts are collected from the leasing of public land 

(including bonuses, royalties and rents) for exploration of oil and 

gas, coal, oil shale, and other minerals. The amount charged 

depends on the type of mineral that is leased.

1952 Interior and Related 

Agencies Appropriations 

Act (65 Stat. 252)

States are paid five percent of the net proceeds (four percent of 

gross proceeds) from the sale of public land and public land 

products.

Taylor Grazing Act of 1934 

(43 U.S.C. 315 b, i and m)

States are paid 121⁄2 percent of the grazing fee receipts from lands 

within organized grazing district boundaries; States are paid 50 

percent of the grazing fee receipts from public land outside of 

organized grazing districts; and States are paid specifically 

determined amounts from grazing fee and mineral receipts from 

miscellaneous lands within grazing districts that are administered 

under certain cooperative agreements which stipulate that the fees 

be retained by the BLM for distribution.

The Oregon and California 

Grant Lands Act of 1937 

(50 STAT. 874)

Provides for payments to 18 western Oregon counties of 75 percent 

of receipts derived from the activities of BLM on O&C grant lands. 

The percentage was changed to 50 percent by agreement between 

Oregon and the Federal government. 

The Act of May 24, 1939 

(53 STAT. 753)

Provides for payments in lieu of taxes to Coos and Douglas counties 

in Oregon of not to exceed 75 percent of receipts derived from BLM 

activities on Coos Bay Wagon Road grant lands. 

7 U.S.C. 1012, the 

Bankhead Jones Farm 

Tenant Act of 1937, and 

Executive Orders 107878 

and 10890

25 percent of the revenues received from the use of these land use 

project lands, including grazing and mineral leasing, are paid to the 

counties in which such lands are located. The Act transfers the 

management of certain Farm Tenant 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.

Southern Nevada Public 

Land Management Act, 

P.L. 105-263, as amended 

by P.L. 107-282.

Authorizes the disposal through sale of 27,000 acres in Clark 

County, Nevada, the proceeds of which are distributed as follows: 

(a) five percent for use in the general education program of the 

State of Nevada; (b) 10 percent for use by Southern Nevada Water 

Authority for water treatment and transmission facility infrastructure 

in Clark County, Nevada; and (c) the remaining 85 percent to be 

used to acquire environmentally sensitive lands in Nevada; to make 

capital improvements to areas administered by 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.
Bureau of Land Management 2017 Budget Justifications

Chapter XII – Miscellaneous Permanent Payments Page XII-3

The Alaska Native Claims 

Settlement Act of 1971 as 

amended by Public Law 

94-204 of 1976 (43 U.S.C. 

1611)

Directs the Secretary to make conveyances to Cook Inlet Region, 

Inc. (CIRI) in accordance with the "Terms and Conditions for Land 

Consolidation and Management in Cook Inlet Area.''

The Alaska National 

Interest Lands 

Conservation Act of 1980 

(43 U.S.C. 1611)

Authorizes CIRI to bid on surplus property in accordance with the 

Federal Property and Administrative Services Act of 1940 (40 

U.S.C. 484), and provides for the establishment of a CIRI surplus 

property account by the Secretary of the Treasury.

The Alaska Railroad 

Transfer Act of 1982 (43 

U.S.C. 1611)

Expands the account by allowing CIRI to bid on properties anywhere 

in the 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.

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.

The Secure Rural Schools 

and Community SelfDetermination Act of 2000 

(P.L. 106-393) as amended 

by P.L. 110-343, October, 

2008.

Authorizes stabilized payments to Oregon and California (O&C) 

Grant lands and Coos Bay Wagon Road Counties for fiscal years 

2001 through 2006. Each county that received a payment during 

the eligibility period (1988-1999) had an option to receive an amount 

equal to the average of the three highest 50 percent payments and 

safety net payments made for the fiscal years of the eligibility period. 

The payments were adjusted to reflect 50 percent of the cumulative 

changes in the Consumer Price Index that occur after publication of 

the index for fiscal year 2000. The final payments for 2006 were 

made in 2007, consistent with the Act. Public Law 110–28, May 25, 

2007 provided payments for one additional year. The fiscal year 

2007 payments under the original act were made in October, 2007, 

that is in FY2008. 

Public Law 110-28 Provided one additional year of payments to Oregon & California

Grant Lands and Coos Bay Wagon Road counties for 2007 to be 

made in 2008. 

Public Law 110-343 Secure Rural Schools and Community Self-Determination Act 

payments were authorized to be made in 2009 through 2012 (for 

2008 through 2011) to Oregon & California Grant Lands and Coos 

Bay Wagon Road counties.

Public Law 112-141 Secure Rural Schools and Community Self-Determination Act 

payments were authorized to be made in 2013 (for 2012) to Oregon 

& California Grant Lands and Coos Bay Wagon Road counties.
Bureau of Land Management 2017 Budget Justifications

Chapter XII – Miscellaneous Permanent Payments Page XII-4

Public Law 113-40 Secure Rural Schools and Community Self-Determination Act 

payments were authorized to be made in 2014 (for 2013) to Oregon 

& California Grant Lands and Coos Bay Wagon Road counties.

Public Law 114-10 Under the Medicare Access and CHIP Reauthorization Act of 2015, 

and the Extension of Secure Rural Schools and Community SelfDetermination Act of 2000, the payments were authorized to be 

made in 2015 (for 2014) and 2016 (for 2015) to Oregon & California 

Grant Lands and Coos Bay Wagon Road counties.

Clark County 

Conservation of Public 

Land and Natural 

Resources Act of 2002 

(P.L. 107-282) as amended 

by P.L. 108-447

Enlarges the area in which the BLM can sell lands under the 

Southern Nevada Public Land Management Act; approves a land 

exchange in the Red Rock Canyon Area; designates wilderness; 

designates certain BLM lands for a new airport for Las Vegas; and 

gives land to the State and City for certain purposes. 

Lincoln County 

Conservation, Recreation 

and Development Act (PL 

108-424)

Addresses a wide range of public lands issues in Lincoln County, 

Nevada, designates as wilderness 768,294 acres of BLM-managed 

lands and releases from wilderness study area (WSA) status 

251,965 acres of public land. The bill also directs the BLM to 

dispose of up to 90,000 acres of public land and divides the 

proceeds 85 percent to a Federal fund and 15 percent to State and 

county entities, establishes utility corridors, transfers public lands for 

State and county parks, creates a 260-mile OHV trail and resolves 

other public lands issues.

Public Law 109-432, White 

Pine County Land Sales

Authorizes the disposal through sale of 45,000 acres in White Pine 

County, Nevada, the proceeds of which are distributed as follows: 

(a) 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 reimburse the BLM and DOI for certain 

costs, to manage unique archaeological resources, for wilderness 

and endangered species protection, for improving recreational 

opportunities in the County, and for other specified purposes.

Public Law 111–11, State 

Share, Carson City Land 

Sales

Authorizes five percent of the proceeds from Carson City, Nevada 

land sales to be paid to the State for the general education program 

of the State.
Bureau of Land Management 2017 Budget Justifications

Chapter XII – Miscellaneous Permanent Payments Page XII-5

 FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount

Miscellaneous Permanent Payments Appropriation Total - 52,521 - 50,829 - - - - -37,056 - 13,773 - -37,056

Payments to States from Proceeds of Sales (L5133) - 627 - 1,057 - - - - -19 - 1,038 - -19 

Payments to States from Grazing Fees, etc. on Public Lands 

outside Grazing Districts (L5016)

 - 847 - 875 - - - - -25 - 850 - -25 

Payments to States from Grazing Fees, etc. on Public Lands within 

Grazing Districts (L5032)

 - 1,126 - 1,309 - - - - -121 - 1,188 - -121 

Payments to States from Grazing Fees, etc. on Public Lands within 

Grazing Districts, Misc. (L5044)

 - 25 - 21 - - - - +1 - 22 - +1 

Payments to Counties, National GrassLands (Farm Tenant 

Lands) (L5896)

 - 590 - 613 - - - - -1 - 612 - -1 

Payments to Nevada from Receipts on Land Sales (inc. 15%) 

(L5129)

 - 11,016 - 10,574 - - - - -511 - 10,063 - -511 

State Share, Carson City Land Sales (5561] - - - 3 - - - - -3 - - - -3 

Payments to O&C Counties 50% of receipts under 1937 statute - - - - - - - - +0 - - - +0 

Payments to Coos and Dougals Counties under 1939 statute - - - - - - - - +0 - - - +0 

Secure Rural Schools - 38,290 - 36,377 - - - - -36,377 - - - -36,377 

Payments to O&C Counties, Title I/III - 34,802 - 32,670 - - - - -32,670 - - - -32,670 

Payments to Coos Bay Wagon Road Counties, Title I/III - 296 - 260 - - - - -260 - - - -260 

Payments to O&C and Coos Bay Wagon Road Counties, Title II - 3,192 - 3,447 - - - - -3,447 - - - -3,447 

2015 Actual 2016 Enacted Program Change Requested Amount 

 Fixed Costs

2017 President's Budget

 Transfers Change from 2016 

Summary of Requirements

(dollars in thousands)
Bureau of Land Management 2017 Budget Justifications

Chapter XII – Miscellaneous Permanent Payments Page XII-6

Program Overview 

The following activities include payments made to States and counties from the sale, lease, or 

use of other public lands or resources under the provisions of permanent legislation and do not 

require annual appropriations. The payment amounts for 2016 and 2017 are estimated based 

on the amounts of collections or receipts as authorized by applicable legislation and the 

provisions of those laws that specify the percentage of receipts to be paid to designated States, 

counties, or other recipients. 

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. The BLM makes these payments annually 

and payments are used by States either for educational purposes or for the construction and 

improvement of public roads. The payments in 2015 were $627,000. The estimated payments 

for 2016 and 2017 are $1,057,000 and $1,038,000 respectively.

Payments to States from Grazing Receipts, etc., on Public Lands outside Grazing 

Districts – The States are paid 50 percent of the grazing receipts from public lands outside 

grazing districts (43 U.S.C. 315i, 315m). These funds are to be expended by the State for the 

benefit of the counties in which the lands are located. The States will continue to receive 

receipts from public lands outside organized grazing districts. The BLM makes these payments 

annually. The actual payments for 2015 were $847,000 and estimated payments for 2016 and 

2017 are $875,000 and $850,000 respectively. 

Payments to States from Grazing Receipts, etc., on Public Lands within Grazing Districts 

–The States are paid 121⁄2 percent of grazing receipts from public lands inside grazing districts 

(43 U.S.C. 315b, 315i). These funds are to be expended by the State for the benefit of the 

counties in which the lands are located. The BLM makes the payments annually. The actual 

payments for 2015 were $1,126,000 and estimated payments for 2016 and 2017 are 

$1,309,000 and $1,188,000 respectively. 

Payments to States from Grazing Fees, etc. on Public Lands within Grazing Districts, 

misc. – Also included are grazing receipts from isolated or disconnected tracts. The States are 

paid specifically determined amounts from grazing receipts derived from miscellaneous lands 

within grazing districts when payment is not feasible on a percentage basis (43 U.S.C. 315m). 

These funds are to be expended by the State for the benefit of the counties in which the lands 

are located. The BLM makes these payments annually. The actual payments for 2015 were 

$25,000 and estimated payments for 2016 and 2017 are $21,000 and $22,000 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). 

The BLM makes payments annually on a calendar-year basis. The actual payments for 2015 

were $590,000 and estimated payments for 2016 and 2017 are $613,000, and $612,000 

respectively.

Appropriation: Miscellaneous Permanent 

Payments
Bureau of Land Management 2017 Budget Justifications

Chapter XII – Miscellaneous Permanent Payments Page XII-7

Payments to Nevada from Receipts on Land Sales – Payments to the State of Nevada are 

authorized by two Acts. The Burton-Santini Act authorizes and directs the Secretary to sell not 

more than 700 acres of public lands per calendar year in and around Las Vegas, Nevada, the 

proceeds of which are to be used to acquire environmentally sensitive land in the Lake Tahoe 

Basin of California and Nevada. Annual revenues are distributed to the State of Nevada (five 

percent) and the county in which the land is located (ten percent). 

The Southern Nevada Public Land Management Act (SNPLMA), 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 various uses by the BLM and other Federal lands. (For more information, see the 

Southern Nevada Public Land Management Act, P.L. 105-263, as amended by P.L. 107-282.)

The actual payments for 2015 were $11,016,000. Estimated payments for 2016 and 2017 are 

$10,574,000 and $10,063,000 based on the estimates of collections from planned land sales. 

Sales values for these lands in Clark County have stabilized, but collections are still relatively 

low compared to the past. The BLM collected $81,793,000 in 2015 from Nevada land sales 

(including SNPLMA and Lincoln County) and estimates collections from sales in 2016 and 2017 

will be $75,501,000 and $67,087,000 respectively. Some receipts from sales held in the latter 

half of one fiscal year are not collected in full until the next fiscal year because of normal delay 

in the acceptance of bids. 

Payments to Oregon and California Grant Lands Counties – Under the Oregon and 

California Act of 1937, the BLM paid 50 percent of receipts from Federal activities on O&C lands 

(mainly from timber sales) to 18 counties in western Oregon. These revenues decreased since 

the 1980s due to changes in Federal timber policies. 

The Secure Rural Schools and Community Self-Determination Act of 2000 (P.L. 106-393) was 

enacted on October 30, 2000. The Act was designed to provide a predictable payment to 

States and counties, in lieu of funds derived from Federal timber harvests. Payments were 

based on historical payments, adjusted for inflation. 

Payments to the 18 O&C counties were derived from: 

1. Revenues from Federal activities on O&C lands in the previous fiscal year that are not 

deposited to permanent operating funds such as the Timber Sale Pipeline Restoration or 

the Forest Ecosystem Health and Recovery, and,

2. To the extent of any shortfall, out of any funds in the Treasury not otherwise 

appropriated. 

Under P.L. 106-393, and in the extensions of it, payments for a fiscal year were made in the 

following fiscal year. For example, payments for 2013 were made in 2014. 

Payments have been extended five times. Under the extensions, payments tend to be reduced 

each year, and they are not adjusted for inflation as they were under P.L. 106-393 during the 

first six years. 

P.L. 110-28 provided authorized payments for 2007 which were made in 2008. Payments in 

2008 were distributed among the counties in the same way as payments in 2007. Payments 
Bureau of Land Management 2017 Budget Justifications

Chapter XII – Miscellaneous Permanent Payments Page XII-8

were limited to a total of $525,000,000 for both the BLM and the Forest Service, $100,000,000 

from receipts and $425,000,000 from the General Fund. BLM’s share was $116,865,000.

In October, 2008, Congress enacted Section 601 of Public Law 110-343, which extended the 

Secure Rural Schools Act of 2000. Public Law 110-343 provided an extension of payments to 

the O&C Grant Lands and the Coos Bay Wagon Road counties through fiscal year 2011 (with 

final payment to be made in 2012). As in the prior act, payments were to be made for the year 

prior. The payments for 2008 through 2010 were described in the law as “transition” payments, 

and were a declining percentage of the payments made in 2006; the payment in 2009 (for 2008) 

was 90 percent of the amount paid in 2006, the payment in 2010 (for 2009) was 81 percent, and 

the payment in 2011 (for 2010) was 73 percent. 

The payments in 2012 (for 2011) were calculated based on several factors that included 

acreage of Federal land, previous payments, and per capita personal income. The table below 

shows payments made from 2002 (for 2001) through the payments for 2012 (in 2013). The 

payments to the Coos and Douglas counties have followed the same pattern as payments to 

O&C counties under the Secure Rural Schools Act and extensions. 

In July 2012, Congress enacted Public Law 112-141, which extended the Secure Rural Schools 

Act of 2000. Public Law 112-141 provided an extension of payments to the O&C Grant Lands 

and the Coos Bay Wagon Road counties through fiscal year 2012 (with the payment to be made 

in 2013). 

In October 2013, Congress enacted Public Law 113-40 which extended payments for one year 

to the O&C Grant Lands and the Coos Bay Wagon Road counties through fiscal year 2013 (with 

the payment to be made 2014). 

In April 16, 2015 under the Medicare Access and CHIP Reauthorization Act of 2015, and the 

Extension of Secure Rural Schools and Community Self-Determination Act of 2000, the 

payments were authorized to be made in 2015 (for 2014) and 2016 (for 2015) to Oregon & 

California Grant Lands and Coos Bay Wagon Road counties.

The 2017 Budget reflects a five-year reauthorization of the Secure Rural Schools Act with 

funding through mandatory U.S. Forest Service (USFS) appropriations, starting with the 

payments for fiscal year 2016 (which would be made in 2017). This SRS proposal revises the 

allocation split between the three portions of the program from the current authority emphasizing 

enhancement of forest ecosystems, restoration and improvement of land health and water 

quality and the increase of economic activity. For more information on this proposal, see the 

USFS 2017 Budget Justification.

For any of the 18 counties in Western Oregon choosing not to receive payments for 2016 (in 

2017) under the reauthorization proposal discussed above, the payments would revert back to 

payments under the 1937 O&C Act and subsequent amendments. The 1937 statute authorizes 

payments of 50 percent of Federal receipts from activities on O&C grant lands. In the case of 

Coos and Douglas Counties, if they were to choose not to receive payments for 2016 (in 2017) 

under the proposal, the 1939 statute authorizes payments for lost tax revenue not to exceed 75 

percent of the receipts from activities on Coos Bay Wagon Road grant lands. 
Bureau of Land Management 2017 Budget Justifications

Chapter XII – Miscellaneous Permanent Payments Page XII-9

The table below shows actual and estimated payments for 2001 through 2016. 

Secure Rural Schools Payments ($ in thousands)

Payments for 2001 in 2002 O&C CBWR Total

Amount from Receipts: $15,540 $330 $15,869

Amount from General Fund: $93,192 $618 $93,811

Total $108,732 $948 $109,680

Title I/III $101,085 $875 $101,960

Title II $7,647 $73 $7,720

Total $108,732 $948 $109,680

Payments for 2002 in 2003 O&C CBWR Total

Amount from Receipts: $11,519 $229 $11,748

Amount from General Fund: $98,083 $727 $98,809

Total $109,602 $956 $110,558

Title I/III $101,433 $834 $102,266

Title II $8,169 $122 $8,291

Total $109,602 $956 $110,558

Payments for 2003 in 2004 O&C CBWR Total

Amount from Receipts: $6,199 $51 $6,249

Amount from General Fund: $104,718 $917 $105,635

Total $110,917 $967 $111,884

Title I/III $102,468 $844 $103,312

Title II $8,449 $124 $8,572

Total $110,917 $967 $111,884

Payments for 2004 in 2005 O&C CBWR Total

Amount from Receipts: $11,935 $133 $12,068

Amount from General Fund: $100,424 $847 $101,271

Total $112,359 $980 $113,339

Title I/III $103,595 $936 $104,531

Title II $8,763 $44 $8,808

Total $112,359 $980 $113,339

Payments for 2005 in 2006 O&C CBWR Total

Amount from Receipts: $11,100 $251 $11,351

Amount from General Fund: $103,843 $751 $104,594

Total $114,943 $1,002 $115,946

Title I/III $106,123 $955 $107,077

Title II $8,820 $48 $8,868

Total $114,943 $1,002 $115,946

Note: Amounts may not add due to rounding
Bureau of Land Management 2017 Budget Justifications

Chapter XII – Miscellaneous Permanent Payments Page XII-10

Payments for 2006 in 2007 O&C CBWR Total

Amount from Receipts: $11,720 $530 $12,250

Amount from General Fund: $104,373 $394 $104,767

Total $116,093 $924 $117,017

Title I/III $107,928 $924 $108,852

Title II $8,165 $88 $8,253

Total $116,093 $1,013 $117,105

Payments for 2007 in 2008* O&C CBWR Total

Amount from Receipts: $6,354 $297 $6,652

Amount from General Fund: $109,500 $713 $110,213

Total $115,854 $1,010 $116,865

Title I/III $110,873 $995 $111,868

Title II $4,982 $15 $4,997

Total $115,854 $1,010 $116,865

P.L. 110-28 extended Secure Rural Schools payments for one year. 

Payments for 2008 in 2009 O&C CBWR Total

Amount from Receipts: $12,999 $312 $13,311

Amount from General Fund: $91,484 $599 $92,083

Total $104,483 $911 $105,394

Title I/III $95,870 $838 $96,708

Title II $8,614 $73 $8,686

Total $104,483 $911 $105,394

P.L. 110-343 extended Secure Rural Schools payments through 2011 with the 

final payment in 2012. 

Payments for 2009 in 2010 O&C CBWR Total

Amount from Receipts: $14,423 $248 $14,471

Amount from General Fund: $79,812 $573 $80,384

Total $94,035 $820 $94,855

Title I/III $86,420 $755 $87,175

Title II $7,615 $65 $7,680

Total $94,035 $820 $94,855

Payments for 2010 in 2011 O&C CBWR Total

Amount from Receipts: $9, 670 $636 $10,306

Amount from General Fund: $75,077 $102 $75,180

Total $84,748 $739 $85,487

Title I/III $77,393 $636 $78,029

Title II $7,354 $102 $7,457

Total $84,748 $739 $85,487

Note: Amounts may not add due to rounding
Bureau of Land Management 2017 Budget Justifications

Chapter XII – Miscellaneous Permanent Payments Page XII-11

Payments for 2011 in 2012 O&C CBWR Total

Amount from Receipts: $11,575 0 $11,575

Amount from General Fund: $28,116 $346 $28,463

Total $39,691 $346 $40,037

Title I/III $35,992 $318 $36,310

Title II $3,699 $28 $3,727

Total $39,691 $346 $40,037

Payments for 2012 in 2013 O&C CBWR Total

Amount from Receipts: $11,521 $326 $11,847

Amount from General Fund: $26,162 $0 $26,162

Total $37,683 $326 $38,009

Title I/III $34,054 $281 $34,334

Title II $3,629 $45 $3,675

Total $37,683 $326 $38,009

Payments for 2013 in 2014 O&C CBWR Total

Amount from Receipts: $17,341 $337 $17,678 

Amount from General Fund: $21,952 $0 $21,952 

Total $39,293 $337 $39,630

Title I/III $35,976 $310 $36,286 

Title II $3,317 $27 $3,344

Total $39,293 $337 $39,630 

P.L. 113-40 extended Secure Rural Schools payments through 2013 with the 

payment to be made in 2014.

Payments for 2014 in 2015 O&C CBWR Total

Amount from Receipts: $30,238 $322 $30,560

Amount from General Fund: $7,731 $0 $7,731

Total $37,969 $322 $38,291

Title I/III $34,802 $296 $35,098 

Title II $3,167 $26 $3,193

Total $37,969 $322 $38,291

P.L. 114-10 extended Secure Rural Schools payments through 2014 with the 

payment to be made in 2015.

Estimated Payments for 2015 in 2016 O&C CBWR Total

Amount from Receipts: $28,726 $306 $29,032

Amount from General Fund: $7,345 $0 $7,345

Total $36,071 $306 $36,377

Title I/III $33,062 $281 $33,343

Title II $3,009 $25 $3,034

Total $36,071 $306 $36,377 

P.L. 114-10 extended Secure Rural Schools payments through 2015 with the 

payment to be made in 2016.

Note: Amounts may not add due to rounding
Bureau of Land Management 2017 Budget Justifications

Chapter XII – Miscellaneous Permanent Payments Page XII-12

2015 Total Payments of BLM Receipts to States and Counties

($ in thousands)

Taylor Grazing Act

State

a/

Mineral 

Leasing 

Act ROW 

payments

SEC. 15 

Outside 

Grazing 

Districts

SEC. 3 

Outside 

Grazing 

Districts

Other Proceeds 

of Sales Other Total Payments 

Alaska 0 0 0 0 478 0 478 

Arizona 145,214 84,969 48,967 0 53,097 0 332,247 

California 774,538 40,242 11,214 0 41,720 0 867,714 

Colorado 319,916 31,108 55,142 12,764 19,895 0 438,825 

Florida 0 0 0 0 19 19

Idaho 87,450 19,332 139,242 0 9,094 0 255,118 

Michigan 0 0 0 0 156 156 

Illinois 0 0 0 0 54 0 54

Montana 29,690 104,896 126,800 0 26,245 

b/

539,964 827,595 

Nebraska 0 902 0 0 0 0 902

Nevada 65,562 2,137 179,265 0 153,200 

c/

11,738,922 12,139,086

New Mexico 1,316,793 121,310 179,172 15 154,123 7,378 1,778,791 

North Dakota 5,091 4,633 0 0 10.00 0 9,734 

Oklahoma 658 60 0 0 0.00 0 718 

Oregon 51,971 21,766 118,104 0 19,267.00 

d/ 

38,291,303 38,502,411

South Dakota 0 104,921 28 0 208.00 0 105,157 

Utah 248,316 0 130,142 0 30,219.00 0 408,677 

Washington 803 18,856 0 0 347.00 0 20,006 

Wisconsin 0 0 0 0 2,852 0 2,852 

Wyoming 1,109,295 292,484 138,674 12,128 70,556 0 1,623,137 

Total 4,155,297 847,616 1,126,750 24,907 581,384 50,577,567 57,313,521 

Note: The amounts shown above are outlays, some of which may be from prior year budget authority, and therefore, 

may be different than the amounts reported for fiscal year 2015 in the Summary of Requirements at the beginning of 

this chapter.

a/ These are payments to States of 50 percent of mineral leasing rights-of-way rents. They are not reported in the 

Summary of Requirements table in this chapter because the Department of the Interior, Office of Natural Resource 

Revenues (ONRR), not BLM, includes these payments in accounting reports to Treasury. The Summary of 

Requirements amounts in the BLM Justifications tie to the amounts reported to Treasury by BLM. ONRR does not 

include the mineral leasing rights-of-way payments to States in the ONRR Budget Justifications. 

b/ LU lands under the Bankhead-Jones Farm Tenant Act (7 U.S.C. 1021)

c/ Payments to Clark County and the State of Nevada. 

d/ These are Secure Rural Schools and Community-Self-Determination Act payments to 18 counties in Western 

Oregon authorized by P.L. 106-393, as amended by P.L. 110-343, and P.L. 112-141. 
Bureau of Land Management 2017 Budget Justifications

Chapter XII – Miscellaneous Permanent Payments Page XII-13

Budget Schedules - Current Law

Account Symbol and Title

14X9921

Miscellaneous Permanent Payment Accounts Line 2015 Act 2016 CY 2017 BY

Program and Financing (P) ($ in Millions)

Obligations by program activity:

 Payments to O&C Counties, Title I/III 5884 0001 34 32 0

 Payment to O&C and CBWR Counties, Title II 5485 0003 0 4 0

 From grazing fees, etc., public lands outside grazing 

districts 5016 0004 1 1 1

 From grazing fees, etc., public lands within grazing 

districts 5032 0005 1 1 1

 Proceeds from sales 5133 0009 1 1 1

 Payments to counties from national grasslands 5896 0010 1 1 1 

 Payments to State and Counties from Nevada Land 

Sales 0013 11 10 10

 Payments to O&C counties under 1937 statute 0014 0 0 15

 Payments to CBWR counties under 1939 statute 0015 0 0 2

Total new obligations 0900 49 50 31

Budgetary resources:

 Unobligated balance:

 Unobligated balance brought forward, Oct 1 1000 3 7 7

 Recoveries of prior year unpaid obligations 1021 0 0 0

 Unobligated balance (total) 1050 3 7 7

 Budget authority:

 Appropriations, mandatory:

 Appropriation 1200 8 0 0

 Proceeds of sales-payments to states 1201 46 1 1

 Payments from grazing fees outside grazing 

districts 1201 0 1 1

 Payments from grazing fees within grazing 

districts 1201 0 1 1 

 Payments to Counties, National Grasslands, BLM 1201 0 1 1

 Payments from Nevada Land Sales 1201 0 11 10

 Payments to O&C Grants lands counties under 

1937 statute 1201 0 0 15

 Payments to CBWR counties under 1939 statute 1201 0 0 2

 Appropriation (SRS O&C Payments from GF- Title 

I/III) 1201 0 14 0

 Appropriation (SRS O&C Payments from receiptsTitle I/III) 1201 0 18 0

 Appropriation (SRS Payments from GF-Title II) 1201 0 4 0

 Appropriations and/or unobligated balance of 

appropriations temporarily reduced 1232 -1 -1 0

 Appropriations, mandatory (total) 1260 53 50 31
Bureau of Land Management 2017 Budget Justifications

Chapter XII – Miscellaneous Permanent Payments Page XII-14

Account Symbol and Title

14X9921

Miscellaneous Permanent Payment Accounts Line 2015 Act 2016 CY 2017 BY

 Appropriations, mandatory - Computed Totals 1260-20 53 50 31

 Appropriation [Text] 1260-40 53 50 31

 Baseline Civilian Pay 1260-50 0 0

 Baseline Non-Pay 1260-50 50 31

 Policy Outlays:

 New Authority 1260-61 0 40 25

 Balances (excl of EOY PY Bal) 1260-62 53 0 10

 End of PY Balances 1260-63 6 2

 Subtotal, outlays 1260-64 53 46 37

 Baseline Outlays:

 New Authority 1260-81 40 25

 Balances (excl of EOY PY Bal) 1260-82 10

 End of PY Balances 1260-83 6 2

 Subtotal, outlays 1260-84 46 37

 Effects of 2014 sequester 1260-40 0 0 0

 Baseline Non-Pay 1260-50 0 0

 Policy Outlays:

 New Authority 1260-61 0 0 0

 Balances (excl of EOY PY Bal) 1260-62 0 0 0

 End of PY Balances 1260-63 0 0

 Subtotal, outlays 1260-64 0 0 0

 Baseline Outlays:

 New Authority 1260-81 0 0

 Balances (excl of EOY PY Bal) 1260-82 0 0

 End of PY Balances 1260-83 0 0

 Subtotal, outlays 1260-84 0 0

Total budgetary resources available 1930 56 57 38

 Memorandum (non-add) entries:

 Unexpired unobligated balance, end of year 1941 7 7 7

Change in obligated balance:

 Unpaid obligations:

 Unpaid obligations, brought forward, Oct 1 3000 7 3 7

 Obligations incurred, unexpired accounts 3010 49 50 31

 Outlays (gross) 3020 -53 -46 -37

 Recoveries of prior year unpaid obligations, 

unexpired 3040 0 0 0

 Unpaid obligations, end of year 3050 3 7 1

 Memorandum (non-add) entries:

 Obligated balance, start of year 3100 7 3 7

 Obligated balance, end of year 3200 3 7 1

Budget authority and outlays, net:
Bureau of Land Management 2017 Budget Justifications

Chapter XII – Miscellaneous Permanent Payments Page XII-15

Account Symbol and Title

14X9921

Miscellaneous Permanent Payment Accounts Line 2015 Act 2016 CY 2017 BY

 Mandatory:

 Budget authority, gross 4090 53 50 31

 Outlays, gross:

 Outlays from new mandatory authority 4100 0 40 25

 Outlays from mandatory balances 4101 53 6 12

 Outlays, gross (total) 4110 53 46 37

 Budget authority, net (mandatory) 4160 53 50 31

 Outlays, net (mandatory) 4170 53 46 37

Budget authority, net (total) 4180 53 50 31

Outlays, net (total) 4190 53 46 37

NON-INVESTMENT ACTIVITIES:

 Grants to State and local govts:

 Budget Authority 2001-01 53 50 31

 Outlays 2001-02 53 46 37

Object Classification

Direct obligations:

 Personnel compensation:

 Full-time permanent 11.1 0 0 0

 Other services from non-Federal sources 25.2 0 0 0

 Grants, subsidies, and contributions 41.0 49 50 31

 Total new obligations 99.9 49 50 31

Employment Summary

Direct civilian full-time equivalent employment 1001 0 0 0

Budget year budgetary resources [014-9921] 1000 0
Bureau of Land Management 2017 Budget Justifications

Chapter XII – Miscellaneous Permanent Payments Page XII-16

Budget Schedules - Proposal

Account Symbol and Title

14X9921

Miscellaneous Permanent Payment Accounts Line 2015 Act 2016 CY 2017 BY

Program and Financing (P) ($ in Millions)

Obligations by program activity:

 Payments to O&C counties under 1937 statute 0014 0 0 -15

 Payments to CBWR counties under 1939 statute 0015 0 0 -2

Total new obligations (object class 41.0) 0900 0 0 -17

Budgetary resources:

 Unobligated balance:

 Unobligated balance brought forward, Oct 1 1000 0 0 0

 Budget authority:

 Appropriations, mandatory:

 Payments to O&C Grants lands counties under 

1937 statute 1201 0 0 -15

 Payments to CBWR counties under 1939 statute 1201 0 0 -2

 Appropriations, mandatory (total) 1260 0 0 -17

 Appropriations, mandatory - Computed Totals 1260-20 0 0 -17

 Appropriation [Text] 1260-40 0 0 -17

 Policy Outlays:

 New Authority 1260-61 0 0 -17

 Balances (excl of EOY PY Bal) 1260-62 0 0 0

 End of PY Balances 1260-63 0 0

 Subtotal, outlays 1260-64 0 0 -17

 Appropriation [FLTFA] 1260-40 0 0 0

 Policy Outlays:

 New Authority 1260-61 0 0 0

 Balances (excl of EOY PY Bal) 1260-62 0 0 0

 End of PY Balances 1260-63 0 0

 Subtotal, outlays 1260-64 0 0 0

Total budgetary resources available 1930 0 0 -17

Change in obligated balance:

 Unpaid obligations:

 Unpaid obligations, brought forward, Oct 1 3000 0 0 0

 Obligations incurred, unexpired accounts 3010 0 0 -17

 Outlays (gross) 3020 0 0 17

 Unpaid obligations, end of year 3050 0 0 0

 Memorandum (non-add) entries:

 Obligated balance, start of year 3100 0 0 0

 Obligated balance, end of year 3200 0 0 0 
Bureau of Land Management 2017 Budget Justifications

Chapter XII – Miscellaneous Permanent Payments Page XII-17

Account Symbol and Title

14X9921

Miscellaneous Permanent Payment Accounts Line 2015 Act 2016 CY 2017 BY

Budget authority and outlays, net:

 Mandatory:

 Budget authority, gross 4090 0 0 -17

 Outlays, gross:

 Outlays from new mandatory authority 4100 0 0 -17

 Budget authority, net (mandatory) 4160 0 0 -17

 Outlays, net (mandatory) 4170 0 0 -17

Budget authority, net (total) 4180 0 0 -17

Outlays, net (total) 4190 0 0 -17

NON-INVESTMENT ACTIVITIES:

 Grants to State and local govts:

 Budget Authority 2001-01 0 0 -17

 Outlays 2001-02 0 0 -17

Object Classification

Direct obligations:

 Grants, subsidies, and contributions 41.0 0 0 -17
Bureau of Land Management 2017 Budget Justifications

Chapter XII – Miscellaneous Permanent Payments Page XII-18

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Permanent Operating 

Funds

Bureau of Land Management 2017 Budget Justifications

Chapter XIII –Permanent Operating Funds Page XIII-1

PERMANENT OPERATING FUNDS

Appropriation Language

No Appropriation Language Sheet

Explanation 

The Permanent Operating Funds Appropriation contains funds available for use by the BLM for 

the purposes specified in permanent laws and do not require annual appropriation action. The 

activities authorized by the appropriations are funded through various receipts received from the 

sale, lease or use of the public lands and resources. Amounts shown for 2016 and 2017 are 

estimates based on anticipated collections. 

Authorizations

Forest Ecosystem Health 

& Recovery Fund (P.L. 

102-381)

The initial purpose of this fund was to allow quick response to fire 

and reforestation of forests damaged by insects, disease, and fire. 

Expanded authorization in the 1998 Interior and Related Agencies 

Appropriations Act allows activities designed to reduce the risk of 

catastrophic damage to forests in addition to responding to damage 

events. Funds in this account are derived from the Federal share 

(defined as the portion of receipts not paid to the counties under 43 

U.S.C. 1181f and 43 U.S.C. 1181-1 et seq., and P.L. 106-393) of 

receipts from all BLM timber salvage sales and all BLM forest health 

restoration treatments funded by this account. The authority to 

make deposits and to spend from this fund was provided in the 2010 

Interior Appropriations Act (P.L. 111-88, 123 STAT. 2906) and was 

scheduled to expire at the end of fiscal year 2015. The 2015 

Omnibus Appropriations Act (Section 117) extended this authority 

through 2020.

Omnibus Consolidated 

Appropriations Act of 

1996, section 327

This Act established the Timber Sale Pipeline Restoration Fund, 

using revenues generated by timber sales released under Section 

2001(k) of the 1995 Supplemental Appropriations for Disaster 

Assistance and Rescissions Act, which directs that 75 percent of the 

Pipeline Fund be used to fill each agency’s timber sale “pipeline” 

and that 25 percent of the Pipeline Fund be used to address the 

maintenance backlog for recreation projects on BLM and U.S. 

Forest Service lands after statutory payments are made to State and 

local governments and the U.S. Treasury. 

1985 Interior and Related 

Agencies, Appropriations 

Act (P.L. 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.
Bureau of Land Management 2017 Budget Justifications

Chapter XIII –Permanent Operating Funds Page XIII-2

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 18 counties in western Oregon be paid 50 

percent of the revenues from Oregon and California grant lands. 

76th Congress, 1st 

Session – Ch. 142-144 – 

May 24, 1939, 53 Stat. 753

An Act relating to the disposition of funds derived from the Coos Bay 

Wagon Road grant lands provides that Coos and Douglas counties 

in western Oregon be paid for lost tax revenue. 

The Omnibus Budget 

Reconciliation Act of 1993

Amended the Land and Water Conservation Fund Act and further 

expanded collection of recreation use fees to be deposited into a 

special account established for each agency in the U.S. Treasury to 

offset the cost of collecting fees. 

The 1993 Interior and 

Related Agencies 

Appropriations Act

The Federal share of receipts from the disposal of salvage timber 

from lands under BLM jurisdiction is deposited in a special fund in 

the U.S. Treasury.

Section 502(c) of the 

Federal Land Policy and 

Management Act of 1976 

(43 U.S.C. 1762(c))

Provides for the permanent appropriation of money collected from 

commercial road users in lieu of user maintenance. Receipts are 

permanently appropriated to the BLM for road maintenance.

Act of October 30, 1998

(P.L. 105-321)

The legislation provides that the BLM will convey property to 

Deschutes County, Oregon, and the amount paid by the County 

pursuant to the Act, may be used by the Secretary of the Interior to 

purchase environmentally sensitive land east of Range 9 East of 

Willamette Meridian, Oregon.

Lincoln County 

Conservation, Recreation 

and Development Act 

(PL 108-424)

Addresses a wide range of public lands issues in Lincoln County, 

Nevada, designates as wilderness 768,294 acres of BLM-managed 

lands and releases from Wilderness Study Area (WSA) status 

251,965 acres of public land. The Act also directs the BLM to 

dispose of up to 90,000 acres of public land and divides the 

proceeds 85 percent to a Federal fund and 15 percent to State and 

County entities, establishes utility corridors, transfers public lands 

for State and County parks, creates a 260-mile off-highway vehicle 

trail and resolves other public lands issues.

Lincoln County Land 

Sales (P.L. 106-298) 

The Lincoln County Land Act of 2000, among other things, 

authorizes the Secretary to dispose of certain lands in Lincoln 

County, Nevada, to distribute the proceeds as follows: Five percent 

to the State of Nevada, 10 percent the County, and 85 percent to an 

interest bearing account that is available for expenditure without 

further appropriation.

White River Oil Shale 

Mine, Utah Property Sale 

Provisions, The 2001 

Interior and Related 

Agencies Appropriations 

Act (P.L. 106-291)

The Act authorized the sale of improvements and equipment at the 

White River Oil Shale Mine with the proceeds to be available for 

expenditure without further appropriation to reimburse (A) the 

Administrator for the direct costs of the sale; and (B) the Bureau of 

Land Management Utah State Office for the costs of closing and 

rehabilitating the mine. 
Bureau of Land Management 2017 Budget Justifications

Chapter XIII –Permanent Operating Funds Page XIII-3

The Federal Land 

Transaction Facilitation 

Act (P.L. 106-248)

The Federal Land Transaction Facilitation Act (FLTFA) provides that 

the BLM may conduct sales of lands that have been classified as 

suitable for disposal under current resource management plans. 

This law provides that receipts from such sales may be used to 

acquire non-Federal lands with significant resource values that fall 

within the boundaries of areas now managed by the Department. 

FLTFA expired on July 25, 2010. It was reauthorized through July 

25, 2011 by the 2010 Supplemental Appropriations Act (P.L. 111-

212). The 2017 Budget includes a proposal to reauthorize FLTFA 

and allow lands identified as suitable for disposal in recent land use 

plans to be sold using the FLTFA authority. FLTFA sales revenues 

would continue to be used to fund the acquisition of environmentally 

sensitive lands and the administrative costs associated with 

conducting sales.

Southern Nevada Public 

Land Management Act 

(P.L. 105-263). 

Provides for the orderly disposal of certain Federal lands in Clark 

County, Nevada, and to provide for the acquisition of 

environmentally sensitive lands in the State of Nevada. Receipts 

are generated primarily through the sale of public lands in the Las 

Vegas Valley. 

Federal Lands Recreation 

Enhancement Act (Title 

VIII of P.L. 108-447)

Enacted as Title VIII of the Consolidated Appropriations Act, 2005, 

this Act provides authority for 10 years for the BLM to manage 

public lands for recreational purposes and to collect and spend 

recreation use fees. The purposes for which the collections may be 

spent are generally for maintenance and repair of recreation 

facilities, visitor services, and habitat restoration related to 

recreation, law enforcement related to public use and recreation, 

and direct operating and capital costs of the recreation fee program. 

The 2016 budget proposes legislation to permanently authorize the 

Federal Lands Recreation Enhancement Act, which will expire in 

December 2016. In addition, the Department will propose a general 

provision in the 2016 budget request to amend appropriations 

language to extend the authority through FY 2017.

Energy Policy Act of 2005 

(P.L. 109-58, Sections 224 

and 234, Section 365, 

Section 332, and Section 

349)

Established three multi-year appropriations to use a portion of 

onshore mineral leasing receipts to improve oil and gas permit 

processing, facilitate the implementation of the Geothermal Steam 

Act, and clean up environmental contamination on the Naval 

Petroleum Reserve Numbered 2 in California. It also authorized the 

Secretary of the Interior to establish standards under which 

leaseholders may reduce payments owed by the reasonable actual 

costs of remediating, reclaiming, and closing orphaned wells. 

Public Law 109-432, White 

Pine County Land Sales

Authorizes the disposal through sale of 45,000 acres in White Pine 

County, Nevada, the proceeds of which are distributed as follows: 

(a) Five percent for use in the general education program of the 

State of Nevada; (b) 10 percent shall be paid to the County for use 

for fire protection, law enforcement, education, public safety, 

housing, social services, transportation, and planning; and (c) the 

remaining 85 percent to be used to the reimburse the Bureau of 

Land Management and the Department of the Interior for certain 

costs, to manage unique archaeological resources, for wilderness 

and endangered species protection, for improving recreational 

opportunities in the County, and for other specified purposes.
Bureau of Land Management 2017 Budget Justifications

Chapter XIII –Permanent Operating Funds Page XIII-4

Public Law 111-11, 

Omnibus

Public Land Management 

Act of 2009

Among numerous other things, authorizes the disposal of certain 

lands in the Boise District of the Bureau of Land Management, in 

Washington County, Utah, and in Carson City, Nevada. It 

authorizes the BLM to retain and spend most of the proceeds of 

sales of those lands to acquire lands in wilderness and other areas 

and for other purposes, and to pay a portion to the States in which 

the sold land was located. 

Sec. 347 of Public Law 

105-277, as amended by 

Public Law 108-7 and 

Public Law 113-79

Permanently authorizes the BLM, via agreement or contract as 

appropriate, to 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 forests and the 

public lands that meet local and rural community needs. 

Public Law 109-94, 

Ojito Wilderness Act

Authorizes the sale of land to the Pueblo of Zia Tribe, and 

appropriates the proceeds of that sale to the BLM to purchase lands 

within the State of New Mexico.

Public Law 113-291, 

National Defense 

Authorization Act

Provides for permanent extension of BLM’s access to the Permit 

Processing Improvement Fund and adds fees for applications for 

permit to drill as a source of deposits to the Fund. 
Bureau of Land Management 2017 Budget Justifications

Chapter XIII –Permanent Operating Fund Page XIII-5

 FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount

Operations & Maintenance of Quarters 1 807 1 670 - - - - +0 1 670 - +0 

Recreation Enhancement Act, BLM 107 21,842 121 18,662 - - - - +317 121 19,204 - +542 

Forest Ecosystem Health & Recovery 45 12,018 48 14,633 - - - - -6,540 48 7,942 - -6,691 

Timber Sale Pipeline Restoration 34 9,843 23 9,735 - - - - -4,997 23 5,291 - -4,444 

Expenses, Road Maintenance Deposits 8 3,094 10 2,820 - - - - +0 10 2,820 - +0 

Southern Nevada Public Land Sales 43 64,425 54 68,123 - - - - -11,354 54 61,422 - -6,701 

Southern Nevada Earnings on Investments - 258 - 2,000 - - - - +3,000 - 5,000 - +3,000 

Lincoln County Land Sales 7 3,183 7 801 - - - - -247 7 418 - -383 

Interest, Lincoln County Land Sales - 17 - 200 - - - - +60 - 260 - +60 

White Pine County Special Account - 140 - 132 - - - - -130 - 9 - -123 

Stewardship contract excess receipts - 15 - 20 - - - - -1 - 21 - +1 

Federal Land Disposal Account - 0 - - - - - - +4,800 - 4,800 - +4,800 

Owyhee Land Acquisition Account - 0 - 198 - - - - +1,288 - 1,450 - +1,252 

Washington County, Utah Land Acqusition Account - 747 - 4,031 - - - - -4,262 - 290 - -3,741 

Silver Saddle Endowment - 348 - 763 - - - - -790 - 54 - -709 

Carson City Special Account - 6 - 48 - - - - -52 - 4 - -44 

Ojito Land Acquisition - 0 - - - - - - +0 - - - +0 

NPR-2 Lease Revenue Account - 5 2 5 - - - - +0 2 5 - +0 

Geothermal Lease and Use Authorization Fund - 0 - - - - - - +0 - - - +0 

Oil and Gas Permit Processing Improvement Fund 76 11,799 430 44,192 - - - - +1,844 430 51,667 - +7,475 

Total, Permanent Operating Fund 321 128,547 696 167,033 - - - - -17,064 696 161,327 - -5,706 

Note:

The 2016 and 2017 amounts in this table are updated from the estimates in the Appendix, Budget of the United States Government, Fiscal Year 2017. Specifically, the 2016 and 2017 estimates for the 

Oil and Gas Permit Processing Improvement Fund have been adjusted in this table to correctly include both estimated APD fees and 50 percent of rent revenues from onshore leases.

2015 Actual 2016 Enacted Program Change Requested Amount 

 Fixed Costs

2017 President's Budget

 Transfers Change from 2016 

Summary of Requirements

(dollars in thousands)
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Program Overview 

The following activities account for certain receipts received from the sale, lease, or use of 

public lands or resources. They are available for use by Bureau of Land Management (BLM) for 

the purposes specified in permanent laws and do not require annual appropriation action by 

Congress. Amounts shown for 2016 and 2017 are estimates based on anticipated collections. 

Projected collection amounts consider such factors as market and economic indicators, 

expected public or industry demand levels for services or sales products, fee or collection 

schedules or structures, and certain legislative proposals expected to be enacted into law.

Operations & Maintenance of Quarters – This account is used to maintain and repair all BLM 

employee-occupied quarters from which quarters rental charges are collected. Agencies are 

required to collect quarter rentals from employees who occupy Government-owned housing and 

quarters. This housing is provided only in isolated areas or when an employee is required to 

live on-site at a Federally-owned facility or reservation. The BLM currently maintains and 

operates 248 housing or housing units in 11 States. 

Recreation Fee Program, BLM – The Federal Lands Recreation Enhancement Act (FLREA) of 

2004, Title VIII of the Consolidated Appropriations Act, 2005, Public Law 108-447, provided a 

comprehensive restatement of Federal authority, including that of the BLM, to collect and spend 

recreation use fees. This statute replaced prior authorities enacted in the Land and Water 

Conservation Act, the Omnibus Budget Reconciliation Act of 1993, and the Recreational Fee 

Demonstration Program authority enacted in annual appropriation acts since 1996. During 

fiscal 2005, the BLM switched to the authorities and arrangements enacted in the FLREA. 

Recreation projects operating under the former Recreational Fee Demonstration program have 

varying fee structures depending upon the day of week, season of use, free use days, and 

standardized entrance fees. Service fees, automated fee collection machines, third-party 

collection contracts, volunteer fee collectors, entrance booths, donations, self-serve pay 

stations, reservation systems, fee collection through the mail for permitted areas, special 

recreation permits for competitive and organized groups, and online Internet reservation 

payment with credit cards are examples of new collection methods the BLM has used as a 

result of the Recreational Fee Demonstration program. The fee structure at each site is 

periodically evaluated to ensure that the fees are comparable to similar sites in the surrounding 

area. These fees, combined with appropriated funds, are used to maintain buildings, shelters, 

water supply systems, fences, parking areas, and landscaping; to pump vault toilets and dump 

stations; to replace or repair broken or non-functioning facilities; to modify facilities to 

accessibility standards; and to collect trash at recreation sites.

The Administration proposes to permanently reauthorize the Department of the Interior's and 

the Department of Agriculture's recreation fee programs under the Federal Lands Recreation 

Enhancement Act, which is set to expire on September 30, 2017.

The following table provides the actual collections for 2015 and the estimated revenues 

projected for 2016 and 2017 from BLM recreational fee sites. In addition, the table provides 

Appropriation: Permanent Operating Funds
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information on the number of projects approved, the type of work conducted and the amount of 

revenues spent for all three fiscal years.

Recreation Fee Projects 

(In thousands of dollars)

2015 2016 2017

Bureau of Land Management Actual Estimated Budget

Unobligated Balance Brought Forward & Recoveries 14,995 19,866 19,443

Recreation Fee Revenues [Post-sequestration] 21,842 18,662 19,204

America the Beautiful pass [800] [800] [800]

Funds Obligated -16,971 -19,085 -19,900

Unobligated Balance 19,866 19,443 18,747

Total Expenditures (outlays) 16,379 20,244 18,933

Obligations by Type of Project

Asset Repair & Maintenance

Facilities Routine/Annual Maintenance 4,742 4,900 5,000

Facilities Capital Improvements Health & Safety 170 185 200

Facilities Deferred Maintenance 708 1,000 1,040

Subtotal, Asset Repair and Maintenance 5,620 6,085 6,240

Interp. Visitor Services, issue SRP & RUP 5,421 6,000 6,100

Law Enforcement, Recreation 2,376 2,800 2,800

Habitat Restoration, Resource Protection 848 800 850

Collection Costs 508 400 410

Fee Mgmt. Agreement & Reservation Services 847 1,000 1,000

Pass Administration and Overhead 

Administration, Overhead, Indirect Costs < = 15% 1,351 2,000 2,500

 Total Obligations 16,971 19,085 19,900

 

Total Expenditures (outlays) 16,379 20,244 18,933
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Use of Fees 

The BLM Annual Maintenance program maintains assets on recreation sites. In fiscal year 2015, the BLM 

maintained 92 percent of buildings and 89 percent of non-building assets in fair condition. In FY 2015, $5.6 

million of recreation fee revenue was used for annual maintenance and operations at recreation sites. 

Projects that have been completed or started are quite varied in nature, and include the following 

accomplishments:

Repair and Maintenance - Recreation fee revenues have been used for maintaining existing facilities; 

repairing roofs; paving and grading roads and bridges; trail maintenance; repairing equipment and vehicles; 

adding communication systems; repairing gates, fences and flood damage; and repairing, replacing, installing, 

and expanding water systems.

Improving Visitor Services - Recreation fee revenues have been used for retrofitting restrooms and providing 

access to picnic areas for persons with disabilities; repairing existing restrooms or constructing new ones; 

landscaping recreation sites; expanding campgrounds; adding new grills and tables; constructing trails and 

additional tent pads; creating and adding directional signs; repairing, replacing, and constructing boat ramps; 

replacing and constructing boat and fishing docks; developing maps; brochures; exhibits and other outreach 

materials; and designing and creating interpretive displays.

Providing for Fee Collection - Recreation fee revenues have been used for constructing fee collection 

facilities, purchasing and installing lighting for exhibits and kiosks, adding seasonal positions, and expanding 

partnerships.

Forest Ecosystem Health and Recovery Fund (FEHRF) - Funds in this account are derived 

from the Federal share of receipts (defined as the portion of receipts not paid to the counties 

under 43 U.S.C. 1181f and 43 U.S.C. 1181-1 et seq., and P.L. 106-393, as amended) from all 

BLM timber salvage sales, and from BLM forest health restoration treatments funded from this 

account. Funds from this account are available for planning, preparing, implementing, 

monitoring, and reforestation of salvage timber sales and forest health restoration treatments, 

including those designed to release trees from competing vegetation, control tree densities, and 

treat hazardous fuels. Most of these treatments are implemented through service contracts or 

commercial timber sales. BLM projects may occur on Oregon and California Grant Lands, Coos 

Bay Wagon Road Grant Lands in Oregon, and on the public domain lands throughout the BLM. 

The initial purpose of this fund was to allow quick response to fire and for reforestation of forests 

damaged by insects, disease, and fire. Expanded authorization in the 1998 Interior and Related 

Agencies Appropriations Act allows activities designed to promote forest health, including 

reducing the risk of catastrophic damage to forests in addition to responding to damage events. 

The Federal share of receipts in 2015 was $12 million. The expected receipts for 2016 and 

2017 are estimated to be $14.6 million and $7.6 million respectively.

The volume of salvage timber harvested and associated revenues in any given year may vary 

depending upon the severity of wildland fires, weather events such as drought and windstorms, 

and insect and disease mortality. The volume and value of harvest is also influenced by the 

demand for wood products. 

In 2015, the BLM harvested approximately 70 million board feet of timber worth $11.4 million 

dollars from over 5,000 acres and inventoried or monitored over 100,000 acres, from salvage 

and forest restoration activities using a combination of FEHRF and Public Domain Forestry 
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funds. In addition, in 2015 the BLM offered approximately 75.6 million board feet of FEHRF 

new timber sales from over 7,000 acres worth approximately $12.3 million dollars.

In 2016 and 2017, the BLM intends to treat approximately 10,000 acres, inventory or monitor 

between 100,000 and 200,000 acres, and offer approximately 60.0 million board feet of timber 

from salvage and forest restoration activities using a combination of FEHRF and Public Domain 

Forestry funds. Under current law, the FEHRF fund expires at the end of 2020.

Deposits and Expenditures,

Forest Ecosystem Health and Recovery Fund 

($000)

Year Annual 

Deposit

Cumulative 

Deposit

Annual 

Expenditure

Cumulative 

Expenditure

Earlier 10,648 3,412

1998 5,897 16,545 7,575 10,987

1999 5,454 21,999 9,247 16,822

2000 11888 33,887 8,906 25,728

2001 997 34,884 5,579 31,307

2002 4986 39,870 3,883 35,190

2003 5,003 44,873 3,698 38,888

2004 5,954 50,827 4,254 43,142

2005 6,236 57,063 4,596 47,738

2006 6,795 63,858 5,779 53,517

2007 7,274 71,132 5,865 59,382

2008 5,334 76,466 6,179 65,561

2009 6,998 83,464 5,707 71,268

2010 4,270 87,734 4,880 76,148

2011 3,793 91,527 5,308 81,456

2012 6,437 97,964 4,624 86,080

2013 6,104 104,068 5,505 91,585

2014 4,524 108,592 4,991 96,576

2015 12,018 120,610 4,559 101,135

2016 Estm 7,020 127,630 5,500 106,635

2017 Estm 5,060 132,690 5,500 112,135

Timber Sale Pipeline Restoration Fund – The Pipeline Fund was established under Section 

327 of the Omnibus Consolidated Rescissions and Appropriations Act of 1996. The Act 

established separate funds for the U.S. Forest Service (USFS) and the BLM using revenues 

generated by timber sales released under Section 2001(k) of the 1995 Supplemental 

Appropriations for Disaster Assistance and Rescissions Act. This Act directs that 75 percent of 

the Pipeline Fund be used to fill each agency’s timber sale “pipeline”; and, that 25 percent of the 

Pipeline Fund be used to address the maintenance backlog for recreation projects on BLM and 

USFS lands. Funds are deposited into the fund after statutory payments are made to State and 

local governments. 
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Receipts deposited in 2015 were $9.8 million. In 2016, receipts are estimated to be $9.7 million 

and in 2017 $5.3 million. In 2016 and 2017, 100 percent of timber sale pipeline receipts from 

O&C Grant Lands will be deposited to the Timber Sales Pipeline Restoration Fund due to the 

proposed reauthorization of Secure Rural Schools payments. That law exempts deposits to 

permanent operating funds such as to the Timber Sales Pipeline Restoration Fund from being 

available for use to make Secure Rural Schools payments to western Oregon counties.

 

Deposits and Expenditures,

Timber Sale Pipeline Restoration Fund 

($000)

Year Annual 

Deposit

Cumulative 

Deposit

Annual 

Expenditure

Cumulative 

Expenditure

1998 31,803 31,803 4,474 4,474

1999 3,122 38,192 10,239 14,713

2000 0 38,192 8,454 23,167

2001 6,590 41,868 7,489 30,656

2002 563 42,431 5,615 36,271

2003 2,879 45,502 5,339 41,610

2004 6,993 53,421 2,904 44,514

2005 8,843 62,301 2,887 47,401

2006 12,339 74,756 5,059 52,460

2007 10,922 85,718 8,381 60,841

2008 10,396 96,093 10,340 71,181

2009 5,162 101,274 16,768 87,949

2010 4,078 105,352 10,587 98,536

2011 4,048 109,400 4,718 103,254

2012 4,023 113,423 4,514 107,768

2013 2,889 116,313 2,106 109,874

2014 2,991 119,304 3,172 113,046

2015 9,843 129,147 4,302 117,348

2016 Est. 4,636 133,783 4,300 121,648

2017 Est. 3,648 137,431 4,300 125,948

At the end of 2015, the unobligated balance in the Fund was $14.2 million. The BLM estimates 

the Fund balance will be $14 million at the end of fiscal year 2017.

Recreation Projects Funded Through the Pipeline Fund – Significant progress has been made 

in western Oregon to address recreation projects using funds from the Timber Sale Pipeline 

Restoration Fund. Through the end of 2015, 25% of the Pipeline Fund has been used to 

complete millions of dollars of deferred maintenance work at recreation sites scattered 

throughout western Oregon on O&C lands. The principal focus of recreation spending is 

maintaining existing facilities, resolving critical safety needs, and meeting the requirements of 

the Americans with Disabilities Act. The BLM has made considerable investment in projects 

such as renovation of water and sewer systems, upgrading restroom facilities, improving 

parking areas, and adapting existing recreation sites for handicapped visitors. In 2017, the BLM 
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level of expenditures for recreation projects from the Pipeline Fund is estimated to be between 

$700,000 and $800,000.

Timber Sales Prepared by Use of the Pipeline Fund – Approximately 75 percent of the Timber 

Sale Pipeline Fund is specifically used by a multiple resource team of specialists to prepare 

timber sales, including all necessary NEPA, environmental inventories and analyses; timber 

sale layout; timber cruising and appraising; and contract preparation costs. Upon completion of 

these requirements, a timber sale is officially prepared and placed “on-the-shelf” in anticipation 

of being offered for sale in future years. 

 

Since 2001, the BLM has harvested approximately 620 million board feet of timber from over 

41,000 acres valued at approximately $89 million dollars from the Pipeline Fund timber sales. 

In 2015, the BLM expended $4.3 million from the Timber Sale Pipeline Fund and offered 

approximately 19.8 million board feet of timber for sale valued at approximately $3.8 million. 

The BLM expects to deposit $4.6 million in 2016 and $3.6 million in 2017 from associated timber 

sales into the Pipeline Fund.

Expenses, Road Maintenance Deposits – This activity provides for the permanent 

appropriation of money collected from commercial road users in lieu of user maintenance. The 

receipts are permanently appropriated to the BLM for road maintenance. Users of certain roads 

under BLM jurisdiction make deposits for maintenance purposes. Moneys collected are 

available for needed road maintenance. Moneys collected on Oregon and California Grant 

Lands are available only for those lands (43 U.S.C. 1762(c), 43 U.S.C. 1735(b)). The BLM has 

authority to collect money for road maintenance from commercial users of the public lands and 

the public domain lands transportation system. Most of the funds generated for this account 

come from Oregon and California Grant Lands and are available for those lands only.

Southern Nevada Public Land Sales – This receipt account allows the BLM to record 

transactions authorized by the Southern Nevada Public Land Management Act (SNPLMA) (P.L. 

105-263). The purpose of the Act is to provide for the orderly disposal of certain Federal lands in 

Clark County, Nevada, to meet the demands for community expansion and economic 

development, and to use the proceeds from these sales to address critical environmental and 

educational needs in Clark County and other areas of Nevada. Receipts are generated primarily 

through sale to the public of lands in the Las Vegas valley. Approximately 50,000 acres of public 

land are within the disposal boundary area.

Currently, funds collected from the land sales are distributed as follows:

• Five percent to the State General Education Fund.

• 10 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 $2.9 billion in deposits to the special fund, including 

earnings on investments, from land sales since its enactment in 1998. When SNPLMA was 

originally passed, proceeds from land sales under the bill were estimated at roughly $70 million 

per year. Collections in 2014 and 2015 were $61,430,000 and $78,441,000 respectively. Sales 

in 2016 are projected to produce $75,065,000. The increase is due to an increase in estimates 

of acres sold offsetting a lower price per acre. Estimated collections for 2017 are expected to 

be $66,660,000 mainly coming from final payments received from 2016 sales and a planned fall 
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auction of 600 acres. Collections are reported when payments are received regardless of when 

sales are held and the estimates make allowance for the normal lag of 180 days between sales 

and collections. For more information on SNPLMA, see the 2008 report to Congress, at 

http://www.blm.gov/nv/st/en/snplma.html. See the Collections chapter for more information on 

anticipated land sales in 2016 and 2017.

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; and

• Purchase environmentally sensitive land or interests in land in the State of Nevada, with 

priority given to land outside Clark County.

In 2015, $3,183,000 was deposited from land sales. In 2016 and 2017, deposits from land 

sales are estimated to be $801,000 and $418,000. Those estimates exclude interest deposited 

to the fund and payments to the State and County. 

Southern Nevada Public Land Management and Lincoln County – Earnings on 

Investments – SNPLMA authorizes the Secretary to manage the collections account for the 

purposes set out above, and is also authorized to use interest generated from the abovementioned funds. The BLM is authorized to invest the unspent balance of collections from 

SNPLMA and Lincoln County Lands Act land sale receipts. Earnings on investments for 2014 

and 2015 were $369,000 and $275,000 respectively. Interest estimated to be earned in 2016 

and 2017 is $2,200,000 and $5,260,000 respectively. Projected investment earnings take into 

account revenue from land sales, earnings on investments, and projected interest rates and 

outlays. Funds in the special account earn interest at a rate determined by the Secretary of the 

Treasury and are available for expenditure without further appropriation under the provisions of 

the Act. 

Stewardship "End Results" Contracting Fund –The 2003 Omnibus Appropriations Act (P.L. 

108-7), Section 323, amended Section 347 of the 1999 Appropriation Omnibus (P.L. 105-277, 

Oct. 21, 1998) that originally granted the USFS pilot stewardship contracting authority. Until 

September 30, 2013, the USFS and the BLM, via agreement or contract as appropriate, may 

enter into stewardship contracting projects with private persons or other public or private entities 

to perform services to achieve land management goals for the national forest and the public 

lands that meet local and rural community needs.

The Act granted the BLM the ability to utilize stewardship contracting as a tool for forest and 

rangeland restoration. The BLM may apply the value of timber or other forest products removed 

as an offset against the cost of services received, and monies from a contract under subsection 

(a) may be retained by the USFS and the BLM and shall be available for expenditure without 

further appropriation at the project site from which the monies are collected or at another project 

site. In 2015, the BLM deposited $15,000 into the fund and expects to deposit $20,000 in 2016 

and $21,000 in 2017 respectively. 

The Agriculture Act of 2014 (P.L. 113-79) provides permanent stewardship contracting authority.
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Federal Land Disposal Account – The Federal Land Transaction Facilitation Act (FLTFA),

provides authority for the use of receipts from disposal actions by the BLM to purchase 

inholdings and lands adjacent to federally designated areas containing exceptional resources, 

as defined in FLTFA, from willing sellers with acceptable titles, at fair market value, to “promote 

consolidation of the ownership of public and private lands in a manner that would allow for 

better overall resource management administrative efficiency, or resource allocation.

The Act expired on July 25, 2010. On July 29, 2010, Congress passed PL 111-212, which 

included a one-year extension of FLTFA. Because of the break in FLTFA authority, the funds in 

the account on July 25, 2010 were deposited into the Land and Water Conservation Fund. This 

included $37.0 million designated for land purchase and $13.0 million designated to administer 

the BLM’s land sale program, for a total of approximately $50.0 million. When the one year 

extension expired, the unobligated balance of $2.2 million was transferred to the Land and 

Water Conservation Fund. 

The Budget includes a proposal to reauthorize FLTFA and allow lands identified as suitable for 

disposal in recent land use plans to be sold using the FLTFA authority. FLTFA sales revenues 

would continue to be used to fund the acquisition of environmentally sensitive lands and the 

administrative costs associated with conducting sales. 

Owyhee Land Acquisition Account – The Owyhee Land Acquisition Account was established 

under Section 1505 of the Omnibus Public Land Management Act of 2009. This account 

provides a process for orderly sale of certain public lands in Boise District of the BLM that, as of 

July 25, 2000, had been identified for disposal in an appropriate resource management plan. In 

2015, there were no deposits, 2016 and 2017 expect to deposit $198,000 and $1,450,000 into 

the fund.

Washington County, Utah Land Acquisition Account – This account was established under 

Section 1778 of the Omnibus Public Land Management Act of 2009. This account provides a 

process for the orderly sale of certain public lands in Washington County, Utah, that, as of July 

25, 2000, had been identified for disposal in appropriate resource management plans. 

Proceeds from the sale of public land are deposited into the “Washington County, Utah Land 

Acquisitions Account”. Amounts in the account are available to the Secretary to purchase, from 

willing sellers, inholdings of lands or interest in land within the wilderness areas and National 

Conservation Area established by the Omnibus Public Land Management Act. In 2015, the 

BLM deposited $747,000 into the fund and expects to deposit $4,031,000 in 2016 respectively 

and $290,000 is estimated for 2017. 

Silver Saddle Endowment Account – This account was established by the Omnibus Public 

Land Management Act of 2009, and authorizes, under certain conditions, the sale of a 62-acre 

parcel to Carson City, Nevada. Proceeds of the sale are to be used by the BLM for the 

oversight and enforcement of a perpetual conservation easement to the land to protect, 

preserve, and enhance the conservation values of the land. In 2015, the BLM deposited 

$348,000 into the fund and expects to deposit $763,000 in 2016 respectively and $54,000 is 

estimated for 2017. 

Carson City Special Account – This account was established by the Omnibus Public Land 

Management Act of 2009, and authorizes the sale of approximately 158 acres described in the 

law. Five percent of the proceeds will be paid directly to the State for use in the general 

education program of the State. The remainder is deposited in this account to reimburse the 
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BLM and the Forest Service for the costs of the sale and appraisals, and to acquire 

environmentally sensitive land or an interest in environmentally sensitive land in the city. In 

2011, 2012 and 2013 there were no receipts. In 2015, the BLM deposited $6,000 into the fund; 

$48,000 is estimated in 2016; $4,000 is estimated for 2017. 

NPR-2 Lease Revenue Account – Section 331 of the Energy Policy Act of 2005, P.L.109–58 

transferred Naval Petroleum Reserve Numbered 2 from the Department of Energy to the 

Department of the Interior and appropriates a portion of revenues from mineral leases on the 

site to remove environmental contamination. The appropriations end when the cleanup is 

completed. In 2015, the BLM deposited $5,000 into the fund. Estimated deposits in 2016 and 

2017 are $5,000 and $5,000.

Geothermal Steam Act Implementation Fund – Section 224 of the Energy Policy Act of 2005, 

P.L.109–58, amended the Geothermal Steam Act of 1970. The amendment provides that fifty 

percent of geothermal bonuses, rents, and royalties will be paid to the State and twenty-five 

percent will be paid to the County within the boundaries of which the leased lands or geothermal 

resources are or were located. Section 234 provided that twenty-five percent be deposited to 

the BLM Geothermal Steam Act Implementation Fund from 2006 through 2010 for the purpose 

of expediting the development of geothermal steam as an energy source. That authority was 

repealed by Congress a year early.1

 A deposit of $2.7 million was made in 2010 from revenues 

collected in 2009 before the authority expired. No additional deposits will be made under 

current law. More information about this fund can be found in the Oil and Gas and Renewable 

Energy Management sections of the Management of Lands and Resources chapter. 

Permit Processing Improvement Fund –Section 365 of the Energy Policy Act of 2005, 

P.L.109–58, permanently directed that fifty percent of rents from onshore mineral leases for oil 

and gas, coal, and oil shale on Federal lands were to be deposited into the Permit Processing 

Improvement Fund (PPIF), and authorized BLM access to the PPIF from 2006 through 2016 for 

the purpose of identifying and implementing improvements and cost efficiencies in processing 

applications for permits to drill (APDs) and related work. 

Section 3021 of the National Defense Authorization Act (NDAA), P.L. 113-291 permanently 

extends BLM’s access to the rent receipts in the PPIF. Section 3021 of the NDAA also added 

fees for APDs as a source of receipts to the PPIF. Specifically, Section 3021 authorizes the 

Secretary in fiscal years 2016 through 2026 to charge and collect a $9,500 APD processing fee, 

as indexed for inflation. The NDAA-authorized APD fee obviates the need for the $6,500 APD 

processing fee that has been authorized in annual appropriations acts the last several years.

The NDAA created two sub-accounts within the PPIF to accommodate these two sources of 

receipts: 

• The Rental Account is comprised of rents from oil, gas, and coal leases not paid to 

States. 

• The Fee Account is comprised of fees paid with applications for permits to drill. 

The law requires that the rental account is used for coordination and processing of leasing 

activity by BLM project offices. 

 

1 Section 423, P.L. 111-88, (123 STAT. 2961). Department of the Interior, environment, and related agencies appropriations for the 

fiscal year ending September 30, 2010
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The law requires that the fee account is used for the same purposes but is not limited to the 

activities of project offices. 

In 2015, the BLM deposited $11,799,000 into the fund. Estimated APD fees are expects to 

deposit $32,761,000 in 2016 and $38,398,000 in 2017 respectively. Pursuant to the NDAA, 

from 2016 through 2019, 15 percent of APD collections are subject to appropriation while 85 

percent is permanently appropriated. For more information on the use of this Fund, please see 

the Oil and Gas Management section in the Management of Lands and Resources Chapter. 

Ojito Land Acquisition – The Ojito Wilderness Act authorized the sale of land to the Pueblo of 

Zia Indian Tribe and the purchase of land from willing sellers within the State of New Mexico. 

The sale to the Tribe has been completed; the BLM is planning a land purchase using the 

proceeds of that sale. No deposits in 2015 and none are estimated for 2016 and 2017. 
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Chapter XIII – Permanent Operating Fund Page XIII-17

Budget Schedules - Current Law

Account Symbol and Title

14X9926

Permanent Operating Funds Line 2015 Act 2016 CY 2017 BY

Program and Financing (P) ($ in Millions)

Obligations by program activity:

 Forest ecosystem health and recovery fund 0001 4 6 6

 Recreation fee demonstration 0002 17 19 19

 Expenses, road maintenance deposits 0003 2 2 2

 Timber sale pipeline restoration fund 0004 4 2 2

 Southern Nevada public land sales (85) 0005 52 75 75

 Lincoln County Lands Act 0008 2 3 3

 Operation and maintenance of quarters 0013 1 1 1

 Permit Processing Improvement Fund 0014 9 49 49

 Geothermal Steam Act Fund 0015 0 0 0

 NPR-2 Cleanup Fund 0018 0 1 1

Total new obligations 0900 91 158 158

Budgetary resources:

 Unobligated balance:

 Unobligated balance brought forward, Oct 1 1000 578 646 644

 Recoveries of prior year unpaid obligations 1021 31 0 0

 Unobligated balance (total) 1050 609 646 644

 Budget authority:

 Appropriations, mandatory:

 Recreation fee demonstration program 1201 137 19 19

 Forest ecosystem health and recovery fund 1201 0 13 4

 Timber sales pipeline restoration fund 1201 0 9 2

 Expenses, road maintenance deposits 1201 0 3 3

 S. Nevada public land management 1201 0 64 57

 S. Nevada public land management-interest 

earned 1201 0 2 5

 Permit processing improvement fund 1201 0 39 42

 Operation and maintenance of quarters 1201 0 1 1

 Washington County (Land Acquisition) 1201 0 5 1

 Lincoln Cty. land sales 1201 0 1 1

 Appropriation (Ojito Land Acquistion) 1201 0 0 0

 Appropriation (previously unavailable) 1203 0 9 9

 Appropriations and/or unobligated balance of 

appropriations temporarily reduced 1232 -9 -9 0

 Appropriations, mandatory (total) 1260 128 156 144

 Appropriations, mandatory - Computed Totals 1260-20 128 156 144

 Appropriation [SNPLMA] 1260-40 77 82 38

 Baseline Civilian Pay 1260-50 4 3

 Baseline Non-Pay 1260-50 78 35
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 Policy Outlays:

 New Authority 1260-61 12 30 14

 Balances (excl of EOY PY Bal) 1260-62 136 0 25

 End of PY Balances 1260-63 117 73

 Subtotal, outlays 1260-64 148 147 112

 Baseline Outlays:

 New Authority 1260-81 30 14

 Balances (excl of EOY PY Bal) 1260-82 25

 End of PY Balances 1260-83 117 73

 Subtotal, outlays 1260-84 147 112

 Appropriation [Recreation Fees] 1260-40 16 19 22

 Baseline Civilian Pay 1260-50 8 8

 Baseline Non-Pay 1260-50 11 14

 Policy Outlays:

 New Authority 1260-61 0 10 11

 Balances (excl of EOY PY Bal) 1260-62 0 0 10

 End of PY Balances 1260-63 9 0

 Subtotal, outlays 1260-64 0 19 21

 Baseline Outlays:

 New Authority 1260-81 10 11

 Balances (excl of EOY PY Bal) 1260-82 10

 End of PY Balances 1260-83 9 0

 Subtotal, outlays 1260-84 19 21

 Appropriation [Other Perm Operating] 1260-40 35 64 75

 Baseline Civilian Pay 1260-50 15 20

 Baseline Non-Pay 1260-50 49 55

 Policy Outlays:

 New Authority 1260-61 0 45 52

 Balances (excl of EOY PY Bal) 1260-62 0 0 13

 End of PY Balances 1260-63 15 5

 Subtotal, outlays 1260-64 0 60 70

 Baseline Outlays:

 New Authority 1260-81 45 52

 Balances (excl of EOY PY Bal) 1260-82 13

 End of PY Balances 1260-83 15 5

 Subtotal, outlays 1260-84 60 70

 Appropriation [Sequestration] 1260-40 0 0 0

 Baseline Civilian Pay 1260-50 0 0

 Policy Outlays:

 New Authority 1260-61 0 0 0

 Balances (excl of EOY PY Bal) 1260-62 0 0 0

 End of PY Balances 1260-63 0 0

 Subtotal, outlays 1260-64 0 0 0

 Baseline Outlays:

 New Authority 1260-81 0 0

 Balances (excl of EOY PY Bal) 1260-82 0 0

 End of PY Balances 1260-83 0 0

 Subtotal, outlays 1260-84 0 0

 Effects of sequester 1260-40 0 -9 0

 Baseline Civilian Pay 1260-50 0 0
Bureau of Land Management 2017 Budget Justifications

Chapter XIII – Permanent Operating Fund Page XIII-19

 Baseline Non-Pay 1260-50 -9 0

 Policy Outlays:

 New Authority 1260-61 0 -9 0

 Balances (excl of EOY PY Bal) 1260-62 0 0 0

 End of PY Balances 1260-63 0 0

 Subtotal, outlays 1260-64 0 -9 0

 Baseline Outlays:

 New Authority 1260-81 -9 0

 Balances (excl of EOY PY Bal) 1260-82 0 0

 End of PY Balances 1260-83 0 0

 Subtotal, outlays 1260-84 -9 0

 Appropriation [Text] 1260-40 0 0 9

 Baseline Civilian Pay 1260-50 0 0

 Baseline Non-Pay 1260-50 0 9

 Policy Outlays:

 New Authority 1260-61 0 0 9

 Balances (excl of EOY PY Bal) 1260-62 0 0 0

 End of PY Balances 1260-63 0 0

 Subtotal, outlays 1260-64 0 0 9

 Baseline Outlays:

 New Authority 1260-81 0 9

 Balances (excl of EOY PY Bal) 1260-82 0 0

 End of PY Balances 1260-83 0 0

 Subtotal, outlays 1260-84 0 9

Total budgetary resources available 1930 737 802 788

 Memorandum (non-add) entries:

 Unexpired unobligated balance, end of year 1941 646 644 630

Change in obligated balance:

 Unpaid obligations:

 Unpaid obligations, brought forward, Oct 1 3000 201 113 54

 Obligations incurred, unexpired accounts 3010 91 158 158

 Outlays (gross) 3020 -148 -217 -212

 Recoveries of prior year unpaid obligations, 

unexpired 3040 -31 0 0

 Unpaid obligations, end of year 3050 113 54 0

 Memorandum (non-add) entries:

 Obligated balance, start of year 3100 201 113 54

 Obligated balance, end of year 3200 113 54 0

Budget authority and outlays, net:

 Mandatory:

 Budget authority, gross 4090 128 156 144

 Outlays, gross:

 Outlays from new mandatory authority 4100 12 76 86

 Outlays from mandatory balances 4101 136 141 126
Bureau of Land Management 2017 Budget Justifications

Chapter XIII – Permanent Operating Fund Page XIII-20

 Outlays, gross (total) 4110 148 217 212

 Budget authority, net (mandatory) 4160 128 156 144

 Outlays, net (mandatory) 4170 148 217 212

Budget authority, net (total) 4180 128 156 144

Outlays, net (total) 4190 148 217 212

Memorandum (non-add) entries:

 Total investments, SOY: Federal securities: Par 

value 5000 609 634 660

 Total investments, EOY: Federal securities: Par 

value 5001 634 660 687

Character Classification (C)

NON-INVESTMENT ACTIVITIES:

 Direct Federal programs:

 Budget Authority 2004-01 128 156 144

 Outlays 2004-02 148 217 212

Object Classification (O)

Direct obligations:

 Personnel compensation:

 Full-time permanent 11.1 16 41 41

 Full-time permanent - Allocation 11.1 4 7 7

 Other than full-time permanent 11.3 2 3 3

 Other than full-time permanent - Allocation 11.3 2 2 2

 Other personnel compensation 11.5 1 3 3 

 Total personnel compensation 11.9 25 56 56

 Civilian personnel benefits 12.1 7 16 16

 Civilian personnel benefits - Allocation 12.1 2 3 3

 Travel and transportation of persons 21.0 1 1 1 

 Communications, utilities, and miscellaneous 

charges 23.3 1 1 1

 Other services from non-Federal sources 25.2 5 8 8

 Other services from non-Federal sources - 

Allocation 25.2 23 27 27

 Other goods and services from Federal sources 25.3 5 8 8

 Other goods and services from Federal sources -

Allocation 25.3 1 2 2

 Operation and maintenance of facilities 25.4 2 3 3

 Operation and maintenance of facilities - Allocation 25.4 2 2 2 

 Operation and maintenance of equipment 25.7 1 2 2

 Supplies and materials 26.0 2 2 2

 Equipment 31.0 1 2 2

 Land and structures 32.0 0 3 3 

 Land and structures - Allocation 32.0 7 12 12

 Grants, subsidies, and contributions 41.0 2 6 6

 Grants, subsidies, and contributions - Allocation 41.0 4 4 4

 Total new obligations 99.9 91 158 158

Employment Summary (Q)
Bureau of Land Management 2017 Budget Justifications

Chapter XIII – Permanent Operating Fund Page XIII-21

Direct civilian full-time equivalent employment 1001 321 696 696

Appropriations Requests in Thousands of Dollars (T)

Budget year budgetary resources [014-9926] 1000 0
Bureau of Land Management 2017 Budget Justifications

Chapter XIII – Permanent Operating Fund Page XIII-22

Budget Schedules - Proposal

Account Symbol and Title

14X9926

Permanent Operating Funds Line 2015 Act 2016 CY 2017 BY

Program and Financing (P) ($ in Millions)

Obligations by program activity:

 Forest ecosystem health and recovery fund 0001 0 2 5

 Timber sale pipeline restoration fund 0004 0 2 2

 Federal land disposal fund 0005 0 0 1

Total new obligations 0900 0 4 8

Budgetary resources:

 Unobligated balance:

 Unobligated balance brought forward, Oct 1 1000 0 0 0

 Budget authority:

 Appropriations, mandatory:

 Forest ecosystem health and recovery fund 1201 0 2 2

 Timber sales pipeline restoration fund 1201 0 2 1

 Federal land disposal fund 1201 0 0 5

 Appropriations, mandatory (total) 1260 0 4 8

 Appropriations, mandatory - Computed Totals 1260-20 0 4 8

 Appropriation [Timber sales] 1260-40 0 4 3

 Policy Outlays:

 New Authority 1260-61 0 3 2

 Balances (excl of EOY PY Bal) 1260-62 0 0 1

 End of PY Balances 1260-63 0 0

 Subtotal, outlays 1260-64 0 3 3

 Appropriation [FLTFA] 1260-40 0 0 5

 Policy Outlays:

 New Authority 1260-61 0 0 0

 Balances (excl of EOY PY Bal) 1260-62 0 0 0

 End of PY Balances 1260-63 0 0

 Subtotal, outlays 1260-64 0 0 0

Total budgetary resources available 1930 0 4 8

Change in obligated balance:

 Unpaid obligations:

 Unpaid obligations, brought forward, Oct 1 3000 0 0 1

 Obligations incurred, unexpired accounts 3010 0 4 8

 Outlays (gross) 3020 0 -3 -3

 Unpaid obligations, end of year 3050 0 1 6

 Memorandum (non-add) entries:

 Obligated balance, start of year 3100 0 0 1
Bureau of Land Management 2017 Budget Justifications

Chapter XIII – Permanent Operating Fund Page XIII-23

 Obligated balance, end of year 3200 0 1 6

Budget authority and outlays, net:

 Mandatory:

 Budget authority, gross 4090 0 4 8

 Outlays, gross:

 Outlays from new mandatory authority 4100 0 3 2

 Outlays from mandatory balances 4101 0 0 1

 Outlays, gross (total) 4110 0 3 3

 Budget authority, net (mandatory) 4160 0 4 8

 Outlays, net (mandatory) 4170 0 3 3

Budget authority, net (total) 4180 0 4 8

Outlays, net (total) 4190 0 3 3

Character Classification (C)

NON-INVESTMENT ACTIVITIES:

 Direct Federal programs:

 Budget Authority 2004-01 0 4 8

 Outlays 2004-02 0 3 3

Object Classification (O)

Direct obligations:

 Other services from non-Federal sources 25.2 0 2 5

 Supplies and materials 26.0 0 2 2

 Land and structures 32.0 0 0 1

 Total new obligations 99.9 0 4 8
Bureau of Land Management 2017 Budget Justifications

Chapter XIII – Permanent Operating Fund Page XIII-24

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Miscellaneous Trust 

Funds

Bureau of Land Management 2017 Budget Justifications

Chapter XIV – Miscellaneous Trust Funds Page XIV-1

MISCELLANEOUS TRUST FUNDS

Appropriations Language

In addition to amounts authorized to be expended under existing laws, there is hereby 

appropriated such amounts as may be contributed under section 307 of Public Law 94–579 (43 

U.S.C. 1737), 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 

(43 U.S.C. 1721(b)), to remain available until expended. (Department of the Interior, 

Environment, and Related Agencies Appropriations Act, 2016.)

Appropriations Language Citations

1. In addition to amounts authorized to be expended under existing laws, 

In addition to the amounts provided under other statutes for BLM operations and activities.

2. there is hereby appropriated such amounts as may be contributed under section 307 

of Public Law 94–579 (43 U.S.C. 1737), 

This appropriation consists of both current and permanent funds. The current appropriations are 

the contributions authorized by the Federal Land Policy Management Act (FLPMA) section 307 

(c), which allows parties to contribute funds to the BLM for resource development, protection, 

and management activities; for acquisition and conveyance of public lands; and for cadastral 

surveys on Federally controlled or intermingled lands.

3. 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 

(43 U.S.C. 1721(b)), 

The permanent appropriation allows the BLM to spend funds contributed under the authority of 

the Taylor Grazing Act and under authority of various land survey acts.

4. to remain available until expended. 

The language makes the funds available without fiscal year limitation. This type of account 

allows BLM a valuable degree of flexibility needed to support multi-year contracts, agreements 

and purchases.
Bureau of Land Management 2017 Budget Justifications

Chapter XIV – Miscellaneous Trust Funds Page XIV-2

Authorizations 

Statutes that authorize permanent mandatory trust funds

The Taylor Grazing Act of 

1934, as amended (43 

U.S.C. 315h, 315i)

Provides for the Secretary of the Interior to accept contributions 

for the administration, protection, and improvement of grazing 

lands, and for these funds to be deposited into the Treasury in a 

trust fund; the Act also permanently appropriates them for use 

by the Secretary.

The Act of March 3, 1891, 

Section 11 (43 U.S.C. 

355)

Provides for the sale of town lots to non-Native Alaskans. This 

Act was repealed by FLPMA in 1976. However, the Comptroller 

General Opinion of November 18, 1935, and 31 U.S.C. 1321 

authorize the use of trust funds to provide for survey and deed 

recordation of town lots occupied prior to passage of FLPMA.

43 U.S.C. 759 Provides for accomplishment of public surveys of whole 

townships through a trust fund; deposits for expenses deemed 

appropriated. 43 U.S.C. 761 provides for refunds from trust 

funds established in 43 U.S.C. 759 of costs in excess of 

expenses.

31 U.S.C. 1321(a)(47) and 

(48)

Classifies the activities of "Expenses, public survey work, 

general" and "Expenses, public survey work, Alaska" as trust 

funds.

48 Stat. 1224-36 Provides for payments in advance for public surveys.

Statutes that authorize current mandatory appropriations of trust funds. 

43 U.S.C. 1721(a) and (b) 

(FLPMA Section 211(a) 

and (b))

Provides for the donation of funds for surveys of omitted lands.

The Comptroller General 

Opinion of November 18, 

1935, and 31 U.S.C. 1321

Authorizes the use of trust funds to provide for survey and deed 

recordation of town lots occupied prior to passage of FLPMA.

The Sikes Act of 1974, as 

amended (16 U.S.C. 670 

et seq.)

Provides for the conservation, restoration, and management of 

species and their habitats in cooperation with State wildlife 

agencies. 

Omnibus Appropriations 

Act, 2009, Division E—

Department of the 

Interior, Environment, 

and Related Agencies 

Appropriations Act, 2009, 

P.L. 111-8, March 10, 2009

Provides that projects to be funded pursuant to a written 

commitment by a State government to provide an identified 

amount of money in support of the project may be carried out 

by the Bureau on a reimbursable basis.
Bureau of Land Management 2017 Budget Justifications

Chapter XIV – Miscellaneous Trust Funds Page XIV-3

 FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount

Current: 84 21,972 86 24,000 - - - - - 86 22,930 - -1,070 

 Conveyance of Omitted Lands - - - - - - - - - - - - +0 

 Resource Development Protection & Management - FLPMA 61 17,610 55 19,235 - - - - - 55 18,378 - -857 

 Resource Development Protection & Management - California Off-Highway 22 3,999 29 4,368 - - - - - 29 4,173 - -195 

 Wildlife & Fish Conservation & Rehabilitation - Sikes Act 1 363 2 397 - - - - - 2 379 - -18 

 Rights-Of-Way - - - - - - - - - - - - +0 

Permanent: 5 1,505 7 2,220 - - - - - 7 2,220 - +0 

 Resource Development Protection & Management - Taylor Grazing Act 3 1,439 3 2,123 - - - - - 3 2,123 - +0 

 Public Survey 2 66 4 97 - - - - - 4 97 - +0 

 Trustee Funds - Alaska Townsites - - - - - - - - - - - - +0 

Total, Miscellaneous Trust Fund 89 23,477 93 26,220 - - - - - 93 25,150 - -1,070 

 Transfers Change from 2016 

(dollars in thousands)

Summary of Requirements

2015 Actual 2016 Enacted Program Change Requested Amount 

 Fixed Costs

2017 President's Budget
Bureau of Land Management 2017 Budget Justifications

Chapter XIV – Miscellaneous Trust Funds Page XIV-4

Activity Description

The Land and Resource Management Trust Fund provides for resource development, 

protection, and management improvement of the public lands using money and services that 

are contributed to the BLM from non-Federal sources.

Contributions and donations of money from private individuals, companies, user organizations, 

State government agencies, and other non-Federal entities provide for the performance of 

certain conservation practices. Any money remaining after the project is completed is returned 

to the contributor if they desire.

Current Appropriations: 

Funds are routinely received for the following purposes: 

• Conveyance of Omitted Lands - This activity accounts for contributed funds for land and 

realty actions from non-Federal sources or applicants as agreed to through an established 

contribution agreement. 

• Resource Development, Protection, and Management--FLMPA - According to FLPMA, 

the BLM can accept contributed money or services for resource development, protection, 

and management; conveyance or acquisition of public lands; and conducting cadastral 

surveys. 

• Resource Development, Protection and Management of California Off-Highway 

Vehicles - Includes contributions from the State of California Off-Highway Vehicle license 

(“Green Sticker”) fund. The BLM uses this fund for the development, maintenance, and 

operation of benefiting projects on BLM-administered public lands in California. The BLM 

requests these funds from the State of California each year through a competitive process. 

The amount awarded to the BLM varies each year. 

• Wildlife & Fish Conservation & Rehabilitation--Sikes Act - The Sikes Act authorizes 

State game and fish departments to charge fees for activities such as hunting, fishing, and 

trapping on Federal lands. These funds are shared with the BLM and used by the BLM for 

the conservation, restoration, management and improvement of wildlife species and their 

habitat. 

• Rights-of-Way - This activity accounts for funds contributed by private entities to pay the 

casework costs of processing Rights-of-Way grants requested by them. 

Permanent Appropriations: 

The following funds are permanently available as Permanent Miscellaneous Trust Funds to the 

Secretary of the Interior for efforts as specified by the authorizing Act: 

Appropriation: Miscellaneous Trust Funds

(Current and Permanent)
Bureau of Land Management 2017 Budget Justifications

Chapter XIV – Miscellaneous Trust Funds Page XIV-5

• Taylor Grazing Act Contributions - These contributions are permanently appropriated as 

trust funds to the Secretary for rangeland improvement.

• Public Survey Contributions - These funds are contributions from individuals, companies 

or other users of the public lands, for cadastral survey services provided by the BLM. 

• Trustee Funds, Alaska Townsites - These contributions are provided for the sale of town 

lots to non-Native Alaskans. These trust funds provide for the survey and deed transfer of 

town lots. Purchasers pay the cost of survey and deed transfer plus $25. (Native Alaskans 

are exempt from payment.) Only lots occupied before the passage of FLPMA may be 

deeded to the occupants; all other lots are the property of the municipality. 
Bureau of Land Management 2017 Budget Justifications

Chapter XIV – Miscellaneous Trust Funds Page XIV-6

Budget Schedules

Account Symbol and Title

14X9971

Miscellaneous Trust Funds Line 2015 Act 2016 CY 2017 BY

Program and Financing (P) ($ in Millions)

Obligations by program activity:

 Resource development FLPMA 0001 13 14 14

 Resource development CA OHV 0002 4 4 4

 Resource development Taylor Grazing 0003 1 1 1

 Public Survey 0004 0 0 0

 Sikes Act 0005 0 1 1

Total new obligations 0900 18 20 20

Budgetary resources:

 Unobligated balance:

 Unobligated balance brought forward, Oct 1 1000 53 59 64

 Recoveries of prior year unpaid obligations 1021 1 0 0

 Unobligated balance (total) 1050 54 59 64

 Budget authority:

 Appropriations, mandatory:

 Appropriation (special or trust fund) 1201 23 25 25

 Appropriation (previously unavailable) 1203 0 0 0

 Appropriations and/or unobligated balance of 

appropriations temporarily reduced 1232 0 0 0

 Appropriations, mandatory (total) 1260 23 25 25

 Appropriations, mandatory - Computed Totals 1260-20 23 25 25

 Appropriation [Text] 1260-40 21 25 25

 Baseline Civilian Pay 1260-50 8 8

 Baseline Non-Pay 1260-50 17 17

 Policy Outlays:

 New Authority 1260-61 6 16 16

 Balances (excl of EOY PY Bal) 1260-62 13 0 8

 End of PY Balances 1260-63 8 0 

 Subtotal, outlays 1260-64 19 24 24

 Baseline Outlays:

 New Authority 1260-81 16 16

 Balances (excl of EOY PY Bal) 1260-82 8

 End of PY Balances 1260-83 8 0

 Subtotal, outlays 1260-84 24 24

 Effects of 2014 sequester 1260-40 2 0 0

 Baseline Non-Pay 1260-50 0 0

 Policy Outlays:

 New Authority 1260-61 0 0 0

 Balances (excl of EOY PY Bal) 1260-62 0 0 0

 End of PY Balances 1260-63 0 0 
Bureau of Land Management 2017 Budget Justifications

Chapter XIV – Miscellaneous Trust Funds Page XIV-7

Account Symbol and Title

14X9971

Miscellaneous Trust Funds Line 2015 Act 2016 CY 2017 BY

 Subtotal, outlays 1260-64 0 0 0

 Baseline Outlays:

 New Authority 1260-81 0 0

 Balances (excl of EOY PY Bal) 1260-82 0 0

 End of PY Balances 1260-83 0 0

 Subtotal, outlays 1260-84 0 0

Total budgetary resources available 1930 77 84 89

 Memorandum (non-add) entries:

 Unexpired unobligated balance, end of year 1941 59 64 69

Change in obligated balance:

 Unpaid obligations:

 Unpaid obligations, brought forward, Oct 1 3000 10 8 4

 Obligations incurred, unexpired accounts 3010 18 20 20

 Outlays (gross) 3020 -19 -24 -24

 Recoveries of prior year unpaid obligations, 

unexpired 3040 -1 0 0

 Unpaid obligations, end of year 3050 8 4 0

 Memorandum (non-add) entries:

 Obligated balance, start of year 3100 10 8 4 

 Obligated balance, end of year 3200 8 4 0

Budget authority and outlays, net:

 Mandatory:

 Budget authority, gross 4090 23 25 25

 Outlays, gross:

 Outlays from new mandatory authority 4100 6 16 16

 Outlays from mandatory balances 4101 13 8 8

 Outlays, gross (total) 4110 19 24 24

 Budget authority, net (mandatory) 4160 23 25 25

 Outlays, net (mandatory) 4170 19 24 24

Budget authority, net (total) 4180 23 25 25

Outlays, net (total) 4190 19 24 24

NON-INVESTMENT ACTIVITIES:

 Direct Federal programs:

 Budget Authority 2004-01 23 25 25

 Outlays 2004-02 19 24 24

Object Classification
Bureau of Land Management 2017 Budget Justifications

Chapter XIV – Miscellaneous Trust Funds Page XIV-8

Account Symbol and Title

14X9971

Miscellaneous Trust Funds Line 2015 Act 2016 CY 2017 BY

Direct obligations:

 Personnel compensation:

 Full-time permanent 11.1 4 4 4

 Other than full-time permanent 11.3 1 1 1

 Other personnel compensation 11.5 1 1 1

 Total personnel compensation 11.9 6 6 6

 Civilian personnel benefits 12.1 2 2 2

 Other services from non-Federal sources 25.2 2 3 3

 Other goods and services from Federal sources 25.3 3 3 3

 Supplies and materials 26.0 1 1 1

 Land and structures 32.0 1 2 2

 Grants, subsidies, and contributions 41.0 3 3 3

 Total new obligations 99.9 18 20 20

Employment Summary

Direct civilian full-time equivalent employment 1001 89 93 93

Budget year budgetary resources [014-9971] 1000 22,930
Helium Fund and 

Operations

Bureau of Land Management 2017 Budget Justifications

Chapter XV – Helium Fund Page XV-1

HELIUM FUND AND OPERATIONS

Appropriations Language 

No Appropriations Language

Explanation 

No appropriations language is necessary. The Helium Stewardship Act of 2013, Public Law No. 

113-40, provides the authority and funding for operation of the program. 
Bureau of Land Management 2017 Budget Justifications

Chapter XV – Helium Fund Page XV-2

 FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount

Helium Fund - 46,747 - 26,975 - - - - - - 25,654 - (1,321)

Offsetting Collections - (46,747) - (26,975) - - - - - - (25,654) - 1,321 

Production and Sales 19 43,666 19 23,327 - - - - - 19 20,937 - (2,390)

Transmission & Storage Operations 19 850 19 1,350 - - - - - 19 2,350 - 1,000 

Administrative and Other Expenses 19 2,231 19 2,298 - - - - - 19 2,367 - 69 

Total, Helium 57 46,747 57 26,975 - 57 25,654 - (1,321)

 Program Change Requested Amount 

Summary of Requirements

(dollars in thousands)

2015 Actual 2016 Enacted

 Fixed Costs

2017 President's Budget

 Transfers Change from 2016 
Bureau of Land Management 2017 Budget Justifications

Chapter XV – Helium Fund Page XIII-3

Justification of 2017 Program Changes

The 2017 budget request for the Helium Fund and Operations program is $25,654,000 and 57

FTE, a program decrease of $1,321,000 from the 2016 estimate. The amount of the 2017 

budget request is based on estimated costs of natural gas and liquid gas sales operations of the 

Crude Helium Enrichment Unit, and oversight of helium production on Federal lands. The 

Helium Stewardship Act of 2013 (HSA) required the BLM to hold a sale and auction in 2015 for 

helium that will be delivered in 2016. In 2015, the BLM held one sale, both allocated and nonallocated, and one auction. Due to extended contract negotiations with the Federal Helium

System’s Storage Contract Holders, the BLM received payment in FY 2016 for helium 

purchased in 2015 to be delivered in 2016. 

Program Overview

The Helium Act Amendments of 1960, Public Law 86–777 (50 U.S.C. 167), authorized activities 

necessary to provide sufficient helium to meet the current and foreseeable future needs of 

essential government activities. The Helium Privatization Act of 1996 (HPA), Public Law 104–

273, provided for the eventual privatization of the program and its functions, specifying that once 

the helium debt is retired, the Helium Production Fund would be dissolved. The debt was repaid 

at the beginning of fiscal year 2014. The HSA, Public Law 113-40, provided for continued 

operation of the Helium program while facilitating a gradual exit from the helium market. 

The HSA established the following goals for the BLM’s Helium program: 

• Continued storage and transmission of crude helium; 

• Oversight of the production of helium on Federal lands; and 

• Administration of in-kind and open market crude helium gas sale programs. 

To minimize impacts to the helium market, the HSA provides a "glide path" for ensuring a 

market-based price for the sale of crude helium through an annual auction and crude helium 

sale until the amount in storage reaches 3.0 billion cubic feet of federally owned helium. At that 

point, sales to private industry will cease and the remaining helium will be reserved for Federal 

users until the HSA mandated disposal of the program assets and sunset of the program by

September 30, 2021. 

 

The table below shows actual and estimated revenues for 2014 through 2017. The revenues 

include funds from the sale of crude helium (through sales and auctions, as described above) 

and revenue from in-kind crude helium sales, sales of natural gas and natural gas liquids, and 

royalties from the extraction of helium from Federal lands. Collections in excess of operating 

costs were deposited to a receipt account and are not shown in the Summary of Requirements 

table as revenue. 

Helium Program $ in thousands

2014 Actual 2015 Actual 2016 Estimate 2017 Estimate

Revenues 242,111 181,699 207,297 125,811

Activity: Helium Fund and Operations
Bureau of Land Management 2017 Budget Justifications

Chapter XV – Helium Fund Page XIII-4

The BLM Helium Program is currently responsible for the following operational activities:

• Storing and transmitting Federal and private crude helium via the helium storage system;

• Administering the helium fee and royalty contracts for helium extracted from gas 

produced on Federal lands;

• Administering the in-kind and open market crude helium gas sale program; and

• Conducting helium resource evaluation and reserve tracking to determine the extent of 

helium resources.

The helium storage system ensures that excess helium produced from natural gas processing 

plants connected to the pipeline network is conserved for future use. Federally owned natural 

gas containing marketable helium reserves will be identified and contracted for sale or royalty to 

enhance conservation of crude helium already in storage.

Funding History

The income derived from crude helium sales, private helium storage, and fee sales/royalty 

payments for helium extracted from Federal lands pays the full cost of the Helium Program, 

pursuant to the HSA. 

Funds generated from the sale of helium were used to repay the Helium Debt. The Helium Debt 

was retired at the beginning of FY 2014. 

2017 Program Performance

The amount of the budget request is based on estimated costs of natural gas and liquid gas 

sales operations of the Crude Helium Enrichment Unit, and oversight of helium production on 

Federal lands. The income derived from crude helium sales, from private helium storage, and 

from fee sales/royalty payments for helium extracted from Federal lands will continue to pay for 

the full costs of the program.

Helium Fund- Revenues from the sale or auction of helium, as well as royalties from helium 

extraction on Federal lands and sales of natural gas and naturals liquids byproducts from helium 

enrichment are deposited in the Helium Fund. In 2015, approximately $182 million in revenues 

was deposited in the Helium Fund. Revenue from the 2015 sale and auction was received in 

early FY 2016 and is included in the FY 2016 revenue estimate.
Bureau of Land Management 2017 Budget Justifications

Chapter XV – Helium Fund Page XV-5

Budget Schedules

Account Symbol and Title

14X4053

Helium Fund Line 2015 Act 2016 CY 2017 BY

Program and Financing (P) ($ in Millions)

Obligations by program activity:

 Production and sales 0801 7 20 20

 Transmission and storage 0802 3 2 2

 Administration and other expenses 0803 3 2 3

Total new obligations 0900 13 24 25

Budgetary resources:

 Unobligated balance:

 Unobligated balance brought forward, Oct 1 1000 216 148 27

 Recoveries of prior year unpaid obligations 1021 1 0 0

 Capital transfer of unobligated balances to general 

fund 1022 -100 -124 0

 Unobligated balances applied to repay debt 1023 0 0 0

 Unobligated balance (total) 1050 117 24 27

 Budget authority:

 Appropriations, mandatory:

 Appropriations and/or unobligated balance of 

appropriations permanently reduced 1230 0 0 0 

 Appropriations, mandatory (total) 1260 0 0 0

 Spending authority from offsetting collections, 

discretionary:

 Offsetting collections (previously unavailable) 1702 0 0 0

 Spending auth from offsetting collections, disc 

(total) 1750 0 0 0

 Spending authority from offsetting collections, 

mandatory:

 Collected 1800 47 25 25

 Offsetting collections (previously unavailable) 1802 0 3 1

 Capital transfer of spending authority from 

offsetting collections to general fund 1820 0 0 0

 New and/or unobligated balance of spending 

authority from offsetting collections temporarily 

reduced 1823 -3 -1 0

 Spending auth from offsetting collections, mand 

(total) 1850 44 27 26

 Spending auth from offsetting collections, mand - 

Computed Totals 1850-20 44 27 26

 Spending authority from offsetting collections 

[Text] 1850-40 44 24 25

 Baseline Program [Text] 1850-50 24 25
Bureau of Land Management 2017 Budget Justifications

Chapter XV – Helium Fund Page XV-6

Account Symbol and Title

14X4053

Helium Fund Line 2015 Act 2016 CY 2017 BY

 Policy Outlays:

 New Authority 1850-61 9 4 4

 Balances (excl of EOY PY Bal) 1850-62 7 20

 End of PY Balances 1850-63 20 0

 Subtotal, outlays 1850-64 16 24 24

 Baseline Outlays:

 New Authority 1850-81 4 4

 Balances (excl of EOY PY Bal) 1850-82 20

 End of PY Balances 1850-83 20 0

 Subtotal, outlays 1850-84 24 24

 Spending authority from offsetting collections 

[Text] 1850-40 0 3 1

 Spending authority from offsetting collections 

[Text] 1850-50 3 1

 Policy Outlays:

 New Authority 1850-61 0 3 1

 Balances (excl of EOY PY Bal) 1850-62 0 0 

 End of PY Balances 1850-63 0 0

 Subtotal, outlays 1850-64 0 3 1

 Baseline Outlays:

 New Authority 1850-81 3 1 

 Balances (excl of EOY PY Bal) 1850-82 0 0

 End of PY Balances 1850-83 0 0

 Subtotal, outlays 1850-84 3 1

 Budget authority (total) 1900 44 27 26

Total budgetary resources available 1930 161 51 53

 Memorandum (non-add) entries:

 Unexpired unobligated balance, end of year 1941 148 27 28

Change in obligated balance:

 Unpaid obligations:

 Unpaid obligations, brought forward, Oct 1 3000 14 10 7 

 Obligations incurred, unexpired accounts 3010 13 24 25

 Outlays (gross) 3020 -16 -27 -25

 Recoveries of prior year unpaid obligations, 

unexpired 3040 -1 0 0

 Unpaid obligations, end of year 3050 10 7 7

 Memorandum (non-add) entries:

 Obligated balance, start of year 3100 14 10 7

 Obligated balance, end of year 3200 10 7 7

Budget authority and outlays, net:

 Mandatory:

 Budget authority, gross 4090 44 27 26
Bureau of Land Management 2017 Budget Justifications

Chapter XV – Helium Fund Page XV-7

Account Symbol and Title

14X4053

Helium Fund Line 2015 Act 2016 CY 2017 BY

 Outlays, gross:

 Outlays from new mandatory authority 4100 9 7 5

 Outlays from mandatory balances 4101 7 20 20

 Outlays, gross (total) 4110 16 27 25

 Offsets against gross budget authority and outlays:

 Offsetting collections (collected) from:

 Non-Federal sources 4123 -47 -25 -25

 Non-Federal sources (total) 4123-10 -47 -25 -25

 Policy Program [Text] 4123-41 -47 -25 -25

 Baseline Program [Text] 4123-71 -25 -25

 Budget authority, net (mandatory) 4160 -3 2 1

 Outlays, net (mandatory) 4170 -31 2 0

Budget authority, net (total) 4180 -3 2 1

Outlays, net (total) 4190 -31 2 0

Memorandum (non-add) entries:

 Unexpired unavailable balance, SOY: Offsetting 

collections 5090 0 3 1

 Unexpired unavailable balance, EOY: Offsetting 

collections 5092 3 1 0

 Unexpired unavailable balance, SOY: Appropriations 5096 0 0 0

 Unexpired unavailable balance, EOY: Appropriations 5098 0 0 0

INVESTMENT ACTIVITIES:

 Physical assets:

 Major equipment:

 Other physical assets:

 Direct Federal programs:

 Budget Authority 1352-01 -3 2 1

 Outlays 1352-02 -31 2 0 

Balance Sheet

ASSETS:

 Federal assets:

 Fund balances with Treasury 1101 230

 Other Federal assets:

 Inventories and related properties 1802 95

 Property, plant and equipment, net 1803 9 

 Other assets 1901 179

 Total assets 1999 513

LIABILITIES:

 Federal liabilities:

 Debt 2103 0

 Other 2105 289

 Total liabilities 2999 289
Bureau of Land Management 2017 Budget Justifications

Chapter XV – Helium Fund Page XV-8

Account Symbol and Title

14X4053

Helium Fund Line 2015 Act 2016 CY 2017 BY

NET POSITION:

 Cumulative results of operations 3300 224

 Total liabilities and net position 4999 513

Object Classification

Reimbursable obligations:

 Personnel compensation:

 Full-time permanent 11.1 4 5 5

 Civilian personnel benefits 12.1 1 1 1

 Communications, utilities, and miscellaneous 

charges 23.3 3 4 4

 Other services from non-Federal sources 25.2 4 6 7

 Supplies and materials 26.0 1 2 2

 Equipment 31.0 0 1 1

 Grants, subsidies, and contributions 41.0 0 5 5

 Total new obligations 99.9 13 24 25

Employment Summary

Reimbursable civilian full-time equivalent employment 2001 57 57 57
Abandoned Wells 

Remediation Fund

Bureau of Land Management 2017 Budget Justifications

Chapter XVI – Abandoned Wells Remediation Fund Page XVI-1

ABANDONED WELLS REMEDIATION 

FUND

Appropriations Language

(b) ABANDONED WELL REMEDIATION.—Section 349 of the Energy Policy Act of 2005 (42 U.S.C. 

15907) is amended by adding at the end the following:

‘‘(i) FEDERALLY DRILLED WELLS.—Out of any amounts in the Treasury not otherwise appropriated, 

$10,000,000 for fiscal year 2014, $36,000,000 for fiscal year 2015, and $4,000,000 for fiscal year 2019 

shall be made available to the Secretary, without further appropriation and to remain available until 

expended, to remediate, reclaim, and close abandoned oil and gas wells on current or former National 

Petroleum Reserve land.’’.

Appropriations Language Citations and Authorizations

Public Law 113-40, Helium 

Stewardship Act of 2013

Provides funding to remediate, reclaim and close abandoned oil and 

gas wells on current and former National Petroleum Reserve Land. 
Bureau of Land Management 2017 Budget Justifications

Chapter XVI – Abandoned Wells Remediation Fund Page XVI-2

 FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount FTE Amount

Abandoned Wells Remediation 2 33,372 2 - - - - - - 2 - - - 

Note: The 2015 actual amount reflects sequester in 2015

2015 Actual 2016 Enacted Program Change Requested Amount 

 Fixed Costs

2017 President's Budget

 Transfers Change from 2016 

Summary of Requirements

(dollars in thousands)
Bureau of Land Management 2017 Budget Justifications

Chapter XVI – Abandoned Well Remediation Fund Page XVI-3

Program Overview

This permanent appropriation was enacted in the Helium Stewardship Act of 2013. 

Program Components

The BLM is responsible for managing 136 wells within the 22.8 million acre National Petroleum 

Reserve in Alaska (NPR-A). All well sites have been thoroughly reviewed and grouped into 

three categories:

Wells Requiring No Additional BLM Action 71

Wells Currently In Use By USGS 18

Wells Currently Requiring BLM Action 47

18 of the 47 wells requiring BLM action will be remediated under current task orders and 

requests for proposals. The wells requiring no additional action include those wells that have 

previously been remediated by the BLM or other Federal agencies, those conveyed to the North 

Slope Borough under the Barrow Gas Field Transfer Act of 1984 (P.L. 98-366), and shallow test 

boreholes that present no subsurface or surface risks. The wells currently being used by the 

U.S. Geological Survey (USGS) are part of climate change monitoring studies, and the BLM will 

work with the USGS to establish a plan for the eventual disposition and remediation of these 

wells when they are no longer necessary for research.

There were 50 wells analyzed based on details from the 2013 Legacy Wells Summary Report 

(released May 2013) and put into an action plan within the 2013 Legacy Wells Strategic Plan 

(released September 2013), of which 3 have since been remediated. The 50 wells accounted 

for the potential surface and subsurface risks posed to human health, safety, and the 

environment. The plan presents a near-term strategy for addressing the highest priority wells. 

The strategy is dynamic and flexible, meaning that the order of remediation work will be 

adjusted as site conditions change and additional information becomes available.

Critical Factors

• The BLM will use an adaptive management approach and adjust to the dynamic 

situation on the ground in the NPR-A by continuing to conduct risk evaluations, monitor 

changing site conditions, evaluate strategic plan effectiveness, and develop new or 

updated actions if necessary to remediate legacy well sites.

• The BLM will continue to work with stakeholders, such as the North Slope Borough 

(NSB) and the Arctic Slope Regional Corporation, to coordinate well plugging and cleanup activities, determine future prioritization, and assure cost effective closure of legacy 

well sites. The BLM will coordinate with Barrow Gas Field staff and the Alaska Oil and 

Gas Conservation Commission (AOGCC) on technical concerns for each well, and with 

the NSB to identify research opportunities in the Simpson Peninsula. The BLM will 

coordinate any contaminant investigation of a potential release with the Alaska 

Department of Environmental Conservation (ADEC) and appropriate stakeholders. 

Activity: Abandoned Wells Remediation Fund
Bureau of Land Management 2017 Budget Justifications

Chapter XVI – Abandoned Well Remediation Fund Page XVI-4

2017 Program Performance 

The September 2013 passage of the Helium Stewardship Act of 2013 (Helium Act) included a 

provision to fund BLM’s legacy well cleanup efforts with $50 million dollars over fiscal years 

2014 to 2019. The BLM continues to follow the path outlined in the 2013 Legacy Wells 

Strategic Plan for the duration of available funding from this Abandoned Well Remediation 

Fund.

In fiscal year 2015, approximately $10 million dollars of this allocation was spent remediating 

three wells at Umiat, and conducting surface clean-up of three wells on the Simpson Peninsula. 

Because the wells at Umiat are complete, the BLM plans to continue work in two separate 

geographic areas; Barrow and the Simpson Peninsula in 2016. 

On December 4, 2015, the BLM awarded contracts to two Alaska Native-owned businesses for 

remediation of legacy wells in the NPR-A. The Indefinite Delivery Indefinite Quantity (IDIQ) 

contracts will enable the two companies to compete for individual task orders for the efficient 

cleanup of priority legacy well sites. The contracts will use the remaining $40 million allocated 

under the Helium Act. With this IDIQ, BLM will be able to expeditiously award individual task 

orders and reduce overall costs.

The first task order was awarded to Marsh Creek, LLC, to complete the remediation of four 

legacy wells near Barrow, Alaska. The legacy wells are: Avak #1, Barrow Core Rig Test #2, Iko 

Bay #1, and South Barrow #3. On-site work is expected to begin the end of January or 

beginning of February 2016, depending on weather conditions. 

The BLM has also issued 2 requests for proposals (RFPs); the first to perform various levels of 

remediation of 11 wells in the vicinity of Cape Simpson. The legacy wells are: Simpson Core 

Tests #13, #14, #14A, #15, #26, #27, #28, #29, #30, #30A, and #31. Proposals were received 

on January 13, 2016. The second RFP addresses the 3 remaining wells in Barrow and 

includes: Arcon Barrow Core Test #1, South Barrow #1, and South Barrow #2. 

The BLM will review contractor bids for these proposals in January and February 2016. If the 

proposals allow BLM to fund the remediation of the 18 wells identified in the task orders, there 

will be 29 remaining wells identified in the 2013 Legacy Wells Strategic Plan that will still require 

remediation. 

The 2017 budget request for BLM’s Oil and Gas Management program includes a $2.8 million 

increase for addressing Alaska legacy wells that will supplement permanent funds provided in 

the Helium Stewardship Act.
Bureau of Land Management 2017 Budget Justifications

Chapter XVI – Abandoned Well Remediation Fund Page XVI-5

Budget Schedules

Account Symbol and Title

14X2640

Abandoned Well Remediation Fund Line 2015 Act 2016 CY 2017 BY

Program and Financing (P) ($ in Millions)

Obligations by program activity:

 Abandoned Well Remediation Fund (Direct) 0001 9 15 10

Total new obligations (object class 25.2) 0900 9 15 10

Budgetary resources:

 Unobligated balance:

 Unobligated balance brought forward, Oct 1 1000 10 34 19

 Budget authority:

 Appropriations, mandatory:

 Appropriation 1200 36 0 0

 Appropriations and/or unobligated balance of 

appropriations permanently reduced 1230 -3 0 0

 Appropriations, mandatory (total) 1260 33 0 0

 Appropriations, mandatory - Computed Totals 1260-20 33 0 0

 Appropriation [Abandoned well remediation fund] 1260-40 33 0 0

 Baseline Civilian Pay 1260-50 0 0

 Baseline Non-Pay 1260-50 0 0

 Policy Outlays:

 New Authority 1260-61 0 0 0

 Balances (excl of EOY PY Bal) 1260-62 8 0 0

 End of PY Balances 1260-63 8 8

 Subtotal, outlays 1260-64 8 8 8

 Baseline Outlays:

 New Authority 1260-81 0 0

 Balances (excl of EOY PY Bal) 1260-82 0

 End of PY Balances 1260-83 8 8

 Subtotal, outlays 1260-84 8 8

Total budgetary resources available 1930 43 34 19

 Memorandum (non-add) entries:

 Unexpired unobligated balance, end of year 1941 34 19 9

Change in obligated balance:

 Unpaid obligations:

 Unpaid obligations, brought forward, Oct 1 3000 0 1 8

 Obligations incurred, unexpired accounts 3010 9 15 10

 Outlays (gross) 3020 -8 -8 -8

 Unpaid obligations, end of year 3050 1 8 10
Bureau of Land Management 2017 Budget Justifications

Chapter XVI – Abandoned Well Remediation Fund Page XVI-6

Account Symbol and Title

14X2640

Abandoned Well Remediation Fund Line 2015 Act 2016 CY 2017 BY

 Memorandum (non-add) entries:

 Obligated balance, start of year 3100 0 1 8

 Obligated balance, end of year 3200 1 8 10

Budget authority and outlays, net:

 Mandatory:

 Budget authority, gross 4090 33 0 0

 Outlays, gross:

 Outlays from mandatory balances 4101 8 8 8

 Budget authority, net (mandatory) 4160 33 0 0

 Outlays, net (mandatory) 4170 8 8 8

Budget authority, net (total) 4180 33 0 0

Outlays, net (total) 4190 8 8 8

INVESTMENT ACTIVITIES:

 Physical assets:

 Construction and rehabilitation:

 Research and development facilities:

 Direct Federal Programs:

 Budget Authority 1312-01 33 0 0

 Outlays 1312-02 8 8 8

Object Classification

Direct obligations:

 Other services from non-Federal sources 25.2 9 15 10

Employment Summary

Direct civilian full-time equivalent employment 1001 2 2 2
Administrative 

Provisions

Bureau of Land Management 2017 Budget Justifications

Chapter XVII – Administrative Provisions Page XVII-1

ADMINISTRATIVE PROVISIONS

Appropriations Language 

The Bureau of Land Management may carry out the operations funded under this Act by direct 

expenditure, contracts, grants, cooperative agreements and reimbursable agreements with 

public and private entities, including with States. Appropriations for the Bureau shall be available 

for purchase, erection, and dismantlement of temporary structures, and alteration and 

maintenance of necessary buildings and appurtenant facilities to which the United States has 

title; up to $100,000 for payments, at the discretion of the Secretary, for information or evidence 

concerning violations of laws administered by the Bureau; miscellaneous and emergency 

expenses of enforcement activities authorized or approved by the Secretary and to be 

accounted for solely on the Secretary's certificate, not to exceed $10,000: Provided, That 

notwithstanding Public Law 90–620 (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: Provided further, That projects to be funded 

pursuant to a written commitment by a State government to provide an identified amount of 

money in support of the project may be carried out by the Bureau on a reimbursable basis. 

Appropriations herein made shall not be available for the destruction of healthy, unadopted, wild 

horses and burros in the care of the Bureau or its contractors or for the sale of wild horses and 

burros that results in their destruction for processing into commercial products. (Department of 

the Interior, Environment, and Related Agencies Appropriations Act, 2016.)

Appropriation Language Citations 

44 U.S.C. 501 provides that all executive, congressional, and judicial printing must be done at 

the GPO, except for printing in field plants operated by executive departments or independent

offices if approved by the Joint Committee on Printing.
Bureau of Land Management 2017 Budget Justifications

Chapter XVII – Administrative Provisions Page XVII-2

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Appendices

Bureau of Land Management 2017 Budget Justifications

Chapter XVIII – Appendices Page XVIII-1

EMPLOYEE COUNT BY GRADE

Prior Year 

Actuals 

(2015)

Current Year 

Estimate 

(2016)

Budget Year 

Estimate 

(2017)

 Executive Level V ............................................. 1 1 1

 SES ................................................................ 18 18 18

Subtotal ........................................... 19 19 19

SL - 00 ............................................................. 0 0 0

ST - 00 ............................................................. 0 0 0

Subtotal ........................................... 0 0 0

 GS/GM -15 ....................................................... 92 92 92

 GS/GM -14 ....................................................... 341 352 363

 GS/GM -13 ....................................................... 922 927 934

 GS -12 ............................................................. 1,516 1,527 1,538

 GS -11 ............................................................. 2,512 2,519 2,526

 GS -10 ............................................................. 59 59 59

 GS - 9 ............................................................. 1,087 1,099 1,106

 GS - 8 ............................................................. 245 246 247

 GS - 7 ............................................................. 1,074 1,074 1,074 

 GS - 6 ............................................................. 511 511 511

 GS - 5 ............................................................. 562 562 562

 GS - 4 ............................................................. 432 432 432

 GS - 3 ............................................................. 266 266 266

 GS - 2 ............................................................. 34 34 34

 GS - 1 ............................................................. 0 0 0

Subtotal ........................................... 9,653 9,700 9,744

 Other Pay Schedule Systems ............................... 475 477 481

 Total employment (actuals & estimates) ............... 10,147 10,196 10,244

* Number of actual employees, whether employees are full or part-time.

 Total FTE usage (actual & projected) .................. 9,451 9,641 9,727

Employee Count by Grade

(Total Employment)
Bureau of Land Management 2017 Budget Justifications

Chapter XVIII – Appendices Page XVIII-2

TABLE OF ORGANIZATION